When individuals express discontent with the lack of digitalisation in the administration, they frequently fail to specify what is lacking, other than the ability to submit applications online. On occasion, individuals have suggested that the entire process must be digitised. In this commentary blog post, I will elucidate how to achieve end-to-end digitalisation, with the German administration as a case study.

The Context

The German administration enacted the Online Access Act (OZG)[1] as a self-commitment to digitalise all administrative services. The OZG sets out several goals, including those related to web portals, standard criteria for online services, and the establishment of web portals. The deadline for this self-commitment was the end of 2022. However, this date was not met. Efforts to alter the deadline and content of the OZG have thus far been unsuccessful. The OZGÄndG, which would have amended the OZG, was not passed by the Federal Council. [2]

One significant shortcoming of the current iteration of online services developed under the OZG is that a considerable number of services are merely modernised versions of existing analog form templates. Once data is submitted, there is typically no digital feedback during the processing at the administrative level. In nearly all cases, further communication is conducted via postal services. This results in a disruption in the media, moving from digital to analog.

So, what measures are required to resolve these issues? In the following sections, the current challenges are addressed, and new patterns and implementation recommendations are provided.

The Challenges from a Citizen Perspective

The process of identifying relevant services

The initial challenge is to identify sources of information about administrative services and the procedures for claiming them. While this issue has been largely resolved in Germany, an explanation is provided below. To ascertain the availability of services and their respective jurisdictions, a web portal has been established, enabling citizens to search for both online and offline services. In addition to providing the name of the service and the relevant jurisdiction, the portal also offers a list of prerequisites, which enables claimants to prepare the necessary documents.

Providing a online service

This blog post addresses the topic of digitalised administrative services. In this context, the focus is on online services rather than their offline counterparts. The simplest method to provide a digital channel is to offer PDF documents and an email address. However, this is the least optimal solution for two reasons. Firstly, the majority of PDF documents lack self-explanatory content. Secondly, users must download the PDF, complete it, save it on their device and then send it via email. The aforementioned steps can be circumvented when filling out a form directly within the browser and sending it to a backend server.

Knowning the state of your cause

It is imperative to emphasise the significance of this. Despite the existence of digital channels for claiming administrative services, there is often a prolonged period of silence, with no updates for weeks or months. This can give rise to questions such as whether the administration has received the claim, whether they are currently working on it, and whether they will respond.
A fully digitalised service, from initial submission to resolution, provides a clear list of claims and their respective statuses. This enables citizens to monitor the progress of their cases. Furthermore, the inclusion of statistics regarding the anticipated processing time for my case would be a valuable addition.

Interacting digitally with the administration

In certain instances, supplementary data may be required during the processing of a case, such as additional documentation, images, or a statement. An end-to-end solution enables this to be accomplished online. This can be integrated into the same portal, allowing for communication with the citizen in question and enabling them to upload the necessary information.

Receiving documents and confirmations digitally

The final stage for the citizen is to receive documents such as certificates or confirmations in digital format. This also marks the point at which the status changes to "completed" in the aforementioned list of all causes.

Implementation concerns of the administration

Having established the citizen's perspective, it is now possible to discuss the challenges faced by the administration in establishing the system. Firstly, a web portal must be created. This will require functionalities such as user accounts, an inbox function and, of course, ways to implement digital services. Secondly, the services themselves have two parts: a front end for the citizen to interact with the administration and a back end where the cause is processed. The two components are linked together by well-defined interfaces. The back-end components do not have to be a single piece of software, as there is special case management software for some services. However, it is necessary that all back-end software interacts with the front end via those interfaces. This ensures that all status updates are reported back and that all additional documents provided by the citizen are taken into account.

Nevertheless, a generic back-end for case management should also be provided, as some services lack specialised software for handling citizen cases. Administrative staff can then modify the status, request additional documents, issue confirmations and close the case. 

Things to Consider

Finally, a few thoughts on the usability of such a solution should be shared.

User Accounts

It is not always necessary to require user accounts for all services. For instance, reporting a pothole does not necessitate the creation of a user account. Therefore, it is important to carefully assess whether user accounts are indeed necessary. Additionally, it is crucial to consider the strength of authentication. In many cases, a non-verified user is sufficient, but in certain instances, additional verification measures may be necessary. The eIDAS Regulation has specified a Level of Assurance (LoA)[3], which can be used to determine the strength of authentication.

Exception Management

It is not uncommon for a process to deviate from its intended trajectory. It is therefore prudent to implement an exception handling mechanism that is not solely technical in nature. This allows the user or citizen to claim an exception, after which an individual with the requisite expertise interacts with the user or citizen to resolve the issue. This approach can also be applied to the administrative side, where clerks or administrative staff may encounter a special case that they have not previously handled and require assistance.
A well-designed exception management system should include a continuous improvement process, whereby the causes of frequent exceptions are examined in depth and, where necessary, repaired.

Electronic Payment

For some administrative services, a fee is levied. Consequently, a well-designed process also takes into account the payment of this fee. There are two ways in which this can be done: either when submitting the application form for the cause or during the processing.
With regard to the first option, it is sufficient to integrate a redirection to a payment provider before submitting the application. In the case of the second option, it is necessary to implement a special payment page. The user will receive an invoice, digitally of course, and will be able to pay their fee on that payment page. Once the requisite fee has been paid, the processing can then continue.

Think digital first

It is not uncommon for current offline processes to be digitised, with the result that there may be a form for the administrative service, but this is then printed out and placed in a traditional file. This often leads to a lack of digital feedback regarding the process state and other matters that have already been discussed. Therefore, it is essential to redesign all processes and establish the necessary software and IT systems, including databases etc.

Final Thoughts

The implementation of end-to-end services for the administration is not merely a technical undertaking. It necessitates the involvement of domain experts from the administrative staff, process designers, and IT staff, who are able to implement the new, digitalised processes. This process typically requires time, and it is crucial to provide administrative staff with sufficient time to consider the implications of the new processes, apart from their daily duties.

It is important to recognise that a well-designed digitalised process will enhance processing speeds and reduce employees' workload.

[1] Gesetz zur Verbesserung des Onlinezugangs zu Verwaltungsleistungen https://www.gesetze-im-internet.de/ozg/index.html (German)
[2] Bundesrat kippt Onlinezugangsgesetz, Stefan Krempl, 2024, https://www.heise.de/news/Digitale-Verwaltung-Bundesrat-laesst-Onlinezugangsgesetz-2-0-scheitern-9663631.html (German)
[3] eID Documentation - eIDAS Levels of Assurance (LoA), European Commision, https://ec.europa.eu/digital-building-blocks/sites/display/DIGITAL/eIDAS+Levels+of+Assurance (English)