RUDI final journal: local-level data sharing from concept to reality

The Rudi project, concluding its UIA funding phase in May 2023, successfully launched its V1 platform, meeting its initial objectives of facilitating data access for various stakeholders in Rennes Métropole. The platform demonstrates significant technical progress, particularly in data producer nodes and user accessibility. However, certain innovative features (such as the ability to use restricted-access data from private companies) remain untested on a larger scale. The project, while facing challenges, has laid a strong foundation, with a roadmap for 2023-2024 focusing on personal data features. Additionally, Rudi has enabled practical applications like the collaborative mapping of local businesses, exemplifying its impact on the community.

Post funding, efforts have focused on replicating its model. Rennes Metropole leads this, exploring expansion and partnership possibilities with various regions and organisations. RUDI's unique architecture (based on decentralisation) and ethical approach have been recognised for their potential in other contexts. Key partnerships and discussions at the European level, including participation in initiatives like the Data Spaces for Smart and Sustainable Cities and Communities (DS4SSCC) and collaborations with entities like Decidim's software integrator OpenSourcePolitics, demonstrate RUDI's influence and the commitment to shaping the future of local data spaces in Europe.

Challenges in leadership dynamics and public procurement are highlighted, with efforts towards integrated cross-departmental work and participative co-implementation. The project's evaluation shows positive outcomes and a growing stakeholder community. The future involves expanding RUDI's scope, considering territorial growth and the modular transfer of its solutions.

The funding phase of the Rudi project by UIA concluded in May 2023. The launch of the V1 of the platform took place during a final event held at the Couvent des Jacobins in February 2023. For this final report, it is essential to recall the project's initial objectives to fully assess the journey and challenges encountered.

The original ambition of Rudi, as defined at the project's inception, is to "enable local administrations, private companies, associations, and researchers in Rennes Métropole to easily access a wide variety of data to produce efficient services that respect privacy and the common interest" This is achieved through the development of a local data exchange platform, the Rennes Urban Data Interface platform, and the fostering of an ecosystem of data producers and users, both from the public sector (administrations) and the private sector (companies and associations).

As the project neared its three-year mark and celebrated the launch of the V1 platform on February 28, 2023, it was crucial to assess whether it had achieved the initial objectives set in response to the 4th UIA project call.

The V1 platform of RUDI effectively meets the core objectives set forth in its initial response. Data producers can seamlessly upload data through the automated producer node, determine the type of data they wish to share, and ensure that reusers take responsibility for the shared data. Reusers, on the other hand, can explore the organised catalogue of data by producer, theme, and data type, facilitating their project implementation by saving time on metadata retrieval. Theoretically, citizens can also request access to their personal data through the platform.

Several key metrics provide insights into the project's progress, according to the independent evaluation conducted by SCET:

• Number of developed features: 47
• Number of accessible datasets via the portal: 390 
• Availability rate of all portal components: 100% 
• Availability rate of catalog datasets: 100% 
• Open-source status: 100%
• Solution portability rate: 75%

The project has largely succeeded in achieving these metrics by April 2023, demonstrating its commitment to openness and accessibility. However, while the V1 platform serves as a testament to the project's capabilities, there are critical features that remain untested on a large scale with real-world use cases (such as the consent module or the ability to reuse restricted-access data from private companies).

Among the developed features, some of the most distinctive ones that set RUDI apart from a typical open data platform have only been tested on a limited number of datasets. Additionally, certain features, although defined, were not developed within the project timeline. This highlights the need to transition from the proof of concept to a fully realised product by rigorously testing these distinctive features across numerous use cases.

Despite these challenges, partners unanimously agree that the project has established a solid foundation for taking the next step. This progress extends to various aspects, including technical architecture, expertise in producer nodes, data security, and the role of the trust third party. In essence, the RUDI platform has successfully demonstrated its concept and paved the way for the transition from data openness to data sharing at the territorial level, even though not all features could be fully developed or tested within the project timeline. Notably, a development roadmap for 2023-2024 has already been defined, complete with a secured budget to finalise developments related to personal data, including consent and anonymisation, as well as self-data.

The COVID-19 crisis had a significant impact on the financial well-being of local businesses. In order to support them, BANCO, one of the laureates of RUDI call for projects, proposed to organise a collaborative mapping of the businesses in the Rennes metropolitan area.  This project involves civil society, public and private stakeholders of the region, fostering better collaboration among these entities and beyond. This offering aims to promote the visibility of commercial activity and provide the metropolitan area with reliable data necessary for the implementation of impactful public policies for these stakeholders.

