While Norway has recognised data as a key priority of its existing digital government strategy, there are challenges that mean that the country is falling short of its own expectations in this space. As such, Norway could take concrete steps in enhancing data access, sharing and re-use in the public sector by ensuring the right data governance foundations, the systematic use of guidelines and standards, and monitoring the impact of data sharing initiatives.
The Digital Transformation of Norway's Public Sector
OECD Digital Government Studies
7. Data access, sharing and re-use
Abstract
Data has become the lifeblood of effective governance, driving transformative change in how governments operate and engage with their citizens. As technology evolves at an unprecedented pace, the sheer volume and complexity of data generated present both a challenge and an opportunity for governments worldwide. From enhancing public services to informing policy decisions, leveraging data enables governments to unlock valuable insights, optimise resource allocation, and foster trust and innovation. While Norway performs well in international comparisons in data access, sharing, and reuse in the public sector, challenges remain in promoting systematic re-use of data, improve data quality, and understanding the impact of data sharing initiatives.
Progress to date
As part of the 2017 Digital Government Review of Norway, the OECD made recommendations to the Norwegian Government to prioritise breaking down data siloes in the public sector by streamlining data management and sharing practices (OECD, 2017[1]). Since then, Norway has recognised data as a key priority of its existing digital government strategy, with target 4 focused on ensuring that “the public sector utilises the potential in the sharing and use of data to create user-friendly services, and to contribute to value creation for business.”
According to the most recent OECD benchmarks, Norway has made considerable progress in data access, sharing and re-use in the public sector. Norway ranks 4th out of 33 OECD countries in data-driven public sector of the 2023 OECD Digital Government Index (see Figure 2.6, with a score of 85% compared to the average score of 63% amongst OECD member countries. At a high level, this score was based on Norway’s performance in key factors such as having a well-established interoperability system, a comprehensive government data inventory, and robust data protection. In the 2023 eGovernment Benchmark, Norway also performed above the EU+27 average in the transparency of personal data use by governments (European Commission, 2023[2]).
For open data, Norway ranks 11th out of 36 OECD countries in the 2023 OURdata Index (see Figure 7.1). Norway is placed in the 2nd best performing group of countries (“High performance”) for open data, together with Canada, Colombia, Finland, Czechia, Italy, Switzerland, the Slovak Republic, Brazil, and Peru. Amongst its Scandinavian neighbours, however, both Denmark and Sweden perform slightly above Norway (OECD, 2023[3]).
Norway performs above the OECD average in the two pillars on data availability and data accessibility. In government support to data reuse, Norway performs only slightly above the OECD average, showing room for improvement. As seen in Figure 7.2, Norway performs above the OECD average in all sub-pillars of the OURdata Index except one, with outstanding performance in the indicators Content of the open by default policy, Content of the free and open access to data policy, Stakeholder engagement for data quality and completeness, and Implementation of data accessibility. At a high level, this can be attributed to the Norwegian Government’s Guidelines for making government data available (Ministry of Local Government and Modernisation, 2017[4]), which are required for use by state agencies and recommended to municipal agencies; the functions and design of the national open data portal data.norge.no, and the level of quality and accessibility of high value datasets1 (HVD) made available as open data (Table 7.2).
Figure 7.1. 2023 OECD Open, Useful and Re-usable data (OURdata) Index
Score range from 0.00 (lowest) to 1.00 (highest)
Note: Data is not available for Hungary and the United States.
Figure 7.2. 2023 OURdata Index results - Norway
Note: The OECD average is based on data from 36 OECD countries, not including Hungary and the United States. For methodology see Annex B https://www.oecd.org/publications/2023-oecd-open-useful-and-re-usable-data-ourdata-index-a37f51c3-en.htm
Source: OECD (2022), Survey on Open Government Data 5.0.
The OURdata Index assesses the availability of HVD (Table 7.1). In total, Norway have made 63% of HVD assessed by the OECD, compared to the OECD average 47%, and 100% of HVD in the categories geospatial, meteorological, mobility, and statistics. Compared to other Nordic countries, Norway performs 2nd after Denmark in this indicator, before Finland, Sweden, and Iceland.
Table 7.1. Norway ranks 2nd among Nordic countries in the availability of high value datasets as open data, and above OECD average
Note: The OECD average is based on data from 36 OECD countries, not including Hungary and the United States. For methodology please see Annex B https://www.oecd.org/publications/2023-oecd-open-useful-and-re-usable-data-ourdata-index-a37f51c3-en.htm
Source: OECD (2022), Survey on Open Government Data 5.0.
