Development and Implementation of e-Government
Services in Turkey: Issues of Standardization, Inclusion,
Citizen and Satisfaction
Asm Balc, Erhan Kuma, Hamza Tadelen, Elif Sng, Tolga Medeni and Tun D. Medeni
Trksat, Turkey
{abalci, ekumas, htasdelen, esungu, tmedeni, tdmedeni}@turksat.com.tr
ABSTRACT
This paper discusses the development and implementation of e-
government services in Turkey. With the background
information about e-government in general, Turkish case of e-
government initiatives is discussed with a specific focus on e-
Government Gateway Project. Issues of Standardization,
Inclusion, Citizen Satisfaction, Integration and Interoperability
are highlighted as current, hot topics and future prospects.
Categories and Subject Descriptors
J.1 [Administrative Data Processing] Government; K.4
[Computers and Society]
General Terms
Management, Security, Human Factors, Standardization,
Keywords
E-Government, E-Government Gateway, Turkey,
Standardization, Inclusion, Citizen Satisfaction, Integration and
Interoperability
1. INTRODUCTION
With the recent developments in information and communication
technologies (ICT), and emergence of Internet, ICT became a
philosophy for governments worldwide, and after the 1990s the
term e-Government has been used commonly to underline the
use of ICTs by government agencies. Today, most of the modern
countries focus on e-Government projects to reach their citizens
and improve their living standards. Like Europe, the USA,
Canada, South Korea, and Singapore all have been following the
same path. To increase the efficiency of scarce resources, to
reach citizens and solve the problem of the citizen access, and to
modernize governmental services, all developed countries have
been realizing new projects on e-Government.
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337
Turkey is another country pursuing the same goals. Although
previous initiatives can also be traced back to the 1970s, in
Turkey e-Government initiatives could be said to start in 1998
with the Kamunet project that aimed to establish a national
information system. In the framework of the e-Europe Plus
project, Turkey prepared its own action plan named e-Trkiye
initiative in 2001.
Currently, available e-Government applications in Turkey
include passport and license application, tax return, and
education and banking procedures, among others. The
Information/Knowledge Society Strategy Document published in
2006 signifies the development of e-Government services for
transforming Turkey into a knowledge society [5] [6].
According to the Knowledge Society Strategy goals, Trksat has
been given major responsible and supportive roles for the e-
Government initiatives. Trksat Satellite Communication and
Cable Operations Inc., established as a publicly owned and
privately operated company in Turkey, has been specializing on
e-Government operations. Especially, in the area of ICT, e-
Government Gateway is a major milestone for achieving the
Knowledge Society Strategy goals of Turkey.
The project of e-Government Gateway started in 2006 at Trksat.
Since then, with the governmental agencies, lots of activities
have been realized, including various presentations on e-
Government, and over two hundred meetings have been held
with specific government agencies. The main purpose of these
activities has been to raise the awareness of the public servants to
this process and project, and this purpose seems to have been
achieved. More specifically, in the last two years, Trksat has
established the e-Government Gateway project as an
information-based portal, and now the gateway project is in the
testing phase, and also its evolution continues with the new
requirements in this phase. Governmental services will be
accessed from a single point where integrated governmental
services will be hosted. It is planned that the project will be
realized before the end of Summer 2008.
Trksat also assumes a responsible role in various projects that
focus on building the infrastructure for some e-Government
services. The main focus for some of these projects includes
secure networking solutions between governmental agencies,
standardization of public websites and provision of hosting
services for public organizations, establishment of disaster
recovery center, and a common call center. Trksat is also
assisting other government agencies that are responsible for other
projects, through performing business analysis, preparing
feasibility reports and providing project management support in
order to create and improve their citizen-centric e-Services.
Furthermore it is also trying to establish e-document standards
between the agencies.
In this paper, the e-Government implications related to standards
integration, interoperability and citizen satisfaction issues in
Turkey will be presented as practices and lessons-learned at
policy-making and organizational levels, in comparison with
other cases in different countries, specifically in the European
Union. Here, we will provide mainly an account of Trksat as a
major responsible or supportive entity in these initiatives in
Turkey. The outline of the paper follows: 1) background
information about e-Government in general from an EU
perspective, 2) The Turkish case regarding e-Government
initiatives, specifically e-Government Gateway project, 3) Issues
of Standardization, Inclusion, and Citizen Satisfaction, and 4)
summary and conclusion.
