Case Study: An examination of Open Government initiatives at the Office of the National Coordinator (ONC) for Health IT “Our goal is to assist with monitoring health IT adoption trends; facilitate assessment [of] progress to national and HITECH goals; enable stakeholders with data that is insightful and actionable.”-ONC Office of Economic Analysis, Modeling and Evaluation Report Summary Methods This is a descriptive (Yin, 2003) instrumental (Stake, 1995) case study that sought to answer the basic question, How is ONC complying with the Obama administration’s Open Government initiatives? Goals associated with the study include: To understand how various activities and programs align with the administration’s goals of promoting more transparent, participatory and collaborative government To identify definitional themes of “Open Government” as illustrated by stakeholders inside and outside of ONC To explore how data are being used “downstream” to: o Inform policy decisions; o Enhance research; and / or o Promote innovation To propose a conceptual framework through which ONC and other government agencies could assess current and future Open Government initiatives Projects A review of applicable projects was undertaken to examine how ONC projects were aiding Department of Health & Human Services-wide Open Government compliance / goals. ONC programs and projects include: Transparency / Collaboration / Participation 1
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Health Information Technology and Open Government Policy
This is a descriptive (Yin, 2003) instrumental (Stake, 1995) case study that sought to answer the basic question, How is ONC complying with the Obama administration’s Open Government initiatives? Goals associated with the study include: • To understand how various activities and programs align with the administration’s goals of promoting more transparent, participatory and collaborative government • To identify definitional themes of “Open Government” as illustrated by stakeholders inside and outside of ONC • To explore how data are being used “downstream” to: o Inform policy decisions; o Enhance research; and / or o Promote innovation • To propose a conceptual framework through which ONC and other government agencies could assess current and future Open Government initiatives
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Case Study: An examination of Open Government initiatives at the Office of the National Coordinator (ONC) for Health IT
“Our goal is to assist with monitoring health IT adoption trends; facilitate assessment [of] progress to national and HITECH goals; enable stakeholders with data that is insightful and actionable.”-ONC Office of Economic Analysis, Modeling and Evaluation
Report SummaryMethods This is a descriptive (Yin, 2003) instrumental (Stake, 1995) case study that
sought to answer the basic question, How is ONC complying with the Obama administration’s Open Government initiatives? Goals associated with the study include:
To understand how various activities and programs align with the administration’s goals of promoting more transparent, participatory and collaborative government
To identify definitional themes of “Open Government” as illustrated by stakeholders inside and outside of ONC
To explore how data are being used “downstream” to:o Inform policy decisions;o Enhance research; and / or o Promote innovation
To propose a conceptual framework through which ONC and other government agencies could assess current and future Open Government initiatives
Projects A review of applicable projects was undertaken to examine how ONC projects were aiding Department of Health & Human Services-wide Open Government compliance / goals. ONC programs and projects include:
Transparency / Collaboration / Participationo Health IT Dashboard
Regional Extension Center Dashboardo Raw Dashboard Datasetso Data Briefs / Reports
Collaborationo Investing in Innovation (i2) Initiative
Software Development Challenges Participation
o Standards & Interoperability (S&I) Frameworko Federal Advisory Committeeso Planning Room
Data & Analysis
A series of in-person and telephone discussions with program administrators and staff informed the content of this study, including:
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Director, Office of Economic Analysis, Modeling & Evaluation, ONC Staff, Office of Economic Analysis, Modeling & Evaluation, ONC Director, Regional Extension Center (REC) Programs, ONC Staff, Regional Extension Center (REC) Programs, ONC Program Analyst, i2 Initiative, ONC Director, Office of Science & Technology, ONC
Key Takeaways
ONC has a host of programs and projects that meet Open Government criteria established by the Obama administration – some expressly, others implicitly
o ONC should perform an internal review of all programs to better understand their utility vis-à-vis the administration’s Open Government initiatives
Programs and projects that display all three attributes of Open Government are rare, but a balanced portfolio negates the need to meet all criteria within a single policy or program
o ONC should consider the Open Government Assessment Tool to assess current initiatives and identify future opportunities to integrate Open Government elements into policies and programs
Identifying return on investment (ROI) for Open Government projects is a difficult task, though this does not obfuscate the need
o ONC should develop ROI criteria for Open Government initiatives and prioritize future projects, especially around challenge / prize competitions
Origins of Open Government
The open government or open data movement can most readily be traced back to 1966
and passage of the Freedom of Information Act (FOIA). The Freedom of Information Act
(FOIA) provides that any person has a right, enforceable in court, to obtain access to federal
agency records, except to the extent that such records (or portions of them) are protected from
public disclosure by one of nine exemptions or by one of three special law enforcement record
exclusions.1 Although FOIA has been amended several times during the last 47 years, the core
premise of the rights granted under the Act has remained: to provide citizens access to executive
branch information and to make public and accessible all bureaucratic and technical procedures
for applying for documents from a federal agency.
2
Modern enhancements of FOIA have generally included amendments to make
information available electronically and made federal agencies more accountable for their
responses to FOIA requests.2 Specifically, the Openness Promotes Effectiveness in Our National
Government (OPEN Government) Act of 2007 established an Office of Government Information
Services (OGIS) in the National Archives and Records Administration to review agency
compliance with FOIA, codified annual reporting requirements for each agency's FOIA program
and specifically addresses data sources used to generate those reports by including a directive
that agencies “shall make the raw statistical data used in its reports available electronically...”3
Despite the legal mechanisms established by FOIA and enhancements made to modernize and
reinforce its foundational precepts, it is – at its core – a reactionary mechanism. FOIA gives
citizens the right to ask, and requires the government to respond, but it does not require
government to proactively disseminate data and information that may have value to the public.
With passage of the E-Government Act of 2002, the administration of George W. Bush edged
federal agencies towards a more proactively open government.4 The main goal of this legislation
was “To enhance the management and promotion of electronic Government services and
processes… and by establishing a broad framework of measures that require using Internet-based
information technology to enhance citizen access to Government information and services.”5
This charge was in recognition of the ways modern communications could be leveraged by
citizens and government to be more efficient, transparent and collaborative. While not
recognized at the time, perhaps due to the lexicon of 2002, this was the nation’s first, modern
open data legislation. The E-Gov Act was not a performance management bill, like 1993’s
Government Performance Results Act (GPRA) nor was it focused on improving FOIA, as the
OPEN Government Act did. It was a hybrid that put in place agency and government-wide
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policies that would enable improved performance, greater access to information and improve
citizen participation with government.