BANCO is part of a project aimed at enhancing the representation of French commercial establishments in OpenStreetMap (OSM). The goal is to complete the OSM database with as many commercial entities as possible. Participants can contribute by exploring their cities to identify unlisted businesses or by verifying and integrating businesses already listed on the map. The data may be extracted from the official SIRENE database but requires local knowledge or field visits for accuracy and updating. The project encourages community participation, organising dedicated events in small municipalities around Rennes.

As a result, BANCO published on RUDI a detailed dataset of each and every small business in Rennes Metropole. This example illustrates the positive dynamic at play within RUDI, acting both as a facilitator (helping BANCO’s team to communicate on its project) and a tool provider (the platform to publish the dataset).

Drafting the replication strategy

The funding phase by UIA has ended in May 2023, but the project is still going on. The replication of RUDI is the main topic of discussion among the partners, and especially Rennes Metropole. Replicating the RUDI project offers significant benefits for the project consortium. It allows for the expansion and validation of the project's core concepts (decentralisation) and technologies in diverse environments. Replication can lead to broader adoption and refinement of the platform, enhancing its functionality and impact. Furthermore, it provides an opportunity for the consortium to establish a broader network of users in France and Europe, fostering innovation and knowledge exchange. This process can result in the creation of a more robust and versatile platform, applicable to a wider range of scenarios and challenges in data management.

The RUDI platform's key feature that could be beneficial for replication in other projects is its technical architecture. This architecture is built around the concept of a "data producer's node," a decentralised approach well-suited for various contexts, including other municipalities. The significance of this approach is its adaptability and scalability. Moreover, this building block of RUDI is open-source and freely reusable, making it an ideal model for other projects aiming for similar goals in data management and sharing. This open-source aspect allows for wide accessibility and adaptability, crucial for successful replication in diverse settings. Adding to the technical architecture of RUDI, a significant feature worth replicating in other projects is the clear process established for requesting and accessing restricted-access data. An example of this is the detailed procedure to access granular-level waste collection data. This structured approach ensures transparency and security in data handling, making it a valuable model for similar projects that require handling sensitive or restricted data (such as health data). The process's clarity and efficiency could greatly benefit projects that aim to balance data accessibility with privacy and security concerns, for instance in health-related projects.

The recognition of RUDI's ethical approach by an independent label underscores the project's commitment to responsible and ethical data management. This accolade enhances RUDI's credibility and serves as a benchmark for best practices in data use, making it a valuable reference for similar initiatives. The label is a testament to the project's alignment with high ethical standards, which can attract stakeholders and users who prioritise data privacy and ethical usage. 

Rennes Metropole is spearheading the replication of the RUDI project through strategic collaborations and partnerships. One significant development is the interest from the Département du Loiret in testing the RUDI platform within its own region. This step demonstrates the adaptability and appeal of RUDI across different territorial contexts. Additionally, software integrators like Open Source Politics and CGI are exploring the possibility of implementing the RUDI platform in various municipalities and regions. Moreover, national and regional networks, such as Ekitia and Megalis Bretagne, are lending their support to Rennes Metropole in this replication effort. Their involvement signifies the broader recognition and potential of RUDI in enhancing data management and sharing practices on a larger scale. 

Decidim is an open-source platform for participatory democracy, designed to enhance citizen involvement in public decision-making. It was developed by the Barcelona City Council, in collaboration with civic organisations and the free software community. Launched in 2017, Decidim's purpose is to foster transparent and inclusive democratic processes, allowing citizens to propose, debate, and contribute to policy-making.

Decidim is also an integral part of a "soft infrastructure" incorporating legal, political, and social dimensions into digital democracy. This aspect emphasises the platform's role in nurturing a democratic ecosystem beyond just being a technological tool. As an example of innovative project replication supported by a municipality, Decidim stands out. Currently used by 240 organisations in 30 countries, it has gathered almost 1 million participants since its launch. Its open-source nature encourages adaptation and use by other cities and organisations, promoting a model of participatory governance globally.  Rennes Metropole initiated discussion with Decidim’s main software integrator in France (Open Source Politics) to design the replication model for RUDI.

From its inception, the RUDI project has been actively engaging in discussions at the European level, sharing best practices and challenges in various working groups, including Eurocities. Notably, RUDI has captured the attention of the Data Spaces for Smart and Sustainable Cities and Communities (DS4SSCC) initiative, a part of the Living-in EU movement. This initiative, involving six pan-European organisations, is dedicated to developing a comprehensive blueprint for the data space, catering to the needs of European stakeholders and enhancing accessibility. These efforts are in line with the EU's Digital Europe Programme, which aims to drive digital transformation through the development of sectoral data spaces, AI-driven solutions, and European Digital Innovation Hubs.

