This paper presents an ongoing research project that examines how global metrics-such as those associated with the Sustainable Development Goals (SDGs) and the Local Online Services Index (LOSI)-can become more responsive to the specific realities of the Global South's digital transformation. Based on a qualitative case study, we analyze interviews with high-level public oficials involved in municipal digital transformation eforts in a typical city in the Global South. Using a coding framework grounded in the 17 SDGs, we identified over forty digital initiatives. Our findings highlight key principles driving these eforts, including simplifying citizen interaction, fostering innovation through local knowledge, and maintaining physical access alongside digital services to prevent exclusion. These practices diverge from conventional models of digital governance and illustrate how Global South cities are actively shaping their own development trajectories. In the next phase of this research, we will analyze these findings in relation to the LOSI framework, exploring how efectively global indicators capture locally embedded digital government practices.
In many regions, local governments are adopting new information and communication technologies (ICTs) in an efort to keep pace with global technological advancements. These eforts are often framed as a means to align with internationally recognized standards and benchmarks, such as the Sustainable Development Goals (SDGs) or the Online Service Index. However, the implementation of such technologies frequently overlooks local socio-technical and historical contexts. As a result, these initiatives risk reinforcing existing inequalities, excluding marginalized populations, and disregarding context-specific innovations that could more efectively address public challenges in developing regions.
Scholars have increasingly highlighted the unintended consequences that can arise when local
contexts are overlooked in digital transformation initiatives. For example, facial recognition systems—often
introduced to enhance public security and urban eficiency—have, in practice, reinforced racial and
social biases in countries like Brazil[
While global metrics can play a role in correcting the misapplication of technologies, cities in the Global South often face public challenges that remain less visible or prioritized in international agendas.
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These issues—characteristic of so-called developing regions—are frequently addressed without formal recognition, which limits the possibility of building shared understandings or coordinated responses. We argue that innovative and contextualized IT practices emerging from these contexts deserve greater attention as potential foundations for a more inclusive framework of problem-solution mappings. The lack of such a shared foundation not only risks erasing alternative realities but also constrains public sector innovation and the advancement of open science toward sustainable development. Updating the scope of global metrics to reflect the realities of countries considered ”underdeveloped” could guide socio-economic transformations more efectively. By aligning with local dynamics, infrastructures, and socio-technical knowledge, these revised indicators could enable more eficient use of public resources and external investments. This, however, requires a deeper understanding of the specific contexts in which Global South cities operate—especially those that are already leveraging technology to pursue sustainable development. At the same time, studying innovative technological applications from the Global South— digital public infrastructures, such as the payment systems in India and Brazil, social currencies, or blockchain for carbon certification—can also inspire and inform policy and practice in the Global North.
Therefore, this study examines the 17 Sustainable Development Goals (SDGs) and their 169 targets to explore how digital government technologies are being used to advance the 2030 Agenda from an empirical, grounded perspective in the Global South. This raises a central question: How can global metrics related to digital government and sustainable development become more attuned to the specific contexts and realities of the Global South? We approach this question through the case of Recife, a city in northeastern Brazil. Recife’s unique combination of socio-economic dynamics, technological capacity, international cooperation, and a politically active municipal environment makes it a particularly relevant setting for examining how digital transformation unfolds in practice.
Our analysis draws on interviews with public servants in Recife, whose reflections on digital
government initiatives were coded using ATLAS.ti and organized in relation to the 17 SDGs. This ongoing
research will be further enriched through a cross-analysis with the indicators from Local Online Service
Index (LOSI) [
The advancement of digital government has been widely discussed as a catalyst in accelerating the
implementation of the 2030 Agenda. However, existing literature and metrics often reflect Global North
perspectives, overlooking specific challenges that Global South contexts face [
The literature on digital government and the Sustainable Development Goals (SDGs) has expanded
significantly in recent years [
While digital government in the Global North is often presented as a universal solution for
enhancing transparency, eficiency, and inclusion, the Global South faces structural challenges that limit
its straightforward applicability, such as digital access gaps, socioeconomic inequality, and unstable
political structures. Studies concerned with sustainable development that draw on decolonial and
post-development perspectives point to alternative pathways for aligning digital policies with local
realities, thereby promoting sustainable development without reinforcing structural inequalities.