When looking at the quality and accessibility of HVD, Norway scores a total of 91%, compared to the OECD average of 66% (Table 7.2). What stands out positively is that, in Norway, 98% of the HVD are up to date, 96% can be accessed through data.norge.no, and 94% are in open, non-proprietary format. In this assessment, Norway performs above all other Nordic countries, which is primarily a result of ensuring all open data, including HVD, are available on data.norge.no.
Table 7.2. Norway tops Nordic & OECD countries in the quality and accessibility of high-value datasets available as open data
Note: The OECD average is based on data from 36 OECD countries, not including Hungary and the United States. For methodology please see Annex B https://www.oecd.org/publications/2023-oecd-open-useful-and-re-usable-data-ourdata-index-a37f51c3-en.htm
Source: OECD (2022), Survey on Open Government Data 5.0.
Remaining challenges
According to Norway’s self-assessment, the public sector still falls short of expectations in its efforts on data. This is due to the low proportion of reported public sector entities engaging in systematic sharing and reuse of data. In 2022, only 22% reused data from other public agencies across sectoral areas, and 35% reused data when creating services. Issues related to data quality and relevance was highlighted as challenges by public agencies, with 17% considering the lack of quality in available data a challenge for data reuse, and 32% of public agencies experiencing data quality as an obstacle to digital service development (Digdir, 2023[5]). Regarding open data, the survey undertaken by Norway shows progress among central government agencies, as 29% shared open data compared to 18% the previous year. Similarly, municipalities show improvement, with 19% sharing open data in 2022 compared to 10% in 2021. 17% of enterprises state that they have developed or improved digital services based on open data in 2022, compared to 12% in 2021 (Digdir, 2023[5]).
According to the results of the OURdata Index and the OECD Survey on Open Government Data, Norway can improve in making high-value datasets available as open data in categories such as education, government finances and accountability, crime and justice, and health and social welfare, where it performs below the OECD average.
While Norway does comparatively well in conditioned data access and sharing areas such as health (OECD, 2020[6]), providing open data in these areas will require further efforts. Norway could also focus on improving performance in the OURdata Index indicator on ‘Government support for data re-use’, especially by systematically monitoring the impact of open data re-use. From 2023 onwards, Digdir is collaborating with Statistics Norway to measure the benefits of reusing data from public enterprises in the business sector through the survey ‘Use of ICT in the business sector.’ According to Digdir, this collaborative effort aims to provide a better foundation for assessing Goal 4, focusing on the potential of sharing and using data for value creation in the business sector (Digdir, 2023[5]).
Recommendations
Based on these findings, the Government could consider incorporating the strategic objective below into its new digitalisation strategy, which could be achieved by addressing the associated recommendations:
Strategic objective: Data access, sharing and re-use
Norway could take concrete steps in enhancing data access, sharing and re-use in the public sector by ensuring the right data governance foundations, the systematic use of guidelines and standards, and monitoring the impact of data sharing initiatives.
Recommendation 12:
The Government could consider creating the role of a National Chief Data Officer and agency-level data stewards to advance data sharing and reuse coherently at the central and local level in line with new national targets. Inspiration could be drawn from the Chief Data Officer role in the U.S federal government, adapted to the Norwegian context and public governance model.
Recommendation 13:
The Government could prioritise the systematic adoption and use of the common standards for information management under the Framework for Information Management to support data quality & re-use and implementation of the 'once only' principle.
Recommendation 14:
As part the collaboration between Digdir and Statistics Norway, and the new digitalisation strategy, it would be good to consider collecting statistics to help measure the impact of data sharing initiatives, including open data, on the Norwegian economy and society.
References
[17] Bjørgo, K. (2023), Responsibilities and tasks in the Ministry of Digitalisation and Public Governance, https://www.regjeringen.no/en/dep/dfd/responsibilities-and-tasks-in-the-ministry-of-digitalisation-and-public-governance/id3013877/.
[35] boost.ai (2023), How the Norwegian government used conversational AI to help citizens access social benefits during COVID-19, https://boost.ai/case-studies/how-conversational-ai-is-helping-norways-citizens-with-covid/.
[41] Datatilsynet (2024), Regulatory privacy sandbox, https://www.datatilsynet.no/en/regulations-and-tools/sandbox-for-artificial-intelligence/.
[42] Datatilsynet (2023), 20 searched for the sandbox, https://www.datatilsynet.no/aktuelt/aktuelle-nyheter-2023/20-sokte-pa-sandkassa/.
[50] DFØ (2024), About us, https://dfo.no/en/about-us.
