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The Italian e-Government Plans: Experiences in the Job Marketplace and in

Statistical Information Systems

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The Italian e-Government Plans: Experiences in the Job
Marketplace and in Statistical Information Systems
Mirko Cesarini1, Mariagrazia Fugini1, Piercarlo Maggiolini2, Krysnaia Nanini1 and
Mario Mezzanzanica3
1
Politecnico di Milano, Department of Electronics and Information
2
Department of Management Engineering, Milan, Italy
3
Università degli Studi di Milano-Bicocca, Department of Statistics, Milan, Italy
mirko.cesarini@polimi.it
mariagrazia.fugini@polimi.it
piercarlo.maggiolini@polimi.it
k.nanini@hotmail.it
mario.mezzanzanica@unimib.it
Abstract: In this paper we present two projects framed in the Italian Plan of e-Government and we merge
them into the Employment Information System (EIS) concept. The first project regards the Italian Workfare
Information System, formed by a Portal and its related cooperative information system developed to address
unemployment. The system guidelines, architecture, and achievements are illustrated, in particular, the
organizational and technological choices. Then, the paper outlines the basic issues of a EU-funded project
named SEEMP (Single European Employment Marketplace) that aims at opening the Italian Employment
network of federated nodes to other European Countries, thus enlarging the virtual Job Marketplace created
by the Italian and other Countries Workfares. The second project, called AMeRIcA, develops a Statistical
Information System (SIS) out of data coming from Public Administrations administrative archives. Such
archives are a rich source of information, but an attempt to use them as sources for statistical analysis reveals
errors and incompatibilities, that do not permit to exploit data for a statistical and decision support basis.
These errors and incompatibilities are usually undetected during administrative use, since they do not affect
their day-by-day use in the Public Administrations; however they need to be fixed before performing any
further aggregate analysis. The studies performed to build a SIS in AMeRIcA are presented. In the paper, we
focus on commonalities among the projects, which contribute to a unique vision of an EIS, intended as a set of
tools and data supporting policies to prevent unemployment.

Keywords: e-Government, job marketplace, services to employment, employment information systems, and
statistical information systems

1. Introduction
Public Employment Services are getting more and more important for Public Organizations since
they have enormous social implications, e.g.: sustainability, workforce mobility and equal
opportunities, therefore this topic plays a strategic role for any Government. As an example,
EURES (EURES 2005) is currently the system closest to the vision of a single over-national e-
Employment market, although its envisaged architecture seems not fully respondent to EIF (EIF
2005) recommendations on organizational, semantic, and technical perspectives. In order to fulfil
their duties, Public Administrations (PAs) are changing the way they deliver services: i) by re-
organizing their internal structure, through the automation of most procedures; ii) by accomplishing
new user needs which led to a change both in the modes and in the type of service provisioning.
Therefore, PAs began to massively include ICT in their day-by-day procedures.

In this context, Italy started its National Plan of e-Government, in 2002, with a set of projects
involving all the Regions and Provinces and focusing on administrative changes.

The purpose of this paper is to describe two Italian e-Government projects. The former is the Italian
Employment Information System (EIS), regulated by the law dated October 23rd, 2003, and locally
developed in the Lombardia Region (BLL 2005) (successively extended at a National level), to
promote the job matching procedures. The latter is AMeRIcA, promoted by the Municipality of
Milan, aimed at loading a Statistical Information System (SIS) from administrative data through a
large cleaning, filtering, and quality assurance procedure. The SIS thus becomes a powerful means
to analyze the poverty levels of the population, and can be integrated in the Italian EIS in order to

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6th European Conference on e-Government

provide a Data Warehouse to monitor the actual Job Market trends. In the sequel of this section,
we briefly survey some related works.

The paper is organized as follows. In section 2, the main issues of the Italian EIS are presented:
from its design, through its technological guidelines to the future integration within the Single
European Employment Marketplace (SEEMP) project 1 , recently launched by the EU. Section 3
explains in details how information flows are the key feature of process innovation in electronic job
recruitment. Moreover, the active role of administrative sources to support employment is reported
through some sample of analyses. The conclusive section states the future perspectives of the
integration among the EIS and the SIS.