Inspired by approaches such as Buen Vivir [
Global sustainable development metrics, such as the SDG indicators, provide an important framework
for guiding and evaluating progress. However, their current formulation often reflects assumptions,
data sources, and reference points predominantly shaped by experiences in the Global North [
Taking local perspectives into account in a way that allows local knowledge, with its own practices and logic, can inspire a process of intercultural exchange [16]. This approach can spark new ways of integrating knowledge, practices, and principles into the digital transformation. Onyango & Ondiek[17], in their study of Kenya, and Cordella et al.[18], who focus on the United Kingdom, highlight the importance of culture when adopting and implementing technologies in public administration as a strategy to achieve the Sustainable Development Goals. Although they do not directly engage with Global South critical literature, which emphasizes the importance of local perspectives and interculturality as key frameworks, the authors demonstrate that cultural factors and digital skills are crucial in either hindering or advancing the adoption of ICTs in government.
For addressing the relationship between digital government and environmental sustainability, Global
South literature also emphasizes the need to consider every dimension that has historically been
subjected to domination by humankind: nature, women [19], and non-white populations [20]. Therefore,
considering that digital transformation necessitates examining the environmental impacts of ICT
infrastructure, such as rare mineral extraction and the energy consumption of digital platforms and their
associated efects [
Integrating the Global South’s critical perspectives on development can suggest several pathways for more efective integration between digital government and sustainable development. Adopting Global Souths´ epistemologies in digital policy formulation could ofer more inclusive and sustainable alternatives by decolonizing digital government practices and acknowledging the diversity of perspectives on development [22] could ensure that technological solutions serve diverse realities.
To conduct empirical research, we sought a city where the local government had successfully led a digital transformation initiative within a Global South context. In this sense, we chose Recife that presents a good environment for examining government’s technological commitment and the empirical use of ICT for development.
The first reason for selecting Recife as a case study relates to the municipal government’s technological transformation process, which emerged in response to the challenges posed by the COVID-19 pandemic. Concerned with enforcing social distancing measures, reducing service queues, and streamlining medical appointment scheduling—particularly for vaccinations. As an example, through Conecta Recife app, 100% of the city’s population received the first dose of the vaccine. The digitalization of public health services catalyzed the city’s broader technological infrastructure transformation. Today, the Conecta Recife app has become a comprehensive digital governance hub, with 80% of public services digitized. The second reason is that Recife reflects the social inequality conditions faced by many municipalities in the Global South. In 2021, it was classified as the second most unequal metropolis in Brazil according to the Gini Index. One of the key indicators of social inequality is the reliance on income transfer programs. As of March 2024, 146,273 families—equivalent to 19% of Recife’s population—received benefits from Bolsa Família, a federal government cash transfer program aimed at households in situations of extreme vulnerability. The average monthly benefit per family is approximately $110 USD . Besides that, the city’s territorial conditions pose significant challenges to its resilience, necessitating innovations in climate change mitigation. Recife is intersected by major rivers, such as the Beberibe, Capibaribe, and Tejipió, and is situated along the coastline, making it highly susceptible to rainfall cycles and tidal movements. Additionally, 67% of the city is in hilly areas, rendering these regions particularly prone to landslides, especially during episodes of torrential rain. These geographical and environmental vulnerabilities underscore the urgent need for adaptive urban policies and technological solutions to enhance the city’s resilience. Recife is also among the few cities in the Global South that have received international investments exceeding 300 million dollars over the past five years to strengthen their climate resilience . Furthermore, the local political context holds national significance. João Campos secured one of the highest percentage of votes in mayoral elections among all more than 5,000 municipalities in Brazil. He was re-elected with 78% of the vote for the 2025–2029 term, demonstrating substantial popularity and indicating that his previous administration was perceived as efective.