[30] DFØ (2024), StartOff, https://doi.org/startoff.
[47] Digdir (2024), Artificial intelligence - overview of projects in the public sector, https://data.norge.no/kunstig-intelligens.
[40] Digdir (2024), Guidance for responsible use and development of artificial intelligence, https://www.digdir.no/kunstig-intelligens/veiledning-ansvarlig-bruk-og-utvikling-av-kunstig-intelligens/4601.
[27] Digdir (2024), Medfinansieringsordninga, https://www.digdir.no/finansiering/medfinansieringsordninga/1964.
[46] Digdir (2024), Openness and artificial intelligence, https://www.digdir.no/kunstig-intelligens/apenhet-og-kunstig-intelligens/4581.
[29] Digdir (2023), Action plan for digitalisation of the public sector, https://www.digdir.no/handlingsplanen/handlingsplan-digitalisering-av-offentlig-sektor/1229.
[26] Digdir (2023), Assessment of risk, https://www.digdir.no/informasjonssikkerhet/vurdering-av-risiko/2998#6_vurdere_risiko_ved_anskaffelser_og_utvikling.
[48] Digdir (2023), Competence model for digital transformation, https://www.digdir.no/digitalisering-og-samordning/kompetansemodell-digital-transformasjon/3293.
[32] Digdir (2023), Nasjonale fellesløsninger, https://www.digdir.no/felleslosninger/nasjonale-felleslosninger/750.
[23] Digdir (2023), Remove structural obstacles in new digitalisation strategy, https://www.digdir.no/digitalisering-og-samordning/fjern-strukturelle-hinder-i-ny-digitaliseringsstrategi/5275.
[19] Digdir (2023), Skate, https://www.digdir.no/skate/skate/1259.
[22] Digdir (2023), Skate’s input to a new digitalization strategy, https://www.digdir.no/skate/skates-innspill-til-ny-digitaliseringsstrategi/5273.
[11] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 1, https://www.digdir.no/rikets-digitale-tilstand/mal-1/3483.
[12] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 2, https://www.digdir.no/rikets-digitale-tilstand/mal-2/3501.
[13] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 3, https://www.digdir.no/rikets-digitale-tilstand/mal-3/3517.
[5] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 4, http://Status of the objectives of the digitalisation strategy: Goal 1.
[14] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 5, https://www.digdir.no/rikets-digitale-tilstand/mal-5/3519.
[15] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 6, https://www.digdir.no/rikets-digitale-tilstand/mal-6/3520.
[20] Digdir (2023), The Digitalisation Council, https://www.digdir.no/digitaliseringsradet/digitaliseringsradet/1877.
[10] Digdir (2023), The objectives of the digitalisation strategy, https://www.digdir.no/rikets-digitale-tilstand/status-pa-malene-i-digitaliseringsstrategien/3478.
[24] Digdir (2023), These three themes are most important to Skate in the new digitalization strategy, https://www.digdir.no/skate/disse-tre-temaene-er-viktigst-skate-i-den-nye-digitaliseringsstrategien/5274.
[18] Digdir (2023), What is the Norwegian Digitalisation Agency?, https://www.digdir.no/digdir/kva-er-digitaliseringsdirektoratet/703.
[2] European Commission (2023), eGovernment Benchmark 2023 Factsheets - Connecting Digital Governments, https://digital-strategy.ec.europa.eu/en/library/egovernment-benchmark-2023.
[33] European Commission (2023), eGovernment Benchmark 2023: Factsheets, Directorate General for Communications, Networks, and Technology, https://ec.europa.eu/newsroom/dae/redirection/document/98711.
[39] European Commission (2019), Ethics guidelines for trustworthy AI, https://digital-strategy.ec.europa.eu/en/library/ethics-guidelines-trustworthy-ai.
[34] Felles datakatalog (2023), Kunstig intelligens - oversikt over prosjekter i offentlig sektor, https://data.norge.no/kunstig-intelligens (accessed on 15 January 2024).
[38] Ministry of Digitalisation and Public Administration (2019), Received input to the AI strategy, https://www.regjeringen.no/no/tema/statlig-forvaltning/it-politikk/KI-strategi/mottatte-innspill-til-ki-strategien/id2640057/.
[49] Ministry of Digitalisation and Public Administration (2019), Secondment in the state: Guidelines for internal mobility of workers within the state tariff area, https://www.regjeringen.no/no/dokumenter/Retningslinjer-for-intern-mobilitet-for-arbeidstakere-innenfor-det-statlige-tariffomradet/id2340415/.
