Accountability e Open Government
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AccountabilitySeminario
“Idatigovernativiaperticomeopportunitàdiaccountability”
LuigiReggi
24Gennaio2017
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Dicosa discutiamo
• Accoutability:Il”modelloideale”
• Nellapratica:casi,metodi,sfide,strumenti• Casiinternazionali• Ilcasodeifondistrutturalieuropei
• Conclusioni
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1.Che cos’èl’accountability
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10/12/15
“Tenereiregistri”
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“MonitorarelaPA”
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Acosa servel’accountability?
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Accountabilitydipersénonè l’obiettivo• LegittimitàdellaPA
• Controllodemocratico• PAecittadini:Fiducianelleistituzioniecrisidelsistemarappresentativo
• “Discrezionalità”nellaPA:“Cattura”ecorruzione
• Efficaciaedefficienzadell’azionepubblica• Contrastareidesideridiautonomiaecambiareledinamichedipotere
• Chisonogliesperti?Opportunitàdicollaborazione• Apprendimento
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Definizione
“Unarelazionetraunattore eunforum,dove1. l’attorehal’obbligodispiegareegiustificare lasuacondotta,2. ilforum halapossibilitàdifaredomandeedaregiudizi,e3. l’attorepuòpagarneleconseguenze”
(MarkBovens,2007)
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ATTORE(es.PA)
FORUM(es.cittadini)
Informazionisullasuacondotta
Dibattito Giudizio
Conseguenze(es.sanzioni,premialità,
esposizionepubblica,obbligoditenerecontodelgiudizio…)
(Adattato daBovens,2007)
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RappresentantielettiPartitipoliticiMediaCittadinivotanti
(Adattato daBovens,2007)
AccountabilityPOLITICA
TribunaliCortedeiConti…
AccountabilityLEGALE
AutoritàdiauditIspettorigeneraliAutoritàanti-corruzione…
AccountabilityAMMINISTRATIVA
GruppidiinteresseNGOsAltristakeholders….
AccountabilitySOCIALE
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2.Casi,metodi,sfideestrumenti
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Informazioni Dibattito Giudizio
Conseguenze
FASE1 FASE2
FASE3
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Informazioni
FASE1Trasparenzaperl’Accountability
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Allargarelaretedeisolitisospetti:Darapportidipotere“top-down”a“sorveglianzadiffusa”
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Trasparenzamediatadalletecnologie
1. UnidirezionaleIfunzionaripubblicinonsannochilistaguardando
2. DecontestualizzataDifficiledainterpretare,separatadall’interazionesocialediretta
3. AltamentestrutturataOpenDatasonodatiprevalentementequantitativi
(Meijer,2009)
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“Transparencyisjustawaytogenerateimagestoinfluencepolicyprocesses”
(PaulFrissen,1999)
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Informazioni
FASE1
“Trasparenzaobbligatoria”
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Informazioni
FASE1
“Trasparenzadiscrezionale”
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OpenGovernment Partnership
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Informazioni
FASE1
“Trasparenzainvolontaria”
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Anonymous
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Wikileaks
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“Civic hacking”
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OpenBilanci
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Accountability deiFondiStrutturaliEuropei
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Misurarelatrasparenzaperl’accountability
• Indagineannuale2010-2017.Ricercaindipendente,poidal2014-2016condottaefinanziatanell’ambitoprogettoOpenCoesione• AnalisidirettadeisitidelleAutoritàdiGestionedituttiiProgrammiOperativiEuropeiFESReFSE
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“Curadeldato”
Dettaglio
FinanziamentoLocalizzazione
PoliticheStatodiavanzamento
ProgettoRisultati
Qualità
AccessibilitàDescrizionedeidati