This article investigates how global metrics related to digital government and sustainable development
might become more attuned to the specific contexts and realities of the Global South. To address this
question, we focused on the case of Recife, a city in northeastern Brazil that exemplifies many of the
structural challenges commonly found in the Global South—such as social inequality, infrastructural
limitations, and institutional fragmentation—while simultaneously undergoing significant internal and
external digital transformation processes. Rather than aiming to develop a general theory, this study
seeks to generate an in-depth understanding of Recife’s local experience, using it as an empirical lens
to reflect critically on global indicators such as the SDGs and LOSI[
To capture the perspectives of key actors involved in Recife’s digital transformation, we conducted twelve semi-structured interviews with municipal secretaries and executive oficials. The interviews were carried out in November 2024, less than 30 days after the municipal elections that resulted in the reelection of the incumbent mayor. The interview protocol was guided by Patton’s [23] recommendations, combining predefined thematic prompts with flexibility to accommodate the interviewees’ diverse institutional roles and professional backgrounds.
In total, approximately eight hours of interviews were recorded, transcribed, and analyzed using the qualitative analysis software Atlas.TI. The content was deductively coded according to a pre-defined conceptual framework [24], with the Sustainable Development Goals (SDGs) serving as the primary coding axis. This enabled us to map which technological initiatives mentioned by the interviewees aligned with each of the 17 goals. At the same time, we remained attentive to emergent themes in the material. This iterative reading process led to the creation of two additional categories: “Challenges” and “Principles and vision of digital transformation.”
As this is an ongoing research project, the next step involves cross-analyzing the findings from the
SDG-coded interviews with Recife’s performance on the Local Online Services Index (LOSI)[
The overarching principle guiding Recife’s digital transformation eforts was “simplifying the citizen’s interaction with public services”—a guiding idea that emerged in at least five of the twelve interviews conducted. This principle anchored a citizen-centered approach to digitalization, in which approximately 80% of eforts were directed toward improving access to public services, while only 20% focused on internal governmental processes. Central to this strategy was the development of the Conecta Recife platform, designed to consolidate services and ensure that citizens could access them in “three clicks” or fewer—with the aspirational goal of reaching “zero clicks” by proactively delivering services without requiring user initiation.
During the interviews, public oficials expressed a sentiment of innovation, promoting a cultural shift in public employment and emphasizing the value of individual capabilities. A recurring theme in the interviews is the IBO – Índice de Brilho nos Olhos (Sparkle in the Eyes Index). This concept captures the internal shift toward recognizing and fostering individual capabilities as a catalyst for digital transformation. The IBO serves as a recruitment strategy for technology-related roles in the city, prioritizing not only academic and professional backgrounds but also a willingness to learn and drive change. Throughout the interviews, it becomes evident that digital transformation has been driven not only by the commitment of individuals seeking solutions to everyday challenges but also by the overarching principle of simplifying citizens’ interactions with public policies—a framework referred to as SPC: Simplify, Promote, and Care. This approach ensures that the primary beneficiary of any digital transformation policy is the citizen.
In tables 1, 2, 3 and 4, we outline key technological initiatives and practices identified in the interviews, categorized according to the relevant Sustainable Development Goals. For this on going research, we will focus on three SDGs that are intrinsically related to the realities of the Global South: SDG 1 (No Poverty), SDG 3 (Good Health and Well-Being), and SDG 4 (Quality Education) in greater depth. However, all digital government initiatives related to the remaining SDGs are described in Table 4.
Therefore, the first local technology applications analyzed—outlined in Table 1—contribute to sustainable development and the eradication of poverty (SDG 1). These include the integration of databases, such as the Unified Registry for Social Programs with the state energy concessionaire and other government systems, to identify economically vulnerable individuals who have not yet applied for social benefits like the Gas Assistance Program and the Social Tarif for electricity. The municipality proactively contacts eligible individuals to guide them through the application process. Beneficiaries receive notifications on their mobile phones—most commonly via WhatsApp, a widely used messaging platform in Brazil—informing them of their eligibility and assisting them in registering for support.
Technology-mediated poverty eradication initiative involves using artificial intelligence to manage online queues for social assistance services and automate scheduling and appointment reminders. This approach has eliminated physical lines for social assistance and increased the availability of in-person service slots. As a result, it has efectively ended the widespread practice of individuals sleeping in queues (literally, spending the night in lines, arriving early or previous evening) to secure access to public services, particularly in social welfare and healthcare. This process also accelerated the internal digitalization of all social assistance services, increasing the number of appointments and providing more reliable data to support public policies and decision-making.
