Citizens and Their Government - Tools of Democracy Government Information Access Council Working Group Recommendations - Working Document 6.0 10/23/95 - Draft to composition team Introduction ------------ The Citizens and Their Government Working Group has focused on the "Tools of Democracy" and developing recommendations in the areas of public access, electronic interaction, government applications and government re-invention and service delivery. Once finalized by the working group these recommendation will be forwarded for consideration in the Government Information Access Council 1996 report to the State Legislature. Tools of Democracy ------------------ The primary focus of discussions in the Citizens and Their Government Working Group has been on the "Tools of Democracy" section of the Government Information Access Council (GIAC) statute [MS 15.95, Sec. 1, Subd. 7. Access to Data] . The Minnesota Government Data Practices Act stands out as the foundation for ensuring that government information is publicly accessible. All government information, from data through books, is defined as public, or publicly accessible, unless otherwise classified by law. It should be noted that all public government data should be in an "arrangement and condition as to make them easily accessible for convenient use." The full application of the "Tools of Democracy" statute will help Minnesota prioritize efforts to significantly improve government openness and citizen participation by prompting active dissemination of this information through electronic and other means. This section highlights government information resources that should be actively disseminated and made available electronically whenever possible, either for free or at no more than the nominal cost for reproduction or electronic transmission. The task of the GIAC is to determine which information resources the GIAC legislation applies to and make recommendations on issues that arise with specific information provision, resource requirements, and potential conflicts in state statute. "Tools of Democracy" Statute Excerpt 15.95 GOVERNMENT INFORMATION ACCESS COUNCIL Section 1, Subdivision 7. ACCESS TO DATA. The legislature determines that the greatest possible access to certain government information and data is essential to allow citizens to participate fully in a democratic system of government. The principles that the council develops must assure that certain information and data, including, but not limited to the following, will be provided free of charge or for a nominal cost associated with reproducing the information or data: (1) directories of government services and institutions; (2) legislative and rulemaking information, including public information newsletters, bill text and summaries, bill status information, rule status information, meeting schedules, and the text of statutes and rules; (3) official documents, releases, speeches, and other public information issued by the governor's office and constitutional officers; and (4) the text of other government documents and publications that the council determines are important to public understanding of government activities. The council, on a continuing basis, shall identify and take action to ensure that identified government data are available free of charge, or for a nominal cost associated with reproducing the data. - End of excerpt. Identified Tools of Democracy ----------------------------- The following list of "tools" are based on months of discussion and research by the Citizens and Their Government Working Group. Additional suggestions or comments on this section should be submitted to the working group. The list identifies the core information resources that are "essential to allow citizens to participate fully in a democratic system of government" or are "important to public understanding of government activities." These documents or publications are currently accessible in traditional formats. Most of the information resources below have statewide application, criteria for specific resources from various government units are in the next section. Electronic dissemination and access is viewed as necessary to carry out the spirit of the GIAC legislation. The legislative language categories are in italics. (1) directories of government services and institutions; Minnesota Guidebook to State Agency Services State of Minnesota Telephone Directory Legislative Directories (2) legislative and rulemaking information, including public information newsletters, bill text and summaries, bill status information, rule status information, meeting schedules, and the text of statutes and rules; Legislative Information State Statutes (including Index and search tools) State Register - Sections with Rulemaking Information* Official Rulemaking Records and Public Rulemaking Dockets of State Agencies* State Rules * See Government Applications Recommendations on Rulemaking Public Access Information System (3) official documents, releases, speeches, and other public information issued by the governor's office and constitutional officers; and Governor's Office - Executive Orders, Speeches, News Releases, Appointments, Other Secretary of State - Open Appointments, Legislative Manual, Election Awareness Information Attorney General's Office - Attorney General's Opinions State Treasurer' Office - State Investment and Accounts Information State Auditor's Office - Information on local government budgets, revenues, and expenditures and other reports (4) the text of other government documents and publications that the council determines are important to public understanding of government activities. Statewide - General Information Resources Supreme Court and Court of Appeals - Slip opinions, general judicial information Ethical Practices Board - Election Finance and Other Reports State Budget Information Local Government - Tools of Democracy (Items like city codes, board minutes, etc. are likely candidates, a model information access system should be developed for potential use by local governments, see Government Applications Recommendations section). The "other" category is general in nature. The working group has developed a set of criteria for use by government units in setting priorities for improved access to information that should be considered a "Tool of Democracy." These criteria focus on the identification of information resource categories. The identification of specific