Of the several important provisions in the E-Gov Act, were three that set firmer
foundations for open government: Purpose (2) “To promote use of the Internet and other
information technologies to provide increased opportunities for citizen participation in
Government,” Purpose (8) “To promote access to high quality Government information and
services across multiple channels,” and Purpose (11) “To provide enhanced access to
Government information and services…”6 In addition to these two provisions, the E-Gov Act
helped propel federal agency technology initiatives that are central to 21st century
communications by mandating the creation of the nation’s first Federal Chief Information
Officer, the creation of a CIO Council to coordinate agency technology efforts, and provided
funds for coordination of such government-wide technology initiatives.7 While issues of
government-wide coordination of information technology procurement and programs was an
important facet of the E-Gov Act, the provisions highlighted above make a strong case that
notions of information access and citizen participation were important goals as well.
Over the next six years, agencies progressed towards meeting the goals outlined in the E-
Gov Act to varying degrees. Officials who worked to implement the bill recounted both surprise
and disappointment in how federal agencies were able to comply with the E-Gov Act, but most
agreed that the legislation moved the federal government firmly into new territory – one that was
more “citizen centric.”8 Little more than a month after this assessment of the E-Gov Act was
levied by officials from the Bush administration, newly-elected President Barak Obama signed
an executive order that would seek to magnify the notion of citizen-centric government many
times over.
4
Obama’s Version of E-Government: Open Government
The Obama administration has supplemented the E-Gov Act in two ways – it has sought
to continue the federal governments push into web-based information / service delivery and it
has sought to utilize technology as means to make government more transparent, more
participatory and more collaborative. On January 21, 2009 – Mr. Obama’s first day in office –
he signed the Memorandum on Transparency and Open Government. This memo outlined
President Obama’s intention to use openness to “strengthen our democracy and promote
efficiency and effectiveness in Government.”9 In order to achieve these goals, the administration
emphasized a three-legged framework that included the pillars of Transparency, Participation
and Collaboration.10 Notions of transparency centered on the need for federal agencies “to
disclose information rapidly in forms that the public can readily find and use,” using modern
technologies to publish information online. “Knowledge is widely dispersed in society, and
public officials benefit from having access to that dispersed knowledge,” the memo said; thus,
the theme of participatory government was identified, instructing agencies to “offer Americans
increased opportunities to participate in policymaking.” Finally, the President’s memo directed
federal agencies to engage in more multi-sector collaboration, “to use innovative tools, methods,
and systems to cooperate among,” various stakeholders. All three of these mechanisms were
accompanied by a requirement that public input be sought to help agencies accomplish these
aims, and a preliminary timeline was established to get agencies moving.11 Included in this
memo’s timeline was a requirement that the Director of the Office for Management and Budget
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issue a directive instructing “executive departments and agencies to take specific actions
implementing the principles set forth in this memorandum.”12
Roughly 330 days later, on December 8, 2009, OMB Director Peter Orszag issued the Open
Government Directive.13 The Open Government Directive established deadlines for action,
which included four areas: (1) Publish government information online; (2) Improve the quality of
government information; (3) Create and institutionalize a culture of open government; and (4)
Create an enabling policy framework for open government. Under each of these areas were
specific ways that agencies should accomplish the aims.
For instance, the Directive set forth a mantra that agencies adopt a “presumption of
openness,” publishing information in a timely and in an “open format” in the section on
publishing government information online.14 The Directive also introduced the concept of “high-
value data sets” in this section and compelled each agency to utilize government-wide open data
clearing houses, such as Data.gov, Recovery.gov and USASpending.gov.15 “High-value
information,” the Directive says in attachment section 3.a.i is, “information that can be used to
increase agency accountability and responsiveness; improve public knowledge of the agency and
its operations; further the core mission of the agency; create economic opportunity; or respond to
need and demand as identified through public consultation.” And this information must not
currently be available on agency websites.16 Most of the instruction in the first area was meant to
be on-going initiatives that agencies undertake; but the high-value data sets needed to be
identified within 45 days and registered via Data.gov.
The primary concern of area two, improve the quality of government information, was on
the “quality and objectivity” of agency spending information. According to the Directive, the
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federal government defines quality and objectivity as follows: Quality is “…the encompassing
term, of which ‘utility,’ ‘objectivity,’ and ‘integrity’ are the constituents,” and objectivity
“focuses on whether the disseminated information is being presented in an accurate, clear,
complete, and unbiased manner, and as a matter of substance, is accurate, reliable, and
unbiased.”17,18 This section gave agencies 45 days to identify and appoint a senior official to
oversee the quality and objectivity of agency spending data; 90 days for OMB to develop offer
guidance on a framework for the quality of federal spending information for public
dissemination; and 120 days for OMB to devise a longer-term comprehensive strategy for federal
spending transparency.
The third and forth focus areas of the Directive outline how OMB wants agencies to
make open government an enduring part of their mission and operations. Area 3 seeks to
institutionalize a culture of openness by requiring each agency to develop and publish an Open
Government Plan that describes the agency’s intentions to integrate transparency, public
participation and collaboration into its activities. This area also directs the federal Chief
Information Officer and federal Chief Technology Officer to create an Open Government
Dashboard; establish a working group that focuses on transparency, accountability, participation,
and collaboration within the federal government; and develop a framework for how agencies can
use challenges, prizes, and other incentive-backed strategies to find innovative or cost-effective
solutions to improving open government.19 These mandates were accompanied by 60-, 45-, 90-
and 120-deadlines, respectively.
The final section of the Directive outlines the administration’s acknowledgement that
emerging technologies and strategies to utilize those technologies will need an enabling
framework. So in section 4.a. the Directive says that within 120 days the Administrator of the
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Office of Information and Regulatory Affairs (OIRA), in coordination with the federal CIO and
CTO will review existing OMB policies to “identify impediments to open government and to the
use of new technologies…”20.
Implementation & evolution of the Open Government Initiative
In the months after unveiling the Open Government Directive, the Obama administration
received praise21, followed by tones of disillusionment. Watchdog organizations22, government
technology trade publications and academics bemoaned the missed deadlines, laggard agencies,
and misapplied technologies23.
