Implementing IT Enterprise Architecture to Improve the Provision of

IT Resources for Public Sector

Karoll Haüssler Carneiro Ramos

1,2 a

, Andressa de Souza Cardozo

, Tiago Ianuck Chaves

Bruno de Jesus Viana

and Jackson Pertusatti

Center for Advanced Multidisciplinary Studies, University of Brasilia, Campus Darcy Ribeiro, Brasilia, Brazil

Explain 360, SAUS Quadra 03 Bloco C Sala 202, Brasilia, Brazil

Keywords: Enterprise Architecture, Enterprise Architecture Implementation, Portfolio of Digital Products, TechMap.

Abstract: This research explores the implementation of IT Enterprise Architecture (ITEA) within a Brazilian public

administration office, focusing on enhancing the provision of IT resources and services. Utilising the Action

Research methodology, the study developed and implemented an ITEA framework and platform tailored to

the specific needs of an IT organisation managing shared services across multiple federated agencies. The

findings highlight the potential of ITEA to systematically integrate and optimise organisational processes,

improve collaboration, and enhance information flow. Despite the benefits, challenges such as the traceability

of business and IT alignment and a significant skills gap among IT professionals were identified. The study

underscores the need for competency development programmes and a review of recruitment and training

policies to ensure the sustainability and effectiveness of EA practices in the public sector.

1 INTRODUCTION

Enterprise architecture (EA) has been adopted by

governments worldwide as a solution to systems

integration, interoperability and innovation

challenges (Afarani and Hindarto, 2023; Ramos, de

Sousa and Rosa, 2019). Despite the importance of

Enterprise Architecture (EA) in the public sector,

there is a scarcity of studies that identify and evaluate

the factors influencing its implementation across

various organisational and sectoral contexts. Each

study tackles this issue from different angles,

including human, technological, and organisational

factors (Afarani and Hindarto, 2023; Sharma and

Mehra, 2021; Chitsa and Iyamu, 2020; Mokone et al,

2019; Sallehudin et al., 2019; Bakar and Hussien,

2018; Mdima et al, 2017). Moreover, research

focusing on the development of new technologies for

the execution of EA is considerably more challenging

a https://orcid.org/0000-0003-0475-5366

b https://orcid.org/0009-0008-6222-5164

c https://orcid.org/0009-0005-7273-9108

d https://orcid.org/0009-0001-1068-3672

e https://orcid.org/0009-0002-7236-253X

to find in public sector (Windolph et al., 2023; Mdima

et al, 2017).

In the Brazilian public sector, the primary obstacles

to the implementation of EA include issues related to

data and information management, difficulties in

fundamental decision-making processes, challenges in

distinguishing between important and urgent tasks,

problems in promoting interoperability, difficulties in

engaging with society, and a lack of support from top

management, among other factors (Ramos, Oliveira,

França and Montezano, 2019). Generally, EA in Brazil

remains in its nascent phase, as indicated by the

NASCIO maturity scale (Ramos, França, Oliveira and

da Silva, 2019). The most recent initiative to define an

EA framework in the Brazilian public sector, known as

FACIN (Nunes, Cappelli and Costa, 2017), was

discontinued due to a lack of sponsorship from the

Brazilian public administration. It is important to note

that this research was unrelated to the FACIN project.

Furthermore, the FACIN project only implemented

Ramos, K. H. C., Cardozo, A. S., Chaves, T. I., Viana, B. J. and Pertusatti, J.

Implementing IT Enterprise Architecture to Improve the Provision of IT Resources for Public Sector.

DOI: 10.5220/0013204500003929

Paper published under CC license (CC BY-NC-ND 4.0)

In Proceedings of the 27th International Conference on Enterprise Information Systems (ICEIS 2025) - Volume 2, pages 821-828

ISBN: 978-989-758-749-8; ISSN: 2184-4992

821

generic reference models without any technological

development.

However, on 21 December 2023, the federal

public administration of Brazil initiated a new model

for sharing services among offices and their federated

agencies. The objective of this initiative is to promote

cooperation, integration, and the sharing of data,

solutions, and technologies to enhance the

governance and management of public services

(Brazil, 2023). Given this complexity, EA was

identified as the optimal solution to optimize the

management of this collaborative arrangement

(Afarini and Hindarto, 2023).

The research question thus arises: How can the

implementation of Enterprise Architecture optimize

the management of this new model for sharing

services, with the aim of improving cooperation,

integration, and the sharing of data, solutions, and

technologies within the federal public administration

of Brazil?

