Iperbole Civic Network: Community, Wireless Public Sphere and e-Participation in Bologna
Comune di Bologna (Public Body - Municipality)
Italy

The Problem

Bologna is known as a «digital city», since the Municipality has always been open to the use of the ICT both in the reengineering back office action as well as in the relation with citizens.
The Municipality is delivering a relevant range of services, with a strong commitment in administrative simplification and constant efforts to improve the quality of life.
“Digital Bologna" was launched to pursue mainly the objective of delivering information, e-services and documents issued by the Municipality at citizens’ homes or nearby, through the friendly use of new technologies, first of all the Internet and other networks, and new media, also taking profit from the process of convergence.
In this innovation process scenario, Iperbole - the free civic network and community portal (by 500.000 daily hits) of the Municipality - was set up in January 1995 (first public provider in Italy and second after Amsterdam in Europe) as a «telematic bridge» between the community (at that time just starting to create) and the city in order to build an «information and knowledge society at local level» (www.comune.bologna.it www.iperbole.bologna.it).
As regards e-Participation, a key issue for the civic network and the city council, Iperbole pursues the development of e-Democracy, the administrative transparency, the right to information, access, distribution of services, interactivity with citizens for their participation in the decision-making processes, as a necessary condition for the renewal of public institutions.
The University of Bologna (www.unibo.it) participates in several initiatives and projects promoted by the Municipality, such as the chair of Knowledge Society Forum/Telecities of EUROCITIES. The University (more than 100.000 students) is engaged in the experimentation of the wireless civic net (www.comune.bologna.it/wireless), the Wi-Fi Mesh Network covering the city centre which offers free connection to broadband internet for Iperbole users, students and professor of Bologna Universities.
The result of this partnership is a new website characterized by:
- a web plan oriented to «double profile» of the citizen/student as main target, according to an approach which - in this first phase – gives the priority to information, welcome and orientation to the user «in movement»;
- selected contents from both portals according to agreed principles;
- an original layout in line with the respective brands;
- agreed on accessibility/usability rules.
The two institution are starting to outline common services set up together, focused on specific needs of students/citizens and designed for the broadband features.
A Wi-Fi Mesh hotzone is also foreseen in a formerly manufacturing area, now converted into a new Cultural and University district in Bologna, the “Arts Manufacturing”.
The University also takes part to Partecipa.net project (www.partecipa.net), for the implementation of e-Democracy participative processes. The objective is the implementation, through the use of an e-democracy kit, of transparency, accountability and responsiveness of public institutions. The core of the kit is the on line discussion forum, based on Delphi method. In particular, the Faculty of Education Science and the Graduation Course in Communication Science, collaborate to the planning, realization and evaluation of the project.

Solution and Key Benefits

 What is the initiative about? (the solution)
Bologna Municipality has always oriented its action towards implementing the use of net technologies to spread information and provide services to citizens, enterprises and civil society.
Iperbole Civic Net, first in Italy and second in Europe after Amsterdam, was born in 1995 as a participative web site, shared by all the public and no-profit bodies of the metropolitan area. Iperbole’s strategy is centred on the application at a local level of the European directives for an Information and Knowledge Society more citizen-oriented.
Through the last ten years the Municipality has been constantly focusing its government action towards a considerable increase in the use of new networking technologies for the delivery of information and service to community, the two way communications and participation trials.
The priorities of the administration are:
- Access for all: the spread of e-Government and e-Governance should benefit everybody. For this to happen, it is necessary that disadvantaged people encounter as few obstacles as possible when accessing public service on line.
- Electronic citizenship for all, in order to spread the new rights in the “virtual public sphere” and make netizens aware of the potential of ICT, and support them in the interaction with and within new channels in a critical way.
- Increased efficiency: the Administration has committed to itself to improve in efficiency through the innovative use of information and communication technologies (ICT) and to significantly lighten the administrative burden.
“Good government” must give priority to the needs of the users, meaning all the actors involved at any level (citizens, private individuals, public bodies, NGOs, etc.) Being tuned in with the town is the foundation for receiving and correctly interpreting needs and expectations and a particular commitment is devoted to the e-participation processes (co-decision making, not merely e-Vote).
The Municipality intends to follow the new route both through experimentations in the field of electronic democracy and in innovative services provision. Our aim is to help the inhabitants of Bologna to become proactive partners of the city and the public administrations in general (co-producers non only end-users).
Our path toward e-Democracy is based on the experimentation of the following key elements:
- publication of documents and official regulations on «Iperbole» with summaries;
- glossaries and simplified language;
- network of free Internet access points (attended and not, and also WIFI for free) and training opportunities;
- e-participation processes policies and actions;
- use of other media (new and traditional ones) with a synergic and multichannel approach.
In order to achieve these objectives, digital communications media could be “key factors” for wider participative policy making processes, since they:
– make it easier (in term of time, spaces, places, settings, etc…) for people to participate, and this it is also one of the core goals of the broadband wireless free of charge connection to internet in some central area of the city
– widen the range of possibilities of participation (multichannel interactions and platforms);
– encourage new targets;
– are complementary and synergic to the “physical” processes and they strengthen them.

