Publishing Open Data on Public Service Delivery (GH0041)

Problem to be addressed ● How to improve service delivery to Ghanaian citizens through technology and innovation

The commitment  The government to ensure that the delivery of public services is improved through the sustained implementation of the Ghana Open Data Initiative

Contribution of commitment to solving problem ● Commitment will make accessible to citizens relevant open information on activities of all Ministries, Departments and Agencies

Relevance of commitment to OGP values  Will position technology and innovation at the center of the process of delivering quality services to the citizens

Additional information

Milestone Activity with a verifiable deliverable Start Date: End Date:  Engage in public awareness activities about the open data portal with all key stakeholders and make portals accessible to persons with disability. Nov. 2021 June 2023  Ensure that data from critical sectors of the economy such as agriculture and industry are regularly provided on their portals. Regularly update the uploaded data and present them in disaggregated format that is more useful to the data consuming public. Nov. 2021 June 2023  Support regulatory agencies and licensing authorities to develop data collection /data set standard for their agencies and build an interoperable digital system. Nov. 2021 June 2023  Train personnel to manage the various data systems  And direct research statistics and information management directorate of the Ministries, Departments and Agencies to lead data set /data collection teams Nov. 2021 June 2023  To provide specific annual budgetary allocation to Ghana Open Data Initiative (GODI) and support the GODI secretariat to secure the active involvement of the academic and research community in GODI Nov. 2021 June 2023  Ensure that the National Open Data sharing policy is implemented, and NITA will be involved in the design, identification and procurement of digital platform Nov. 2021 June 2023

Action Plan Review

Commitment 14. Improve Access to Open Data

● Verifiable: Yes

● Does it have an open government lens? Yes

● Potential for results: Substantial

(Ministry of Communications and Digitalization, KNUST, University of Professional Studies Accra (UPSA), Ashesi University, Ghana Open Data Alliance, Ghana Academic and Research Network, National Council on Persons with Disability).

For a complete description of commitment 14 see: https://www.opengovpartnership.org/wp-content/uploads/2021/10/Ghana_Action-Plan_2021-2023.pdf 

Context and objectives

Ghana has made efforts to establish the legal and institutional framework to open government data to the public over the last decade. While the government has established the Ghana Open Data Initiative [56] to oversee efforts and create an open data portal, [57] financial, technical, and capacity constraints along with a lack of participation from ministries, departments, and agencies (MDAs) have limited the availability of data. [58]

As a result, a working group with members of the open data community representing government, civil society, and academia identified the activities outlined in this commitment to consolidate open data efforts. The draft commitment was shared with the Minister of Communication and Digitalization, who confirmed the ministry's support for these aims. [59]

These activities include raising public awareness of the open data portal; regularly updating data from critical sectors such as agriculture and industry; supporting public institutions to develop data collection standards and build an interoperable digital system; training personnel to manage data; providing annual budgetary allocation to the Ghana Open Data Initiative; and ensuring that the National Open Data Sharing Policy is implemented. This commitment prioritizes the publication of data relevant to effective public service delivery. [60]

Potential for results: Substantial

Over the last decade, Ghana worked to establish a legal and institutional framework to advance open data. The Ghana Open Data Initiative (GODI) Secretariat is located within the National Information Technology Agency (NITA) under the Ministry of Communications and Digitalization (MoCD). GODI coordinates open data efforts such as encouraging ministries to release data, academics to make use of data, and responding to inquiries from data users. [61] Ghana has worked in partnership with the Web Foundation and World Bank to improve its open data portal since 2012. [62] As of January 2022, the portal contained 315 datasets from 22 ministries and agencies. [63] However, the portal lacks comprehensive data from critical sectors, such as agriculture and education, as well as recent data from across MDAs (milestone 2).

Ghana has sought to improve its open data ecosystem throughout previous OGP action plans.

The government of Ghana established the open data portal under its first OGP action plan. [64] In the following, NITA aimed to improve the technical capabilities of the open data portal but was hampered by financial constraints. [65] In the third action plan, Ghana slightly improved MDAs' internet connectivity, websites, and digital records management. [66] Unlike previous commitments, this commitment benefits from high-level support, such as the Minister of Communication and Digitalization and specific budget allocations for open data (milestone 5). [67]