The Directive contained numerous deadlines (the Directive itself was a deadline overdue
by more than 200 days) outlining various steps agencies needed to take. These deadlines gave
watchdog groups a measuring stick with which to evaluate agency efforts. The Sunlight
Foundation in 2011 said that results were “decidedly mixed.” Introducing work based on a
comprehensive evaluation by OpentheGovernment.org, Sunlight Foundation Policy Director
John Wonderlich wrote, “In some cases, agencies' goals were clearly met. Many of the datasets
planned to be released are now available on data.gov, and the projects and tools that agencies
described are underway. Often, however, agencies have failed to live up to the standards that
they set for themselves as a result of the Open Government Directive.”24 Sunlight focused on
each deadline stated by the Directive and subsequent deadlines set by individual agencies. Their
research indicated that roughly 36% of deadlines were met.1 Other prominent groups in the
“civil society” space, such as OpentheGovernment.org, followed a similar path of excitement,
turned disappointment.25
1 Author’s calculations using Sunlight / OpenCongress Wiki http://www.opencongress.org/wiki/Open_Government_Directive_Implementation_Tracking
developers and start-up technology companies to showcase innovative new products or highlight
emerging technology trends.
Second this document continues a trend towards integrating a vernacular to describe the
function of government that has little precedent. The term platform is in the title of the
document and it used thirty-two times throughout; federal government information is again
referred to as a “national asset” and with mandates to use Application Programming Interfaces
(APIs) there is an expectation that providing access to high-value government datasets (defined
in the Open Government Directive) will become not just be proactive, but automated.
Views on implementation
As stated previously, many civil society groups and government transparency watchdogs
followed an arc of excitement, which transitioned to sentiments of disillusionment. But in the
three years since the Open Government Directive was published many civil society groups have
grown to have a more positive outlook on the administration’s progress.
OpentheGovernment.org said that “The US met most of its 2011 commitments to make the
government more open and accountable.” The evaluation was a multi-organization effort,
distributing evaluation duties, using consistent metrics, across non-profits and academia with
experience working with agencies and evaluating information policies.39 Not all like-minded
watchdog groups feel the same. During the recent 2013 “Sunshine Week” – a week dedicated to
openness and transparency in government – many civil society groups issued statements of
praise for what had been accomplished, followed by calls for more action.
14
In testimony issued by Daniel Schuman, Policy Counsel and Director of the Advisory
Committee on Transparency at the Sunlight Foundation, before the House Committee on
Oversight and Government Reform, he said:
“Over the last few years, we saw the launch of the Open Government Directive, which required
agencies to create openness plans and release high value datasets to the public. We saw a memo
that enshrined a presumption of disclosure for responses to Freedom of Information Act requests.
We saw the creation of the first Federal Chief Technology Officer and the launch of Data.gov.
The newly created White House Ethics Czar fought against FOIA backlogs and implemented
greater lobbying disclosure for the Wall Street and Main Street bailouts…And, more recently,
we’ve seen the rollout of Ethics.gov, the “We the People” platform, the Open Government
Partnership, the Presidential Innovation Fellows, and FOIA Online. This is an impressive list…
Unfortunately, many of these initiatives have tapered off…The technological solutions that are
being embraced, such as the “We the People” platform, often are more centered on getting public
input than providing data about the government to the public. The brightest spot is the
international Open Government Partnership, but it contains little about ethics in government, and
many of its commitments represent longstanding pledges for incremental change.”40
Similar statements were heard from Sean Moulton, Director of Open Government Policy
at the Center for Effective Government: “The Obama administration established an impressive
array of important open government reforms,” he said in a press statement accompanying a new
report from the Center. “However, implementation has lagged at many agencies.”41 The report
itself acknowledged some accomplishments, saying, “Improving access to government data has
been a particular accomplishment of this administration… [Data.gov] now features more than
350,000 datasets, 1,200 data tools, and more than 130 mobile applications from agencies across
the federal government.” But not to be too congratulatory, the section ends by saying, “agencies
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have lagged at releasing inventories of their datasets, which prevents users from knowing what
important datasets might still be missing from Data.gov.”42
Each of these groups had slightly different assessments, based on their groups’ primary
focus. Sunlight Foundation begrudged missed opportunities to make lobbying and donation
rules more transparent at the expense of seeking more input from citizens via the “We the
People” platform. OpentheGovernment.org saw clear improvements in agency compliance with
the Open Government Directive where the Center for Effective Government saw a need to do
more. At their core, however, even watchdog groups and civil society organizations are
advocacy groups, looking through prisms that will garner attention and donation support.
But civil society groups were hardly the only ones watching. While not a robust portfolio
in academia, there are those who focus on open data, study good government management or
focus on government performance. In reviewing various works of the academic community
(peer-reviewed and non-peer reviewed) a pattern of viewpoints emerged on what open
government was and how well the administration was achieving it. I have grouped such views
into three types: Public engagement-oriented, Performance-oriented and Platform-oriented.
Public engagement-oriented views of the administration’s open government activities
tend to focus on how readily the public is interacting in policymaking processes. This
orientation tends to believe that Open Government produces easily digestible information that is
contextual and enables public participation.
Performance-oriented views tend to focus on how open data is or is not leading to a more
efficient and competent federal government. This view sees open government as both a means
and an end towards achieving a better-performing government.
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The third body of work tends to focus on how government can play a convening role to
enable innovation through open government. The term “government-as-a-platform” refers to a
organizational model of government service delivery that acts more like a platform from which
citizens can build from, and less like a “vending machine” through which services are bought
and delivered.
Each of these orientations will be discussed in the next section, followed by an
examination of how ONC is achieving Open Government through these various prisms.
Open Government as means toward public engagement
Little research, academic or otherwise, has focused holistically on whether agencies have
complied with the core precepts of President Obama’s Memorandum on Open Government –
transparency, collaboration and participation. While some of the most granular assessments of
agency activity have come from the “civil society” groups discussed previously, those
assessments were largely constructed along narrow advocacy lines. Others have taken a more
nuanced approach towards assessing the administration’s approach to open government. One of
the most recent efforts come from Evans and Campos (2013), who studied a handful of agencies’
efforts to be more transparent, collaborative and participatory.43 Their overall assessment is that
most agencies are engaged in efforts to be more transparent and collaborative, but few are
engaging with the public in meaningful ways. Evans and Campos argue that the combination of
broad instructions and short time horizons put many agencies at a disadvantage and may have
hindered early innovation. Because agencies had little experience and minimal precedent in
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open government compliance, “…agencies looked to existing data and information, which did
not contain confidentiality or privacy risks, as the focus of their compliance efforts. This focus
seemed to inhibit, perhaps unintentionally, consideration of innovative ways to use data and
information to enhance public participation” (2013, 174).
