2016 cio agenda: a government perspective · creation of value, the pervasive use algorithms and...

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2016 CIO Agenda: A Government PerspectivePublished: 19 February 2016

Analyst(s): Rick Howard, Jim Hocker

The 2016 Gartner CIO Survey describes how leading organizations areevolving from business systems to business platforms to leverage thenetwork effects of digital change. We present the CIO agenda forgovernment and note key trends among jurisdictions and geographicregions.

Key Findings■ Digital service transformation is at the embryonic stage of maturity in government. This will

require the sustained focus and commitment of successive administrations to realize thecumulative, step change benefits of moving from system- or process-driven business models tooperating as a platform within a digital ecosystem.

■ Analytics, infrastructure and cloud computing continue to be the top three technology prioritiesfor government CIOs in all tiers and regions, but shortages of skilled workers and rigidorganizational cultures are among the major barriers to implementing digital priorities.

■ Almost 40% of government CIOs indicate their IT program budgets are growing; 44% ofgovernment IT budgets will remain unchanged; and only 17% report decreasing budgets, mostmarkedly in national (or federal) and defense agencies.

■ CIOs report a 34% adoption rate of bimodal IT in government, slightly lagging behind privateindustry (38%). An additional 26% of CIOs in both sectors plan to be bimodal IT organizationsin the next three years.

Recommendations■ Determine your agency's digital government maturity level. Identify key performance indicators,

and baseline current business metrics as inputs for your digital business strategy.

■ Work with governance board members to ensure IT spend reflects short-range priorities thatshift the citizen-government engagement model from online services to a digital experiencemodel.

■ Implement your technology priorities with the support of a bimodal workforce capable ofdelivering rapid business innovation, while maintaining a stable, secure IT environment.

■ Honestly evaluate and push the boundaries of your own level of digital courage so that thebenefits of digital transformation opportunities can be communicated and pursued.

Table of Contents

Survey Objective.................................................................................................................................... 3

Data Insights.......................................................................................................................................... 3

Business Context — Digital Is Becoming a Core Competency..........................................................3

Governments Should Think Beyond Systems and Adopt a Platform View of Business................5

IT Investment Priorities — Analytics, Cloud and Infrastructure Dominate, but Security Spikes in North

America............................................................................................................................................7

IT Spending in Government Continues to Be Stable or Up Slightly — For Most.......................... 9

IT Operating Practices — Government CIOs Are Building Up Bimodal Capabilities and Leading

Digital Change................................................................................................................................ 11

Government CIOs Are Stepping Up to Lead Digital Transformation and Innovation......................... 13

Methodology.................................................................................................................................. 16

Appendix........................................................................................................................................16

Gartner Recommended Reading.......................................................................................................... 17

List of Tables

Table 1. 2016 Government CIO Survey: By Tier....................................................................................16

Table 2. 2016 Government CIO Survey: By Region...............................................................................17

List of Figures

Figure 1. Top Three Business Outcomes That Government CIOs Expect Digital to Achieve.................... 4

Figure 2. Government CIOs Anticipate the Digital Impact on Business Processes Will Increase.............. 5

Figure 3. Digital Visionaries Understand the Power of Platforms Throughout Their Business................... 6

Figure 4. Top Technology Areas Where Government Agencies Are Investing: By Region.........................8

Figure 5. Top Technology Areas Where Government Agencies Are Investing: By Tier..............................9

Figure 6. Changes in Government IT Budgets...................................................................................... 10

Figure 7. Top Barriers Facing Government CIOs................................................................................... 11

Figure 8. Government CIO Adoption of Bimodal Capabilities................................................................ 12

Figure 9. Government CIOs Are Stepping Up as Digital Leaders...........................................................14

Figure 10. Government CIO as Trusted Ally and Partner....................................................................... 15

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Survey ObjectiveEvery year, Gartner surveys the membership of its Executive Programs to expose key priorities,opportunities and threats facing its members across the globe. The annual CIO survey is the largestof its kind, with CIO respondents in 84 countries and all major industries, representingapproximately $11.1 trillion in revenue or public-sector budgets and $250 billion in IT spending. Ofthe 2,944 respondents to the 2016 Gartner CIO Survey, 379 were government CIOs. Of these CIOs,122 served federal, national or international agencies; 37 were from defense and intelligence; and193 were directing IT at the local (city or county) or regional (state or provincial) tiers of government(see the Appendix for a breakdown of respondents by tier and region). There were 27 respondentswho selected "government" as their primary industry and then selected "other" as their subindustry.Where indicated, these responses are either included in the "all other industries" population oromitted altogether.

