Responsible Digital Transformation for Sustainable Development: A Framework for Trusted Public Data Ecosystems

Trusted Digital Ecosystems, From Policy to Practice

Executive Summary

Emerging economies are undergoing rapid digital transformation across key sectors such as health, agriculture, food security and the green transition. This shift holds significant potential for more resilient public services, greater efficiency, and more inclusive forms of socio-economic development. However, the expansion of digital systems into areas that involve highly sensitive personal and strategic data has created both opportunity and risk. The ability of governments to harness the value of data for development depends on their capacity to build digital ecosystems that are trusted, secure, transparent and fit for purpose, while enabling responsible and ethical sharing of information across institutions and, where appropriate, across borders.

Experience has shown that when digitalisation efforts remain fragmented and sector specific, the result is a patchwork of platforms and systems that do not communicate with one another. This often leads to duplication of investments, inconsistencies in data quality, weak protection of personal information, and limited public trust. A coherent and systemic approach to data governance is therefore required in order to support effective and sustainable digital transformation.

This means defining and combining, legal and policy frameworks that reflect international good practice with institutional arrangements that clarify roles, accountabilities and data sharing protocols, and deliver a secure and interoperable technical architecture. These need to be linked to clear and sustainable financial resourcing, systems maintenance and modernisation strategies, operational processes that give concrete expression to policy, and a deliberate focus on institutional and end-user cultural change and capacity development. Only when these elements work together can digital ecosystems support sustainable development.

This paper sets out an integrated model for rights-based digital ecosystems that can be applied across sectors. It draws on lessons learned from complex implementation environments and focuses on approaches that can be adapted to different institutional and legal contexts. The paper highlights the importance of aligning with standards inspired by the principles of the General Data Protection Regulation, while ensuring that any legal and operational frameworks are contextualised and proportionate. It argues that trust, local ownership and cultural change are as essential to successful digital transformation as technical or policy reforms. The model offered is intended to support governments, development partners and institutions that are seeking to use digitalisation as a catalyst for better public services, improved governance and sustainable socio-economic progress.

Introduction: Digital Transformation at a Crossroads

Across many regions where economies are rapidly developing, governments are accelerating the digitalisation of public services in order to modernise administration, strengthen delivery and contribute to more inclusive and environmentally sustainable growth. There is now broad recognition that when data is collected, managed and shared responsibly, it can significantly improve policy making, enhance service delivery, reduce inefficiencies and increase transparency and accountability. Digitalisation has therefore become a central component of national strategies in fields ranging from health to agriculture, environmental management to economic planning.

Despite this momentum, digital transformation frequently remains fragmented, institution-centred and primarily technology based. Many initiatives are conceived and implemented as stand-alone projects, often funded through time limited programmes with limited coordination across ministries or sectors. The result is a proliferation of systems with limited – if any – interoperability that reflect the specific needs or mandates of individual institutions, rather than a coherent public sector vision. Communities and citizens are often asked repeatedly to provide the same information to different public bodies, which undermines confidence and reinforces perceptions of administrative inefficiency. Valuable data that could support evidence-based decision making remains confined within institutional silos.

As digital systems expand into areas that involve more sensitive data, from agricultural production data, land and environmental management records to personal health information, the implications for privacy, ethics, security and public trust become more acute. The issue facing policy makers is no longer whether to digitalise services, but how to do so in a manner that is responsible, coherent, secure and sustainable. If the promise of digital transformation is to be realised, governments and their partners must adopt a systemic approach to both digital transformation and data governance that is suitable for the complexity of modern administrations.

Such an approach needs to integrate legal and policy frameworks that align with international standards, institutional arrangements that enable accountability, operational processes that translate policy into daily practice, secure technical systems that can withstand cyber risks and support interoperability, a solid financial sustainability and systems modernization plan, and a strong focus on building capacity and promoting cultural change both within public sector institutions and the public at large. For countries where legal systems, institutional capacity and digital maturity are still developing, the challenge lies in drawing from global standards without importing models in a manner that is unrealistic or incompatible with the domestic context. Successful reform must be based on adaptation rather than replication and must be anchored in the realities of national legal traditions, administrative cultures and development priorities.

