Scaling interoperability across levels of governance and states in Brazil

Secure data exchange is the backbone of any digital service provision – whether for citizens, employees, or businesses. But in the Federative Republic of Brazil, with twenty-six self-governing states and over 200 million people, how does such a massive digital transformation get started?

Seeking to achieve digital transformation at a national level, at large, Brazil faces unique challenges. The sheer size, diversity, and complexity of its administrative landscape require solutions that bridge gaps between different states while enabling secure, efficient, and standardized data exchange among them. It's not by chance that X-Road has been present in the country for over five years already. Known locally as X-Via, the secure data exchange platform is enhancing interoperability and transforming public service delivery in several states.

Developments have emerged during this time, demonstrating both the successes and challenges of scaling X-Via. As the landscape of digital governance in Brazil continues to evolve, here are state-of-the-art updates on how different states have adopted X-Via, the decisions that have been made, and the lessons learned along the way.

With Fernando Santos, Head of Product Development at X-Via.

State adoptions and evolving use cases

Mato Grosso: continuity and expansion

Mato Grosso remains a key player in Brazil’s X-Via journey. An early adopter of X-Road technology (2019), the state has made significant progress in expanding its digital capabilities.

A key step towards consolidating a commitment to digital governance was Mato Grosso’s government decree, establishing X-Via as the official interoperability solution for the entire state. A full legal endorsement that provided the foundation for further development and integration, allowing the state to scale its X-Road usage beyond internal government departments. In more recent times, the Justice Department also expressed interest in utilizing the data provided through X-Road – to streamline citizen notifications and enhance legal processes.

All the while, by pursuing interoperability at the municipal level, Mato Grosso is tackling a more complex layer of governance, where political and resource constraints present new challenges to expansion. Still, this effort underscores a maturing stage in the state’s digital governance strategy.

Piauí: a rapid onboarding

The state of Piauí has emerged as a new success story in the X-Via landscape. Prompted by a visit to Estonia, where the governor saw firsthand the benefits of X-Road, Piauí decided to speed up its adoption of the secure exchange layer. Within six months, Piauí not only implemented X-Via but also established a citizen web portal that integrates over ten different organizations.

The deployment was fast, reflecting an experienced and accelerated approach to implementation also on the side of the technology partner, X-Via – drawing on the lessons learned from earlier experiences in other states. What made things swifter in Piauí was a clear collaborative approach in development, where multiple departments worked together to deliver integrated services, proofing the flexibility and scalability of the X-Via platform.

Amapá: something went south

Not all states that have started, though, are continuing with their digital transformation plans. Amapá, one of the initial states to engage with X-Via, has discontinued its use due to changing political priorities and, consequentially, domain-specific budgetary constraints. Unlike the cases of Mato Grosso and Piauí, where strong political will have driven successful adoption, Amapá’s withdrawal highlights the vulnerabilities of digital transformation projects to shifts in government focus and financial reallocations.

Stages of readiness, federating across states

As Santos puts it, Mato Grosso and Piauí are both utilizing X-Via but find themselves in different stages of implementation. Mato Grosso is in a phase of continuity, refining existing services while expanding to new use cases. In contrast, Piauí is in the startup phase, rapidly implementing its services through X-Road. The state has already managed to create a citizen portal and keeps working to increase the number of services offered.

One key takeaway from these implementations, though, is that federating X-Road instances across states comes more straightforward than first implementing them at the municipal level. State governments can leverage their broader resources to develop and manage ‘communicating’ digital infrastructure, providing services to citizens through a more streamlined platform. For example, even though not fully federated today, Piauí and Mato Grosso are working together to establish X-Road Trust Federation to further strengthen interoperability between states.

From increased usage, new technical and governance challenges

As X-Via scales up across different levels of government and states, new technical and governance challenges have come to the forefront. In Mato Grosso, for instance, stakeholders have expressed concerns over the performance implications of X-Road’s security layers. The mandatory security processes introduce a “middle layer” that causes additional overhead compared to direct point-to-point integrations, prompting some stakeholders to question the necessity of adhering strictly to these standards. On the other hand, X-Road’s security layers provide unified security guarantees that are foundational for trustworthy data sharing.

The tradeoff between performance and security is a common topic in information technology. In this case, these concerns reflect though the ongoing effort between balancing security and efficiency in digital governance. On these concerns, instead of resorting to technical fixes, the focus has been on addressing them through dialogue, highlighting the importance of secure data exchange protocols in maintaining trust and compliance.

