Between 2020 and 2022, two Mexican states initiated workings to implement X-Road instances separately to better face population management challenges, and handle data generated during the COVID-19 pandemic. The experiences of Queretaro and Quintana Roo, Mexico, clearly show how adopting the secure data exchange layer can begin with addressing pressing needs. From there, with the necessary political and financial support to ensure the continuity of projects, avenues for further implementation are plenty.

Carlos Vargas, an expert at the e-Governance Academy, has worked on both projects for Estonian ICT company Roksnet during the implementation phases. “In terms of why X-Road was chosen, the platform’s open-source nature allowed more technical flexibility compared to proprietary solutions. It was seen as a way to foster greater interoperability across different government agencies,” he says.

In both states, Queretaro and Quintana Roo, X-Road demonstrated its benefits in enhancing governmental interoperability and service delivery. However, both instances also highlighted the vulnerabilities of such projects to changes in decision-making, as well as budgetary constraints.

From improved service delivery on social benefits, to better population management in critical phases of the pandemic, Vargas takes us through the steps that enabled interoperability in government agencies of these two Mexican states. 

X-Road in Querétaro

Background and Institutional Framework

In Querétaro, the drive to adopt X-Road stemmed from the state government's desire to establish a truly interoperable digital infrastructure. One of the models of reference was Estonia, which was in the spotlight thanks to the success of its own national X-Road instance. It was spring 2022 when the dialogue began between state authorities and Estonian partner Roksnet. In June of that same year, X-Road in Querétaro was already live.

“The initial talks about implementing X-Road started with the need to update and reorganise disparate systems that were congesting government operations.” Interoperability was a hot topic, but Querétaro opted to integrate an open-source solution into its digital strategy instead of relying on a proprietary platform. In fact, X-Road and its adoption fall within the policy directions of the state’s broader digital agenda, Querétaro Digital 2022-2027. The project is currently reported to have completed up to 50% of scheduled actions and tasks.

Needs and Challenges

The primary need for X-Road in Querétaro was to create a unified platform that could integrate services across various state agencies. Fostering interoperability, the ultimate goal was to facilitate more efficient public service delivery on par with better data governance. With real-time data exchange facilitated among different agencies, the solution deployed would overcome the obstacle of data silos, a configuration that had previously complicated service provision.

However, several challenges appeared along the way. Firstly, changes in decision-making – as interoperability is made a priority under one administration, it might not enjoy the same support as shifts in the composition of government occur.

In parallel, a technical challenge was represented by integrating X-Road with the existing IT infrastructure while ensuring compatibility across different government bodies. Also, as Vargas notes, “there was a learning curve associated with adopting the open-source platform. Simply because specific technical expertise was required, as well as ongoing management and customisation, that were not readily available within the local teams.

The Solution

Querétaro’s X-Road instance, live as of mid-2022, was successful in connecting different governmental bodies and improving data sharing. The initial applications were focused on social benefits, aiming to streamline and update databases related to public aid. In this domain, X-Road allowed for people’s data to stay current, accurate, and easily accessible.

With social benefits management as a testing ground, inter-agency collaboration effectively took place between relevant agencies of the state’s government. Looked at as a pilot, the project did achieve results in bridging units previously used to work in silos – highlighting the advantages of collaboration and coordination and leading to more effective government operations and decision-making processes.

“As the project progressed, the initial phases showed significant improvements in the speed and reliability of public service delivery through better data management,” Vargas highlights. To the point that the state government sought to extend the X-Road ecosystem to include more agencies and services.

But despite the ambitious start, obstacles lied ahead of further X-Road implementation in Querétaro. The latest updates expand on the ‘progress bar’ of the project – which at the moment remains in a beta phase, with its future dependent on securing the necessary political backing and funding to resume its development and reach full implementation. With a case study on social benefits administration that works, and promising possibilities for expansion to other policy domains under the state’s realm.

X-Road in Quintana Roo

Background and Institutional Framework

The implementation of X-Road in Quintana Roo was driven by the immediate need to manage public health data during the COVID-19 pandemic. While talks were already happening in 2019, the project was initiated in late 2020 – aiming to connect multiple municipalities to streamline data flow concerning health metrics, such as hospital admissions and the distribution of medical supplies.

Police-related systems fell under the scope of this project, too. Under the realm of the Ministry of Interior, they hold responsibility for the management and keeping of population data, which made them one of the main stakeholders engaged in turning the technology to serve the cause of countering the pandemic. Starting with this pressing necessity, X-Road was expected to then become the data exchange layer supporting the whole digital government of Quintana Roo.

Needs and Challenges

Quintana Roo’s government recognised, the hard way, the necessity for a platform that could offer real-time data exchange. To effectively manage the health crisis, X-Road was envisioned as a backbone for integrating various municipal databases to aid in rapid decision-making and resource allocation during the pandemic.

However, challenges ensued. From technical integration to legacy data privacy concerns and the training of personnel to manage and utilise the system effectively. As with Querétaro, the project in Quintana Roo required significant customisation to meet local needs and integration with existing digital infrastructure and diverse municipal systems.

“Cultural resistance to new technologies and organisational silos within government departments posed significant barriers to the full adoption of X-Road. Adding to the varying technical expertise among local staff, some of the tool’s complexity fell through the cracks of first contact with the technology,” Vargas explains. And let’s not forget – all of this was compounded by the high-stakes environment of a public health crisis.

The Solution

Agencies in Quintana Roo managed to overcome initial obstacles and rolled out Xacbé – the state’s own interoperability platform, powered by X-Road and named after an ancient word for Mayans’ road infrastructure. Like infrastructure connecting communities, the state achieved to create a network between relevant stakeholders to enhance service delivery.

Once adopted, Xacbé proved essential during the pandemic, enabling the efficient tracking of health data across municipalities and real-time decision-making. This integration facilitated a more cohesive response to the health crisis, improving the state's ability to manage resources and respond to public health needs quickly.

A coordinated pandemic response, however, did not prove enough to keep the ball rolling. Despite its initial success, the project faced sustainability issues post-pandemic. The challenges here are similar to those in Querétaro – changes in government priorities led to a reduction in support, and the project has not advanced beyond its initial scope, pausing for the moment its long-term viability.

As it often does, vision and politics will take forward digital transformation. “And the future of X-Road in these regions depends significantly on political will and funding. Continued support and understanding from upcoming administrations are vital for the sustainability of such digital infrastructure projects,” Vargas concludes.

Author: Federico Plantera, WordsMatter