This paper explores how this can be achieved and offers a systems-strengthening approach that enables the development and institutionalization of integrated, trusted and rights-based digital ecosystems that are capable of supporting long term sustainable development.

The Importance of Integrated and Trusted Digital Ecosystems

Digital transformation has the potential to reshape the way public services are conceived and delivered, yet its success depends fundamentally on the establishment of trust within and across a wide range of players. Trust determines whether institutions are permitted to hold and use personal and sensitive data, it influences whether individuals are willing to engage with digital systems, and it shapes the degree to which information can be shared between organisations in the public interest. A trusted digital ecosystem is therefore one in which people, institutions and systems interact in a manner that is predictable, transparent and respectful of rights and obligations.

In many emerging-economy contexts, trust in public digital systems is uneven. Historical experiences of weak institutions, limited transparency, uneven service provision, or perceived politicisation of information have contributed to a certain degree of caution. The rapid introduction of digital initiatives without adequate communication, safeguards or opportunities for public participation has, in some cases, reinforced this hesitancy. As governments increasingly rely on digital models of service delivery, from health consultations and medical record systems to agricultural subsidies, environmental monitoring, social protection schemes and food supply chain traceability, the social contract surrounding data becomes more important and more complex.

Building integrated and trusted digital ecosystems is not a purely technical undertaking. It requires clarity of purpose in the design of public digital services, attention to ethical considerations relating to the use of data, and a shared understanding across institutions of the responsibilities involved in collecting, processing, sharing and eliminating personal and sensitive information. Integration is required not for its own sake, but because interconnected systems create efficiencies, strengthen coordination and enable a more complete understanding of the issues that governments are required to address. The most pressing public policy challenges, including climate resilience, public health threats and food security, do not respect institutional boundaries, therefore the information required to address them must also be capable of crossing those boundaries, with appropriate safeguards.

This necessity for integration is increasingly recognised by development partners and governments alike. However, integration without trust, continuous coordination and dialogue, risks creating systems that are technically functional yet socially or politically fragile. Behaviours and practices that help build and sustain trust must therefore be built into digital systems from the outset. This involves ensuring clarity about how data will be used, which actors will have access to it, the safeguards that are in place to prevent misuse, the rights of those to whom it belongs, and the mechanisms available to hold institutions accountable. When designed in this manner, integrated digital ecosystems can support more effective governance, improve service delivery and enable data driven decision making that benefits citizens and institutions alike.

Data Governance as a Foundation for Sustainable Development

The concept of data governance is often understood narrowly, as a set of policies or compliance obligations relating to the handling of information. In practice, effective data governance is considerably more expansive and strategic. It spans the full data cycle, providing the framework through which data is collected, managed, shared, protected and eventually archived or erased, in a manner that aligns with legal requirements, ethical principles and national development objectives. Robust data governance is therefore fundamental to the sustainability and long-term legitimacy of digital transformation.

Sustainable development requires that economic, social and environmental objectives be considered in an integrated manner. Data plays a central role in enabling governments to balance these objectives. For example, responsible data use can strengthen public health planning, support climate sensitive agricultural policies, promote transparency in resource allocation, and underpin systems for environmental monitoring and climate reporting. When information is accurate, accessible and responsibly shared, it enables better coordination between public institutions, civil society, the private sector and international partners.

For emerging economies, the adoption or reinforcement of data governance systems provides an opportunity to embed principles of accountability, inclusion and transparency within the digital transformation process. The experience of the General Data Protection Regulation within the European Union has demonstrated the value of clear legal frameworks that protect personal information and assign responsibility for data processing activities. However, direct replication of the GDPR is neither realistic nor advisable for all countries. Instead, many governments are choosing to align their legal and policy frameworks with core international principles inspired by such standards, while adapting them to local contexts, legal traditions and institutional capacity.