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
DEMOS PROJECT (cofunded by the European Commission)

- Start of project: September 2000
- Interface and software modules implementation: February-June 2001
- Development of participative methodology: June-October 2001
- Pilot 1 validation and evaluation: October 2001-February 2002
- Pilot 2 validation and evaluation: October 2002-February 2003
- End of project: March 2003

EDEN PROJECT (cofunded by the European Commission)

- Start of project: February 2001
- Development of NLP methodologies and tools: September 2001-June 2002
- Pilot services validation and evaluation: March-December 2003
- End of project: January 2004

USE-ME.GOV PROJECT (cofunded by the European Commission)

- Start of project: January 2004
- Development of intuitive mobile interfaces: June-December 2004
- Open Service platform implementation and integration: March-October 2005
- Pilot services validation: November 2005-February 2006
- End of project: March 2006

HANDS PROJECT (cofunded by the European Commission)

- Start of project: November 2005
- Pilot set 1 validation and evaluation: April-July 2006
- Draft business model: September 2006
- Pilot set 2 validation and evaluation: November 2006-February 2007 (expected)
- Final deployment plan: June 2007 (expected)
- End of project: June 2007 (expected)

PARTECIPA.NET PROJECT (cofunded national project)

- Start of project: July 2005
- Technical and methodological development: July 2005 – July 2006
- Test of pilot web sites : July 2006
- Pilot set validation and evaluation: October 2006 – July 2007 (expected)
- End of project: July 2007 (expected)

BOLOGNA NOI (www.comune.bologna.it/partecipazione)

- Start of the activity: autumn 2004
- New crucial improvements: autumn 2005
- 2006 consolidating activities, opening of new e-participation areas and the GIS map of forum on urban planning
- 2007 and beyond new improvements on language, formats, multimedia contents, georeferential applications, social networks inputs promotion and WEB 2.0 developments

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
The Municipality of Bologna has a wide experience both in the promotion and participation in innovation initiative (services, applications, infrastructures,….) also through the development of European projects. It is currently co-ordinator or among the partners in many successful projects designed to support and encourage the access to new e-Government services through the use of mobile communications and Internet technologies and regarding e-Democracy applications.
Currently, the City of Bologna leads the eTen HANDS project (www.hands-online.org).
HANDS is an online communication service offered by Public Bodies to their users and citizens. This service is based on advanced Natural Language Processing (NLP) techniques which allow Public Bodies to reduce barriers to online communication. Very recently the Municipality of Bologna worked on an EU research and development project (IST - VIFP) designed to support and encourage the access to new eGovernment services through the use of mobile communications and Internet technologies. The project, named USE-ME.GOV, brought to the development of a Next-Generation Open Service Platform for mobile users that can be shared by networked authorities and institutions in terms of technical infrastructure, information as well as a framework for commercial exploitation.
In the past the Municipality participated in DEMOS and EDEN projects, too. DEMOS (www.demos-project.org) was a project on Delphi Mediation Online System applied to Public Administrations decision making processes. EDEN–Electronic Democracy European Network (www.edentool.org) allowed the development of methodologies and instruments based on NLP–Natural Language Processing to facilitate the communicative flow between citizens and Administration.
Moreover, Bologna participates to the E-citizens project (Interreg IIIC), for the promotion of electronic government in the cities, eProDat (Interreg IIIC), for data protection, Brise (Interreg IIIC), for the promotion of Information technologies in European Regions, Certiserv (eTEN) on certified and secure eGov services (named “project of the month” of the eTen Programme in May 2006), and eGovGuide for senior Citizens (Socrates-Grundtvig) for the institution of training courses dedicated to elderly people to make them able to use internet tools, and the implementation of eGovernment services suitable for them. Furthermore, Bologna is involved in other projects that use ICT technologies to improve PA’s tools and services, as Liber Imms - the introduction of the radio frequency identification system (RFID) in civic libraries to improve their services; Light, which promotes the cultural local heritage and the improvement of accessibility of cultural resources for citizens and operators by using ICT tools; Optipark (Interreg IIIC), that foresees the introduction of a new software, web based, that allows a more efficient and functional administration of car parks; Telemedicine (Interreg IIIC) that develops a remote health assistance system to patients through ICT tools and Webpol (Leonardo da Vinci), a virtual vocational training project dedicated to local polices.