Evans and Campos further argue that much of the data being made available to citizens is
lacking necessary context to make the data useful:
If the primary goal of open government is to engage citizens, then current
initiatives must be re-evaluated and new approaches explored—shifting beyond
data delivery. Releasing volumes of data on a Web site without background on
why and how it is collected, how it is organized, and its intended use, leaves
citizens with herculean tasks of determining its relevance and reliability (2013,
172).
While Evans and Campos see some agencies “aim to engage the public through
feedback tools designed to share ideas and obtain a range of recommendations rather than
limiting feedback to a predetermined set of solutions,” these efforts seem “to be in
nascent development,” and “do not convey a context for citizens to
understand pertinent policies” (2013, 177). For Evans and Campos, the ends of
Open Government are increased public engagement in the policymaking process, using
retail, or contextualized, data. Similarly, Nam (2012) sees an opportunity for Open
Government to enable more public engagement through a phenomenon he calls, “citizen-
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sourcing,” though Nam seems less dependent on retail data.44 Nam says that through
“various platforms enabled by Web 2.0 technologies, citizens can collectively create
public information, provide service, and take part in policy processes” (2012, 12).
Nam briefly references another aim of Open Government, speaking to the opportunity to
use it for enhancing agency performance, “Pushed by the Open Government Directive of the
Obama administration,” Nam writes, “citizen-sourcing may be a new mode of government
operations in the U.S” (2012, 12).
Open Government as way to measure performance
The concept of performance measurement has long been seen as a way to ensure
accountability for individual work or organizational efforts. In modern times, President
Clinton’s Government Performance and Results Act of 1993 (GPRA) and President George W.
Bush’s Program Assessment Rating Tool (PART) are usually cited as flagship performance
initiatives for their respective administrations. For the Obama administration, some observers
are less enthusiastic about the progress made by the Obama administration in marrying
performance data with governing45 while others believe there is a “stealth revolution” in
performance management is underway.46 In taking a midterm snapshot, John Kamensky sees the
administration engaged in several efforts, several of which are not as overtly performance-
oriented as previous administrations – but with implications for “the performance community”
nonetheless.47 Kemensky’s believed that Obama’s focus was a departure from Clinton’s
“agency” focus and Bush’s “program” focus (2011, 135). Instead, Kamensky argues that
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President Obama’s performance agenda was characterized by three key elements: having
agencies commit to a handful of high-priority performance goals; using public dashboards to
foster data-driven reviews and discussions; and using problem-solving networks (2011, 137-
137). “If successfully implemented,” Kamensky wrote, “these new ways of creating, collecting,
sharing, interpreting and reporting performance data in near real time could become the
foundation for new results-oriented governance models of the future,” (2011, 145).
Open Government as a path towards “Platform Government”
Adherents to notion that Open Government should enable a new type of government
service and information delivery are part of a group sometimes referred to as Gov 2.0. The Gov
2.0 crowd is composed of a diverse mix of public sector officials and private sector stakeholders
– most notably from the technology industry. The phrase “Government-as-a-Platform” was
coined by a guru of the internet world, named Tim O’Reilly. Writing in several places and
delivering speeches on the concept, Mr. O’Reilly often referred to the concept as a metaphor for
getting the government to think differently about how it delivered services to citizens and
fulfilled its mission. In particular, both Tim O’Reilly is fond of looking at the National Oceanic
and Atmospheric Association (NOAA) as a model “government-as-a-platform” demonstration. 48
Weather.com, the local news and nearly every weather application uses data from NOAA, which
it makes available for the private sector to use and build services through. Likewise, the military
pioneered GPS signals that then were made available for civilian use. In applying the concept to
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health data, observers note “the potential for private enterprise to provision services using open
data from the Community Health Data Initiative could match the billions of dollars made when
the government unlocked GPS and NOAA weather data.”49
Mr. O’Reilly also drew on inspiration that has been picked up by officials at ONC and
embodies the notion that through Open Government, government can act as a platform. For
instance, the HHS Open Government Plan Version 2.0 used the phrase “rough consensus and
running code.”50 This is derived from a presentation given by noted American computer scientist
David Clark in 1992 who asked “As the Internet and its community grow, how do we manage
the process of change and growth?”51 ONC officials have used this same answer to describe the
how the agency is managing the process of change and growth in the health IT market.52
Another point of inspiration for the government-as-a-platform ethos comes from Bill Joy,
founder of Sun Microsystems, who said, “No matter who you are, most of the smartest people
work for someone else.”53 This mantra has been picked up by former HHS Chief Technology
Officer, and current Federal CTO, Todd Park, who sees prize competitions as a means to
collaborate between public and private stakeholders to create innovative health solutions.
[T]he fastest and most efficient way to generate change is to empower, fuel and
catalyze all the smart people who don’t work for you to innovate and transform
the healthcare system. We see our roll at HHS as catalysts, as data suppliers and a
celebrator of what’s happening, but we’re just one of a number of this
increasingly self-propelled highly decentralized eco-system in the nation that is
producing amazing things already that no one organization, no 10 organizations
can even conceptualize let alone execute and bring them to life.54
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Open Government Theory and Practice
When these orientations are overlain with the three aims of the administration’s Open
Government initiatives and combined with the types of data produced by such initiatives (raw
versus retail) and the purpose of producing the data (internal versus external audience) one can
visualize an agency’s various Open Government efforts through the Open Government
Assessment Tool (Figure 1).
Figure 1
This Framework attempts to accomplish two aims. The Framework visualizes how
various activities within government can be linked to the Obama administration’s Open
22
Government Directive (and associated goals of transparency, participation and collaboration).
And it can serve as a way to assess the mix of current activities and programs. For example, if
an agency’s activities are clustered within one box (or one section of a box) managers could use
the visual tool to quickly identify a lack of diversity among activities with potential Open
Government implications and begin thinking about ways to utilize alternative tools or strategies
to: reorient data type, repurpose administrative data or develop new reporting protocols to further
government collaboration, transparency and participation.