2. E-GOVERNMENT FRAMEWORK IN
BACKGROUND, AN EU PERSPECTIVE
After the widespread use of Internet and opportunities created by
Internet, governments use the Internet as a tool to become more
competitive and innovative. European Union (EU) considers ICT
as driving force for development. EU launched eEurope initiative
to create the information society and the most competitive,
dynamic and knowledge-based economy in the world. EU
decided e-transformation as a common policy, and set out some
strategies in the framework of the Union. eEurope initiative is
based on some action plans and strategies which cover years, to
achieve eEurope and an information society in Europe. The
starting point of eEurope initiative was the Helsinki Summit,
December 1999, with the purpose of creating an information-
based society, which is more important than industrial society,
and this initiative could assure the position of Europe in the
world. EU aims to provide the use of Internet effectively both in
business and public services, taking technological infrastructure
and security problems into consideration. In this context,
increasing the number of interactive public services for all
people is intended. During the meeting of the European Council
in Lisbon (March 2000), a "Lisbon Strategy" has been launched
aimed at making the European Union (EU) the most competitive
economy in the world and achieving full employment by 2010.
After the Lisbon Strategy, eEurope 2002 and eEurope 2005
Action Plans are important steps to achieve e-Europe. eEurope
2002 Action Plan, adopted in June 2000, is aimed to achieve the
targets set by Lisbon European Council. This Action Plan
ensures the methodologies to achieve eEurope targets and
emphasizes how to achieve these targets. (eEurope 2002:
Information Society For All, Action Plan, June 2000). eEurope
2005 Action Plan is based on the aim of the development of
knowledge-based economy by 2005 in Europe. (eEurope 2005
Action Plan)
eEurope+ 2003 Action Plan, which was prepared by the
candidate member states of the European Union in order to
enable the candidate countries to contribute to e-transformation
process, anticipates that the citizens of candidate states will
benefit from the facilities of the information society and it tries to
prevent these states from experiencing a kind of digital divide
with the members of the European Union. The document
includes actions directed at the special circumstances of
338
candidate states, primary purposes and goals. The action plan
also helps to minimize the digital divide between countries.
3. E-GOVERNMENT INITIATIVES IN
TURKEY AND ROLE OF TRKSAT
3.1 A General Outlook, Current Trends
According to the recent report of Brown University, U.S.A., the
e-Government services provided in Turkey are considered to be
in the top ten among the 198 countries of the world. However,
according to other reports disseminated by UN, OECD or EU,
the performance of Turkey in e-Government can be considered to
be about average. For instance, according to the latest report of
the UN (2008), Turkey has the ranking of 76 among 182
countries in the world in terms of e-Government readiness.
Evaluating for EU, Capgemini [4] reaches similar conclusions
for Turkey, with a 70% performance ranking (Figure 1).
Figure 1. Country ranking regarding online
sophistication maturity [4]
Literature such as the work of Kutlu [8] or OECD reports [11]
provide information about the e-Government projects in Turkey.
Among these, the following projects are specifically underlined:
Central Population Affairs System (CPAS) Project (MERNIS),
National Judiciary Network Project (NJNP) (UYAP),
Accounting Offices Automation Project (say2000i), Internet Tax
Office Project (VEDOP), National Police Network Project
(POLNET), Government Supply Offices Electronic Sale Project
(e-Sale), Social Security e-Filing for Employers Project (e-
Bildirge), Legislation Information System, Custom
Administration Modernization Project (GIMOP).
In terms of efficiency and effectiveness gains, IT projects in
public administration seem to display success. Certain cases
clearly signify that despite increase in workload, costs of
institutions declined after IT applications. Consequently, the
evidence shows that IT reforms have been increasing financial,
administrative and technical capacities of administration [8].
While some services are effectively provided, still integration,
transformation and personalization is an issue. As discussed by
Acar and Kuma [1], in general, Turkey could be said to be in
the phase between the automation of existing processes and
transformation of business processes and organizations, with
respect to Figure 2.
One specific project, with its sub-projects that deserve attention
on this path of sophistication and evolution is e-Government
Gateway Project in Turkey (e-Kap). This project, which is
under the responsibility of Trksat, is discussed next.

Figure 2. The evolution of e-Government
3.2 Some Important e-Government Projects
and Underlying Issues
The e-Government Gateway Project is a major milestone for
achieving the Information Society Strategic Goals set by Turkey.
Here, e-Government basically means provision of public services
through electronic means, which implies faster and cheaper
access to these services. In order to facilitate access to electronic
public services by citizens and enterprises, it will be ensured that
these e-Government services are reached from a single portal and
via multiple channels.
e-Devlet Kaps or e-Kap is to be Turkeys first e-
Government gateway, and is well under construction [2][3]. The
portal aims to provide Turkey's 70 million citizens and business
entitites with a single point of access to e-Government services.
