Norway is one of the leading digital governments in the OECD, which has been thanks to ambitions for modernising, simplifying and improving the public sector through digitalisation. However, there is opportunity to build a more effective public sector that is fit for the future and responsive to the evolving needs and expectations of its users.
The Digital Transformation of Norway's Public Sector
OECD Digital Government Studies
2. Norway’s progress to date
Abstract
Norway has one of the most digitally-advanced governments – not just within Europe, but also amongst the wider community of OECD member countries. It has made considerable progress since the OECD’s Digital Government Review in 2017, largely thanks to the strategic and coherent approach that its Digital Agenda brought to help achieve the Government’s “ambitions for modernising, simplifying and improving the public sector.” (Ministry of Local Government and Modernisation, 2016[1]) To better understand Norway’s digital development to date, this chapter will consider Digdir’s self-assessment of Norway’s progress against the current Digital Strategy for the Public Sector, as well as Norway’s high-level results in the 2023 DGI where Norway emerged as a top performer in digital government amongst OECD member countries. Despite Norway’s strong progress as a digital government, there is still opportunity to improve and build a more effective public sector that is fit for the future.
Progress against Norway’s digital strategy for the public sector
Aligned to the vision and strategic objectives of Norway’s Digital Agenda, the Government developed its Digital Strategy for the Public Sector (2019-2025) to guide the development of an effective digital government that could meet the expectations from citizens and businesses for simpler interactions with government. Its goals and focus areas are detailed in Figure 2.1 below:
Figure 2.1. Goals and focus of the Digital Strategy for the Public Sector (2019-2025)
By approaching this strategy in this way, the Government has been able to deliver key improvements in the capacity and capability of the public sector to deliver on the Digital Agenda.
However, there is still room for improvement. Reflecting on its own progress to date, Digdir prepared a self-assessment of Norway’s progress against these goals (see Figure 2.1). The assessment is taken from data collected in 2022 and includes insights on how Norway’s citizens and businesses are experiencing the goals of this strategy in reality (Digdir, 2023[3]). While these goals are well-targeted and there has been clear progress since it was implemented in 2019, the success of strategy appears to be varied – indicating that the goals are not delivering the intended outcomes for their beneficiaries.
Table 2.1. Norway’s self-assessment for progress in the digital strategy for the public sector (2022)
1. To better understand why the real-life impact for citizens and businesses may not be aligning to its digital ambitions, the Government could consider its underlying foundations for digital government, which can be assessed through Norway’s performance in the 2023 DGI.
Norway’s performance in the 2023 OECD Digital Government Index
Many of the findings of this review are based on insights garnered through Norway’s performance in the 2023 iteration of the OECD’s Digital Government Index (DGI). This DGI “assesses the efforts made by governments to establish the foundations necessary for a digital transformation of the public sector that is coherent and human-centred.” (OECD, 2024[10]) The DGI measures the extent to which countries have developed the foundations necessary for mature digital government, but it should be noted that it does not measure the digitalisation of government services or the take-up of these services by users (ibid).
Instead, the DGI measures countries’ level of maturity across the six dimensions of the OECD Digital Government Policy Framework (DGPF), shown in Figure 2.2, is a policy instrument designed to help governments identify key determinants for effective design and implementation of strategic approaches for the transition towards digital maturity of their public sectors. The DGPF enables the OECD to assess countries’ digital government maturity based on qualitative and quantitative measures across six dimensions (OECD, 2020[11]):
digital by design – governing and leveraging digital technologies to rethink and re-engineer public processes, simplify procedures, and create new channels of communication and engagement with stakeholders.
data-driven – valuing data as a strategic asset and establishes the governance, access, sharing and re-use mechanisms for improved decision-making and service delivery.
acting as platform – deploying platforms, standards and services to help teams focus on user needs in public service design and delivery.
open by default – making government data and policy-making processes available to the public, within the limits of existing legislation and in balance with national and public interest.
user-driven – centring people’s needs and convenience in the shaping of processes, services and policies; and by adopting inclusive mechanisms that enable this to happen.
proactive – anticipating people’s needs and respond to them rapidly, avoiding the need for cumbersome data and service delivery processes.
Figure 2.2. OECD Digital Government Policy Framework
Source: (OECD, 2020[11])
In the 2023 DGI, Norway performed strongly overall, ranking 4th of 33 participating OECD member countries (see Figure 2.3), with a score of 77% compared to the OECD average of 60.5%.