The second SDG analysed, Good Health and Well-being (Table 2), shows that technological applications in healthcare are numerous as they and have played a pioneering role in Recife’s digitalization process. The development of Tele-Health services and public health campaigns sent directly to mobile phones has fostered greater public engagement. In Recife, artificial intelligence in healthcare can be observed both in direct applications for citizens—such as inquiries made through the government’s digital platform—and in internal medical processes through Integra.AI. This tool was developed within the open innovation cycle called EITA! Recife—it enables the rapid and error-free inclusion of patient information.
Using technological tools that facilitate direct access to medical services is also an innovation in public health. The My Health Team and Pregnancy Care Service platforms enable patients to stay in touch with their medical team, including nurses and doctors, and direct them to the appropriate medical services, thereby reducing queues and overcrowding. However, this initiative also has a particularly practical impact, especially for pregnant women or those in labor: preventing unnecessary long trips, often on public transportation. With the Pregnancy Care Service, if women experience contractions, they can access the service and monitor whether they are experiencing true labor contractions or a false alarm.
Brazil is globally recognized for its Unified Health System (SUS) and vaccination campaigns [ 25]. In Recife, an innovation has been introduced: citizens receive vaccination schedules directly on their mobile phones. Families with babies and young children receive monthly reminders notifying them of upcoming vaccines and the nearest healthcare center for administration. Similarly, public health campaigns are sent to all citizens, regardless of whether they are registered on the Conecta Recife platform. By engaging in sports at public facilities, citizens registered on Conecta Recife earn Capibas, Recife’s social currency. This initiative promotes physical activity, enhances well-being, combats sedentary lifestyles, and helps prevent disease.
Throughout the interviews, technology in education emerged primarily as a means of learning about the use of technology at diferent levels, as shown in Table 3. This ranges from access to higher education in technology-related fields to digital literacy for the elderly.
SDG 4 - Quality Education School Pre-Enrollment: Guardians can digitally select their preferred school.
Digital Boarding: Funding for higher education in technology-related fields.
Robotics Course at COMPAZ: Ofering robotics education in community peace centers.
Entrepreneurial Education: Remote courses and knowledge snippets sent via WhatsApp to enhance the value of service providers.
Online Courses for Academic Support: Curriculum-based online courses for primary school students and online preparatory classes for the ENEM exam.
One of the cases is related to mobile caravans in the city, particularly in areas of socioeconomic vulnerability. This program teaches the basics of how to use smartphones and computers. One of the interviewees was responsible for developing one of the first courses to introduce Conecta Recife to individuals assisted by Pro-Living. The instructor named the course ”How Conecta Can Change Your Life.” During the interview, the public servant explained that she had been prepared to showcase the app’s structure and how to access public services. However, when she arrived, she realized that people didn’t even know what Wi-Fi was or how to connect to it. At that moment, she understood she had approached it all wrong and decided to shift to a digital literacy lesson using everyday language. In the interview, she said:
”I forgot everything I had prepared to say. I realized the approach had to be diferent. The language had to change. So I said: ‘Eita, look at this, how cool! Who here prefers sending voice messages on WhatsApp? Who’s part of the audio crew?’ And they responded, ‘Oh, I love sending audios!’ Then I said, ‘Great! Did you know you can send voice messages on Conecta too? For example, let’s say you need something—tell me one thing.’ Someone mentioned fixing a pothole in their street. So I said, ‘Perfect! Let’s test it now. Click here on the microphone, just like on WhatsApp, say fix the pothole on my street, and look—it appears as the first service option!”.
This is a good example of how the educational process can facilitate access to technology, but also of how a policy that understands the citizen can have a significant impact. Low levels of literacy and digital literacy can pose significant barriers to accessing digital services. However, the use of technologies equipped with audio features can enhance platform accessibility, helping to overcome these obstacles and promote greater inclusion. The digital school pre-enrollment system allows guardians of school-age children to select the school where they wish to enroll their children. Beyond this function, the system also identifies children who have not been enrolled. In collaboration with community health agents, the municipality can then locate the guardians and inform them of schools with available spots and the nearest school to prevent dropouts.