A balanced and context-specific approach to data governance recognises that legislation alone does not ensure responsible data management. Laws must be accompanied by institutional mandates that clearly define roles and responsibilities, by practical coordination and operational processes that translate policy requirements into daily practice, and by investments in capacity development and organisational culture. This ensures that regulations remain meaningful, proportionate and implementable, even in environments where resources or technical capacity may be limited.

Embedding data governance within national development strategies provides an additional advantage. It signals that digital transformation is not a peripheral or technical reform, but a structural element of public administration and national planning. It allows governments to leverage data as a strategic asset, while creating a foundation for long term trust, accountability and effective public service delivery.

Sectoral Applications: Health, Agriculture, Food Security and the Green Transition

Digital transformation unfolds differently across sectors, yet the challenges relating to data governance, interoperability and trust are strikingly similar. Examining how these themes manifest in health, agriculture and food security, and multi-sectoral efforts to support a green transition, provides useful insights into the type of integrated approach that is required.

In the health sector, digitalisation has advanced rapidly in many countries, particularly with the adoption of electronic medical records, telemedicine, health surveillance systems and digital platforms for patient management. Health data is among the most sensitive categories of personal information, therefore robust safeguards are essential. Effective digital health systems can improve continuity of care, enable earlier detection of public health risks and support more efficient allocation of resources. However, if introduced without clear governance arrangements, transparent consent mechanisms and secure architecture, they may expose individuals to privacy risks or deepen distrust in health institutions. The responsible digitalisation of health systems therefore requires a combination of legal protection, clinical and administrative protocols, secure data management practices and clear communication with patients and communities.

Agriculture and food security provide a different yet equally compelling illustration of the role of data. Farmers, agri-businesses and public authorities increasingly rely on digital platforms to access market information, weather forecasts, pest and disease control updates, fertiliser or seed distribution schemes, financial and other advisory services. Remote sensing, satellite imagery and geospatial data are now routinely used to monitor land use, crop production and environmental conditions. These tools can support smallholder farmers, strengthen resilience to climate change, and improve food system planning. However, they also involve the collection of data that may reveal details about land ownership, production levels or household livelihoods. Without appropriate governance, there is a risk that such data could be used in a manner that disadvantages producers or exposes them to commercial or political vulnerabilities. Ensuring that agricultural data systems respect privacy, operate transparently and are underpinned by equitable data sharing arrangements is therefore essential to building confidence and encouraging uptake.

The green transition introduces an additional layer of complexity. As governments adopt climate commitments and seek to reduce emissions, the importance of environmental data becomes central to policy making. Monitoring air and water quality, tracking emissions, managing energy transition measures, and reporting on progress towards national and international commitments all require reliable and timely data. In many countries, different ministries and agencies hold responsibility for components of the environmental agenda, which makes interoperability particularly important. Environmental data often intersects with health information, urban planning data, agricultural data and economic indicators. A fragmented approach limits the ability to gain a comprehensive picture of environmental performance or climate vulnerability. Integrated data ecosystems with clear governance can therefore support more coherent climate-related policies and increase accountability in reporting.

Across these sectors, the pattern is consistent. Digitalisation creates opportunities for efficiency, equity and innovation. However, without a coherent systemic approach to data governance and integration, there is a risk that sector-specific systems remain siloed, trust is undermined, and the benefits of digital transformation are not fully realised. A holistic systems-strengthening, rights-based and contextually grounded model for designing digital ecosystems is therefore required.