This article aims to describe an implementation of

IT enterprise architecture (ITEA) in a Brazilian public

administration office, an IT organization. It utilizes

EA structures to design business elements, ensuring

integration and modeling, and serves as a guide to

structuring information and enhancing user interface

and experience through implementation, considering

stakeholders' perceived value.

2 THEORETICAL

BACKGROUNDS

This section introduces the key concepts guiding this

research. Our objective is to elucidate the primary

tools necessary for the implementation of IT

Enterprise Architecture.

2.1 Enterprise Architecture

Implementation

The implementation of Enterprise Architecture (EA)

in the public sector underscores the significance of

appropriate frameworks and human factors.

Sallehudin et al. (2019) emphases the necessity of

aligning technology, organisation, and people to

achieve success. They argue that integrating these

elements is crucial for overcoming the challenges

inherent in the complexity of governmental structures

and ensuring the effectiveness of information

systems. Afarini and Hindarto (2023) proposed the

implementation of EA in e-Government development

and services, highlighting the importance of robust

strategic planning and the selection of suitable

frameworks. These authors suggest that adopting EA

can enhance the efficiency and transparency of public

services, facilitating interoperability between

different departments and systems.

Furthermore, Bakar and Hussien (2018) and

Sharma and Mehra (2021) highlight the influence of

human factors on the success of EA implementation.

Bakar and Hussien (2018) associate the success of EA

with employee training and engagement, while

Sharma and Mehra (2021 identify critical factors such

as leadership, organisational culture, and technical

competencies. These studies suggest that, in addition

to a solid technical structure, it is essential to consider

human and cultural aspects to ensure the adoption and

sustainability of EA in the public sector. Mokone et

al. (2019) complement this view by developing a

decision support process for selecting an optimal EA

framework for e-Government implementation,

emphasising the need for well-defined criteria in

choosing the most suitable framework.

Ivas (2023) notes that in many organisations, EA

still struggles to be recognised and valued by business

leaders. In practice, the legitimate role of EA in

strategic decision-making is often limited to

providing advice on the opportunities and limitations

of new technologies. Since this aligns only with

traditional EA, the discipline is seen as IT-specific

support, something that can be easily dispensed with.

Consequently, EA rarely participates in strategy

formulation and is generally involved only in

implementation.

2.2 Enterprise Architecture

Framework

Enterprise architecture (EA) is a set of fundamental

descriptive representations to define an organization

(Zachman, 1987). These representations highlight the

aspects necessary for the management and

maintenance of the enterprise. EA is a discipline

aimed at mapping and documenting the structure,

processes, information, and technologies of an

organization, allowing the alignment of strategic

objectives with practical implementation and offering

a holistic and integrated view of the enterprise.

To develop EA, it is necessary to define a

framework that consolidates one or more structures

serving as a basis to create a wide range of distinct

architectures (Zachman, 1987). An enterprise archite-

cture framework also aims to enhance the strategic

alignment of a complex organization, facilitating both

the creation and execution of strategy through the

adoption of an integrated architecture (Ivas, 2023).

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2.3 Enterprise Architecture Platform

An Enterprise Architecture (EA) platform is an

integrated solution that helps organizations visualize,

plan, and manage their structures and business

processes. It is designed to support the deployment

and execution of intelligent services in a specific

context (Windolph et al., 2023). Windolph et al.

(2023) developed their platform based on five

functional layers: edge layer, integration layer, data

layer, analysis layer, and intelligent service layer.

This platform aims to acquire and integrate data,

process and analyze it to derive meaningful insights,

which form the basis for intelligent business process

management system (BPMS) services.

In their study, Mdima et al. (2017) proposed a

conceptual framework for the pre-implementation

assessment of ERP systems within the context of EA

in Tanzanian organisations. Their research highlights

the importance of evaluating technological readiness

and aligning ERP systems with organisational goals

to enhance productivity and efficiency.

There are also off-the-shelf systems for EA

modeling, such as Archi and the market leaders SAP

LeanIX, Orbus Software, Ardoq, Mega, Capsifi,

Bizzdesign, BOC Group, Software AG, Avolution

and QualiWare (Frangou et al, 2024).

To enhance this research, a framework and an EA

platform were developed. This development and

implementation tailored to the specific needs of an IT

organisation can significantly enhance decision-

making processes.

3 METHOD

This research spanned thirteen months, from

September 2023 to October 2024. It was conducted

within an IT organisation, of the Brazilian

government, whose mission is to provide IT services

and resources to twelve other agencies. This

ecosystem operates as a federated service delivery

model, aiming to offer organised and standardised

administrative and IT support services to reduce costs

and ensure consistent standards and quality across

these agencies (Amaral, 2024). Initially, this IT

organisation provided services solely to its parent

agency, but following the creation of federated

agencies, demand rapidly increased. This

necessitated the management of IT asset inventory

and integrations, as well as the implementation of a

tool for capacity and IT infrastructure management.