publications or documents by the Government Information Access Council in the general "other" category is considered impractical, except for those that are statewide/government-wide in their application. Information Resource Categories - Tools of Democracy Criteria Information resources that meet one or more of the criteria below should be considered "Tools of Democracy." Government interest in providing improved access to information to meet public demand is growing; information dissemination prioritization and allocation of resources for well planned and fully implemented on-line efforts are required to allow Minnesota take advantage of this opportunity. Important challenges for effective electronic access and dissemination of information are organization, indexing, and storage of information and the need for networked public access terminals across the state. Below is a list of evaluation criteria. The more characteristics that apply, the more likely the information resource should be given priority for improved public access as a tool of democracy. A. The information resource is representative of the types of information listed in the "Identified Tools of Democracy" section, but produced by local and regional units of government, or is substantially produced with public funds. B. The information resource is a public information newsletter, press release, or general information disseminated by a government unit to improve the public understanding of government activities, services, or institutions. C. The information resource is a report required by statute to be submitted to the state legislature from any governmental unit. (State Agencies, Commissions, Task Forces, Local Governments, etc.) (There are thousands of required "reports" to the legislature. The requirement of submission of information to the legislature, raises the likelihood that the document should be considered a "tool of democracy," but the requirement itself should not be the only factor in prioritization for electronic access.) D. The information resource is a report required by statute to be submitted to the Governor from any governmental unit. (State Agencies, Commissions, Task Forces, Local Governments, etc.) E. The information resource is a major public policy report developed by a government unit for the purpose of informing the democratic decision-making process or a document which is important to public understanding of a government units activities. F. The information resource consists of government budget information including information about revenues, expenditures, and performance. Pricing for Tools of Democracy The "Access to Data" section of the GIAC statute states that information should be provided "free of charge or for a nominal cost associated with reproducing the information or data." The Information Access Principles working group has focused on this issue. According to the GIAC statute, it could be interpreted that pricing schemes allowed by other sections of statute like the determination of commercial value or actual cost pricing should not be used to price paper or electronic copies of a government unit's "Tool of Democracy." The Citizens and Their Government working group recommends that whenever possible, electronic versions of any "Tool of Democracy" should not have a fee associated with their access or use. In the era of electronic access, particularly through the Internet, a nominal or marginal cost pricing system would likely cost more to implement than the sum of revenue generated from fees collected for electronic copies. Additional Working Group Recommendations: Public Access ------------- Recommendations: 1. Public Access Points. Public access points to government information and services must be established across the state for the general public. These public access points should provide access to those government information services that should be universally accessible across Minnesota. The provision of government information and services electronically require coordinated efforts at all levels of government in conjunction with local organizations and the private sector. Public access points and necessary support for information technology oriented government service delivery should include a basic level of human assistance when needed. Over the next decade a significant number of Minnesota homes will have direct access to information and services through computer networks, however, the provision of a public service requires that all citizens have a reasonable opportunity to access that service. Technologies like the telephone-based interactive voice response systems and automated postal and fax-back systems should be used to complement computer and kiosk access systems. These public access points may take the form of computer terminals connected to the Internet, interactive kiosks that allow secure transactions, and improved use of widely available technologies like the telephone, FAX, and cable television systems. Proposals should be developed ensure that the following sites are explored for public Internet or kiosk access to government information services: public libraries, government offices, schools, colleges and universities, community and neighborhood centers, Extension offices, and other non-government "public" spaces that are conveniently located. By leveraging open networks like the Internet, government will be able to reach its customers through access points established for many different purposes. 2. Television - Interactive, Cable, and Broadcast. Interactive television, public access cable channels, and broadcast facilities should be utilized on a statewide basis to provide access to legislative and other government hearings. Advances in telecommunications and deregulation should include development of a public access system for video and audio coverage of important government events in Minnesota. Interactive television should be used across Minnesota more frequently to encourage broader public testimony at legislative and executive branch hearings. One of the most important "Tools of Democracy" is access to video and audio from the legislative process. The concept of Public, Education and Government (PEG) access to current and future mass communication mediums is fundamental to democracy. Advances in digital technology and the potential to distribute legislative and new executive branch video programming should be explored. All Minnesotans, regardless of geography, should have access to this informative programming. The experience of local governments and non-profit efforts like M-SPAN, should inform possible statewide developments. The expanding educational interactive television networks and MNet's digital video services may provide the framework for statewide distribution of government programming. Electronic Interaction ---------------------- Recommendations: 1. Government E-mail Addresses. All state agencies and important divisions that interact regularly with the public should have standardized general e-mail addresses to handle public inquires. These e-mail addresses and mechanisms to respond to basic electronic correspondence should be in place by July 1, 1996. 