In addition to that, the increased usage of X-Via, particularly in states like Mato Grosso, has led to a surge in data and log generation. This growth presents new challenges around data management, analysis, and storage. It’s a shift from simply establishing an interoperable framework to optimizing its functionality and sustainability. Themes that will be critical as the platform continues to expand, requiring a clear data management strategy and continuous improvements in handling large volumes of data efficiently.

Security as the cornerstone of X-Via's value proposition

Despite concerns over potential performance impacts from security layers, security remains the defining feature of X-Via's value proposition in Brazil. The platform’s protocols, including encryption and digital certificates, are essential for ensuring the integrity and confidentiality of data exchanged between government entities. These mechanisms, within X-Road’s architecture, have been central in ensuring trust among stakeholders and compliance with data protection regulations in the country.

X-Via’s adoption continues to grow with security at its core. Government agencies, including sectors like the Justice Department in Mato Grosso, rely on the platform’s ability to protect sensitive information while facilitating efficient data exchange. As Fernando Santos points out, “X-Road’s encryption capabilities are a decisive factor in gaining the confidence of both administrators and users. Security, based on our experience, remains the main value proposition.”

Beyond encryption, X-Via’s security features also ensure transparency and accountability in data management. Secure and traceable data flows safeguard citizens' rights while favouring inter-agency collaboration.

As Brazil’s journey with X-Road continues, security will remain the standard-bearer of its success. By maintaining such measures, X-Via ensures that digital transformation initiatives are built on trust, resilience, and truly citizen-centric services.

From one domain to the whole government – X-Road takes its first steps in two Mexican states

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.

How X-Road gets a taste of the big city life in Buenos Aires, Argentina

Argentina is not a new pin on the X-Road® global map. For some years already, the data exchange layer has been identified as a valuable tool to modernise public administration by changemakers in the region.

It wasn’t long ago that we were talking about the experience of the Province of Neuquén. Now, we move to the City of Buenos Aires, which is very populated and with a vast metropolitan area. Buenos Aires embarked on a transformative journey to digitise its public administration, leveraging the X-Road data exchange layer to enhance efficiency and service delivery.

A pivotal goal to attain for a municipal government that serves so many people. But not hard to reach, thanks to the work that many in the administration have already put into moving the process forward. Diego Fernández and Axel McCallum, respectively, Secretary of Innovation and Digital Transformation and Undersecretary of Administrative Innovation at the City Government, take us through past and future steps of this endeavour, illustrating how very large cities in Latin America benefit from adopting the solution.

Background and institutional framework

"X-Road in Buenos Aires represents the next step in the digital transformation of the city that we began almost 16 years ago. It marks our evolution from a government relying on paper-based processes and outdated legacy systems to one that is modern and digital-first,” Diego Fernández begins with.

Argentinians usually care to stress how massive the city is and how big it feels. And context, in this case, does matter indeed – Buenos Aires is a city-state akin to Washington DC or Mexico DF, with a significant population and a daily influx of commuters. Naturally, the need for an efficient and interoperable digital infrastructure is paramount. On par with that, the Buenos Aires City Government aimed to make public service delivery more efficient and user-friendly.

This quest led them to the X-Road data exchange layer, a tried-and-tested solution previously implemented in several countries, known for its open-source license and government-oriented design. Adopting X-Road, known locally as X-BA, marked a significant leap towards achieving a digital, interoperable, intelligent, and proactive government.

The initiative was underpinned by a solid legal and institutional framework, including decrees to establish an interoperability hub, mandating compliance for both public and private entities to ensure seamless data exchange across the city's vast digital landscape. Legal and policy adjustments were crucial, ensuring every stakeholder across the city's digital domain operated within a unified framework, eliminating data silos and enhancing cross-sector collaboration.

Initial explorations in 2021 evolved into active development and implementation by 2022, with the first use cases deployed by mid-2023. The project was governed under the realm of Diego Fernández, with the Secretariat of Innovation playing a crucial role. Each ministry and secretariat within the government had focal points responsible for administering their Security Servers and onboarding their services. Such a decentralised approach allowed individual departments to feel more empowered while maintaining overall coherence and alignment with the X-Road framework.