The gateway will also serve a third group of users public sector
agencies themselves allowing them to interact with each other
and exchange information. The gateway will use both open-
source and commercial technologies based on standards like Java
2 Enterprise Edition, and XML and will also be compatible with
the European Interoperability Framework (EIF). i
Once the e-gateway or the portal is created, the service will be
extended to include other mobile devices like smart-cell phones,
pocket PCs, PDAs, and laptop computers and users will be able
to access the system with smart cards or imprinted digital
certificates for a secure transaction. Content management and the
usability of the portal will be a major cornerstone of the gateway,
and with a payment/banking module, each electronic service will
get a central mechanism to enable payments and money transfers
between government agencies and users. The responsibility for
the project lays with the government company Trksat, Turkeys
main provider of Satellite and IT infrastructure servicesii
The most effective utilization of ICT requires flow of public
services be redesigned to reflect the central importance of
citizens perspective. The e-Government Gateway project
launched in 2005 in Turkey makes it possible for citizens to have
access to public services at one single point at the front door,
while setting up the infrastructure for data-sharing and
communication among institutions at the back. By completion of
this project, integration standards will be ensured, where
security standards and data-sharing of public institutions at
international level is provided under one roof. These integration
standards then contribute to the establishment of an
interoperability framework. Interoperable systems working in a
seamless and coherent way across the public sector is a turnkey
for providing better, tailored, cheaper services for citizens.
Trksat has also assumed a leading role in analyzing and
designing government services, surveying citizens, analyzing
service processes and suggesting new ways of performing
efficiently within government environment. Project milestones
include creating citizen satisfaction indexes, and providing and
implementing citizen relationship management systems. The
citizen-focused service transformation strategy involves
transferring frequently used and high return public services to
electronic channels with the help of ICT, and ensuring
effectiveness in service delivery through re-engineering of
business processes in line with user needs.
On 28th July 2006, six responsibilities were given to Trksat
with the Knowledge Society Strategy document, while works on
e-Government Portal were continuing. With the Ministry of
Transportation, Trksat become an organization which is
responsible for the installation of technical infrastructure for the
transformation of the knowledge society.
e-Government Gateway is an important step for Turkey to
modernize and establish a citizen-oriented government
mechanism. The e-Government Gateway project, with its
completion and improvement projects by Trksat, will support
Turkey to become a leading country in the world, for giving ICT-
supported, citizen-oriented based on services information
technology and for the speed with which it switched to e-
Government systems.
As an important component of the e-Transformation Turkey
Project, the mission of which is to transform Turkey into a
Knowledge Society, E-Government requires integrated, efficient,
transparent and simplified work-flow-oriented structure. Within
this framework, in order to make collaboration possible, one of
the basic requirements is to identify common norms and
standards, and to develop information systems and integrated e-
Government services with respect to these norms and standards.
e-Government Gateway is an organization prepared to provide
state services to citizens in a way that is linked to work flows; it
gives priority to user needs; it is provided online, uninterrupted,
secure, and accessible from multi modes and integrated via a
one-point portal. This project is an important step for enabling e-
citizenship for accessing public services in a fast, secure and
uninterrupted way through Internet, mobile technologies, or call
centers. It is a portal built for citizens' to reach all electronic
government services at one point by one identity confirmation,
using their TR identity numbers. Consequently, this project
includes all citizens in a creative process of reflection, for a
country in a digital information society.
While seeing that citizen-centered services are given high
priority within the work done, at the same time, the development
of high-value-added products for institutions is an issue that is
quickly noticed. Following are the related main issues: A.
Identification, Authentication, and Authorization, B. Content
339
Management Studies of the Portal, C. Information Security
Management Approach, D. Integration of the Public Institutions.
While the studies about e-Government Gateway were on going,
the Information/Knowledge Society Strategy was published in
July 2006. According to the Strategy, Trksat has been given six
targets that are related to the technical infrastructure of Turkeys
Transformation process to the Information Society;
1) Secure Government Network,
2) Government Services Call Center,
3) National Disaster Recovery Centers,
4) Standardisation and Hosting of Public Web Sites,
5) Widespread of E-Government Gateway Services,
6) Citizen-centered Service Transformation
In addition to the work presented above, at this time there is a
project we are working on about defining and applying a
customer satisfaction index. Citizen expectations and needs will
be identified at agencies, and integrated service provision will be
guaranteed in line with these needs during the development,
provision and improvement processes of electronic services for
the public. Moreover, e-consulting functions by which public
institutions will be able to gather citizen views on electronic
media will be activated. A user satisfaction index for e-services
will be defined and measured regularly.