Figure 1: Brazilian public sector IT organisation and

federated agencies.

To achieve the research objective, the Action

Research (AR) methodology was selected, as it aligns

well with this article and can be utilised to manage

workflow and processes for various organisational

activities (Ali, Edghiem and Alkhalifah, 2023).

Consequently, five AR stages were employed: 1)

diagnosing the problem through identification and

definition; 2) planning the action by proposing

methods and processes to solve the problem; 3) taking

action by implementing practical measures; 4)

evaluating performance; and 5) learning lessons to

define new methods and improvement steps (Evered

and Susman, 1978).

For diagnosis, context studies were conducted

using semi-structured Voice of the Client (VoC)

interviews with eleven IT executives from federated

agencies. The interview protocol was developed with

a header and questions aligned with a qualitative

research plan, following the guidelines of Sweetman

et al. (2010). The questions included:

▪ What services are utilised by the IT

organisation? How do you request them?

▪ What IT services does your agency plan to

acquire from the IT organisation?

▪ Whom do you contact in case of

doubts/problems with these services? How do

you request support?

▪ What is the IT organisation not doing well?

▪ What is the IT organisation doing well?

▪ What is the IT organisation not doing but

should be doing?

▪ What is the IT organisation doing but should

not be doing?

▪ On a scale of 1 to 5, how satisfied are you with

the services provided by the IT organisation?

The analysis was conducted identifying "core

meanings" in the responses, grouping themes that

allow the definition of categories (Bardin, 2011).

For planning, the components of the EA

framework and its integrations were defined, serving

Implementing IT Enterprise Architecture to Improve the Provision of IT Resources for Public Sector

823

as a roadmap for the development phase. During the

action phase, the ITEA platform was developed based

on upstream and downstream development, featuring

five application programming interfaces (APIs): IT

strategic management, unified projects, portfolio of

digital solutions, process management, and the ITEA

framework. This paper emphasises the portfolio of

digital solutions as it forms the core of the ITEA.

For evaluation, weekly sprints were defined for

the upstream and downstream phases. Additionally,

quality tests and validation meetings were conducted

for all APIs. For lessons learned, weekly meetings

were held where the project's client monitored the

project's progress and removed impediments.

4 EXPERIMENTAL RESULTS OF

IT ENTERPRISE

ARCHITECTURE

This section presents the research results, including

the implementation strategies, ITEA framework, the

ITEA platform and a portfolio of digital solutions.

4.1 Implementation Strategies

Before the implementation of technologies

supporting ITEA, a survey was conducted with

stakeholders of Federated agencies to identify issues

in the delivery of IT organization services. This

qualitative research followed the Voice of Client

(VoC) structure and was applied in twelve agencies.

The results indicated that the IT organization should

be proactive regarding the performance of developed

solutions, IT infrastructure, and the continuity of

ITEA. In addition to providing insights for the

construction of ITEA, this survey contributed to the

development of the IT strategy by guiding the

provision of better services.

One of the concerns from both the Federated

agencies and the IT organization's board was the

continuity of ITEA. To address this, the operation and

monitoring process was defined. The process begins

with demand management, where the need for

technological development must be modeled using

Techmap pattern. This serves as a pre-specification

for analysis by the IT governance instance. Following

the IT governance deliberation, the demand is

directed to development, initiating the roadmap

construction, which already considers integration

between areas (layers) and organizational impacts. It

is noteworthy that during the development period,

TechMap is not counted in the Portfolio, only when it

is in production.

To monitor ITEA, two dashboards were

implemented: one to verify the architecture data

registered in the Portfolio and another for real-time

performance of digital solutions.

4.2 The ITEA Framework

The proposed ITEA framework is the reference

model (rules, layers, artefacts, and buses) for the

development of the platform and its digital portfolio.

This information was shared in a collaborative,

traceable, and versionable manner. When fully

implemented, this practice eliminates dependencies

on external software for data display and task

performance, maintaining coherent and centralized

information.

Preliminary studies involved defining the

Metamodel IT Enterprise Architecture, which serves

as a reference to guide the development of TechMap

and the preparation of the IT Enterprise Architecture

Platform. This vision is structured as follows:

▪ Definition of the IT Enterprise Architecture

Framework;

▪ Detailed Metamodel Enterprise IT Architecture

Reference.