1.1 Related work

The exploitation of Web applications designed to support the Job Marketplace is fairly recent and it
is spreading almost all over Europe (Liikanen 2003). The trend of the last few years shows that
several local autonomies developed their own Web portals to deliver online services to citizens and
enterprises (CNIPA 2002). In such a framework, Ergasiognomon (Milis et al. 2003) can be
considered one of the most successful attempts to couple job requests and job vacancies within
the Greek job placement. Moreover, besides the presence of different local Web portals, many
solutions are continuously developed to promote EIS effectiveness. In this context, we refer to
EURES (EURopean Employment Service) as the first prototype of a unique electronic job
recruitment portal conceived to match job requests and offers (R/O) in Europe. The common
architectural feature of most electronic job placement applications is their centralization on a unique
platform providing the coupling procedures, R/O insertions, loading and updating personal data into
a single database. Among the European Workfare Systems, the Italian EIS represents the first
Italian attempt of a network of domains distributed and federated over Italy.

In recent years there is a marked tendency towards re-using statistical data, notably administrative
sources (Hoffmann 1995), (Thomson et al. 1998). This, in turn, has sharply increased the demand
for easy access to a variety of pre-existing data sources (Sundgren 1996). An attempt to feed a SIS
using PA’s or large enterprises’ archives is reported in (Buzzigoli 2002) focusing on the
organizational issues necessary to build an efficient Information System inside a PA structure.
However, a discussion concerning data quality, consistency, archive integration, and the
elaboration required to turn administrative data into statistical archives is still an open issue in the
research area.

2. Employment information system

Most of the interventions provided by e-Government regard Services to Employment. Their aim is
to develop a distributed EIS composed of: 1) a system where R/O are entered, stored, and
matched; 2) a SIS monitoring the job market trends and producing statistics to improve the Service
Model; 3) several tools to tune the system and monitor data quality, making the circulation of
information effective and secure, and to achieve system interoperability.

By means of some projects activated by local PAs, (BLL 2005, SINTESI 2005), the Italian
Government put the basis for a national EIS to support the R/O match at the national level through
a network of local nodes. The reference scenario of the EIS is depicted in figure 1.

End-users (citizens, companies, PAs, Centres for Employment, private work agencies, and
educational institutions) load information: personal data, CVs, job offers and educational
programmes (Fugini et al. 2003). Loaded data are used according to a Service Model set up after a
preliminary negotiation and a standardization activity. The Service Model is replicated at the
national node (managed by the Ministry of Welfare), and at the local nodes (Regions and
Provinces). Detailed information regarding job matching events is moved into the SIS portion of the
EIS: for example (figure 1), the SIS developed in the AMeRIcA project, using Data Warehouse
technology, computes synthetic information for statistical purposes. The SIS operates as a monitor

1
EU-STREP Project n.°27347

58
 Mirko Cesarini, Mariagrazia Fugini, Piercarlo Maggiolini et al

about the occupational situation in that, being consultable at various aggregation levels; it can be
used to observe the job market trends to forward the adoption of proactive workfare policies.

Figure 1: Reference scenario

2.1 Service model

The first step in the definition of an EIS is to sharply identify the target users. In the Italian
experience, the system is addressed to the aforementioned end-users. Each user category has its
own requirements bringing about a set of needed services to be accomplished by the system.
Therefore, a Service Model has been designed to fulfil such requirements. The services are
grouped as depicted in Fig 2.

A first group of services (figure 2) regards the R/O match: it comprises Search Services, Data
Management Services (which provide both data collection and management of the stored data
along time, enabling owners to act on them according to the users profiles established by the
technological and organizational guidelines), and Administrative Services. In addition, Presentation
Services and applications related to a correct users’ access to the Information System itself are
inserted in the architecture. The second group of services regards Access and Integration
Services. It allows users to personalize the system Portals according to their needs, and manages
the Web sessions and the security procedures both in browsing both a portal and other domains for
a different service. In the bottom layer of the architecture, all the services involved in applicative
cooperation among the federate domains are installed (Coulouris et al. 1994).