Legal and Policy Foundations: Adopting and Adapting International Standards

The establishment of a coherent legal and policy framework is central to any effort to build trusted digital ecosystems. Legal clarity provides the foundation upon which institutions can confidently manage and share data, while offering individuals the assurance that their information will be handled with care and in accordance with recognised principles of fairness, proportionality and transparency. In recent years, many governments across emerging economies have sought to modernise their legislative frameworks in this area, but progress has been uneven and often hampered by limited institutional capacity or fragmented reform processes.

International standards provide valuable guidance in this field, particularly those that have emerged from the experience of the European Union. The General Data Protection Regulation has become a widely referenced benchmark, not only within Europe but globally, because it establishes a comprehensive and principled approach to the protection of personal data. It sets out clear rights for individuals, duties for those who process data and supervision mechanisms that support enforcement. However, the GDPR is the product of a specific legal tradition and institutional context, which means that its direct adoption may not always be feasible or desirable elsewhere.

A more effective approach for many countries lies in aligning national legislation with the core principles that underpin the GDPR and other international instruments, while tailoring the legal architecture to local realities and regulatory traditions. Proportionality is essential. A staged approach to compliance and institutional strengthening may be more realistic than attempting to legislate for an advanced model that cannot yet be implemented or enforced. National laws need to be clear, accessible and enforceable, with realistic provisions for oversight, remedies and redress.

Legal frameworks should not exist in isolation from wider policy. A national e-governance policy with an associated data strategy or equivalent policy instrument can provide coherence by setting out the overall vision for data use, the role of digital transformation in national development and the key principles that guide decision making. Such strategies can help ensure that sector specific initiatives in areas such as health, agriculture or environmental management are aligned with a common approach. They can also serve to clarify the relationship between privacy, innovation and public interest, ensuring that legitimate data driven initiatives are not unnecessarily hindered, while upholding essential safeguards.

Policies need to be supported by clear institutional arrangements. It is important to determine which authority is responsible for supervising data protection compliance, how coordination across government will be achieved, and how stakeholder engagement will be embedded into the policy cycle. Without such arrangements, legal provisions risk remaining theoretical. The creation or strengthening of an independent supervisory authority may be desirable, although it should be approached with sensitivity to local political and administrative realities. In some contexts, existing institutions can be mandated and capacitated to assume this role, provided that they can operate with independence and credibility.

A sound legal and policy foundation does not guarantee trust, but it is a critical precondition. It demonstrates commitment, establishes expectations and provides a reference point for both public institutions and citizens. When combined with meaningful implementation measures, it supports the emergence of a governance culture that respects rights, encourages responsible innovation and enhances public confidence in digital transformation.

From Policy to Practice: Operationalising Governance in Daily Institutional Life

Legal frameworks and policy statements provide the architecture for responsible data use, but they only become effective when translated into consistent practice across institutions and secure regular engagement of the public at large. The operationalisation of data governance is often the most challenging aspect of digital transformation, particularly in emerging economy contexts where institutions may lack experience or resources, and where organisational cultures and procedures may vary widely between ministries and agencies.

Operationalisation begins with clarity regarding roles and responsibilities. Public bodies need to understand their obligations as data controllers or processors, the nature of the information they hold and the purposes for which it is used. They require clear internal procedures for obtaining consent where relevant, managing data sharing requests, responding to breaches, conducting risk assessments and ensuring data quality. These procedures should be proportionate and realistic, designed to support compliance without creating unnecessary administrative burden.

Yet, many institutions lack written procedures that specify how data is to be handled at each stage of its lifecycle; this is one of many key challenges to policy operationalisation. When such procedures do exist, they are often insufficiently disseminated, poorly understood or inconsistently applied. Addressing this requires the establishment of robust and reliable coordination mechanisms within and across sector actors to ensure these written procedures are developed, endorsed and supported in a transparent, consultative and participatory manner, are coherent across institutions and are practical, accessible and aligned with the legal and policy framework.

Once operational procedures are developed, defining clear communication channels and establishing regular information-sharing cycles are essential to ensuring their widespread and systematic socialization among the many organizational levels and actors for whom they will become relevant guides for daily practice.