Needs and challenges

Buenos Aires faced several challenges in its digital transformation journey. The city's existing infrastructure comprised siloed systems that hindered efficient data exchange and service delivery. Additionally, the absence of a unified digital platform made it difficult for citizens to access services seamlessly. The city government also grappled with technical challenges, including integrating X-Road into an existing complex server network, including around 4000 servers and a sophisticated network security infrastructure.

Beyond the technological hurdles of integrating X-Road into an extensive and diverse IT infrastructure, the city faced significant organisational and cultural barriers. Training government staff and aligning various departments with the new digital strategy was vital. So, the initiative required not only digital innovation but also a cultural shift within the government and among the citizenry towards embracing digital solutions. Furthermore, the city had to address the challenge of data security, ensuring that the new interoperable system adhered to stringent standards to protect sensitive information.

Another layer of complexity was developing the human capital needed to support this transformation. The lack of local expertise in X-Road software meant investing in training and skill development. To this end, collaboration with international experts and being part of the global X-Road community became instrumental in navigating the intricacies of the mission ahead. "One of the strong points of X-Road is the quality of documentation and the availability of the community to support new users. This was crucial as we configured our system and overcame initial technical challenges,” McCallum notes.

The solution

Implementing X-Road in the City of Buenos Aires addressed several challenges by providing a secure, interoperable platform connecting diverse government systems, enabling efficient data exchange and streamlining service delivery. The initiative's success was marked by the rapid development and deployment of digital services, with plans for further expansion and integration, including increasing the number of services offered through X-Road and enhancing the digital platform for citizen engagement.

"By 2022, we were running the pilot program, installing the central components and Security Servers. It wasn't just about the technology stack; it was equally about the governance stack. 2023 instead was about liftoff, having our first use cases implemented and really starting to use X-Road on our platforms for administrative procedures, marking a significant point in our journey towards digital transformation,” McCallum explains.

The solution, X-BA, does mark a new era of digital governance in Buenos Aires. The city not only streamlined data exchange across government departments but also significantly enhanced the citizens’ service experience. Services that once required much-loathed paperwork could now be accessed digitally, reducing wait times and improving accessibility. “For example, enrolling a child in kindergarten required parents to provide a vaccination certificate, which was a cumbersome process. We saw X-Road as a solution that could streamline such processes and make the infrastructure more efficient,” Fernández points out. Birth certificate issuance, too, is a notable example of improved access, availability, and delivery of public services.

Scaling the solution involves ambitious plans. By mid-2023, the government had introduced several services through X-Road, aiming to increase this number significantly by the end of 2024. By then, the City of Buenos Aires seeks to have a significant portion of its government services digitised and 30% of government services running on X-Road, reflecting a substantial shift towards digital service delivery. Additionally, the city government plans to integrate more private sector services into the X-Road ecosystem and explore federated systems with other provinces for broader data interoperability.

Making data flow across the sea with X-Road in the Åland Islands

There’s more to the Åland Islands than soft tones and crisp, still sunsets – and that’s digitalisation. But while digital developments are still far from competing with local, regional beauty, the most recent advancements in the islands’ public administration are definitely worth noting.

Åland, an autonomous region of Finland, embarked on a journey to enhance public administration through digitalisation. We caught up with Jani Sjölund, Director of IT at the Government of Åland, to hear how X-Road became the choice to the need for a robust data exchange solution, improving interoperability and citizen services.

Background and institutional framework

The journey towards utilising X-Road in Åland commenced with a vision to enhance data interoperability across government agencies and improve citizen services.

Recognising X-Road's potential based on its success in Estonia, Finland, and other Nordic countries, Åland sought to integrate this solution into its digital infrastructure, leveraging the support and expertise of the Nordic Institute for Interoperability Solutions (NIIS) and the Digital and Population Data Services Agency in Finland (DVV). Early discussions revealed the potential for using X-Road not just as a technical solution but as a catalyst for broader digital transformation within Åland's government operations.

As Jani Sjölund stepped into his role, having joined as the director of IT, he pinpointed enhanced data interoperability across Åland’s public sector as a cornerstone of their digital strategy. This vision was rooted in the broader EU directives emphasising the immediate task of strengthening information security. In parallel, a data exchange platform naturally set out to become a key component to achieving digital agility within the public administration.

The engagement with the Finnish Digital and Population Data Services Agency (DVV) was a strategic move designed to leverage their extensive experience with X-Road and ensure a foundation for robust data exchange capabilities within Åland.