The system Portals are available in a public section of the EIS containing the job profiles currently
requested by the enterprises to those citizens who looks for an employ. They can apply for a
specific position, or insert the CV to be stored in the EIS database. These operations must
necessarily follow the registration and authentication procedures (Fugini et al. 2003). The citizen
enters the credentials (user identification and password), which are required at each access to the
federation. Since one main feature of the EIS is to promote job mobility in the territory, the citizen,
upon insertion of his/, can choose on which level of the federation it should circulate. The
federation is spread over three levels, or domains (figure 3):
ƒ The National domain of the network, managed by the Ministry of Welfare;
ƒ The Regional domain composed of Regional nodes mutually linked through the National
domain;
ƒ The Provincial level: job portals at local sites on the territory are connected to the regional level
and mutually exchange data through access to the Region.

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6th European Conference on e-Government

S e a r c h S e r v ic e s
D a t a M a n a g e m e n t S e r v ic e s
A d m i n is t r a t i v e S e r v ic e s

P r e s e n t a t io n S e r v ic e s

S y s t e m M a n a g e m e n t S e r v ic e s
R e g is tr a t io n L o g g in g
S u b s c r ib in g A ccess
N o t if ic a t io n

A c c e s s a n d I n t e g r a t io n S e r v ic e s

P e r s o n a liz a t io n S e c u r it y a n d N e t w o r k

W o r k f lo w M a n a g e m e n t

D a t a O r g a n iz a t io n C o n te n t m a n a g e m e n t

I n f o r m a t io n S e r v ic e s A p p lic a t io n S e r v ic e s C o lla b o r a t io n S e r v ic e s

A g g r e g a t io n S e a rc h
D a ta
M anagem ent E x p e r ie n c e C o lla b o r a t io n
M in in g F o r m a t t in g

Figure 2: The service model delivered by the Italian EIS

P ro v. 1
P ro v. q
P ro v. 2

R e g io n 1

P ro v. 1 R e g io n 2

R e g io n P ro v. 1
N a tio na l
20 L e ve l
R e g io n 3
P ro v. q
P ro v. q

R e g io n n

Figure 3: Network structure of EIS

Companies can freely consult the Portals to find the desired job profiles. Upon completion of the
registration procedures, job requests can be inserted, updated or deleted. The privacy law protects
the company’s identification data. When a company is interested in a candidate, the system
contacts the candidate proposing the selection. Afterwards, when a citizen has been hired, the
corresponding R/O are deleted. In addition, the Italian law obliges enterprises to communicate
hiring, firing or retirement, or other modifications in the work contract to the Pension Registries.
These operations are automatically executed via Web to the Registries linked to the federation.

Furthermore, the services offered to Work Agencies and Centres for Employment are basically
similar to those for Companies: in fact, as job selectors, they supply the same information and have
the same company services’ requirements.

Schools and universities have different service requirements: in fact, they are involved in
continuous educational programmes, and hence they exchange both information about students
(using statistical indicators) and promote educational events, such as stages, job re-qualification

60
 Mirko Cesarini, Mariagrazia Fugini, Piercarlo Maggiolini et al

courses for long time unemployed and so on. In order to give learning services, they must register
to the federation.

Finally, the Ministry of Welfare extracts information upon the marketplace using the SIS tools to
analyse the situation, to adopt suitable policies for the improvement both offer and quality. Other
National Entities, such as the Pension Office, operate on the system by accessing shared
information about retirements, contributions, taxations, being always updated with the actual
employment status of each citizen. Moreover, the Pension Office plays the role of Certification
Authority in the system, in charge of generating, managing, and distributing authentication
credentials to all the actors in the EIS.