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
According to the Mandate Programme of the Administration and the Charter of European e-Rights of citizens in the Information and Knowledge Society (delivered by Eurocities network www.eurocities.org) , the Municipality – in partnership with local stakeholders and taking part in international networks - intends to pursue:
- rights to access to technological equipment and networks (also broadband), equal opportunities, privacy and personal data protection;
- rights to education and training, providing each citizens with the content and knowledge she/he really needs;
- information rights, through a user-friendly, high understandable, complete, high quality and up-to-date public information;
- rights to participation, reinforcing this fundamental rights of citizens and ensuring a public Administration actively engaged.
The aim is to improve more e-Governance (e-Democracy) than merely e-Government (e-services) and inform citizens on the functioning of decision processes in a highly understandable way.
Moreover, from 2004 onwards community wireless networks, especially in the United States, have had an increasingly widespread development, a development which has apparently renewed the pioneering enthusiasm engendered by Internet access during the early 1990s.
Local public administrations (San Francisco, Philadelphia, New York, Cleveland, etc., but also those of smaller centres) are today undertaking strategies and projects which increasingly place promotion of access to the “broadband wireless” network at the centre of public policies.
In America as in Europe, rapid Internet connection is swiftly establishing itself as a basic public service like water, gas and electricity. But many citizens find themselves on the “wrong side” of the digital divide, without the possibility to be connected on account of the high commercial costs.
According to the “U.S. model” the solution is that of “community internet” and municipal broadband wireless. In reality there is more than one model but the basic philosophy is shared by the various solutions on offer: free or at low cost compensated by business models (in truth not yet established or mature) depending on publicity, value added services, diversified performance for particular needs, covered zones, etc.
Very soon, in Europe as in the United States, thanks to convergence and digital multi-channels, all media – TV, telephone, radio web will also be distributed via Internet through broadband connections. Wireless and cable technologies already permit local governments, partnerships, schools, communities, and groups with special interests to produce and make available less costly and more reliable Internet services.
In Europe, too, many cities and regions are moving in this direction and a certain dynamism has been registered, favoured also by projects sustained by the European Commission and private partners. It is in this context of new experiences both at infrastructure level and at that of planned public contents/services, that the Bologna Iperbole Wireless civic network experiment, promoted by the Municipality, availing itself of private partners for the technological infrastructure, the access points and the Internet connections, made available freely by the HiTel and Acantho companies.

