A Co-Creation Framework for Developing Digital Technology-Assisted Policy Adoption Roadmaps: Evidence from European Public Sector Case Studies

Abstract

Public administrations increasingly seek to adopt digital tools for evidence-based policymaking, yet systematic frameworks guiding this adoption remain scarce. This paper aims to develop and apply a co-creation framework for technology adoption roadmaps in public sector policymaking. The objectives are threefold: (1) to systematically identify impacts, facilitators, and barriers through structured stakeholder engagement; (2) to structure these elements into Impact Pathways and Transition Scenarios; and (3) to derive actionable policy recommendations. Using a participatory action research design, a seven-step co-creation methodology was applied across all four cases addressing crisis management challenges: forest fires in Finland, floods and refugee reception in Italy, power outages in Greece, and wildfires in Spain. Through structured stakeholder engagement combining surveys, workshops, and online consultations, the study identified seven categories of policy support results; twelve impacts spanning technology adoption, policy process enhancement, public administration capacity, and citizen empowerment; nine facilitators across financial, organisational, legal, and technical dimensions; and eight frustrators assessed through a risk matrix. These elements were structured into Impact Pathways, visualising causal relationships among policy support tools, enabling factors, and transformation outcomes. Four Transition Scenarios were derived, aligned with the policy lifecycle stages of inception, negotiation, set-up, and operation, accompanied by fifteen actionable policy recommendations classified by thematic area, timeframe, and stakeholder responsibility. The findings reveal that evidence-based policies represent a central transformation target across all result categories, while effective stakeholder engagement and leadership commitment emerge as cross-cutting enablers. The integrated framework contributes to digital governance research by operationalising co-creation for strategic roadmap development and offers practitioners a decision-support tool for planning digital technology-assisted policymaking transformations.