Formato
PDFscansionatoPDFDOCHTML
HTML(chiuso)HTML(unicapagina)
XLSCSV
XML,JSONRDF
LicenzaAggiornamento
“Utilità”Navigazione
MappeegraficiRicerca
PartecipazioneContattiGuida
(Riccietal.,2015)
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0.0%
50.0%
100.0%
150.0%
200.0%
Calabria
Campania
Puglia
Sicilia
Basilicata
Abruzzo
Emilia-Ro
magna
Friuli-VG
Lazio
Liguria
Lombardia
Marche
Molise
PABolzano
PATrento
Piem
onte
Toscana
Umbria
Valled'Aosta
Vene
to
Sardegna
Dettaglio Qualità Navigazione Partecipazione
ProgrammiFESR2007-13
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0.0%
50.0%
100.0%
150.0%
200.0%
Campania
Calabria
Sicilia
Basilicata
Puglia
PonGo
vAzSis
Abruzzo
Emilia-Ro
magna
Friuli-VG
Lazio
Liguria
Lombardia
Marche
Molise
PABolzano
PATrento
Piem
onte
Toscana
Umbria
Valled'Aosta
Vene
toSardegna
Dettaglio Qualità Navigazione Partecipazione
ProgrammiFSE2007-13
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Usabilità
Qualitàecura
deldato
Dati chiusi
Qualità del dato
FOCUS SUDati grezzi,
dettaglio elevato, riuso
Visualizzazione
FOCUS SUDati aggregati,
cittadini non tecnici
PDF, minimodettaglio per
soddisfare i requisitidel regolamento
Portale uniconazionale
Portale facilmenteaccessibili + dati
di qualitàscaricabili
Evoluzionedellestrategiedipubblicazionedeidati:2010-2017
(ReggieRicci,2011)
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PaesiUEconportaleunicochepubblicaidatisuiprogettifinanziatidaiFondiStrutturalieInvestimentoEuropei
Anno2016
Fonte:OpenCoesione
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Accountability deiFondiStrutturaliEuropei:ilportaleitalianoOpenCoesione
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OpenCoesione.gov.it
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Informazioni Dibattito Giudizio
Conseguenze
FASE1 FASE2
FASE3
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Monitoraggiocivico
DibattitoeGiudizio
FASE2
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Da“cittadinanzainformata”a“cittadinanzamonitorante”
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Accountability deiFondiStrutturaliEuropei:ilcasoMonithon
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Monithon.it
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• Alghero:riqualificazione della palestradelliceo scientifico EnricoFermi
• Sassari:realizzazione dellametropolitana leggera
• Olbia:ampliamentodell’aeroporto• Nuoro:riqualificazionedell'exMulino
Gallisai• Nuoro:progetto"Gliitineraridella
cultura-Pratzas deJanas"(piazzedellefate)
• Macomèr:dotazionediLIMpressol’istituto“SebastianoSatta”
• Cagliari:Linea3Gottardo-PoliclinicodellaMetropolitana
• Cagliari:Pistaciclabiledi"SuSiccu"
IReportdiMonitoraggioCivicosuMonithon.it
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Monitoraggiocivico:lesfide
• Difficoltàaindividuareilsoggettodarendereaccountable (“many hands”)• Difficoltàacapireeinterpretarel’informazione• Mancanzadiconoscenzaecapacitàspecifiche• Difficoltàastabilirerapportistabilidicollaborazioneconleamministrazioni• Sostenibilitàeconomicadelleiniziativedimonitoraggiocivico
DibattitoeGiudizio
FASE2
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Informazioni Dibattito Giudizio
Conseguenze
FASE1 FASE2
FASE3
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Qualiconseguenze? Conseguenze
FASE3
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“Naming andshaming”
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Lesfidedell’integrazionedelfeedbackdeicittadini
• Legalieamministrative:procedure,regoledipolicy,rappresentativitàdelfeedback(es.ruolodegliintermediari)• Organizzative:creazionedinuoviprocessi,competenzeecapacitàamministrativa,resistenzaalcambiamento,messaindiscussionedirelazionedipotereesistenti,coordinamentotraamministrazioniingovernancecomplessa/multilivello• Cognitive:interpretazione,razionalitàlimitata• Economiche:costi• Tecniche:StrumentiICT,integrazionedeidatigeneratidagliutenti
Conseguenze
FASE3
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3.Conclusioni
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Undesignalternativoperlatrasparenza