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
Bologna aims at obtaining a proactive citizen, so the key is to invest in e-Citizenship at all levels: services, broadband network for multimedia and GIS contents, interaction, participation in decision making.
The first experimentation was the consultation of citizens, districts, civil society and associations set up by the Municipality on the Mandate Programme for 2004-2009. On line there were all the related documents, the public meetings calendar, the draft of the programme and a virtual space for opinions.
Subsequently there have been consultations, both physical and electronical, about:
 mobile and wireless aerials’ stations location in the city area,
 municipal regulation system for the support of the civil society bodies,
 new rules for the infancy school.
Moreover, since April 2005, a public forum named “Bologna, a City that changes - The participative urban planning to choose the future” was started to redesign the future masterplan of the city. The Municipality is trying to reach the implementation, using “classical” and electronic/telematic/multichannel ways of participation, of a collaborative path to the development of urban planning instruments. The Iperbole civic network site is hosting on line studies, questionnaires, projects and an online forums moderated by experts and politicians. Moreover, specific working groups have been set up to better focus the main topics and themes of the participative process evolving.
The involvement of Local Public Bodies is crucial to promote close co-operation and sharing visions with the citizens, creating the conditions for a real “proximity democracy” based on the widening and deepening of the “public sphere”.
At a proximity level the Municipality is carrying on participation processes in six “district laboratories”, each of them with dedicated sites, specific mailing lists, forums and e-forums, documents, GIS facilities planning, visual and graphics, movie token on meetings.
To encourage the use of digital communication system the Municipality is experimenting the wireless connection to the civic net.
In this way, the “pact” associating citizens, communities and local governments (the first Freenets and civic networks were the fruit of the same alliances) has been renewed to guarantee citizens the right of access as a “universal right”, as a fundamental condition to encourage innovation, competition and widespread entrepreneurship and, at the same time, to defeat the digital/social divide.
Since January 2006 a public Wi-Fi hotspot (point-multipoint) with multiple access points is placed at the Municipality Front Office providing free of charge wireless broadband Internet, enabling access for laptops & PDAs.
Starting from June 2006 has been set up an infrastructure Wi-Fi Mesh Net (multipoint-multipoint), covering a wide area of the city centre of Bologna offering free access for Iperbole users, students and professor of Bologna Universities. Two private partners - Acantho S.p.A. and HI-TEL Italia S.p.A. make available networks, broadband and technologies to the experimental service. The user has at his disposal an 3 hours access credit every day and he can spend it in one or in different sessions. The user is automatically disconnected from the system after five minutes of inactivity, to avoid exhausting time credit.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Bologna Municipality pursues the change from a «hierarchical» and complex organisation to a citizens-oriented one and the increase of efficiency and quality in services.
The administration focuses its action towards the use of the new networking technologies for distributing information and delivering services, addressed to citizens, enterprises, professionals and organised civil society and also to those who risk to be excluded from the e-Citizenship society by age, gender, financial, cultural and social condition.
There is a «perspective shift» by the public administrations, from the delivery of services to the interaction and knowledge sharing, and from debate and dialogue to the capacity of «listening».
The evidence is the high level of participation to the existing forum. The main one “Bologna, a city that changes” has 150 subscribed citizens, 260 subscribed exponents of associations/public bodies/professional ranks and more than 40 meetings organized in single districts, with an average of 40 participants for each meeting. The web forum hosts 311 messages, 100 arguments and 230 subscribers. The district laboratories, representing a rich and various networks of associations acting at grassroots level, have an average of 40 participants.
Another relevant example of the Administration’s work is the improvement of the web site in compliance to the accessibility and usability rules. Also the new public access points for disabled people in the Iperbole front office area and in public places and the new communication and production models for ICT applications and processes «gender-oriented» in collaboration with women associations are part of the action oriented to the future. Among the future projects mention should be made of policies and actions in favour of «telematic and e-citizenship inclusion» of new citizens (migrants) and their communities, too.
The Administration is building an “awarded” consensus around the choices planned and made on the basis of wider community participation in the ongoing decision-making processes. Services, structures and procedures dedicated to information and multichannel communication (both “traditional” and digital) have been made available to citizens and civil society in order to foster a constant - and balanced in power – dialogue.
An important requirement for the e-society is the chance for every citizen to be able to use intensively and in a critical, creative and productive way, the resources provided by the web. We are creating a virtual environment in which citizens can learn the rules to build up a community where the weakest ones can share the opportunities with the more experienced ones. Twelve years after Iperbole’s birth, our main goal is to enlarge the number of users of the civic network, focusing on their needs, and develop innovation, social capital, creativity and e-governance at local level. For these reasons, the Municipality started to experiment mobile and wireless free connections, allowing the promotion of a mobile and ubiquitous communication which give citizens access anytime/anywhere from the most suitable device for them and set-up pilot sites and panels with citizens and students, in order to spread the “wireless culture”, towards a wireless civic network & a wireless enabled city centre.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
The Municipality of Bologna enjoys the views that in order to ensure the sustainable development of the city at the urban level, it is necessary to promote the use of integrated, holistic and long-term approaches involving a whole range of public and private partners. The challenge is to develop an approach that will deliver the key pillars of sustainability; economic development, social inclusion and environmental protection, and that will create instruments and management systems through which the integrated objective of sustainability can be achieved in practice.
Coordination and integration are to be achieved through the combination of the subsidiarity principle with the wider concept of shared responsibility. Integration should be achieved both horizontally, to stimulate synergic effects of social, environmental and economic dimensions, and vertically, between all levels of regional and local governments, until the level of European Union, to achieve greater coherence of policy and action and to avoid contradicting policies at different levels.
The objectives is to reach forms of integration and development of platforms shared by a certain number of cities, with common projects, not necessarily linked to EU funding but as a result of a real convergence of ideas. If this convergence exists and is real it can and has to bring us to shared products and platforms. To encourage a greater sharing of experiences there is the need to set up a system for comparatively evaluate the impact and the benefit of e-Government and to foresee economic measures.
A success factor is inter-institutional, multi-level cooperation, in order to achieve resource effectiveness, generate synergies and standardise approaches and languages.
The high impact of e-Government services is at all levels. At administrative level ICT could represent a way of improve efficiency: for example the electronic public procurement provide an annual saving of millions of euro. Concerning the level of decision-making, the 65% of a EU survey respondents considered that on-line democracy can help reduce democratic deficits.
Concerning the wi-fi experimentation, as well as a citizen “always on”, wireless data transmission by broadband and telephony in SIP/VoIP protocol, provides the opportunity to manage the network as a citizens’ MAN (Metropolitan Area Network). The Municipality of Bologna, in this way, becomes (with no need to request a license as an ISP operator) the manager of its own private urban network, utilizing it for:
- systems of video-surveillance
- vocal and data communications on board its municipal transport network
- municipal police
- ambulances and vehicles of the fire brigade
The Municipality will also integrate the private MAN to the Internet network, cooperating with a selected ISP services company, extending its action/policies/services to the public use, and – in this way - experimenting the characteristics and objectives of this kind of network, in accordance with the «public WiFi» (for public purposes) Italian regulations.
Moreover, the flexibility of the network platform installed and tested will allow – if suitable and necessary – the simple and immediate substitution or integration of a radio protocol become obsolete with a new one (e.g. WiFi – WiMAX), without interruptions.