Our analysis of government CIO responses notes key priorities and highlights trends in comparisonwith previous years' responses. It also identifies important differences with the broadernongovernment CIO population.

The survey focused on issues concerning:

■ Business context

■ IT investment priorities

■ IT operating practices

Data Insights

Business Context — Digital Is Becoming a Core Competency

For leading enterprises, government included, digital business is moving from an innovative trend toa core competency. However, digital is different for every enterprise, posing unique challenges andopportunities for each organization in terms of talent, structure, innovation and the role that the CIOshould play.

How to apply digital technologies to improve business performance and citizen engagementcontinues to be a chief focus for Gartner clients globally. In government, leveraging digitaltechnologies and business models to transform traditional operational and service models, whileimproving organizational performance and program outcomes, has now risen to the top of thebusiness agenda for many elected leaders and public officials (see Note 1).

This year's CIO survey data indicates that government CIOs expect operational benefits to be themost significant benefits gained from the move to digital business models (see Figure 1).

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Figure 1. Top Three Business Outcomes That Government CIOs Expect Digital to Achieve

Source: Gartner (February 2016)

In addition to the CIO survey, industry sources indicate that the attention of CIOs in governmentremains more on the tactical, such as reducing costs, improving digital channels to citizens, andcreating operational efficiencies that better manage revenue or reduce fraud and waste. In thissense, digital government is currently being deployed as an extension of earlier e-governmentinitiatives, which largely preserved existing operational or service models. Thus, the benefits ofstrategic transformational endeavors — such as forming tighter partnerships and service integrationwith jurisdictions and industries across wider geographies, or even among adjacent agencies withinthe same government enterprise — are likely to be explored and realized by only the mostinnovative public-sector agencies.

Whether a government CIO is pursuing quick, tactical wins on an ad hoc basis or as directed by anenterprise digital business strategy, there is near unanimous agreement that significant digitaldisruptions to existing and future business processes are inevitable (see Figure 2). Collectively,government CIOs estimate 80% of business processes will be impacted by digital within five years.They expect 62% of business processes to be affected in two years, and a full 44% are nowundergoing digital change.

With this much anticipated business process impact on the horizon, there is a high risk to CIOs ofnot being able to keep up with — or even centrally coordinate and manage — IT innovations. Thisrisk will compound over the next five years if IT budget pressures increase and shadow IT growsunchecked.


Figure 2 shows responses to, "What proportion of your business processes has been impacted bydigital opportunities and threats? What do you expect the proportion will be in two years and in fiveyears?"

Figure 2. Government CIOs Anticipate the Digital Impact on Business Processes Will Increase

* Sample size is less than 30; results are directional.


Governments Should Think Beyond Systems and Adopt a Platform View of Business

Businesses and government agencies are looking less like fixed "systems" and more like platformsoperating within an ecosystem that often extends beyond the organizational boundaries.Unfortunately, most still adhere to a system view of a business that has clear boundaries, withsuppliers providing inputs, and internal people, assets and capabilities creating products andservices through "step-fixed" business processes — fixed in the short term, but changeable overtime at significant cost and risk — and delivering the products and services to customers orcitizens. The function of the system business model in government is to deliver value isolated to thecitizens within allocated jurisdictions, budgets and risk tolerance.

In contrast, a platform provides the business with a foundation where resources can come together— sometimes very quickly and temporarily, sometimes in a relatively fixed way — to create valuethat may extend beyond budget and jurisdictional boundaries. Some resources may be inside,permanently owned and managed by the agency; some resources will be shared; and someresources can come from outside, with little or no agency control. The value largely comes from


connecting the resources, and the network effects between them. Constituents choose the valuethat they experience, and the business model focuses equally on generating value and learning.

In 2009, Tim O'Reilly began promoting Gov 2.01 or government as a platform (GaaP).