The fundamental principles of this IT Corporate

Architecture Framework can be summarized as

follows (Figure 2):

▪ Layers: This structure provides a common

foundation for the enterprise architecture

information, encompassing the business

perspective of federated agencies. The layers

framework enables transparent information

sharing across the entire federated agencies.

Each layer contains specific artifacts and can be

further decomposed into sublayers.

▪ Buses: They introduce two cross-cutting

perspectives to the twelve-layer architecture,

ensuring integration and alignment. These

perspectives are: i) Information/Indicators

based on indicators that measure the

performance of the architecture layers,

resulting in a performance system; ii) Best

Practices, Standards, and References: Provides

methodological guides that direct all layers.

These two aspects ensure that the enterprise

architecture is coherent and efficient, promoting

methodological alignment across all layers and

providing an integrated view of the ecosystem.

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Figure 2: Preliminary Framework for IT Enterprise

Architecture.

The layers of the IT Enterprise Architecture

Framework guided the structuring of TechMap and

the Library (details on TechMap in subsection 4.3.2):

▪ TechMap: Provides a modeling standard that

uses visual artifacts to support the EA of a

digital solution. These artifacts, referred to as

data architecture, are assets or building blocks

of EA layers.

▪ Library: Acts as a repository of artifacts,

deliverables and building blocks from the

architecture layers, allowing for maintenance

close to the respective sources of information.

The goal is to mitigate redundancies and

duplication of data entry.

Together, TechMap and Library constitute the

foundation of the Portfolio of Digital Solution, the

main module of the ITEA platform.

It's important to highlight that these layers

promote the alignment of IT with Business.

Specifically, where the "relationships" are revealed, it

shows the information flow between the IT

organization and the offices. Additionally, domains

were defined for grouping the layers. These domains

outline the types of architecture: governance

architecture; business architecture, divided into

process and project architecture, service architecture

and digital solution architecture; and technological

architecture, divided into data architecture and IT

infrastructure architecture.

Based on it, a data model for the development of

the IT enterprise architecture platform is defined.

4.3 The ITEA Platform

Federated agencies comprise approximately 222

digital solutions, including application programming

interface (APIs), apps (applications), portals, data

Figure 3: Framework for IT Enterprise Architecture.

warehouses, dashboards, and systems. These

solutions are the responsibility of their respective

offices, but they are supported by the IT organization.

To ensure effective management, the creation of the

ITEA platform was necessary. This environment was

developed using the SharePoint platform, in

conjunction with Power Apps and Power BI,

empower each employee to directly input their data,

goals, and progress. Furthermore, these tools support

version control of changes and results, offering a clear

and organised view of data evolution over time,

thereby ensuring transparency and accountability.

The key aspect is that the platform integrates and

manages the architecture data from the corporate

architecture framework. The following modules were

developed:

▪ ITEA Framework: Records architecture

standards and rules;

▪ Integrated IT Strategy: Defines objectives,

goals, key performance indicators, and

initiatives for the Federated agencies and IT

organization management;

▪ Unified Projects: Gathers all performance

projects. Beyond strategy in the Brazilian

public sector, this includes various project

sources. It incorporates TechMap for new

projects, a step for EA operations;

▪ Process Management: Shows the added value

chain and processes;

Implementing IT Enterprise Architecture to Improve the Provision of IT Resources for Public Sector

825

▪ Digital Solutions Portfolio: Organizes the

entire IT assets and includes the TechMap of

digital solutions.

For this research, the digital solutions portfolio,

which proved to be the core of integration for the

other modules, will be presented.

4.3.1 Portfolio of Digital Solutions

The Portfolio of Digital Solutions is a system

developed using Power Apps for registering

architecture data related to the ITEA framework.

The homepage of the Digital Solutions Portfolio

starts with a library (repository) view, showing all the

registered architecture data for each layer. On the

homepage, users can choose between two ways to

view the library: by office or by categories. In the

office view, users can see the architecture data library

for a specific office. In the categories view, users can

select the business segment.

The category view was an evolution of the digital

solutions layer. It was found that the effort to

maintain architecture data within the business

architecture (strategy, projects, and processes) of the

offices was high and would not bring significant

benefits to IT management improvement, given the

unstable business environment of these offices. To

address this issue, digital solutions were categorized

according to their descriptions, resulting in business

categories independent of the configuration of the

Brazilian government offices.

Figure 4: Shapes of data architecture.