Deliberate efforts must also be made to ensure the knowledge and skills required to implement the operational procedures and support wider digitalization efforts are embedded into institutional staff professionalization plans and strategies. This may include, but is not limited to, planning for staff training, mentoring and on-the-job support and incentive schemes so that staff capacities are developed, retained, used and even modernised as institutional needs and digital technologies evolve over time.

Operationalising data governance policies is grounded in digital solutions development. In all cases but particularly where interoperability across digital systems is reasonable and feasible – digital solution development should always be grounded in a comprehensive analysis of key business processes and workflows to see where data modelling can help simplify and optimize them. This makes it easier to develop modular systems that are flexible and scalable. Using open standards can also facilitate the evolution and interconnection of systems over time. When insufficient time and energy are invested in the business and workflow analysis, monolithic systems emerge that are difficult to adapt or integrate because they emulate processes developed before the benefits of digitalization and automation could be leveraged.

Cybersecurity is an integral component of digital solutions development and operational practice. As digital services expand, public institutions become potential targets for cyber attacks, misuse of information or unauthorised access. Cybersecurity measures must therefore be embedded into the design and operation of digital systems, reflecting a principle of security by design. This includes ensuring the protection of data in storage and in transit, implementing access controls, maintaining audit trails and responding effectively to incidents. Capacity in this area often needs strengthening, and collaboration between public bodies, private sector partners and specialised agencies can support resilience.

Ultimately, and to reinforce the point, operationalisation requires that staff at all levels understand not only what the rules are, but why they matter. The development of a professional culture that values responsible data use is essential. This involves building a shared understanding of the ethical dimensions of data handling, promoting a sense of accountability, and ensuring that staff can apply principles in practical contexts. Without such a culture, even the most carefully designed procedures risk being inconsistently applied or circumvented in the face of day-to-day pressures.

Culture, Trust and Ownership: The Human Dimension of Digital Transformation

The sustainability of digital transformation depends as much on people as on systems or legislation. Cultural change is often underestimated, yet it lies at the heart of whether reforms become embedded or remain superficial. A rights-based and citizen-centred approach to digitalisation requires institutions and individuals to think differently about their responsibilities, the value of the data they hold, and the relationship between public services and the communities they serve.

Institutional culture influences how staff perceive data governance requirements. If compliance is viewed as a burdensome administrative exercise, it will not take root. However, if responsible data use is seen as integral to professional standards and public service values, it is more likely to be embraced. Encouraging this shift requires visible commitment from leadership, clear and consistent messaging, and opportunities for staff to engage meaningfully with the rationale behind the reforms. Capacity development efforts should therefore focus not only on technical knowledge, but also on fostering reflection, dialogue and shared understanding.

Building trust also requires openness and communication with the public. Citizens are more likely to engage with digital services when they understand how their data will be used, what safeguards exist and how they can exercise their rights. Public information campaigns, community engagement strategies and accessible communication tools can support this. Involving users in the design and evaluation of digital services can increase relevance, improve usability and strengthen legitimacy. Trust grows when people feel that digital systems are designed with their interests in mind, rather than imposed without consultation.

Local ownership is essential for sustainability. Digital transformation that is externally driven, heavily consultant dependent or insufficiently rooted in institutional practice tends to lose momentum once external support is withdrawn. Local ownership requires that institutions are involved from the outset in the design of reforms, that they have a stake in decision making and that they are supported to build internal capability. It also involves ensuring that digital systems align with local needs and priorities, rather than replicating templates designed elsewhere. When staff see the value of reforms and have the capacity to sustain them, cultural change becomes organic rather than forced.