2 Attributes of

GaaP — such as openness (software, data, standards and so on), transparency, collaboration, co-creation of value, the pervasive use algorithms and APIs, a shared digital infrastructure, andmodular and interoperable components — are actively being integrated into government agencyoperation models in the U.K., the U.S. and Australia.

The GaaP concept can be understood as a model composed of five platforms: technical, delivery,talent, leadership and business/value (see Figure 3).

Figure 3. Digital Visionaries Understand the Power of Platforms Throughout Their Business


Technologists have long understood the notion of platforms in terms of internal architectures (buses,APIs, object orientation, modularity, reusability and so on) and technology products and services.The challenge is that, sometimes, these platforms have been designed for technical elegance,rather than business value.

Technical platforms are a view from the bottom; platform economics is a view from the top. Thechange happening now, and the insight gained from this year's CIO survey, is that platformconcepts need to penetrate, and are penetrating, all aspects of the business.


Not every organization is ready to be a platform organization due to its economic model, but theconcept of platforms is important to all businesses — public or private sector, large or small, andinformation-intensive or physical-asset-heavy. Therefore, all organizations should be preparing forand moving toward the platform concept in principle.

These key aspects of a platform business distinguish it from the more traditional system view of abusiness:

■ Creating value through connections and interactions, rather than ownership of individualresources

■ Flexible, dynamic connections, rather than fixed hierarchies

■ Semiporous boundaries, rather than hard delineation of inside and outside, which exposecomponents that are not yet products or services to the outside, and allow corporate resourcesto be accessed from the outside

■ Supporting continuous learning and change, rather than focusing on "running the machine" withexpensive step-fixed change

Government CIOs can position strategic IT investments to meet immediate tactical needs, whiledirecting digital change by transitioning away from insular business systems to more-opengovernment platforms. Ultimately, GaaP is an engagement platform that operates fluidly acrossbusiness sectors and jurisdictions to combine public resources with civilian talent to meet the 21st-century challenges that government cannot solve by itself.

Recommendations:

■ Lead the shift from system thinking to platform thinking in terms of business models, deliverymechanisms, talent and leadership. Digital needs to be a team sport, with a flexible leadershipplatform that allows organization leaders to fluidly manage resources toward effectiveexecution.

■ Determine your agency's digital government maturity level. Identify key performance indicators,and baseline current business metrics as inputs for your digital business strategy (see"Introducing the Gartner Digital Government Maturity Model").

■ Begin the journey to digital transformation by following action plans that build platformcapabilities into your agency (see "Building the Digital Platform: The 2016 CIO Agenda").

IT Investment Priorities — Analytics, Cloud and Infrastructure Dominate, but SecuritySpikes in North America

Government technology investments — deferred by the global recession — are now slowlyincreasing, particularly among local and regional jurisdictions, though the international economycurrently faces renewed turbulence that is creating pressure on many IT organization to immediatelyreduce or optimize costs. The top areas of new technology spending in government make it clearthat significant spending and program focus continue to be on business intelligence and analytics


(see Figures 4 and 5). As analytics has become a core competency and competitive differentiator fororganizations, its importance has risen to the executive level (see "Predicts 2016: AnalyticsStrategy").

As in 2015, government CIOs are making the shift from owner-operator to cloud and servicepractices. This shift is becoming more dramatic as agencies move beyond the easy workloads(public-facing websites or business services with nonsensitive data) to even more highly regulatedapplications with sensitive data (see "Get Ready for the Inflection Point in U.S. Federal GovernmentCloud Adoption").

Moreover, with security and privacy concerns at an all-time high — particularly in the U.S. federalgovernment due to major breaches in 2015 — awareness is building that the higher up theapplication stack CIOs go, the greater the security and disaster recovery benefits obtained withcommercial cloud vendors (see "Predicts 2016: Government Continues to Adapt to the Digital Era").

Infrastructure and data center spending remains high on the list, particularly in North America,where it is tied with moving to cloud services as the top investment priority. The huge capitalinvestments many governments made to consolidate data centers prior to the 2009 recession areused to justify continued spending on the assets they own and operate, thus limiting opportunitiesto invest more heavily in Mode 2 of their delivery platforms.