Open Government and the Office of the National Coordinator for Health IT
The Office of the National Coordinator plays a prominent part in HHS’s overall Open
Government Plan. From the agency-wide perspective, ONC is leading the charge for HHS in
making government more participatory, transparent and collaborative. Highlighting successes
and outlining a path towards improvements, HHS’s Open Government Plan “Version 2.0,” says,
“The most ambitious project launched by any HHS agency under the new challenge competition
authority in the America COMPETES Reauthorization Act in FY2011 is the HHS Investing in
Innovation (i2) initiative, a new $5 million program to spur innovations in Health IT.”55 The i2
initiative is one of a host of programs at ONC with implications for Open Government. Each
initiative falls into one or more category of promoting transparency, participation or
collaboration; and when juxtaposed against the dominant views over what open government can
achieve, ONC has programs represented in all three vectors of the Open Government Assessment
Tool (Figure 2).
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Figure 2
When discussing Open Government with program administrators and staff at ONC, there
are different views on what project is the flagship Open Government initiative. However, there
is one initiative that strikes a balance of incorporating different views of what Open Government
should achieve and manages, intentionally, to touch on all three aspects of the administration’s
Open Government Directive: the Health IT Dashboard.
Performance
Raw and Retail Performance Data as a Way to Make Government More Transparent,
Collaborative and Participatory
Initiative OutputsHealth IT Dashboard
A hub for both raw and retail data produced through ONC programs and evaluations
o 100,000 data points on performance 13 datasets
o Longitudinal data (XML)
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o Most recent reporting period (CSV)o Grantee datao Private sector datao Multiple “data layers” to provide differing degrees of
contexto Geographic Information System overlay
10 data briefs (PDF) 3 “Quick Stats”
The Dashboard is perhaps ONC’s most unique Open Government initiative. While it is
primarily a public-facing performance tool, it has various layers of contextual data that can be
added or omitted based on user preference; data types range from raw XML and CSV files to
fully developed data briefs and published reports. And while the Dashboard is purposefully
public facing, it plays an important internal function in tracking performance and milestones.
According to the agency, “ONC maintains the Health IT Dashboard as a platform to distribute a
broad range of health system and grant program performance measures tracking the adoption and
meaningful use of various health information technologies (health IT), including electronic
health records (EHR) and others enabling health information exchange (HIE).”56 This tool is a
collection of dashboards that display a host of information and indicators, spanning, spanning
five categories: (1) ONC overview; (2) Health IT adoption and use; (3) Regional Extension
Center Program; (4) Health IT workforce training; and (5) Meaningful Use. These categories
utilize various types of data including administrative data generated through ONC’s portfolio of
grantees, statistics generated by other government agencies and findings from the private sector.
The Dashboard uses a range of visual tools to help add context to the raw data, which is also
provided in one area of dashboard.healthIT.gov.
ONC Overview Dashboard
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The ONC Overview Dashboard includes summary information about ONC’s eight
HITECH grant programs4, including their location, funding amount and contact information.
The predominant way that this information is displayed is through a map of the United States and
Territories, which is known as a geographic information system (GIS) mashup. The spending
data is also displayed as a pie graph, outlining major spending categories, such as State Health
Information Exchange grants, Regional Extension Center grants and Beacon Community grants.
The final piece of the ONC Overview Dashboard is a relational graphic that contextualizes how
each HITECH program contributes to “improved individual and population health outcomes,
increased transparency and efficiency and improved ability to study and improve care delivery,”
as described by former National Coordinator for Health Information Technology Dr. David
Blumenthal.57 Several options are available to users that layer additional spending information
on the map pertaining to one or more of the eight HITECH grant recipients.
Health IT Adoption & Use Dashboard
The Health IT Adoption & Use Dashboard presents state-level estimates for the rate of
EHR adoption among office-based physicians and hospitals. This dashboard is perhaps the most
interesting because it relies primarily on data sourced from other government and non-
government entities. There are six different maps available through this dashboard, including
EHR adoption by office-based providers, EHR adoption by non-federal acute care hospitals,
physicians actively using an EHR to e-prescribe, number of health care providers, number of
4 Programs include Health IT Extension Centers Program (aka Regional Extension Centers Program); State Health Information Exchange Program; Beacon Communities Program; Strategic Health IT Advanced Research Projects (SHARP) Program; Community College Consortia to Educate Health IT Professionals Program; Program of Assistance for University-Based Training; Curriculum Development Centers Program; and the Competency Examination Program
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primary care providers and community pharmacies actively e-prescribing. These different views
rely on data from:
The Centers for Disease Control and Prevention (CDC) National Ambulatory Medical
Care Survey (NAMCS) EHR Supplement;
The American Hospital Association Annual Survey, IT Supplement;
ONC analysis of e-prescribing data procured from Surescripts; and
ONC analysis of a health care market research dataset procured from SK&A.
This dashboard also contains summary graphs depicting national rates of office-based
provider EHR adoption, hospital EHR adoption and community pharmacies actively e-
prescribing rates, from 2008 to 2011. As with the other maps, spending data from ONC grantees
can be overlaid the various health IT adoption and use maps.
Regional Extension Center Program Dashboard
The Health IT Regional Extension Center (REC) Program Dashboard tracks monthly
progress to the programs primary care provider EHR adoption goals. There are 62 RECs across
the country and the program has a performance-based reimbursement structure that compensates
REC grantees for assisting primary care providers through three milestones along the path to
meaningfully using EHRs. The performance milestones that qualify an REC for grant payment
are: (1) a health care provider enrolls to receive assistance from a REC; (2) the provider “goes
live” with an electronic health record (EHR) that has e-prescribing and quality reporting
functionalities enabled; and (3) the provider or REC attests that the provider has met the
Medicare and Medicaid EHR Incentive Program criteria for meaningful use of an EHR. This
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dashboard is the most complex of the five because it includes over sixty custom reports, covering
over thirty measures at the national, grantee, state, and county level. There are nine different
REC grantee maps that focus on national trends of milestone attainment – enrollment, EHR go-
lives and demonstrating Meaningful Use. Each milestone is further broken down to indicate goal
by REC coverage area, percent progress by REC coverage area and milestone attainment by state
or county. In all, there are twelve maps, updated on a nearly-monthly basis. At both the national
and the state/county level of information there are two graphs. One is a line graph indicating
where the country (or the state) is in program-to-date enrolment, go-lives and meaningful users.
The other is a bar graph which has the same three metrics, but breaks them down by primary care
provider type, including adolescent med and pediatrics, family practice, general practice,
geriatrics, gynecology and OBGYN, internal medicine and other. These metrics and breakdowns
are the same for both national views and state/county views.