1. Bilanciamentodeidueprincipidi“Curadeldato”e“Utilitàperl’utente”
2. Trasparenzasuiprocessi.Comevengonopreseledecisioni?Obiettiviepolicyrationales.Chièresponsabiledicosa?
3. Trasparenzasuirisultati.Risultatoeimpattodell’azionepubblica:performance,indicatoridirisultato,impatto,valutazione
4. Azioniproattiveperguidarel’utenteecontestualizzare l’informazione
Informazioni
FASE1
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Abilitare il “dibattito”eil“giudizio”degli utenti1. Facilitareilmonitoraggiocivico:promozionedi
strumentiemetodiperilmonitoraggioindipendentedeirisultatieimpattodellepolitiche
2. Mettereincampoazioniproattiveperlaraccoltadelfeedback (stimolodelmonitoraggiocivico,sondaggi,consultazioni,usodeisocialmedia…)
3. Stimolareundibattitopubblicoinformato(coinvolgimentodeimedia,datajournalismschools...)alivellosettoriale/locale
4. Investirenell’empowerment dellecomunitàlocali,apartiredallescuole
DibattitoeGiudizio
FASE2
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Le“conseguenze”:integrareilfeedbackdegliutenti1. Favorireilcoinvolgimentosostanzialedel
partenariatoeconomicoesocialesupolitichespecifiche/settoriali(stakeholders ecomunitàlocalibeneficiariedegliinterventi…)
2. Promuoveremodalitàpermanentidiconfronto/co-design dipoliticheeservizi
3. Crearenuovimeccanismilegaliedipolicycheobblighinoleamministrazioniatenercontodelfeedback
4. Rafforzareiprocessiamministrativiperl’integrazionedelfeedbackdegliutentinelledecisionipubbliche
5. Investiretempoedenaroincapacitàamministrativa
Conseguenze
FASE3
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Letture• Bovens,M.(2007).Analysing andAssessingAccountability:AConceptualFramework.European
LawJournal,13(4),447-468• Meijer,A.(2009).Understandingmoderntransparency.InternationalReviewofAdministrative
Sciences,75(2),255-269.• Shkabatur,J.(2013).Transparencywith(out)accountability:OpengovernmentintheUnited
States.YaleLaw&PolicyReview,31(1).• Dawes,S.S.(2010).Stewardshipandusefulness:Policyprinciplesforinformation-based
transparency.GovernmentInformationQuarterly,27(4),377-383• Reggi,L.,&Dawes,S.(2016).OpenGovernmentDataEcosystems:LinkingTransparencyfor
InnovationwithTransparencyforParticipationandAccountability.ElectronicGovernment:15thIFIPWG8.5InternationalConference,EGOV2016,Guimarães,Portugal,September5-8,2016https://www.ctg.albany.edu/publications/bookchapter/data_ecosystems_linking_transparency/data_ecosystems_linking_transparency.pdf
• Reggi,L.,&Ricci,C.A.(2011).InformationstrategiesforopengovernmentinEurope:EUregionsopeningupthedataonstructuralfunds. IFIPWG8.5internationalconferenceonElectronicgovernment.http://dl.ifip.org/db/conf/egov/egov2011/ReggiR11.pdf
• Ricci,C.A.,Biagetti,M.,Reggi,L.(2015). DatapublicationonthebeneficiariesofEUStructuralFunds:whatstrategiesfortheEuropeanregions?. Prisma – Economia,Società,Lavoro. Issue1,pp.65-80. FrancoAngeli.
• Ciociola,C.,&Reggi,L.(2015).AScuola diOpenCoesione:Fromopendatatocivicengagement.InJ.Atenas&L.Havemann (Eds.),OpenDataasOpenEducationalResources (pp.26-37).London:OpenKnowledge,OpenEducationWorkingGrouphttp://oro.open.ac.uk/44777/1/Book-Open-Data-as-Open-Educational-Resources1.pdf#page=27
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Il seminario «I dati governativi aperti come opportunità di accountability» rientratra le attività del progetto "OpenRAS: dati aperti per la trasparenza el’accountability” - Programma Operativo Regionale FSE 2014-2020 (Decisione C2014 N° 10096 del 17/12/2014), Asse 4 – Capacità istituzionale e amministrativa,azione 11.1.1 “Interventi mirati allo sviluppo delle competenze per assicurarequalità, accessibilità, fruibilità, rilascio, riutilizzabilità dei dati pubblici”.