[37] Ministry of Digitalisation and Public Governance (2020), The National Strategy for Artificial Intelligence, https://doi.org/The National Strategy for Artificial Intelligence.
[36] Ministry of Education and Research (2023), The Norwegian Government invests billions in artificial intelligence, https://www.regjeringen.no/no/aktuelt/regjeringen-med-milliardsatsing-pa-kunstig-intelligens/id2993214/.
[16] Ministry of Local Government and Modernisation (2019), One digital public sector, https://www.regjeringen.no/en/dokumenter/one-digital-public-sector/id2653874/.
[7] Ministry of Local Government and Modernisation (2019), One digital public sector: Digital strategy for the public sector 2019-2025, https://www.regjeringen.no/contentassets/db9bf2bf10594ab88a470db40da0d10f/en-gb/pdfs/digital_strategy.pdf.
[4] Ministry of Local Government and Modernisation (2017), Retningslinjer ved tilgjengeliggjøring av offentlige data, https://www.regjeringen.no/no/dokumenter/retningslinjer-ved-tilgjengeliggjoring-av-offentlige-data/id2536870/.
[9] Ministry of Local Government and Modernisation (2016), Digital agenda for Norway in brief, https://www.regjeringen.no/en/dokumenter/digital-agenda-for-norway-in-brief/id2499897/?ch=1.
[45] OECD (2024), “2023 OECD Digital Government Index: Results and key findings”, OECD Public Governance Policy Papers, No. 44, OECD Publishing, Paris, https://doi.org/10.1787/1a89ed5e-en.
[53] OECD (2024), “2023 OECD Digital Government Index: Results and key findings”, OECD Public Governance Policy Papers, No. 44, OECD Publishing, Paris, https://doi.org/10.1787/1a89ed5e-en.
[3] OECD (2023), “2023 OECD Open, Useful and Re-usable data (OURdata) Index: Results and key findings”, OECD Public Governance Policy Papers, No. 43, OECD Publishing, Paris, https://doi.org/10.1787/a37f51c3-en.
[51] OECD (2022), “OECD Good Practice Principles for Public Service Design and Delivery in the Digital Age”, OECD Public Governance Policy Papers, No. 23, OECD Publishing, Paris, https://doi.org/10.1787/2ade500b-en.
[54] OECD (2021), “The OECD Framework for digital talent and skills in the public sector”, OECD Working Papers on Public Governance, No. 45, OECD Publishing, Paris, https://doi.org/10.1787/4e7c3f58-en.
[6] OECD (2020), Health data sharing intensity, https://goingdigital.oecd.org/indicator/64 (accessed on 26 February 2024).
[8] OECD (2020), “The OECD Digital Government Policy Framework: Six dimensions of a Digital Government”, OECD Public Governance Policy Papers, No. 02, OECD Publishing, Paris, https://doi.org/10.1787/f64fed2a-en.
[1] OECD (2017), Digital Government Review of Norway: Boosting the Digital Transformation of the Public Sector, OECD Publishing,, https://doi.org/10.1787/9789264279742-en.
[52] OECD (2017), Digital Government Review of Norway: Boosting the Digital Transformation of the Public Sector, OECD Digital Government Studies, OECD Publishing, Paris, https://doi.org/10.1787/9789264279742-en.
[25] OECD (forthcoming), OECD Digital Government Investment Framework.
[31] OECD (forthcoming), Towards a Comphrensive GovTech Policy Framework.
[44] Office of the Auditor General (2028), Auditing to benefit the society of tomorrow, https://www.riksrevisjonen.no/globalassets/om-riksrevisjonen/auditingtobenefitthesocietyoftomorrow.pdf.
[21] Office of the Prime Minister (2023), Norway to establish new ministry, https://www.regjeringen.no/en/aktuelt/norway-to-establish-new-ministry/id3000284/.
[28] Projektveiviseren (2023), What can the Project Wizard be used for?, https://prosjektveiviseren.digdir.no/ta-i-bruk/hva-kan-prosjektveiviseren-brukes-til/87.
[43] Riksrevisjonen (2023), Annual Report 2022, https://www.riksrevisjonen.no/contentassets/9e1061c5f7fe4678b4b93e5d1e5bb611/annual-report-2022.pdf.
Note
← 1. HVD assessed in the OECD OURdata Index are based on the G8 Open Data Charter and inspired from the EU Open Data Directive. They are not equivalent to those HVD listed in the implementing act of the EU Open Data Directive. The full list of data categories assessed by the OECD can be found in Annex A.