Health IT Workforce Dashboard
The Health IT Workforce Dashboard includes summary information about the
Community College Consortia to Educate Health IT Professionals Program, including location of
grantees, and progress to health IT workforce development goals. There are more than 80
community college grantees split into five regions that cover the northwest, southwest, Midwest,
south and northeast part of the country. This dashboard contains four different views of
performance, including health IT professionals trained (by grantee and state), and active
enrollments in health IT workforce programs (by grantee and state). There are three graphs that
accompany both types of GIS mashups, including a line graph indicating actual health IT
professionals trained versus quarterly goals; a pie graph indicating a breakdown of rural and
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urban enrollee backgrounds (by zip codes provided from students); and a bar graph indicating
program enrollments and program completions by quarter. Data is available on a national basis
and a regional basis.
Meaningful Use Dashboard
The Meaningful Use Dashboard presents data from the most recent CMS public use
reports regarding EHR Incentive Program payments to eligible hospitals and professionals. The
summary data in the Health IT Dashboard depicts national trends since the program's inception
as well as current snapshots for each state. This dashboard presents eight different layers that
capture (1) number of payments and (2) payment amounts to eligible professionals (EPs) eligible
hospitals (EHs) and a combined measure (eligible providers). The two additional layers provide
views of Mediare payments to eligible providers and Medicaid payments to eligible providers.
National level payment numbers and amounts are available, as are state and county data.
Additionally, individual EHs that have received Incentive Payments are identified at the
state/county level for each state. At the national-level view, cumulative payments to EHs and
EPs are displayed in bar charts. Similarly, at the state level, two pie charts display Medicare
versus Medicaid payments to EHs and EPs.
The Health IT Dashboard, serves as both a hub for both raw and retail data produced
through ONC programs and evaluations. According to officials interviewed from the Office of
Economic Analysis, Evaluation and Modeling, since creation of the Health IT dashboard, we
have prioritized dissemination [of other ONC data] through the project’s own website. Broadly,
the goals of open government and the Dashboard within ONC are to assist with monitoring
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health IT adoption trends; facilitate assessment to progress to national and HITECH goals;
enable stakeholders with data that is insightful and actionable. In speaking with ONC staff, the
dominant orientation towards the Health IT Dashboard’s value is one of performance. Providing
actionable data to program directors, staff, grantees and the general public using an easy to
understand framework has been a priority.
Transparency / Performance
The Health IT Dashboard, serves as both a hub for both raw and retail data produced
through ONC programs and evaluations. According to officials interviewed from the Office of
Economic Analysis, Evaluation and Modeling, since creation of the Health IT dashboard, we
have prioritized dissemination [of other ONC data] through the project’s own website. Broadly,
the goals of open government and the Dashboard within ONC are to assist with monitoring
health IT adoption trends; facilitate assessment to progress to national and HITECH goals;
enable stakeholders with data that is insightful and actionable. In speaking with ONC staff, the
dominant orientation towards the Health IT Dashboard’s value is one of performance. Providing
actionable data to program directors, staff, grantees and the general public using an easy to
understand framework has been a priority. The core measures for the Dashboard were
determined first by measures important to HHS’s Strategic Plan58 and the President’s Budget
request to Congress for FY2012-2014 (http://www.healthit.gov/policy-researchers-
implementers/onc-budget-documents-and-performance-information). Measures were also
created to aid in the evaluation of the American Recovery and Reinvestment Act (which included
HITECH Act) implementation plans. Specifically, analysis of data from the REC program was
prioritized given the opportunity to provide a large number of organizations with summarized
After the first commenting period, which lasted from March 25 to May 9, over 250 comments
were made to address elements of the Strategic Plans sections on Consumer e-Health.
Discussion and Recommendations
When taken holistically and when applying the Open Government Assessment Tool to
ONC’s various programs, it is quite apparent that the tenets of the Obama administration’s Open
Government Directive are met in a number of ways. While some programs or initiatives have
multiple Open Government applications, ONC has spread their efforts to cover all components of
collaborative, transparent and participatory government. The degree to which this is intentional
is not entirely clear, however. ONC does a good job intertwining elements of Open Government
into many programs, and the Office clearly embraces the administration’s principles. But if
ONC were to conduct an internal review of all programs and activities and map those against the
Open Government Assessment Tool, the Office could be more strategic with where to focus their
efforts. ONC could then look for ways to better integrate their efforts to broader efforts HHS-
wide.
Writing for the Institute of Medicine’s Learning Health System Commentary Series,
ONC chief Dr. Farzad Mostashari outlined how the Office’s orientation towards “transparent and
open governance in the public interest” had thus far yielded big returns.88 “There are now more
than 1,800 certified [electronic health record] systems,” he wrote. “Compared to 2010, venture
capital funding more than doubled both in terms of deals and dollars invested, and the health IT
sector is a bright spot in the economy with over 50,000 new IT jobs filled in the past two years.”
Identifying return on investment (ROI) for Open Government projects is a difficult task,
though this does not obfuscate the need. ONC has some quality output measures – and even
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some outcome measures – upon which to judge their progress. But there seems to be a lack of
published data on the returns of efforts, such as i2 Initiative. As ONC looks to direct more funds
and projects towards challenge and prize competitions, it would be instructive to perform a cost-
benefit evaluation or case study to describe the programs impacts.
When answering the general question of “How is ONC complying with the Obama
administration’s Open Government initiatives?” this case study sought to achieve the following:
To understand how various activities and programs align with the administration’s goals
of promoting more transparent, participatory and collaborative government
To identify definitional themes of “Open Government” as illustrated by stakeholders
inside and outside of ONC
To explore how data are being used “downstream” to:
o Inform policy decisions;
o Enhance research; and / or
o Promote innovation
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The conceptual framework that emerged from interviews and research is pictured in
Figure 3. This conceptual framework overlaid elements of a logic model derived from
examining components of ONC’s Open Government work, as though it was a singular policy or
program, with input from interviews asking about how Open Government fit in with ONC’s
overall mission.
Enabling insightful and actionable health IT products, services, research and policies is
the end goal for ONC in their Open Government efforts, which will lead to positive impacts in
EHR adoption rates, quality and safety of care delivery, patient privacy and public health.
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Clearly, ONC has internalized the administration’s call to be more transparent,
collaborative and participatory. It is difficult to say whether ONC is blazing new trails with
Open Government, incorporating its tenets to a degree far surpassing other federal efforts. But it
would be equally difficult to argue that ONC sees Open Government as anything other than a
genuine opportunity to develop better public policy, enable innovation and facilitate the
modernization of America’s healthcare delivery system.