Figure 4. Top Technology Areas Where Government Agencies Are Investing: By Region

APAC = Asia/Pacific; NA = North America



Notably, CIOs in the Asia/Pacific and EMEA regions indicate digitalization is a much higher prioritythan their North American peers. This reflects the maturing investments of sustained national e-government and digital government initiatives that have been underway for a number of years,specifically in Asia/Pacific and the Middle East. These regions are on pace to realize the benefits oflarge-scale digitalization sooner than countries that are not benchmarking their progress against anadequately financed and well-governed digital strategy.

Nonetheless, digitalization largely remains within the purview of national or federal governmentswhere such investments often fit the political agenda of government leaders as much as or morethan the delivery of services do. Local and regional governments and government leaders, relyingmore on real and perceived value at the individual constituent level, rank digitalization investmentsas a lower priority and are concerned with more-foundational programs, such as legacymodernization and security (see Figure 5).

Figure 5. Top Technology Areas Where Government Agencies Are Investing: By Tier


IT Spending in Government Continues to Be Stable or Up Slightly — For Most

As Gartner predicted in 2013, stabilized and slightly growing government IT budgets would soon fallbehind a recovering private sector "poised to boost investments in e-commerce, mobile, cloud,


social and other major technology categories" (see "Government CIO Agenda 2013: 'Do Better Withthe Same'"). Fifty-three percent of all industries report their IT budgets are growing, well ahead ofthe 43% in local and regional governments and the 37% for national governments (see Figure 6,which is based on comparison of 2015 IT spending and anticipated 2016 IT spending).

Figure 6. Changes in Government IT Budgets

Numbers may not total 100% due to rounding.


Nonetheless, the current budget picture has improved for national civilian agencies, which report a19% decrease in 2016 in contrast to the 30% decrease noted in 2015 (see "2015 CIO Agenda: AGovernment Perspective"). Paradoxically, despite stable or increasing budgets, financial constraintsappear to be a contributing factor for the slow move to digital business in government (see Figure7). Economic uncertainty is on the rise, and it is unlikely overall government IT budget stability orgrowth will continue in 2016 at the levels reported in the past three years. Although current budgetsfor many government CIOs may be stable or increasing, that doesn't mean cost reduction hasbecome any less of a priority. Therefore, it is vital that government CIOs align all IT investments tosupport a formally approved digital strategy and to tightly correlate them to delivering businessvalue, regardless of the direction the IT spend in their agency takes over the next budget cycle.


Figure 7. Top Barriers Facing Government CIOs


Recommendations:

■ Increase agencywide awareness of peer government agencies or large, successful private-sector consumer services that are transforming business operations and services with digitalinnovation and civic moment use cases.

■ To address the funding and budgets barrier, create a budget-neutral "digital venture capitalfund." This dedicated fund extends existing digital funding. As business leaders seek money fordigital initiatives, they may receive allocations from the fund. Once the initiative yields results,the fund is reimbursed (see "Savvy Digital Leadership Makes a Difference in LocalGovernment").

IT Operating Practices — Government CIOs Are Building Up Bimodal Capabilitiesand Leading Digital Change

Bimodal has been misinterpreted by many as simply the introduction of agile tools andmethodologies like Scrum — but it is more than that. The defining characteristic of bimodal is thatan organization has two different approaches to IT (and ultimately the entire business — also knownas "ambidextrous business") running in parallel: one suitable for more-predictable work (includingoperations and traditional development), and the other for exploratory work.

Each mode requires different subcultures, tools, approaches and metrics. The far end of thebimodal journey is separation between Mode 1 IT and other business function "factories," andMode 2 multidisciplinary teams that stay together for the long term, ever deepening thedigitalization of a particular aspect of the business (customer segment, product line or businessprocess). Workflows between the two modes of bimodal are based on the need to exploit versusexplore.


The public sector is not immune from the digital disruptions that are sweeping through otherindustries, upending business models, and creating entirely new products and services. In the e-government era, most organizations adequately managed IT in Mode 1, bringing public servicesonline using the same inflexible procurement, governance and project management practices theyhad always used. As a consequence, business units began to steadily bypass IT, choosing to godirectly to the market for the services and solutions they needed (see "Embracing and CreatingValue From Shadow IT").