This commitment was designed to address underlying factors that have inhibited MDAs' contribution to uploading and updating data into the national portal. Foremost, budget provisions will support the ongoing training and expansion focal persons across government units to manage and update data (milestone 4). Deputy Director of NITA Mussah Issah highlighted the need to ensure focal persons across all MDAs and in local, municipal, and metropolitan governments. Additionally, access to information officers deployed across the government in recent years are trained in open data management. Therefore, thorough implementation of commitments 11 and 14 in this action plan are mutually beneficial. To monitor MDAs' compliance, NITA will conduct periodic assessments of available data and follow-up with focal persons to address data gaps. NITA will prioritize working with agencies that deliver public services and produce data. [68]

The government of Ghana has drafted, but not passed, a National Data Sharing Policy (milestone 6). According to the third draft policy from February 2019, the main goal of the policy is that "all government ministries, departments and agencies must be aware of the specificities of the government’s data sharing initiative, and understand the requirements, guidelines and processes to share government data" (milestone 3). The draft policy calls for the establishment of a Data Sharing Steering Committee and lays out a framework for data publication along with establishing channels for feedback and data requests from the public. [69] The IRM did not find information on the specific steps that stakeholders intend to take to advance the passage and implementation of the National Data Sharing Policy (milestone 6).

Under this commitment, GODI intends to continue outreach activities on the benefits of open data to government officials and the public (milestone 1). Mussah Issah confirmed sensitization efforts will include outreach to universities and other groups the government wishes to engage in open data uptake. [70] In 2019, Mobile Web Ghana and NITA organized a hackathon that encouraged representatives from MDAs to upload data and partner with data scientists to develop technology for the public benefit. The winning team developed an application that enabled citizens to trade their waste for money. [71] According to the GODI website as of January 2022, GODI and the Energy Commission intend to organize an additional hackathon to encourage disclosure and uptake of open data. [72] The government will also use TV and radio to publicly communicate open data efforts. [73] However, the IRM did not find information on how implementers intend to make open data more accessible to persons with disability as mentioned in the milestone.

If implemented fully, this commitment has the potential to substantially increase citizens' access to open data. The expansion of technical capacities across sectors and levels of government through the training and appointment of focal persons promises to improve the scope and quality of open data. Importantly, the implementation of the National Data Sharing Policy and provision of financial resources could provide MDAs will essential guidance and capabilities to comply with NITA's disclosure expectations. GODI's continued outreach efforts—particularly within government—to demonstrate the benefit of comprehensive data disclosure is essential to building a culture of data transparency. Moreover, proactive and reactive disclosure of data is also a key component to implementing Ghana's 2019 Right to Information Law. However, certain aspects of this commitment lack specificity, such as how the National Data Sharing Policy will be formalized and implemented or how data will be made more accessible to people with disabilities.

At the end of the implementation period, evidence of open government results would include institutionalized changes to open data practices across government. These changes should improve the quality and quantity of data available online and be implemented in collaboration with civil society. Evidence of substantial early results would include indication that the newly available data informed civic participation and public accountability as well as improve public service delivery. [74]

Opportunities, challenges, and recommendations during implementation

This commitment benefits from support in both civil society and government, in particular from the Minister of Communication and Digitalization. Allocated funding for the Ghana Open Data Initiative also promises to contribute to implementation. [75] The presence of existing open data infrastructure within government, such as GODI, and the incremental consolidation of access to information processes further provide a foundation for successful implementation.

The IRM recommends that those implementing commitments 11 and 14 take advantage of opportunities to pursue mutually beneficial activities. For example, training access to information and archive officers in open data management can help to improve MDAs' technical capacities. Additionally, communicating how proactive publication of open data can ease the burden on MDAs to respond to access to information requests could facilitate their proactive disclosure. The IRM also recommends that implementers consult civil society, academia, the private sector, and other relevant stakeholders on which categories of open data should be prioritized for disclosure to align efforts with data users' priorities.

A lack of financial and technical resources was a primary obstacle for Ghana's previous open data commitments. Additionally, open data advocates have had to overcome a culture of secrecy where public officials are unclear and hesitant on how to share government-held information. While the passage of the Right to Information Law was long awaited, it includes broad exemption clauses that could be employed to withhold data from the public. Therefore, the creation of clear guidance documents, procedures, and trainings for public officials will be critical to shift government mindset towards one that is 'open as default.'

In implementing this commitment, Ghana can look to other OGP members facilitating similar open data reforms. Buenos Aires, Argentina used their 2018 action plan to hold broad consultations with civil society to develop an open data policy and guidance documents to facilitate open data publication. [76] Buenos Aires also encouraged the development of visualizations or 'data stories' to communicate the information contained in data and demonstrate its use. [77] Also through their 2018 action plan, Morocco drafted an Open Data Policy and procedure manuals to inform publication of data; trained officials; and established a steering committee on open data to oversee implementation of the policy. [78]