Accountability, Oversight and Sustainability

For digital transformation to be both trusted and enduring, mechanisms of accountability and oversight need to be firmly embedded within the governance model. Accountability provides reassurance that institutions handling personal and sensitive information do so in a manner consistent with the law, ethical expectations and the public interest. It also reinforces professional standards and encourages continuous improvement. Oversight, whether internal or external, provides safeguards against misuse, neglect or systemic weaknesses and helps maintain confidence in the digital ecosystem as it evolves.

Effective accountability begins with clarity of institutional responsibility. Each public body involved in collecting or processing information should understand the scope of its obligations and the boundaries of its authority. Internal controls and audit mechanisms are necessary to ensure that procedures are followed, risks are identified and corrective actions are implemented. These mechanisms should be proportionate, transparent and adaptable to change. They should also be supported by senior leadership and integrated into routine management practice, rather than treated as exceptional or punitive exercises.

Independent oversight plays a complementary role. Many countries have established or are considering the establishment of supervisory authorities with a mandate to oversee data protection and privacy. Where such bodies exist, they need sufficient independence, resources and technical capacity to operate credibly. In contexts where creating a new authority is not immediately feasible, existing institutions may be given formal oversight responsibilities, provided safeguards are in place to ensure that their role is not compromised by political or administrative pressures. External oversight helps uphold public confidence and provides a channel through which individuals can seek redress if their rights are violated.

Sustainability is closely linked to accountability. Digital transformation should not be viewed as a one-off initiative, but as a long-term process of institutional development. Systems, policies and practices will need to evolve as technology advances, societal expectations shift and new risks emerge. Sustainable transformation therefore requires long-term planning, investment and a commitment to continuous learning. Governments benefit from establishing feedback loops that allow experience from implementation to inform improvements in policy, legislation and practice. Development partners can support sustainability by aligning assistance with national strategies, strengthening local capacity and avoiding parallel systems that undermine coherent reform.

Financial sustainability is also a key consideration. Digital systems entail ongoing costs for maintenance, security, upgrades and capacity development. Clear budgeting and realistic planning are important to ensure that systems do not deteriorate once initial project funding ends. Partnerships with the private sector, academic institutions and civil society can support innovation and resilience, provided that such collaborations are governed transparently and in the public interest.

Accountability and sustainability are mutually reinforcing. When institutions are held to account, learn from experience and adapt accordingly, public trust is strengthened and the digital ecosystem becomes more resilient. This creates a virtuous cycle in which rights-based and responsible digitalisation becomes a routine part of public administration.

Conclusion: Towards a Shared Agenda for Responsible Digital Transformation

Digital transformation holds the promise of enabling more effective, equitable and sustainable development. It can strengthen public services, empower individuals, enhance transparency and support evidence-based decision making in many sectors, including health, agriculture, food security and environmental management. Yet, the extent to which this promise is realised depends on whether digital ecosystems are built on clear and coherent foundations that respect individuals, support institutions and reflect shared societal values.

A systemic and integrated approach to data governance provides a pathway towards trusted and resilient digital ecosystems. Such an approach requires a combination of legal and policy clarity, institutional responsibility, operational practicality, secure and interoperable technology and a deliberate focus on culture, capacity and ownership. It requires adaptation of international standards to local contexts, recognising that effective reform is rooted in national realities rather than imported blueprints. It requires that digital transformation be treated not as a technical exercise, but as a matter of public good-governance and sustainable development.

The reflections set out in this paper aim to contribute to a constructive dialogue among governments, development partners and institutions committed to responsible digital transformation. While contexts differ, the principles of trust, accountability, inclusion and sustainability are widely shared and provide a basis for collaboration. The agenda ahead is one that calls for partnership, humility and a commitment to long-term institution building. When these elements are in place, digital ecosystems can evolve in a manner that supports both national development priorities and the wellbeing of citizens.

Responsible digital transformation is ultimately a collective endeavour. It requires shared vision, clear governance and sustained engagement. By investing in trusted, rights-based and integrated digital ecosystems today, governments and their partners can lay the foundations for more resilient, inclusive and sustainable societies in the years to come.