Government CIOs indicate the level of adoption of bimodal IT is on par with their private-sectorpeers (34% versus 38%), although 30% of respondents are unsure if bimodal practices are in effector being planned (see Figure 8). As noted in Figure 1, the tactical focus is on digital benefits, and66% of government organizations have yet to formally operate in a bimodal manner. So, it isreasonable to assume much of what CIOs call Mode 2 remains focused on speed (faster delivery ofpredictable work), rather than leading the way toward exploration and exploiting the possible.

Figure 8 shows survey reponses to, "Does your company have bimodal IT, or does it plan to have itin the next three years? Does business have two modes of operation?"

Figure 8. Government CIO Adoption of Bimodal Capabilities

Numbers may not total 100% due to rounding.


The rapid adoption of bimodal practices — such as crowdsourcing, work with startups or small ormidsize businesses (SMBs), multidisciplinary teams, agile methodologies, bimodal subcultures, andadaptive sourcing — is necessary for government CIOs (see "A Practical Guide to Bimodal AdaptiveSourcing Research").


Government CIOs Are Stepping Up to Lead Digital Transformation and Innovation

One thing that has not changed, and will not change, is that leadership is critical for all businesssuccess. IT and digital business are no different in that respect. Having strong and clear leadershipas the IT and digital business worlds evolve continues to be critical.

Gartner has been following the rise of the chief digital officer (CDO) in the recent past, predictingthat the CDO role will be influential for a few years before it merges with the CIO role as digitalbusiness considerations are embedded in every business and IT role, and as strategic CIOs take ondigital leadership (see "Beyond the Government CIO: Chief Data or Digital Officers?"). This mergingof CDO and CIO responsibilities appears to be happening more quickly than expected, with theenterprise CDO growth stalling at 9% from 2015 to 2016 (see "Building the Digital Platform: The2016 CIO Agenda").

The 2016 global survey shows that 38% of all CIOs say they are stepping up and taking the digitaltransformation leadership role, and 33% say they are taking on innovation leadership. The rates ofmultiple responsibilities are higher among the 111 government CIOs who responded to thequestion, "In which areas are you (the CIO) designated as the person in charge …?" Among allgovernment CIOs, 49% indicated they assume CDO responsibilities, while another 41% areassigned to lead innovation, and 31% are charged with driving enterprise change. Figure 9 breaksthe total number of responses down further according to tiers or domains.


Figure 9. Government CIOs Are Stepping Up as Digital Leaders

CRO = chief risk officer


The need for effective executive leadership is at a premium in the public sector. With an oftenunmatched and unrivaled enterprise perspective of the organization and deep knowledge of thedata that fuels it, government CIOs are well-positioned to bridge operational silos and makeconnections that individual line-of-business managers often miss. When combined with theirunderstanding of digital technologies and the broader market transformations that thesetechnologies are producing, government CIOs have the opportunity to extend their influence wellbeyond the "IT box" on the agency's organization chart.

Government CIOs must avoid the temptation to think of digitalizing the business in a cold, clinicaland seemingly logical way. Becoming more digital actually represents a continuum of personal riskfor the CIO, and business risk for the entire enterprise. It may involve stepping into the unknown inorder to explore the possible and create new value. In the risk-averse world of government, agencyleaders and the CIO must actively decide how courageous they are willing to be, and how much riskthey are willing to take and how they can best manage the risk (see "Where the Buck Really Stopsfor Government IT Project Failure").

Fortunately, government CIOs appear to enjoy the same levels of trust and active partnership astheir industry counterparts (see Figure 10). That is encouraging, because trust is foundational to


undertaking any risky endeavor (see "The New Leadership Team for Digital Technology").Government CIOs can honor that trust by delivering digital solutions and promoting managementpractices that move government into operating as a responsive, open platform for its workforce,partners and citizens.

Figure 10 shows responses to, "How would you describe the current levels of influence and powerof the CIO and IT?"

Figure 10. Government CIO as Trusted Ally and Partner

* Sample size is less than 30; results are directional. Numbers may not total 100% due to rounding.