Lessons Learned

 What are the impact of your initiative and the lessons learned?
The first weak point is the lack of involvement to e-Participation on the political side. The heading class has to face the increasing request for bottom-up decision making processes, which require new skills and commitment at every level of government, offices and facilities. The key is to promote a new participative culture within administrations through an active engagement philosophy, overcoming cultural and technological obstacles. In a parallel way, the local government has to play a strategic role regarding new fields of ICT research area.
Other difficulty is the mistrust by the citizens related both to institutions and new technologies. Citizens must not be forced to use digital technology, but induced by potential benefits, simplicity and immediacy of this solution since people spend free time to get involved. It becomes essential the identification of the conditions for citizens’ effective use and trust in technologies and public e-services.
Other persisting open issues relates above all to the various e-Divides. Despite the efforts spent to fight digital barriers, a part of Bologna population risks to be cut off from e-participation processes, due to social, cultural, economic, gender, age disadvantage. It is crucial to reach the whole community with more targeted actions of telematic literacy, both external and internal, exploiting a multi-partner philosophy which includes the formative world – especially the University – and the associative world.
The Municipality’s strategy through Iperbole civic network and the Iperbole Wireless must keep on work along four main lines:
- simplify language, formats and administrative procedures for citizens;
- facilitate the back-office reshaping and contents flow to different front offices, both virtual and physical;
- improve the use of information and communication technologies by the local community and non profit bodies, avoiding a top down, “technocratic approach”, and pursuing a social knowledge oriented approach;
- improve interactive communication and e-Participation;
- support and help citizens becoming producers and co-designers of contents (open source communities and creative commons platforms and licenses).
The Administration, through a significant and permanent relationships system with the citizens, has to continue in the experimentation and improvement of participative methodologies at all institutional level, also to cope with the “natural trend to the entropy” of complex and vertical organization, as the public authorities too often are.
One level concerns the constructions of a significant relationship with all the actor potentially interested in political processes, pursuing the most complete involvement. The other one is the active involvement of decision-makers in a process of collaborative learning, where everyone contributes to the growing of the participative culture and action within a governance perspective.
There is the need to give an answer to the increasing request for transparency, accountability, responsiveness and involvement, far from the traditional ways of political participation. The priority is to give to all citizens the instruments to have information, create knowledge, express opinions and obtain answers by mechanism of Citizen Relationship Management.

Contact Information

Institution Name:   Comune di Bologna (Public Body - Municipality)
Institution Type:   Other  
Contact Person:   Leda Guidi
Title:   Head of the Citizens Communication Unit  
Telephone/ Fax:   +39 051 203210/260972
Institution's / Project's Website:   +39 051 204986
E-mail:   leda.guidi@comune.bologna.it  
Address:   Piazza Roosvelt 3
Postal Code:   40100
City:   Bologna
State/Province:  
Country:   Italy

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