Next, in Table 4 we organized all digitally mediated solutions in Recife, organized by Sustainable Development Goals.
The case of Recife illustrates how cities in the Global South are creatively reshaping digital government trajectories by centering eforts on citizen needs from the outset. The principle of ”simplifying the citizen’s interaction with public services” demonstrates a deliberate choice to prioritize public accessibility over internal bureaucratic modernization. This principle, was central to the design of the Conecta Recife platform. The logic of simplifying citizens’ interactions with public services—based on the premise of
Unification of Databases: Direct policies toward supporting and protecting women. SDG 8 – Decent Work and Economic Growth a) GO Recife: A platform for job opportunities, professional qualifications, and a centralized employment database; b) Cred Pop: Microcredit ranging from R$500 to R$6,000 (US$100 to US$1200), provided as cash or essential work kits for survival jobs; c) Simplified Business Registration: 1) Automatic exemption for 830 medium-risk business classifications (CNAEs); 2) CNAE Simulator to identify necessary licenses; d) Recife Economic Observatory: A database containing economic information at the city, state, and national levels to support research and decision-making; e) Gestor: A business management and entrepreneurial training platform, free of charge; f) GO MEI: A platform dedicated to creating opportunities for small individual entrepreneurs.
a) EITA! Recife: Open Innovation and Transformation Squad – A program to identify challenges in Recife and create connections to implement solutions.
to identify family units.
improve urban and housing policies.
SDG 10 – Reduced Inequalities a) Zero Click: Digital task forces via Whatsapp for debt renegotiation under the federal Desenrola program; b) Creation of Personas on the City Hall Website: Improving access to public services by tailoring information to diferent user profiles;
recognition for easier navigation.
SDG 11 – Sustainable Cities and Communities a) Disaster Alert Communication: Sending notifications about socio-environmental disasters and support services; b) Unified and Open Urban Data Bank: Centralizing information on urban conditions, including ESIG and municipal rain gauges; c) Zero Click: On their 60th birthday, senior citizens automatically receive authorization for free parking on their mobile devices;
residents to exchange collected waste for digital social currency.
SDG 16 – Peace, Justice and Strong Institutions a) Service Access Policy in Three Clicks: Ensuring that public services can be accessed within three clicks for greater eficiency and usability;
socioeconomically vulnerable areas, supported by urban data analysis; c) Ouvidoria 4.0: A next-generation citizen feedback system for evaluating public services, particularly in healthcare and social assistance.
a) EITA Recife: A program that identifies challenges in Recife and fosters connections to implement innovative solutions; b) City Operations Center: Utilizing urban data to enhance city management and response strategies; c) Unification of Databases: Integrating various data sources to improve decision-making and streamline public services.
Adota Pet: A matchmaking platform that connects stray animals (such as cats and dogs) with families interested in adoption. digitizing 80% of citizen-facing services and only 20% of internal operations—aligns with the digital government evolution model described by Janowski [15]. Recife has reached the Contextualization stage, without necessarily progressing through the earlier phases— ”hacking” the conventional trajectory of digital transformation. Rather than first digitizing internal operations and achieving a foundational level of service digitization, Recife’s government prioritized creating better conditions for citizens. Internal systems were transformed only to the extent necessary to enable digital services for the public or to implement changes that would significantly improve internal processes with direct benefits for the population, such as the digitization of CRAS (Social Assistance Reference Centers), as described under SDG 1.
Innovation in Recife is not only technological but also epistemological. The concept of the ”Índice de
Brilho nos Olhos” (IBO) and the example of the Adota Pet platform show how local knowledge, lived
experience, and informal expertise are actively shaping public policy and digital transformation. These
alternative forms of recruiting individuals—deeply connected to the city’s lived reality and driven by
a sense of purpose that goes beyond formal qualifications or technical training—may be considered
innovative insofar as they introduce diferent forms of knowledge into the design and implementation of
public policies [
The outcomes of this alternative mode of knowledge exchange for policy creation are evident in the development of digital government policies that do not directly align with any single Sustainable Development Goal (SDG) yet contribute meaningfully to public innovation. In Table 4, there is an initiative that does not align directly with a specific SDG but instead addresses a common challenge faced by cities in the Global South: stray animals living on the streets. Stray animals pose public health risks as potential disease vectors. The veterinarian identified this problem and, in response, developed the Adota Pet platform. The initiative involved registering all dogs housed in municipal surveillance centers, providing them with grooming and medical care to enhance their adoption prospects, and uploading their profiles with high-quality photos. Within days, all the dogs listed on the platform had been adopted. The initiative not only improved public health outcomes but also strengthened the humane treatment of animals. This case exemplifies the typical challenge faced by Global South cities, which remain largely absent from global policy frameworks, as discussed. However, it was identified and efectively addressed through localized digital government strategies that utilized technology.