Recommendations:

■ Use your position and influence to practice digital leadership as a team sport, aided by aflexible leadership platform that enables institution leaders to fluidly manage resources towardeffective execution.

■ Free up time through delegation and aggressive prioritization. Use that time to influence andincrease enterprise digital savvy, work on business issues (less on managing IT), and buildstakeholder power.

■ Create a digital-first organizational culture where everyone at all levels is committed to themission of bringing retail-grade levels of performance and consumer satisfaction to citizens andsociety.


■ Honestly evaluate and push the boundaries of your own level of digital courage so that thebenefits of digital transformation opportunities can be communicated and pursued.

Methodology

This research is based on data collected for the 2016 CIO survey. Using an online survey, Gartnercanvassed Executive Programs members and other IT leaders between 4 May 2015 and 24 July2015. Gartner collected input from 2,944 CIO respondents in 84 countries and across majorindustries and the public sector. Together, these organizations represent approximately $11 trillion inrevenue and public-sector budgets, and $250 billion in annual IT spending.

Gartner designed the survey to prove or disprove a series of hypotheses devised by a core team ofGartner research analysts and Executive Programs representatives. The research involved extensivereview prior to publication. The findings from the total dataset were published in their entirety as"Building the Digital Platform: The 2016 CIO Agenda."

Appendix

Table 1 and Table 2 describe the 2016 CIO survey demographics of government respondents.

Table 1. 2016 Government CIO Survey: By Tier

2016

Total Count CIOs 2,944

Government (All) 379

Government — National or International 122

Government — Local or Regional 193

Government — Defense and Intelligence 37

Government — Other 27



http://www.gartner.com/document/3142019?ref=exp-report

Table 2. 2016 Government CIO Survey: By Region

National or International Local or Regional Defense and Intelligence Other Total

Asia/Pacific 26 19 3 6 54

EMEA 54 50 3 3 110

Latin America 4 10 1 4 19

North America 45 107 30 14 196

Total 129 186 37 27 379


Acronym Key and Glossary Terms

APAC Asia/Pacific

CDO chief digital officer

CRO chief risk officer

EMEA Europe, the Middle East and Africa

NA North America

SMB small or midsize business

Gartner Recommended ReadingSome documents may not be available as part of your current Gartner subscription.

"Hints and Tips on Using Gartner Numbers When Reviewing IT Spending Plans"

Evidence

This research is based on data findings from the 2016 Gartner CIO Survey. The original survey datawas collected online from 2,944 members of Gartner Executive Programs and other IT leadersbetween 4 May 2015 and 24 July 2015.

1 T. O'Reilly. "Gov 2.0: The Promise of Innovation." Forbes.com. 10 August 2009.

2 T. O'Reilly. Chapter 2 titled "Government as a Platform" in D. Lathrop and L. Ruma. "OpenGovernment." 2010.


http://www.forbes.com/2009/08/10/government-internet-software-technology-breakthroughs-oreilly.html

http://chimera.labs.oreilly.com/books/1234000000774/ch02.html

Note 1 Governments Find a Home for Digital Innovation … For Now

Government leaders at all tiers of government and regions of the world have established highlyvisible and prominently positioned business units — often led by a chief digital officer or chiefinnovation officer — to demonstrate the importance of digital technologies and services to drivetransformation. At the national level, Australia's Digital Transformation Office within the Departmentof Communications, the U.S. Digital Service's 18F housed in the U.S. General ServicesAdministration, and the U.K. Government Digital Service in the Prime Minister's Cabinet Office arecharged with rapidly deploying citizen-facing services and promoting best digital leadershippractices among government agencies.

At the local level, the Mayor's Office of New Urban Mechanics for the cities of Boston andPhiladelphia sponsor innovative projects that connect government with citizens, educationalinstitutions and private industry. While these organizations can accelerate the adoption of digital-first practices, it is uncertain whether they will be widely replicated, let alone survive and thrivebeyond changing priorities of future administrations.

More on This Topic

This is part of an in-depth collection of research. See the collection:

■ 2016 CIO Agenda: Global Perspectives on Building the Digital Platform


https://www.dto.gov.au/

https://18f.gsa.gov/

https://gds.blog.gov.uk/

http://newurbanmechanics.org/

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