2.2 Reference architecture and service provisioning

The reference architecture of the EIS is based on the Service Oriented paradigm: it relies on Web
Services, XML, UDDI, and WSDL to provide interoperability among the different nodes. This
architecture is replicated at any node and includes Application Services, an ETL (Extraction,
Transformation, and Loading) module and a Database tier (Figure 4). The Application Services are
organized along three tiers (Presentation, Business and Integration) and include: Employment
Services (EIS in figure 4), Administrative Services (i.e., mandatory documentary flow regarding the
occupational status of citizens); Orientative Services (providing suggestions about qualification
paths); Stage Services (providing suggestions about possible educational programmes). The ETL
executes operations regarding the service provisioning (R/O match, administrative and educational
services) as well as the data-mining engine and Analysis and Statistical data production inside the
SIS. Finally, the Database tier wraps the system databases containing operative EIS data (e.g.,
R/O, R/O matches results, offers of stages and courses, or registry information about citizens and
enterprises).

The EIS allows actors to connect to the federation from any domain, and to retrieve information
independently from the data location. The domains are cooperative, in that a user request for a
service, available on a different domain, can be fulfilled through access to the network, via secure
credentials. In fact, the EIS registers users in a domain of competence, where data are collected,
and makes them accessible from any node of the network thanks to cooperativeness and
interoperability.

A p p lic a t io n S e r v ic e s ET L

E xtr a c ti o n
EIS
P r e s e n ta ti o n ti e r T r a n s fo rm a ti o n
s e r v ice s
L o a din g
B u s i n e s s ti e r A d m i n i s tr a tiv e
S e rv ic e s

In te g r a ti o n ti e r
O r i e n ta ti v e A n a l ys i s a n d
D a ta M i n i n g
services S ta ti s ti c a l
E n g ine
P r o d u c ti o n s
S ta g e
services

D a ta b a s e ti e r

Figure 4: Reference architecture of each node of the EIS

2.3 Towards a European workfare system

The issues illustrated so far are now framed into a conceptual extension of the Italian EIS into a
European EIS. The mission of the SEEMP (Single European Employment Marketplace) Project,
started January 1st 2006, is to design and implement, in a prototypal way, an interoperability
architecture for public e-Employment services which encompasses cross-governmental business
and decisional processes, interoperability and reconciliation of local professional profiles and

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6th European Conference on e-Government

taxonomies, semantically enabled Web services for distributed knowledge access and sharing. The
SEEMP project will develop a European Interoperability Framework (EIF) compliant federated
architecture and interoperability middleware as well as applicative plug-in services to allow existing
National/Local job marketplaces and Data Warehouses to interoperate at a pan-European level. On
top of this ICT infrastructure, SEEMP will develop knowledge discovery-mining services for cross-
governmental decision support. SEEMP addresses the problem of cross-governmental decisional,
business and administrative processes as well as the interoperability of taxonomies and ontology
sets. Moreover, a specific Decision Support System will be developed for specific legislative,
policy-making purposes by synthesising existing local indicators into pan-EU ones, supporting a
European Employment Strategy.

SEEMP is designed.as an extension and improvement of the EURES system, based on EIF
guidelines.

The organizational Service Model has to be defined to support information exchange and access
among the nodes of the participating Regions, under the principle that retrieved information has to
remain within the node where it has been generated. Secondly, the model is based on the creation
of a network of access points enabling local operators or end users to directly query/browse the
system. The implementation of such a model is possible through the use of non-invasive
technological tools (e.g., advanced search engines, and semantic Web services).

In order to improve the Quality of Service, the project aims at creating statistical databases
containing aggregated data about European occupational trends. These databases are regarded
as an integration area of data coming from the regional sources. This draws a synthetic view of
R/O trends, as well as of the most requested jobs, skills, or professions, in a way that is easily
readable, and rich in terms of quantity, quality, and localization. Finally, the semantic
interoperability research activities in SEEMP are aligned with existing standards and those under
development Web Services Modelling Ontology (WSMO 2005) and Language (WSML).

3. Process innovation in the job marketplace

As illustrated so far, European Countries’ Job Marketplaces recently underwent strong changes
and are still experiencing mutations. Firstly, some Countries modified their labour laws; the market
evolution, together with the rapid development of new technologies, require people and companies
to raise their level of competition and to update their own skills more frequently. Companies enter
new markets more often than some years ago: therefore, new job profiles are created and other
closed. The evolutions introduced in the working activities (e.g., process reengineering, ICT
innovations and so on) cause a fast aging of people’s competencies. Therefore, Job Marketplaces
have recently become a hot topic. Moreover, the rapid obsolescence of skills increased the
importance of educational paths, including training, stages and job re-qualification activities. These
services, traditionally considered secondary to labour activities, nowadays have been targeted as
primary.