2. Community and Public-Access Networks. Support for community and public access networks across the state should include the involvement of the public, non-profit, foundation, and commercial sectors. The legislature should consider the development of mechanisms to support the development of community networks in all areas of the state to ensure that Minnesotans will be both consumers and content providers in Minnesota's information environment. Community networks, broadly defined, represent a significant on-line "public space" for citizen use of government information made available electronically. Citizen-to-citizen problem solving through electronic communication and traditional meetings at the community and state level should also be encouraged. Many government entities exist to develop and broker information for various public purposes, the electronic communication medium will offer new ways to create and share information that may change the way a government unit functions. 3. Government Participation in Electronic Communication. Government staff at the state and local level will find it possible to offer advice and assistance to community efforts within their professional focus through scores of electronic interest forums that will likely develop in Minnesota over the next few years. Training for government staff in how to best use this communication medium should be provided. Government agencies should be active participants in electronic interaction whether government sponsored or otherwise. The appropriate boundaries for government involvement and technical support for communication spaces where discussions involve broad social and political discourse should be explored and developed through experience. The professional use of this medium by government staff should not be confused with personal use which should be handled through private on-line accounts. Legislative and other decision-making bodies should use electronic interaction and electronic submission of public comments as a way to enhance and complement current participation activities in our representative form of government. 4. Elections and Information Technology. The legislature has considered allowing individuals to request absentee ballots via FAX. The application of information technology in the voting and election process would have major implications for our democracy. Proposals that would allow voting via telephone, FAX, or electronically should would require significant attention to authentication and security as well as the carefully considered determination that voting in this fashion would improve our representative democracy. This is a topic that will likely arise in the state legislature over the next few years. The working group recommends that this issue should be seriously considered and discussed. Government Applications ----------------------- Recommendations: 1. Government Information Locator and Indexing. The State of Minnesota should develop a comprehensive index and locator system for government documents and information systems. Such a system should utilize emerging standards and be compatible with efforts like the Federal Government Information Locator Service initiative. Such a locator system should include searchable data fields to ensure that government records and information systems are easy to find, whether on-line or not and assist the process for archiving and preservation of important records. The legislature should create a task force to develop a prototype system and make recommendations for the full implementation of such a system to the 1997 legislature. 2. Minnesota Government Information Architecture. Minnesota needs a comprehensive customer-focused government service delivery system that uses information technology and networks. Government organizations at local, state, and federal level, in the context of international open systems information standardization efforts, should collaborate to ensure that the citizen are provided with a user-friendly package of services. The legislature should support efforts by the Information Policy Office and Information Policy Council to create a government-wide information architecture for the cost-effective delivery of information and services and efficient intergovernmental communication. This information architecture should be implemented in a way that reduces government costs to deliver services and the overall costs to customers receiving services or information from government. 3. Accelerate Connectivity. Expansion of information network connectivity should be accelerated across all government units. A mix of direct connections to larger government and dial-up connectivity to smaller local governments should provide a full suite of Internet-based information services. Options for development include continued expansion of MNet (the state's telecommunication network), the use of private network service providers, development of an dial-up service for government units similar to the Internet for Minnesota Schools initiative, a combination of the above and other options. Use of these services should be directed toward provision of general e-mail addresses for government units for public communication and intergovernmental use. By the year 2000 all government units should have ability to receive and send e-mail and have basic connectivity to the Internet or government information networks. 