While digital tools have improved service access and reduced the burden on citizens, Recife’s
government acknowledges the risk of reinforcing exclusion in a highly unequal society. Previously, citizens
lined up at dawn—or the night before—outside CRAS units to secure public assistance. Digital queuing
and automated scheduling have ended this practice and increased in-person appointment availability.
However, fully digitizing services without alternatives could create a new cycle of exclusion. The
digitalization of internal processes has enabled the expansion of service availability. Meanwhile, the
introduction of digital queuing has significantly improved the experience of waiting for services. With
the new system, waiting times have decreased, and physical queuing is no longer necessary. However,
fully digitizing all processes risks excluding many individuals from essential services, thereby creating
a new cycle of social exclusion [
The previously mentioned digital literacy event in local communities—where a public oficial had
to adjust her discourse to align with the audience’s needs—serves as a metaphor for Recife’s broader
approach to digital governance. The city follows a structured yet iterative process: first, a prototype
is developed, tested, and refined based on public feedback. This continuous cycle of evaluation and
adjustment improves technological structures, making them more eficient and responsive to the
overarching goal of simplifying citizens’ interactions with public services. This goes beyond
usercentered design—it embodies a pedagogy of digital transformation that is participatory, respectful
of woman and marginalized people [19, 20], and responsive to feedback. These practices align with
post-development and decolonial principles such as Buen Vivir[
This research identified over 40 local digital initiatives that contribute to the 2030 Agenda, many of which are directly aligned with SDGs such as poverty eradication, healthcare, and education. For example, under SDG 1, Recife used integrated databases and AI to identify eligible beneficiaries for federal subsidies and to eliminate the need for physical queues in social assistance. Under SDG 3, digital innovations such as telehealth and prenatal tracking systems addressed public health access, particularly for vulnerable groups. Under SDG 4, education programs included online courses, digital enrollment systems, and mobile caravans promoting digital literacy.
However, several initiatives—like Adota Pet—do not fit within existing SDG frameworks, despite their
public relevance. This reveals a limitation in current global metrics. The next phase of this research will
involve comparing these local innovations with Recife’s performance in the Local Online Service Index
(LOSI)[
In this article, we identified more than forty digital government initiatives developed in Recife and mapped them against the Sustainable Development Goals (SDGs). These initiatives ranged from proactive social assistance and digital health innovations to digital literacy programs and platforms for economic inclusion. Through qualitative analysis of interviews with public oficials, we uncovered a digital transformation strategy shaped by local principles—such as simplifying citizen interactions, valuing experiential knowledge, and balancing digital and physical service delivery. These findings illustrate how Recife’s digital government practices both reflect and respond to the structural challenges of the Global South, while proposing innovative, citizen-centered alternatives to mainstream models.
The case of Recife reveals how cities in the Global South are not merely adapting to global digital
transformation trends, but actively shaping their own trajectories—rooted in local needs, social realities,
and institutional creativity. Rather than following a linear model of digitization, Recife has embraced
a citizen-centered and context-driven approach, combining technological innovation with inclusive
design, local knowledge, and iterative learning. These practices challenge the assumptions embedded in
global evaluation frameworks, such as the SDGs and the Local Online Services Index (LOSI)[
This study argues that global digital governance metrics must evolve to better reflect the complexity and plurality of these alternative development paths. It is not only a matter of what is being measured, but also how and for whom digital solutions are built. Recognizing the value of localized innovation, cultural adaptability, and community-rooted practices can help build more accurate, equitable, and globally relevant assessment frameworks.
This research was supported by the National Council for Scientific and Technological Development (CNPq).
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