In the implementation process of this e-Government Gateway
project based on service transformation, the main principle will
be the consideration of user satisfaction issues when re-designing
business processes regarding serviced delivered between public
institutions and citizens and enterprises. The priority in service
transformation will not be merely to transfer available business
processes to electronic channels without making any
improvements; on the contrary, the aim will be to deliver these
services, which will have business processes redesigned
according to user needs by integration or simplification when
necessary, in an effective, uninterrupted, fast, transparent,
reliable and integrated way.
In short; for the last 2.5 years Trksat has been working on
establishing the e-Government gateway project, eventually
applying a spiral rather than a waterfall model to the project
management. Within this project, currently an information-based
portal is in its testing phase, and the public opening of the e-
Government Gateway will be completed very soon. In later
phases, integrated governmental services based on service
transformation will be provided from this one-stop shop. As an
integral part of the whole e-Government Gateway project the
issues discussed here are crucial for supporting the ongoing work
on the project.
Figure 3: e-Government Gateway, Turkey
The e-Government gateway project will be under continuous
development in response to the needs arising from citizens,
business enterprises and public institutions, following the spiral
340
project management model. Figure 3 illustrates the philosophy
and vision of the e-Government Gateway, which is created out of
a national competition for a logo (and motto) design.
In addition to the above-mentioned projects and initiatives, the
following works should also be noted:
o Accessibility issues have been discussed with the
representatives of public institutions in a national workshop
held in May 2008.
o A national conference in November 2008 and international
conference in March 2009 about e-Government and e-
Governance will be held in Turkey, where e-inclusion and
accessibility will be among the major discussion topics
4. ISSUES OF STANDARDIZATION
INCLUSION AND CITIZEN
SATISFACTION
In the previous section, we have presented e-Government in
Turkey generally, and the e-Government Gateway project
specifically. Most of the issues and projects discussed above are
work-in-progress, some of which will be discussed further in this
section for future prospects. At this point, discussion will focus
on first, standardization of public websites and e-inclusion, then
citizen satisfaction.
4.1 Standardization of Public Web Sites and
E-inclusion
European Information Society for Growth and Employment is
the next step after eEurope 2002 and eEurope 2005. i2010
emphasizes that ICT is the main key to raising the quality of life.
e-Inclusion is one of the three pillars of the i2010 initiative.
i2010 announced that the Commission proposes a European
Initiative on e-inclusion in 2008. The Riga Ministerial
Declaration 2006, a landmark for e-inclusion, set some
objectives to be achieved by 2010. These objectives are: e-
Accessibility, e-Ageing, e-Competences, Socio-Cultural e-
Inclusion, Geographical e-Inclusion, Inclusive e-Government.
e-Accessibility could be seen as a problem for people who have
environmental or social limitations in accessing new
technologies, like the old or the handicapped. The problem could
be solved by designing goods and services for all, and producing
new cooperative technologies.
e-Accessibility is one of the fundamental concepts which e-
inclusion stands on. During the Riga meeting, one of the specific
targets in achieving e-accessibility is providing accessibility to
public web sites by 2010 in Member States. In this framework,
Trksat studies a guideline to provide accessibility and
standardization of Turkish public web sites. e-Accessibility is the
main purpose of this guideline. As a principle of participation,
public agencies must provide services to all users without any
exclusion. Standardization Project of Public Websites is an
inclusive step which aims to form the standards of design and
content to be able to facilitate the citizens use of public web
sites. The main purpose is to create accessible and usable
websites that can be benefited by all citizens. This project also
helps the e-inclusion process. e-Inclusion aims to eliminate the
risks of digital divide.
After the expansion of the Internet, web sites became one of the
main platforms that provide mass media. Also, public agencies
use this platform to provide public services faster with high
quality. But even people living in the same country cannot
benefit from the information and communication technologies at
the same rates, because of age, handicaps or regional limitations.
Now, e-inclusion, which is described as being included in the
information society, aims to eliminate the risks of digital divide,
remove the obstructions for the people, to allow them to benefit
from information and communication technologies, and enable
them to keep up with developments.
According to the latest report (2008), progress has been made to
eliminate geographical digital divide. Specifically, tele-
communications network has continued to grow in parallel with
the population of approximately 74 million. For example, in
mobile communications the number of mobile subscribers
jumped from 34 million in 2004 to 59.9 million in 2007. The
number of Internet subscribers also increased from 450 thousand
in 2004 to 4 million in June 2007. At present, more than 2
million subscribers are provided ADSL access, and there are
nearly 12 million Internet users in Turkey. Also, alternative
modes of access are taken into account, to ensure that important
services remain available to those who are not online.