4. North Star Internet Demonstration Project. The North Star Demonstration Project should be continued beyond June, 1996 and be expanded. The use of the World-Wide-Web and other Internet-based applications are an important starting point for government experience with seamless electronic publishing and service delivery. Resources for coordination/collaborative projects like North Star will be important for easy access to the scores of information services being developed by government units at all levels. Resources to assist the development of specific agency demonstration projects should be considered to help develop government best practices in this area. In order to make specific content available, the cost to maintain and develop integrated information services will exist in many government units. 5. Rulemaking Information System. A publicly accessible rulemaking information system should be developed. During the 1995 legislative session the legislature reformed the rulemaking process. State agencies with rulemaking authority are now required to maintain an official rulemaking record and a public rule making docket. These two sets of documents, that include rulemaking information from the State Register, statements of need or reasonableness, written comments, and rule proposal status information, present the framework for an electronic rulemaking public access information system. 6. Local Government Tools of Democracy Information System. A model system for collection and delivery of basic local government information like codes, rules and regulation, official minutes, and others should be developed. Local governments at the city, school district, county, and township level should work to develop a coordinated/replicateable system for storage and retrieval of public information. The legislature should promote the development of a plan for and prototype for such a system. Efforts should include local government representatives, local library representatives, citizens interested in local government information access and others interested in strengthening local democracy. 7. Education. The beneficial use of government information in a democratic society will be considerably aided by a citizenry with information skills. Building information skills required for general participation in the information age will have positive results that will go far beyond the use of government information. The economic development, civic engagement, and creative and cultural expression possibilities will likely motivate many of the efforts in this area. Educational programs that start with children in the schools and adults in community and higher education will help ensure that efforts in this area will make a positive contribution to the quality of life for all Minnesotans. Government Services Re-invention -------------------------------- Recommendations: 1. New Government. The devolution of the Federal government and efforts to move various government responsibilities to the state and local level provide a significant opportunity for innovation. The foundation for a horizontal government that promotes open communication and collaboration across all levels and units of government must be developed. Across the world, the barriers of geography and bureaucratic hierarchy are dissolving with the introduction of information networks This process of change will be assisted by the strategic development of information tools and communication forums that help bring governments together in order to find new and better ways to serve their citizens and succeed in meeting their goals and public purposes. To bring about "New Government," the basic connectivity described in other recommendations should include access to a well organized and powerful set of information tools that will make government-wide communication possible. Government staff, regardless of their location, should be able to communicate, share experiences, and collaborate on efforts in their professional area. This full service intergovernmental communications system should provide a set of Internet-based interactive services including basic e-mail, groupware applications - starting with e-mail group lists and news group forums, and a place to post notices and announcements of official government activities. These virtual government communication sectors would allow, for example, recycling coordinators in different communities to share ideas and strategies for improving recycling in their own communities. 2. Improved Service Delivery. The potential for improved delivery of government services is tremendous. The use of information technology should not simply automate inefficient delivery systems or make ineffective government programs less expensive to continue. Some ideas for improved government services include: 2a. Intergovernmental Data Sharing. Government units should improve their sharing of information to improve their service to the public and at the same time ensure that privacy concerns are fully addressed in the development of information system that contain information on individuals. Information that has been submitted by a citizen or business to a government institution, is legal to share, and which can be transferred electronically, should not be requested by another public institution again. Data should be requested only once. Government agencies should assess their demand for the information, which citizens and businesses must give, and stop collecting information no longer necessary for agency activities. Government databases with public information on persons, companies or geographical data should be more interrelated, and double registration of information should be avoided. Any combined or centrally accessible (information may reside in many database, but be technically retrievable through a single computer interface) public information database with information on individuals has tremendous privacy implications even if the information is not legally classified as private. Mechanisms for government-wide data sharing may require additional privacy protections even though information is publicly accessible directly from collecting agencies. It is important to note that in many cases the same information that is public in one agency is classified by law as private in another. 2b. N-1-1 - Single Telephone Access Number to Government. According to a survey by GIAC, the telephone is used more often than other technologies by the public to request government information and make inquiries. On-line efforts should include an emphasis that will help the citizen and government use the telephone more effectively. This includes human directory assistance, information referral, and use of interactive voice response technologies. A few states have studied the possibility of assigning a number like 3-1-1 to government. Depending upon where the call originates, an operator or IVR system would help route the call to the appropriate government unit in local, state, and potentially federal government. 