“After I joined, one of my first actions was organising workshops with Finland's DVV. These sessions were instrumental in our decision to integrate with Finland's X-Road ecosystem, Suomi.fi Data Exchange Layer, rather than creating a separate ecosystem for Åland. The decision to integrate with Suomi.fi Data Exchange Layer acknowledges the practical benefits of such a connection. This approach allows Åland to maintain its autonomous digital governance while still benefiting from the established, secure, and efficient infrastructure of Finland's national data ecosystem​​,” Sjölund explains.

Needs and challenges

Åland's digital agenda, influenced by both local governance and the Finnish government, identified the need for a platform that could facilitate seamless data exchange between different government agencies and improve citizen access to services.

"Upon joining the government as the IT director, I was tasked with enhancing our information security and establishing a data exchange platform. We identified the need for interoperability and a citizen portal, already outlined in our digital agenda,” Sjölund says. But a primary challenge to Åland on this path was the fragmentation within its public administration. Various agencies operated in isolation, creating inefficiencies in data exchange and service delivery.

Additionally, the region grappled with the logistical and economic constraints of bringing all municipalities, especially the smaller ones with limited resources, onboard with the X-Road implementation.

“Integrating smaller municipalities and agencies, some with minimal IT resources, into the X-Road ecosystem poses a significant challenge. With Åland comprising 16 municipalities of varying sizes, ensuring that all can participate in and benefit from X-Road is a complex task. But our focus was from the beginning on finding solutions that enable even the smallest communities to offer e-services through X-Road, ensuring equitable digital access across the islands,” Sjölund points out.

The solution

The solution involved integrating with Finland's existing infrastructure while developing and retaining the administrative autonomy Åland enjoys. This strategy facilitated a streamlined administrative process and allowed Åland to benefit from Finland's technical expertise and established processes. The series of workshops Sjölund engaged in, with key stakeholders including DVV and CSC – the IT Center for Science in Finland, laid the groundwork for this integration. In this way, leveraging Finland's X-Road framework, Åland aimed to improve service provision for its citizens, enabling 24/7 access to digital services without requiring physical presence or paperwork.

“One significant advantage of this collaboration is that Åland can use Finland's identification systems for its digital services. This means citizens accessing Åland's portal can use the Suomi.fi e-Identification service, simplifying access and avoiding the need for Åland to develop a separate system for that,” Sjölund explains.

Pragmatism and collaboration, then, in the effort to enhance digital governance in Åland – addressing the specific challenges posed by its autonomy and limited resources. All pairs well with the anticipated increase in data exchange with Finland and Sweden: improved interoperability among local agencies does indeed position Åland to significantly enhance its public service delivery and participate in the benefits of cross-border data exchange between its two neighbouring countries.

“Following our workshops, we tasked our IT service provider with setting up Security Servers, marking a significant step towards operationalising X-Road in Åland. This phase was crucial for developing the competencies needed to manage and utilise the X-Road system effectively. Parallel to the technical setup, we focused on developing e-services, starting with foundational services like the right of domicile registry. These efforts aimed at ensuring that once the technical infrastructure was in place, there would be valuable services ready for our citizens,” Sjölund highlights.

The implementation of X-Road, all in all, is more than just a technical upgrade; it’s about transforming how services are delivered to citizens. By facilitating seamless data exchange and enhancing security, X-Road in Åland allows the local public administration to improve service levels dramatically. “Our goal is to ensure that citizens can access services anywhere, anytime, without the requirement for physical presence or adherence to office hours. It’s what took us to commit to X-Road as a fitting technical enabler, and stresses its potential to elevate Åland's overall digital landscape,” Sjölund concludes.

CamDX is Cambodia’s national data exchange solution – and it’s based on X-Road®

After touching land in Japan for a private sector use case, X-Road is now being utilised also in East Asia’s mainland – precisely, in the Southeast of the continent. Public administration in Cambodia is currently deploying the open-source data exchange layer to bridge silos between ministries and government agencies.

This comes at the hand mostly from one person with his team: Dr Nguonly Taing, Executive Director at the Techo Startup Center. Car metaphors run fast in this case study, as Dr. Taing takes us through the process of getting to know and utilising X-Road in the Cambodian instance.

CamDX is a “superhighway”, he says. Beginnings, framework development, roll-out – a journey into how the Southeast Asian country built “digital roads” between information systems and stakeholders, significantly improving citizens’ experience in public service access and usage.