The aforementioned considerations highlight the need of rethinking the Service Model, the enacting
of active policies supporting Employment and the services supporting Job Marketplaces.

The innovation key for a real Service Model evolution is gathering information about the market-
players. In this perspective, information related to individual and collective needs plays a relevant
role, and a deep knowledge of the observed phenomena, as well as an increased degree of
timeliness, quality and efficiency are required. Methodologies for obtaining synthetic and statistical
information capable of effectively describing the real field of interest are necessary.

3.1 Statistical information systems: The America project

The information needs, previously outlined, can be fulfilled by the data collected in large
administrative archives, which often describe the whole population with fine-grained details. These
archives are an excellent source of information to perform meaningful statistical analysis both on
the whole population and on small subsets. Furthermore, it is possible to analyze a reality from
many viewpoints, achieving a deep knowledge about the observed phenomena.

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 Mirko Cesarini, Mariagrazia Fugini, Piercarlo Maggiolini et al

In these scenarios, a key role is assumed by the development of a SIS aimed at providing support
for decision, analysis, monitoring, and control activities on the Job Marketplace. Using experience
gained in the AMeRIcA project, where administrative databases have been used for statistical and
decision-making purposes, we noted that a basic problem in constructing a SIS out of
administrative data is the presence of errors, duplications, inconsistencies, and unsuitability. Such
errors do not affect the regular use of the archives for administrative purposes, therefore they are
hardly noticed, and, even when discovered, they are usually tolerated. Nevertheless, these errors
and low quality data do negatively impact on the required analysis. Hence, before being an input
for any analysis, data sources undergo a quality improvement pre-process, which is performed by
applying a set of data cleaning actions, each one focusing on a specific issue. The output archives
are, then, integrated into a global one used as the primary source to feed the SIS. The original
archives were not designed to address the integration issues (e.g., schema incompatibility,
dictionary problems may arise), these problems are fixed in this step. The topics have been carried
out within the AMeRIcA project (Cesarini 2006). The project (2003 -2006), sponsored by the
Municipality of Milan (Italy) was launched with the purpose of deriving statistics about actual
income of subjects and families in Milan. The administrative archives available from the Registry
Office of the Milan Municipality and from the Income Office are the starting points for the AMeRIcA
SIS. These archives are databases created to collect data regarding the tax system, the citizen’s
address, family and employment status. Some experiences show that the integrated use of tax-
related databases together with Registry databases enable to obtain good information about both
income trends and citizens (Statistics Denmark 2000). In such a streamline, AMeRIcA applies
statistical analysis to data taken from PAs administrative sources, which represent the whole
population, rather than from sample surveys. However, nowadays, the only available data in the
context of national statistics come from National Observatories and are built on a survey basis.

3.2 Administrative sources supporting analysis

3.2.1 Impact of SIS on process innovation

One of the main advantages in using a SIS fed by administrative archives in the Job Marketplace
environment is that it can quickly provide real time and updated information. In fact, the
administrative archives are mostly renewed by PAs during their every-day-activities through
software procedures. In this way, every change on the citizen’s status is recorded immediately.
Consequently, a SIS built from administrative data may provide a synthetic view of the situation
from the past years to the present time. The high timeliness of the information allows
understanding people and companies’ necessities. Deepening this knowledge, it is possible to
revise the existing Job Marketplace Service Model to improve it. In addition, the knowledge
acquired by the SIS gives a detailed view on the market: that is useful to enact an ad hoc Service
Model more adherent to the user requirements. The Job Marketplace analysis focuses on many
aspects: based on the age of the workers, the analysis can be performed separately on the Junior,
Senior and intermediate workers; based on workers’ qualification, the analysis can be divided by
employment/industrial sectors (e.g., ICT specialists, lawyers, Administrations). These and many
other aspects of analysis can be combined, to obtain a specific viewpoint on the desired
characteristic.