2c. "One-stop Shopping" for Citizens and Businesses. The use of information networks make it possible to provide a mix of highly specialized government services from distributed service centers across the state. Service centers for business might include staff specializing in small business development with new computer-based video conferencing equipment to allow business persons and center staff to interact with specialists on other issues across the state. Other examples include current efforts in job searching, and continued interest in using secure kiosks to deliver certain licenses, permits and vehicle tabs. Future "one-stop" proposals should leverage each other's infrastructure needs to bring down total costs and be presented to the public under one banner or easy to identify government logo. 3. Economic Development. Efforts to promote economic development through improved access to economic development information produced by government should be encouraged. Minnesota should strive to be a world leader in the efficient and effective interaction among governments and businesses through the use of information technology and networks. The provision of services (either way), regulation and compliance, licensing, procurement, taxation and other interactions should be developed in ways that work to reduce the costs of that administrating that function for all parties involved. Resources --------- Recommendations: 1. Commitment of Resources. Whether it be improved access to the "Tools of Democracy", use of electronic interaction, or improvements in government services, these efforts require a commitment of resources and setting of priorities. Resources such as staff time and management leadership are as important as funding or reallocation of government budget resources. In an era of tight government budgets and likely budget cuts, the well planned use of information technology may help us maintain our level of public service through more efficient delivery of services. It should be recognized that the need for resources involves multiple levels of government and that in many cases technological investments will be required for future savings. 2. Leveraging Resources. Government should work to leverage international networks such as the Internet and position itself for use of future broadband digital networks. Open systems and interfaces such as the World-Wide-Web and more advanced standardization efforts will ensure that government does not bear unnecessary costs in developing stand alone systems and networks. Citizens, businesses, and potential public access points access many information sources from the private and non-profit sector as well as government. By ensuring the compatibility of government information services with this information infrastructure, government units at all levels will be able to focus their resources on the development of applications. 3. Funding through Efficiency. The costs to members of the public for the receipt of government services and information through the use of information technology should generally be comparable to the costs of traditional access. The delivery of information and services should be developed with the goal of being cost-effective for both the public and government unit. Efficient delivery systems should be promoted more heavily to increase public use. The legislature may determine that specific applications should allow for more cost recovery to support the costs of new technology, but this should only be done in such a way that fits the public mission of the agency or service. To support the development of more on-line services, the legislature should consider allocating portions of legislatively mandate fees for services/licenses to efforts of automation and electronic delivery. 4. Universal Service Funds. Public access to important government information services through public access points across the state should be supported through telecommunication universal service funds. Defining the "public lane" on the "information highway" should first focus on the infrastructure for general public access, and work to ensure over the long run that electronic information services the government develops are available to citizens and information consumers through advanced communication systems that use various telecommunications technologies. The distribution of government services electronically requires efforts to improve equitable access, however, the use of universal service funds should be reasonable and not create disincentives for investment or further development. It will be important to bring the information infrastructure providers and users into a process that develops a Minnesota vision for our information future. See the extended work of the Tax and Regulation Working Group for extended discussion on universal service funds. ----------------------------------------------------- Electronically Released 10/27/95. The above document has been forwarded to a GIAC final report composition team which includes two individuals from each working group. The composition team will send drafts back to the working groups and to the Executive Committee to ensure that the spirit of each groups work is covered in the final report. The final report will be presented to the legislature once the session begins in mid-January, 1996. Public comments are encouraged. All comments submitted about the working group drafts will be forwarded to the members of the composition team. Comments on the draft working group reports should be submitted as soon as possible. A draft version of the final report will also be made available for comment and will have a specific comment deadline. Please visit the GIAC WWW for more details at: http://www.state.mn.us/ebranch/admin/ipo/giac Public comments may be submitted via e-mail to: GIAC@state.mn.us - Or via the address, FAX, or telephone information below: Government Information Access Council Information Policy Office 320 Centennial Office Building 658 Cedar Street St. Paul, MN 55155 Telephone: 612-296-6451 TTY/TDD: 612-282-5599 or Greater Minnesota Relay 800-625-3539 and ask for 282-5599 Fax: 612-296-5800 E-mail: GIAC@state.mn.us