For example, the rectangles for digital solutions

are green and contain the following information

(Figure 5):

▪ Purpose of the solution regarding the type of

user (internal or external user);

▪ Solution name;

▪ Development team;

▪ Type of solution;

▪ Number of integrated systems;

▪ Evolution and maintenance operations;

▪ Office client.

Figure 5: Shape of digital solutions.

This simplified notation, unlike ArchiMate, is a

strategy to facilitate the dissemination of this

knowledge, as, over the years, the Brazilian

government has discontinued EA initiatives due to

their complexity (Vilela-Cury, 2023).

4.3.2 TechMap

For this research, a simplified language for EA

modelling was chosen to facilitate the rapid

dissemination of knowledge on EA. Additionally, this

language must be integrated into the EA platform,

which is called TechMap.

TechMap originated in the insurance sector as a

request from the board to understand, from a business

perspective and in a simplified manner, the

justification for IT investments in a less technical

way. These investments mainly concern the

development of new digital products and the

acquisition and maintenance of IT infrastructure.

Therefore, TechMap provides an overview of

corporate architecture from the viewpoint of a digital

solution or technological initiative, showcasing the

architecture data integrated into the digital solution

(Figure 6).

Figure 6: A TechMap view.

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The modeling environment of TechMap reuses the

same structure and format as the Digital Solutions

Portfolio library, thereby simplifying the

understanding for both business and IT stakeholders.

Thus, both the business and IT departments can

anticipate the acquisition of new resources, reuse

existing IT assets, and manage all their assets

effectively.

5 EVALUATION

This section demonstrates how we evaluated the

implementation of ITEA in a public sector office in

Brazil. Freire and Vasconcelos (2024) emphasize that

a reference architecture should be free of architectural

flaws. However, considering the efficiency and

effectiveness of applying enterprise architecture,

other aspects must be considered, particularly the role

EA plays in the managerial and organizational

context, the problems it solves, the benefits it brings,

and the effort required to maintain this system in

operation.

Thus, this study presented an EA framework

where the architectural components serve not just one

organization, but an IT ecosystem formed by

federated agencies in the Brazilian public sector.

Despite a robust architecture that emphasizes

business-IT alignment, some boundaries could not be

overcome, such as the inability to track strategies,

projects, and initiatives of other agencies. In this case,

it is possible to monitor the architecture at the IT

architecture level, as the hosting contracts are with the

IT organization providing resources to other

agencies.

Specifically, in the case of developing the Digital

Solutions Portfolio, the following quantities of

architectural data were registered: Service Layer (12

IT services), Digital Solution Layer (173 digital

solutions), Data Layer (0 metadata was registered by

the end of this research), Infrastructure Layer (55 IT

infrastructure data) and Team Layer (27 teams).

Such a volume of data slowed down the loading

process in Power Apps, making it recommended to

use Power Apps Premium, as the data is stored in a

database.

Another important aspect for the implementation

of ITEA is the profile of the architecture managers.

This is a complex topic that should be managed by

specialists from both business and IT areas to avoid

discontinuity and inefficiency in EA operations. In

Brazil, securing a job in public administration

requires passing a competitive examination.

However, for positions in the IT sector, candidates are

not required to have prior education or experience in

IT. In the IT organisation was identified a significant

skills gap, revealing that most professionals fall short

of the desired competencies. Specifically, in the realm

of enterprise architecture, the individuals responsible

for its management possess qualifications and

experience that markedly differ from those required,

particularly in terms of technological knowledge

(Sharma and Mehra, 2021; Sallehudin et al, 2014,

Bakar and Hussein, 2018, Mdima et al, 2017).

6 CONCLUSIONS

This research demonstrates the feasibility of

implementing Enterprise Architecture (EA) for an IT

organisation that works with shared services,

highlighting its potential for the systematic

integration and optimisation of organisational

processes, as noted by Sallehudin et al. (2019). The

approach facilitates a comprehensive understanding

of strategic planning, organisational processes, and

information systems, suggesting significant potential

for improving collaboration and information flow

between different agencies.

The Action Research methodology highlights a

collaborative approach, particularly in constructing

the ITEA platform, contributing to transparency and

accountability in the EA implementation process.

However, challenges such as the traceability of

business and IT alignment between agencies remain.

A critical success factor was evidenced; the

implementation of EA in the public sector IT

organisation in Brazil revealed a significant skills

gap, indicating that most professionals do not possess

the desired competencies, as pointed out by Sharma

and Mehra (2021) and Bakar and Hussein (2018).

These findings underscore the urgent need for

competency development programmes and a review

of recruitment and training policies in the IT sector.

Future research could explore strategies to mitigate

these skills gaps and evaluate the effectiveness of the

implemented interventions.

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