Background and institutional framework

The Techo Startup Center, under the realm of the national Ministry of Economy and Finance, acts as a pivot, facilitating agreements and collaborations across various ministries and sectors on digital topics. Like in many other countries, it is an entity that underscores public commitment to driving national digital transformation. It was logical, then, that the development and management of an interoperability layer for data exchange would fall among its prerogatives and priorities.

However, the turning point in the roll-out of such a platform was Dr Taing's visit to Estonia in June 2019. It inspired adopting a data exchange layer similar to the Estonian X-Road instance X-tee, capable of unifying and securing the exchange of data across government agencies to facilitate business operations​​​​.

“During our extensive training in Estonia, we recognized the potential of adopting X-Road to address our challenges with system fragmentation. Given its scalability and security, proven by Estonia and Finland, X-Road was the optimal solution for Cambodia. Although we lacked certain components like public key infrastructure and a single sign-on system, we were determined to develop these independently, reinforcing our commitment to building a resilient digital ecosystem,” Dr Taing explains.

Since then, the center has been crucial in forging agreements and collaborations across different government agencies and the private sector. By enabling these connections, Cambodia Data eXchange (CamDX) is the backbone for a more integrated and efficient digital government ecosystem, addressing the fragmentation that previously characterised the Cambodian public administration​​​​. Dr Taing highlighted the importance of regulatory support in enabling these collaborations, particularly through MOUs that formalise participation in the CamDX ecosystem​​​​.

Needs and challenges

CamDX, in fact, originated from recognising the need to enhance Cambodia's overall competitiveness in providing public services for businesses. The extensive waiting times required for obtaining various licenses and clearances from multiple ministries were identified as significant barriers to improving business competitiveness within the country. These waiting times could extend from 30 to 60 working days.

For reference, the list of ministries and agencies businesses were required to interact with included the Ministry of Commerce, the Department of Taxation under the Ministry of Economy and Finance, and the Ministry of Labor and Vocational Training. Each of these operated in a siloed manner​​.

Within such an assessment, CamDX's creation had to fully align with Cambodia's broader digital governance and economic policies. Dr Taing emphasised the necessity of data exchange, eKYC (Electronic Know Your Customer), and digital identity systems as foundational elements for implementing these policies effectively. CamDX is the infrastructure facilitating these components, albeit with ongoing efforts to fully realise a comprehensive digital identity framework within the country​​. Additionally, the involvement of the Ministry of Interior allowed for the integration of the national ID system, enhancing identity verification processes essential for both public and private sectors​​​​.

The solution

In 2020, Cambodia deployed the open-source X-Road code, leading to the creation of CamDX. This move was not about establishing mere technical integrations, but fostering a community specific to Cambodia, encompassing both public and private sectors locally​​.

Dr Taing likens CamDX to a "superhighway," where data flows securely and efficiently between entities – a bit like cars travelling from place to place along a highway. “Its design ensures security through encryption, digital signing, and timestamping for each transaction. Notably, the content of the data exchanged remains private, as only metadata is accessible to the operator of CamDX. This feature, alongside support for various connectivity options such as VPN or dedicated lines, caters to diverse security preferences among the ministries and other entities involved. It highlights CamDX's robustness and flexibility, making it a cornerstone of our digital infrastructure,” Dr Taing says.

The online business registration platform was one of the first significant services CamDX enabled. With CamDX, all relevant processes and necessary steps were consolidated into a single portal where citizens could file applications and pay fees online, and the data would be distributed via CamDX to the respective ministries for approval​​. “Currently, CamDX enables around 20 services online, signifying just the beginning of its capabilities. Last month, CamDX processed 1 million transaction requests for open eKYC services alone, allowing banks and MFIs to utilise a unified data source,” Dr Taing highlights.

Through the data exchange layer, Cambodia is committed to adopting global best practices in technology for national benefit, overcoming infrastructure and trust barriers, and paving the way for a more interconnected and efficient digital future. Further expansion is among the next steps. “Integrating the private sector, especially banks, into CamDX presented unique challenges, notably due to their strict security standards. However, CamDX successfully passed all tests, demonstrating its compatibility with both open-source and enterprise-level IT infrastructures. It’s an achievement that spotlights our system's adaptability but also the importance of having a robust monitoring system to ensure seamless and secure data exchanges across all sectors.”

In November2022, CamDX was announced as the winner of the ‘open source adaptation of the year’ award in a competition co-sponsored by the United Nations Development Program (UNDP), the Amazon Web Service Institute, and the Global Network for Apolitical Government.