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1 US Department of Justice, Freedom of Information Act, About FOIA accessed 23 March 13 (http://www.foia.gov/about.html)2 Openness Promotes Effectiveness In Our National Government Act of 2007, Public Law 110-175, accessed 23 March 2013 (http://www.gpo.gov/fdsys/pkg/PLAW-110publ175/html/PLAW-110publ175.htm)3 Ibid.4 E-Government Act of 2002, Public Law 107–347, accessed 23 March 2013 (http://www.gpo.gov/fdsys/pkg/PLAW-107publ347/html/PLAW-107publ347.htm)5 Ibid.6 Ibid.7 Ibid.8 Miller, J. “E-governments promise partially fulfilled,” Federal News Radio, Dec 17, 2008, accessed 23 March 2013 (http://www.federalnewsradio.com/145/1552276/E-governments-promise-partially-fulfilled) 9 White House, “Memorandum of January 21, 2009, Transparency and Open Government,” Federal Register Vol. 74, No. 15, January 26, 200910 Ibid.11 Ibid.12 Ibid.13 Orszag, P. R Office of Management and Budget, “Memorandum for the heads of executive departments and agencies Open Government Directive,” December 8, 200914 Orszag, (Pg. 2)15 Orszag, (Pg. 3)16 Orszag, (Pg. 7)17 “Guidelines for Ensuring and Maximizing the Quality, Objectivity, Utility, and Integrity of Information Disseminated by Federal Agencies” (67 FR 8452), Federal Register Vol. 67, Issue 86, May 3, 200218 Orszag, (Pg. 3)19 Orszag, (Pg. 5)20 Orszag, (Pg. 6)21 OpentheGovernment.org “OpenTheGovernment.org Welcomes the Open Government Directive,” December 8, 2009, accessed 23 March 2013 (http://www.openthegovernment.org/node/444) 22 OpentheGovernment.org, “Audit Reveals Wide Variation in Agency Plans to Make Government More Open,” April 29, 2010, accessed 23 March 2013 (http://www.openthegovernment.org/node/445) 23 Meijer, A., Thaens, M. “Alignment 2.0: Strategic use of new internet technologies in government” Government Information Quarterly, 27, 113–121. (2010)24 Wonderlich, J., “Obama's Open Government Directive, Two Years On” Sunlight Foundation Blog, December 7, 2011, accessed 20 March 2013 (http://sunlightfoundation.com/blog/2011/12/07/obamas-open-government-directive-two-years-on/) 25 OpentheGovernment.org, “Audit Reveals Wide Variation in Agency Plans to Make Government More Open,” April 29, 2010, accessed 23 March 2013 (http://www.openthegovernment.org/node/445)26 White House, “Obama Administrations Commitment to Open Government: A Status Report,” September 2011 accessed 20 March 2013 (http://www.whitehouse.gov/blog/2011/09/16/status-report-administration-s-commitment-open-government)27 Ibid. (Pg. 13)28 America COMPETES Reauthorization Act of 2010, Public Law No: 111-358, accessed 20 March 2013 (http://thomas.loc.gov/cgi-bin/toGPObss/http://www.gpo.gov/fdsys/pkg/PLAW-111publ358/pdf/PLAW-111publ358.pdf) 29 “Obama Administrations Commitment to Open Government: A Status Report,” (Pg. 17)30 Ibid. (Pg. 19)31 White House, “The Open Government Partnership and the National Action Plan for the United States of America,” September 2011 accessed 20 March 2013 (http://www.whitehouse.gov/sites/default/files/us_national_action_plan_final_2.pdf) 32 Ibid. (Pg. 1)33 Ibid. (Pg. 3-5)34 Ibid. (Pg. 6-7)35 White House, “Memorandum of January 21, 2009, Transparency and Open Government”36 Ibid. (Pg. 7-9)37 White House, “Building a 21st Century Digital Government,” (77 FR 32391), Federal Register, June 01, 2012 accessed 20 March 2013 (https://federalregister.gov/a/2012-13470) 38 White House, “Digital Government: Building a 21st Century Platform to Better Serve the American People,” May 2012 accessed 20 March 2013 (http://www.whitehouse.gov/sites/default/files/omb/egov/digital-government/digital-government.html)
39 OpentheGovernment.org, “Open Government Plan Audits, About this Project” accessed 05 March 2013 (https://sites.google.com/site/opengovtplans/home/about-this-project) 40 Schuman, D., Testimony before the House Committee on Oversight and Government Reform on March 13, 2013, accessed 20 March 2013 (http://sunlightfoundation.com/blog/2013/03/13/house-oversight-hearing-on-open-government/)41 “Obama's Legacy of Transparency is Unfinished,” Center for Effective Government, March 2013, accessed 22 March 2013 (http://www.foreffectivegov.org/obamas-legacy-of-transparency-is-unfinished)42 Moulton, S., Baker G., “Delivering on Open Government: The Obama Administration’s Unfinished Legacy,” March 2013, accessed 22 March 2013 (http://www.foreffectivegov.org/files/info/obama-first-term-transparency-report.pdf)43 Evans, A., Campos, A., “Open government initiatives: Challenges of citizen participation” Journal of Policy Analysis and Management, Vol. 32, No. 1, 172-203 (2013)44 Nam, T., “Suggesting frameworks of citizen-sourcing via Government 2.0,” Government Information Quarterly Vol. 29, 12–20 (2012)45 Joyce, P., “The Obama Administration and PBB: Building on the Legacy of Federal Performance-Informed Budgeting?” Public Administration Review, Vol. 71, Issue 3, 2011 (356–367)46 Kettl, D., “Obama’s stealth revolution: Quietly reshaping the way government works,” Public Manager, 38(4), 39–42 (2010)47 Kamenski, J., “The Obama Performance Approach - A Midterm Snapshot,” Public Performance & Management Review, Vol. 35, No. 1, 133-148 (2011)48 Slocum, M., “What lies ahead: Gov 2.0,” O’Reilly Radar, December 31, 2011, accessed 3 April 2013 (http://radar.oreilly.com/2010/12/2011-gov.html)49 Howard, A., “Here come the healthcare apps,” O’Reilly Radar, June 11, 2010, accessed 3 April 2013 (http://radar.oreilly.com/2010/06/here-come-healthcare-apps.html)50 Department of Health and Human Services, “Open Government Plan Version 2.0” April 2012 (Pg. 45)51 Clark, D., "A Cloudy Crystal Ball – Visions of the