3.2.2 Impact of SIS on active policies supporting employment

The information computed by a SIS linked to the EIS is valuable for promoting active policies as
well. As an example we present a case study. The SIS involved collects administrative data from
the Registry Office and the Tax Income Office of the Milan municipality. Its building encompassed
all the basic aspects involved in building a SIS out of administrative data, such as design of an
integration model for different and heterogeneous data sources, improvement of the overall data
quality, removal of errors that might impact on the correctness of statistical analysis, design of a
Data Warehouse for statistical analysis, and design of a multidimensional database to develop
indicators to enforce the decision support.

Using information managed by the SIS, we have analysed a sample of people belonging to the
working age between 20 and 49 who have lost, found, and then definitively lost a job in the time

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6th European Conference on e-Government

range 2000-2003. Based on the information extracted by the SIS, some considerations can be
drawn: the average income for young people (namely people between 20 and 29 years old) is
almost independent from the contract relationship (referring to unlimited vs. atypical-flexible
contracts); on the contrary, in the 40-49 years class, we can observe that people with unlimited
contracts have a quite higher income than ones having atypical-flexible contracts (namely:
Temporary Agency and Fixed-term Contracts). Average speaking an atypical flexible contract in the
40-49 years class is characterized by an average income quite lower in respect to the average
income of the unlimited contracts in the same age class. Moreover, it seems to introduce instability
in the working life of an individual (although in the considered subset of people, which all have lost
their job, the unlimited contracts have an average duration of approximately one year, therefore the
unlimited one does not seem to be more secure compared to the atypical-flexible ones). This
requires further screening and analysis; however, it highlights a suffering condition affecting a
certain class of people, which should be addressed by the decision makers in charge of enacting
active policies. We would like to point out that this suffering condition would have been hardly
discovered in short time using the traditional methods; such SIS applications allows to move from
reactive policy making to proactive and effective job decision making by reducing decision making
timeliness. The time difference required to get a feedback about the enacted job placement policies
with the traditional methods and with the SIS installed in the EIS is compared in figure 5.
Data Extraction from
Administrative
Results
Sources and
Evaluation
Loading into the SIS

Assessment Sample Sample Results

Planning Design Activities Evaluation

Problem Active Policy New Problem Active Policy New Problem Active Policy
Examination Enactment Examination Enactment Examination Enactment

Time
Time required for traditional Assessment Activities

Assessment Time
required with SIS
Figure 5: Time required to assess the results of active policies using a SIS and traditional sampling
methods

4. Concluding remarks
This paper has described two projects framed in the Italian e-Government Plan. The first one
introduces the constitution of an Italian EIS spread on three levels: the national level; the ring
joining together the 20 Italian Regions, while the third level involves the Provinces domains. The
EIS executes primarily the R/O matching procedures on local as well as on a national level, in
order to increase competition and enable workers to update their own skills more frequently than
they used to.

The second project, called AMeRIcA, regards an active component of the EIS, namely the SIS,
designed with the purpose of making the basis for Italian Government to adopt policies to solve the
occupational crisis. The SIS is fed by the end-users’ information entered in the network (CVs, job
requests, educational programmes, stages, re-qualification courses): its task is to receive the
disaggregate input information and transform it into a synthetic information generated to
understand the actual situation in the Job environment. The paper has detailed, in this sense, the
AMeRIcA project, led by the Municipality of Milan. It essentially consists in a SIS deriving statistics
about the employment status on the basis of income data fed by the Income Offices, the Registry
Office of the Municipality, and the Centres for Employment in the District of Milan.

The consequence of these argumentations is the inclusion of the entire Italian EIS into a European
EIS, whose advantages are twofold. On the first side, the job matching events will be conducted on
four levels (Provincial, Regional, National and European), hence promoting the achievement of a
European knowledge based economy, as competences and personal skills become visible in a

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 Mirko Cesarini, Mariagrazia Fugini, Piercarlo Maggiolini et al

global framework. On the other side, the inclusion of the Italian EIS into a wider over national one,
will promote workers mobility within a communitarian job marketplace.

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