Figure 2.3. Norway’s results in the 2023 DGI
Note: The 2023 DGI is based on data collected between January 2020 to October 2022
Source: (OECD, 2024[10]) For an interactive version of the 2023 DGI, see: : https://goingdigital.oecd.org/indicator/58
To better understand Norway’s maturity against the DGPF, the results for each of the six dimensions is broken down into different stages of the policy lifecycle in Figure 2.4 below:
Figure 2.4. Norway’s results against the dimensions of the DGPF (compared to OECD average)
Source: Findings from the 2023 DGI (OECD, 2024[10])
Figure 2.5. Results by Dimension: Digital by Design
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 10th in the ‘Digital by Design’ dimension, with a score of 76% compared to the average score of 68% amongst OECD member countries. At a high level, this score was based on the country's maturity in three key areas: robust digital infrastructure; effective digital investments with a focus on assessing socio-economic impacts; and strong governance marked by a leading digital government institution, coordination body, and external advisory mechanisms. However, there is still opportunity to develop a more strategic approach to digital talent. Additionally, enhancing service design and delivery could strengthen the country's digital capabilities. Greater maturity in this dimension could have supported the delivery of Goal 6 of the Digital Strategy to help the public sector derive the benefits of greater digitalisation, but also would have delivered value to citizens and business in line with Goals 2 and 3.
Figure 2.6. Results by Dimension: Data-Driven
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 4th in the ‘Data-Driven’ dimension, 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 data inventory, and robust data protection. However, there is still opportunity to in data governance including by clarifying roles and responsibilities for more effective data management. By further improving its maturity in this dimension, Norway could have better supported the delivery of Goal 4 of the Digital Strategy and address its reported underutilisation of data across the public sector.
Figure 2.7. Results by Dimension: Government as a Platform
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 3rd in the ‘Government as a Platform’ dimension, with a score of 82% compared to the average score of 61% amongst OECD member countries. At a high level, this score was based on maturity in key areas such as cloud infrastructure, including strategy, storage, and computing capabilities; a comprehensive digital identity framework with a strong regulatory background; and advanced GovTech initiatives. However, there is still opportunity to improve its maturity in service design and delivery. Addressing maturity in this dimension could have supported all the goals of the Digital Strategy, but especially Goal 1 and Norway’s efforts for greater digitalisation in keeping with the trust of citizens.
Figure 2.8. Results by Dimension: Open by Default
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 11th in the ‘Open by Default’ dimension, with a score of 59% compared to the average score of 53% amongst OECD member countries. At a high level, this score was based on maturity in areas such as open data legislation, a well-defined open data strategy, and a comprehensive catalogue of services. These strengths reflect the country's commitment to transparency and accessibility in government data. However, there is still opportunity to improve maturity in implementing incentive mechanisms to promote the publication of open government data and conducting assessments to evaluate the impact of open government data on the economy and public sector. Greater maturity in this dimension, could have supported the delivery of Goals 4 and 5 of Norway’s Digital Strategy, enabling greater value creation in and out of the public sector by unlocking the potential of open data.
Figure 2.9. Results by Dimension: User-Driven
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 3rd in the ‘User-Driven’ dimension, with a score of 85% compared to the average score of 61% amongst OECD member countries. At a high level, this score was based on maturity in service design and delivery, characterised by formal requirements to use digital government tools for involving citizens and businesses in policy design, government-wide initiatives for engaging diverse population groups, and employing testing methods like design thinking and focus groups. However, there is still opportunity to better understand the main barriers in co-designing digital government services with citizens, as well as to implement additional metrics to measure the performance of digital services to inform future enhancements. While this was another strong area for Norway, even greater maturity in this dimension could have supported the delivery of Goals 2 and 3 of the Digital Strategy – providing a more seamless and better user experience for citizens and business, in turn building the trust in digital government services that Norway was working towards under Goal 1.
Figure 2.10. Results by Dimension: Proactiveness
Source: Findings from the 2023 DGI (OECD, 2024[10])
Norway ranked 6th in the ‘Proactiveness’ dimension, with a score of 75% compared to the average score of 57% amongst OECD member countries. At a high level, this score was based on maturity in the country's data-driven and consultative approach to service design and delivery. However, there is still opportunity to improve its maturity in the adoption and integration of AI within the public sector, as well as in enhancing risk assessment processes for digital projects. Strengthening these areas could significantly boost the country's digital capabilities and efficiency. Greater maturity in this dimension could also enable the evolution of Norway’s digital service delivery in line with the expectations of citizens and businesses, which could have supported the delivery of Goals 2, 4, 5, and 6 of the Digital Strategy.