Future.” Presentation given at the 24th Internet Engineering Task Force, July 1992 (pg. 543) accessed 1 April 2013 (http://ietf.org/proceedings/prior29/IETF24.pdf)52 Mostishari, F. “Applying Innovation to the Work of Government: A Case Study of the Office of the National Coordinator for Health IT,” Institute of Medicine, June 2012 accessed 1 April 2013 (http://iom.edu/Global/Perspectives/2012/ApplyingInnovation.aspx)53 Lakhani K., Panetta J., “The Principles of Distributed Innovation. Innovations” The Berkman Center for Internet and Society Research Paper No. 2007-7, October 2007 accessed 22 March 2013 (http://ssrn.com/abstract=1021034)54 Mosquera, M. “Q&A: Todd Park on the bridge between HHS' Health Data Initiative and meaningful use,” Government Health IT, June 27, 2011, accessed 3 April 2013 (http://www.govhealthit.com/news/qa-todd-park-bridge-between-hhs-health-data-initiative-and-meaningful-use-ehrs?page=0,1)55 Department of Health and Human Services, “Open Government Plan Version 2.0” April 2012 (Pg. 32)56 ONC “Datasets & Documentation,” accessed 20 Feb 2013 (http://dashboard.healthit.gov/data/)57 Blumenthal, D. “Launching HITECH,” New England Journal of Medicine, 2010; 362:382-385. Feb. 4, 2010 accessed 20 Feb 2013 (http://www.nejm.org/doi/full/10.1056/NEJMp0912825) 58 Department of Health and Human Services, “HHS Strategic Plan” 2012 accessed 21 March 2013 http://www.hhs.gov/secretary/about/appendixb2.html#1.F.0559 Conn, J. “Tight battles under way for inpatient EHR dominance,” Modern Healthcare, March 27, 2013 accessed 28 April 2013 http://www.modernhealthcare.com/article/20130327/NEWS/303279955/tight-battles-under-way-for-inpatient-ehr-dominance60 Vest, Yoon, Bossak “Changes to the electronic health records market in light of health information technology certification and meaningful use,” J Am Med Inform Assoc 2013; 20:227-232 http://jamia.bmj.com/content/20/2/227.abstract61 Office of the National Coordinator for Health IT, “Health IT Prizes & Challenges,” accessed 12 March 2013 (http://www.healthit.gov/policy-researchers-implementers/health-it-prizes-challenges)62 Office of the National Coordinator for Health IT, “What’s in Your Health Record Video Challenge,” July 2012, accessed 12 March 2013 (http://yourrecord.challenge.gov/)63 Office of the National Coordinator for Health IT, “Blue Button Mash Up Challenge,” September 2012, accessed 12 March 2013 (http://www.health2con.com/devchallenge/blue-button-mash-up-challenge/)64 popHealth Tool Development Challenge,” October 2011, accessed 12 March 2013 (http://challenge.gov/ONC/246-pophealth-tool-development-challenge)65 Million Hearts Risk Check Challenge,” July 2012, accessed 12 March 2013 (http://challenge.gov/ONC/398-the-million-hearts-risk-check-challenge)66 Department of Health and Human Services, “Open Government Plan Version 2.0” April 2012 (Pg. 32)67 Challenge.gov, Office of the National Coordinator for Health IT, accessed 12 March 2013 (http://challenge.gov/ONC) 68 Ibid (Pg. 32)69 Ibid. (Pg. 7)
70 Chopra, A., Levin, P., Park, T., “‘Blue Button’ Provides Access to Downloadable Personal Health Data,” White House Blog, October 2010, accessed 20 February 2013 (http://www.whitehouse.gov/blog/2010/10/07/blue-button-provides-access-downloadable-personal-health-data)71 Ibid.72 Department of Health and Human Services, “Open Government Plan Version 2.0” April 2012 (Pg. 7)73 (Pg. 19)74 US Department of Veterans Affairs, Office of Public and Intergovernmental Affairs, “Blue Button Reaches One Million Registered Patients” August 31, 2012 accessed 20 Feb 2013 (http://www.va.gov/opa/pressrel/pressrelease.cfm?id=2378)75 Blue Button+ Implementation Guide, February 2013 accessed 20 Feb 2013 (http://bluebuttonplus.org/history.html)76 Office of the National Coordinator for Health IT, “Automate Blue Button Project Charter,” accessed 20 Feb 2013 (http://wiki.siframework.org/Automate+Blue+Button+Project+Charter)77 Office of the National Coordinator for Health IT, “Blue Button Mash Up Challenge,” September 201278 Slide from Fridsma79 Blue Button+ Implementation Guide80 Office of the National Coordinator for Health IT, S&I Framework, Automate Blue Button Initiative, accessed 1 April 2013 (http://wiki.siframework.org/Automate+Blue+Button+Initiative)81 Office of the National Coordinator for Health IT, Office of Science & Technology, Interview, March 28, 201382 Office of the National Coordinator for Health IT, S&I Framework, Frequently Asked Questions, accessed 1 April 2013 (http://wiki.siframework.org/Frequently+Asked+Questions+%28FAQs%29)83 Author’s calculations based on information available at http://www.healthit.gov/policy-researchers-implementers/federal-advisory-committees-facas-landing/calendar-list/2013-03?tid=12584 Department of Health and Human Services, “Open Government Plan Version 2.0” April 2012 (Pg. 44)85Office of the National Coordinator for Health IT, Federal Health IT Strategic Plan 2011-2015, accessed 10 April 2013 http://www.healthit.gov/policy-researchers-implementers/health-it-strategic-planning86 Blumenthal, D. “ONC Seeks Comment on the Federal Health IT Strategic Plan 2011-2015” ONC Buzz Blog, March 25, 2011 accessed 10 April 2013 http://www.healthit.gov/buzz-blog/from-the-onc-desk/hit-strat-plan/87 Office of the National Coordinator for Health IT, Planning Room, Accessed 10 May 2013 http://planningroom.org/learn-more/#how-does-effective-commenting-work88 Mostashari, F. “Applying Innovation to the Work of Government: A Case Study of the Office of the National Coordinator for Health IT” Institute of Medicine, June 15, 2012 accessed 10 May 2013 http://iom.edu/Global/Perspectives/2012/ApplyingInnovation.aspx