According to the same report, while the telecommunications
market is opening to competition, the Law No. 5369 on universal
services was approved in June 2005 in order to provide basic
universal services to some geographical areas, where investment
is assumed to be economically unfeasible by the private sector.
Accordingly, a fund to carry ICT services to all uncovered rural
areas has been created under the Universal Service Obligation
Law. Under this law, it is planned to extend broadband Internet
and basic telephony coverage to all rural areas.
One current challenge in front of e-inclusion is the analogue
broadcasting system in Turkey. At the beginning of 2014 digital
broadcasting will be enabled, after three transition phases.
4.2 Citizen Satisfaction and Citizen
Satisfaction Index
In recent years, thus, developing a citizen-oriented public
administration, and consequently, assessing and improving
citizen satisfaction regarding public services, have become
significant. Various developed countries have developed
methodologies for measuring the perceptions of citizens who use
public services. The service quality and effectiveness, as well as
citizen involvement, would benefit from such assessment and
perception methodologies.
According to the Action described in the Citizen Satisfaction
Index in the 2006 Strategy Document that emphasizes the
importance of transforming into an information society given by
the Turkish State, public institutions aim to assess satisfaction
from the services provided to citizens through the e-Government
mechanism. Without any criteria to assess the quality and
effectiveness of the provided services, the adequacy of the
services and the success of the transformation of the citizen-
centric services could remain unquestioned.
As a part of disseminating the e-Government Gateway services,
projects on Citizen Satisfaction Index are under development at
Trksat in partnership with national and international
341
institutions. For instance, according to one recent proposal with
Brunel University and American University of Beirut (2008),
innovative use of Data Envelopment Analysis (DEA) for e-
Government evaluation to develop a Citizen Satisfaction Index is
being considered. The result of this project is announced in July
2008, and after the final negotiations the project will commence.
In addition to its public and academic benefits, such a project on
citizen satisfaction could bring important business benefits, as
well. With respect to this, TrkSat (and its subsidiary EurasiaSat)
is also intending to further exploit current e-Government
Gateway projects in different countries and regions, specifically
in Europe, the Middle East and Central Asia, where historically
Turkish institutional entities have special relations. For this
furtherance the effective and scientific measurement of citizen
satisfaction is also crucial. The process reference model which is
the output of such work will be part of the portfolio of the e-
Government Gateway product in the movement. In general, the
inclusion of the reference process model will strengthen the
competitive power of the e-Government Gateway project, in that
Trksat will be able to benefit from its experience with the
Citizen Satisfaction Index to develop new services and products,
and diffuse its business into new markets. As a consequence,
building upon its unique and strong position, and diffusing into
unexploited markets, Trksats fast advance in ICT business can
be foreseen.
In general, in 2011, 70% of all e-government services will be
ready, according to the Information Society Strategy in Turkey.
In the 2008 progress report, it is noted that among the 111
actions defined in the strategy document, 3 are concluded, 51 are
works-in-progress, and 34 are at beginning stage.
When these targets are met, the available services could be very
significant for the transformation of not only state institutions as
well as the society and citizens.
In addition to these issues, discussed with respect to
standardization, inclusion, citizen satisfaction, there are some
other embedded aspects, such as metadata, mobility, and ongoing
projects on, for example, security, and content management. In
addition, there are potential projects, such as a work on the
government services network that interlinks any change in
services and the institutions and laws that this change will have
an impact on. However, rather than discussing these specifically
here, we can conclude this section, as well as our paper.
5. CONCLUSION
As we have discussed in this paper, on the way to becoming a
member of the European Union, Turkey undertakes various e-
Government projects in line with the general trends and
perspectives within the EU. Specifically, the e-Government
Gateway Project is the responsibility of Trksat, as a privately-
operated state-owned company. As significant parts of this major
project, the on-going projects about standardization, inclusion,
and citizen satisfaction are given as examples of e-Government
initiatives for transformation of society with respect to the
Information Society Strategy of Turkey. In our paper, we
explained these projects in more detail, so that their development
and implementation will exemplify social aspects and impacts of
semantic technologies and web services as on-going
developments and applications in e-Government and e-State. The
discussed projects will surely benefit the public good in Turkey,
and also could help Trksat to sharpen its competitive-edges as
an e-Government service provider and ICT developer.
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