Figure 2.11. Results against key areas of digital government
Source: Findings from the 2023 DGI (OECD, 2024[10])
Finally, Figure 2.11 shows Norway’s results across some of the key areas of digital government. Laid across each of the six dimensions of the DGPF, these results create a heat map that demonstrates some of the focus areas for the country’s digital maturity, especially for elements of AI, digital talent, and service design and delivery, where Norway has scored below the OECD average.
Where to from here?
The results from the 2023 DGI highlight the key areas on which Norway could focus on its digitalisation strategy to build a more effective and efficient digital government, which will be discussed in detail in the chapters that follow. These key areas include digital governance, digital government investments, GovTech, digital public infrastructure, data sharing, access and re-use, artificial intelligence, digital talent, and service design and delivery.
By addressing these key areas, Norway could build its maturity across the six dimensions of the DGPF and strengthen its foundations for effective and efficient digital government. In doing so, the Government may minimise some of the incidental barriers that might have prevented more positive outcomes against the goals of the previous Digital Strategy for the Public Sector, as well as equip its public sector with what it needs to maximise the potential success and impact of its new digitalisation strategy.
References
[13] 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.
[27] 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.
[24] 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.
[26] Digdir (2023), Action plan for digitalisation of the public sector, https://www.digdir.no/handlingsplanen/handlingsplan-digitalisering-av-offentlig-sektor/1229.
[23] 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.
[29] Digdir (2023), Nasjonale fellesløsninger, https://www.digdir.no/felleslosninger/nasjonale-felleslosninger/750.
[20] Digdir (2023), Remove structural obstacles in new digitalisation strategy, https://www.digdir.no/digitalisering-og-samordning/fjern-strukturelle-hinder-i-ny-digitaliseringsstrategi/5275.
[15] Digdir (2023), Skate, https://www.digdir.no/skate/skate/1259.
[19] Digdir (2023), Skate’s input to a new digitalization strategy, https://www.digdir.no/skate/skates-innspill-til-ny-digitaliseringsstrategi/5273.
[4] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 1, https://www.digdir.no/rikets-digitale-tilstand/mal-1/3483.
[5] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 2, https://www.digdir.no/rikets-digitale-tilstand/mal-2/3501.
[6] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 3, https://www.digdir.no/rikets-digitale-tilstand/mal-3/3517.
[7] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 4, http://Status of the objectives of the digitalisation strategy: Goal 1.
[8] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 5, https://www.digdir.no/rikets-digitale-tilstand/mal-5/3519.
[9] Digdir (2023), Status of the objectives of the digitalisation strategy: Goal 6, https://www.digdir.no/rikets-digitale-tilstand/mal-6/3520.
[16] Digdir (2023), The Digitalisation Council, https://www.digdir.no/digitaliseringsradet/digitaliseringsradet/1877.
[3] Digdir (2023), The objectives of the digitalisation strategy, https://www.digdir.no/rikets-digitale-tilstand/status-pa-malene-i-digitaliseringsstrategien/3478.
[21] 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.
[14] Digdir (2023), What is the Norwegian Digitalisation Agency?, https://www.digdir.no/digdir/kva-er-digitaliseringsdirektoratet/703.
[31] European Commission (2023), eGovernment Benchmark 2023 Factsheets - Connecting Digital Governments, https://digital-strategy.ec.europa.eu/en/library/egovernment-benchmark-2023.
[30] 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/.
[12] Ministry of Local Government and Modernisation (2019), One digital public sector, https://www.regjeringen.no/en/dokumenter/one-digital-public-sector/id2653874/.
[2] 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.
[32] 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/.
[1] 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.
[10] 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 (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.
[33] OECD (2020), Health data sharing intensity, https://goingdigital.oecd.org/indicator/64 (accessed on 26 February 2024).
[11] 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.
[17] 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.
[22] OECD (forthcoming), OECD Digital Government Investment Framework.
[28] 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.
[18] Office of the Prime Minister (2023), Norway to establish new ministry, https://www.regjeringen.no/en/aktuelt/norway-to-establish-new-ministry/id3000284/.
[25] 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.