RUDIs team also took part in a series of discussions at the European levels, including a panel discussion with Eurocities, ESPON and the European network of Living Labs at Bordeaux 'Digital Society, Digital Cities Conference' in October 2023.

The Rudi project, embraced with robust political support, particularly from local authorities and key figures like Yann Huaumé, confronts intricate challenges in its leadership and partnership dynamics. While the political backing remains unwavering, the leadership exercised by Rennes Métropole, especially regarding its partners, has manifested differently than initially anticipated.

Yann Huaumé's involvement has been pivotal, not only as a strong advocate within the city administration and council but also as a facilitator of expansive network exchanges. His engagement with other municipalities through platforms such as France Urbaine and Les Interconnectés has been instrumental in enriching the Rudi project with diverse perspectives and practices gleaned from various urban contexts. This broadened interaction underlines the project's capacity to integrate wider urban insights into its operational framework.

However, the vision for a partnership-based leadership approach in the Rudi project has encountered practical challenges, particularly in sustaining diverse partner engagement. Long-time collaborators like Enedis, deeply rooted in their partnership with Rennes Métropole, have demonstrated consistent and enduring involvement. This longstanding collaboration underscores a mutual understanding and alignment of goals, fostering a stable and productive partnership. In contrast, partners with less territorial connection to Rennes Métropole have shown varying levels of commitment. The challenge here lies in the differing incentives and motivations of these partners. Those with less of a territorial foothold often find it challenging to maintain long-term engagement in the consortium. This variance in engagement levels poses a significant challenge in maintaining a cohesive and effective partnership dynamic.

Furthermore, the project has grappled with the consortium partners' strong expectations regarding the leadership role of Rennes Métropole. The majority of the partners anticipate a more pronounced and guiding role from Rennes Métropole, placing the onus of leadership predominantly on the local public authority. This expectation reflects the perceived capability and responsibility of Rennes Métropole in steering the project towards its strategic objectives.

Navigating these expectations while attempting to maintain a balanced and inclusive partnership model has been a delicate task. The Rudi project, therefore, finds itself at a juncture where it must reconcile the need for strong leadership from Rennes Métropole with the imperative to foster an open and collaborative partnership environment. 

Public procurement in the Rudi project, initially overlooked as an innovation catalyst, surfaced as a considerable challenge, revealing the complexities and potential of this domain. Standard procurement practices, like UGAP negotiated agreements for software development, highlighted the limitations in nurturing innovation. The need to adhere to stringent European tendering procedures due to significant funding underscored the administrative and legal complexities, impacting the project's efficiency. 

The Urban Innovative Actions (UIA) could have played a more proactive role by fostering exchanges among UIA-funded projects grappling with similar procurement challenges. Such collaboration, considering the distinct legal and regulatory frameworks across Europe, could offer valuable insights and collective strategies. Recognising public procurement as a ubiquitous concern in innovative projects, this approach could lead to shared learning and support, highlighting the necessity for inter-project collaboration and knowledge exchange in overcoming these pervasive challenges. This collaborative framework could have significantly aided Rudi, enhancing its procurement strategy and overall project execution.

Managing the Rudi project at Rennes Métropole involves a sophisticated orchestration across various departments and divisions, each marked by distinct expectations and timelines. Unlike cities of similar size where a single department often handles digital initiatives, Rudi's approach is more integrative and multifaceted. It spans across multiple departments, such as data, ecological transition and resources, and the Geographic Information System (GIS) department.

This multi-departmental strategy, while fostering collaborative efforts, introduces significant challenges in terms of internal coordination. Departments that are traditionally focused on specific operational areas like information systems or waste management are now part of a collective endeavour. Managing these varied components demands a nuanced approach, balancing the specialised needs of each department with the overarching objectives of the Rudi project. The project management team has been instrumental in navigating these complexities. In the initial stages, they established functional coordination and steering structures, such as committees, which have been continually refined to adapt to the evolving needs of the project. These committees serve as platforms for cross-departmental communication, ensuring that each department’s perspectives and expertise are incorporated into the decision-making process.

A notable aspect of Rudi's management is the harmonisation of different project timelines and objectives. The challenge lies not only in aligning these diverse elements but also in ensuring that the project progresses cohesively towards its common goals. This involves a constant balancing act, where project managers must negotiate and reconcile the varying priorities and approaches of each department.

The annual meetings of Rudi play a critical role in this context. These gatherings are not just procedural checkpoints but crucial opportunities for integration. They involve extensive cross-departmental collaboration in setting agendas and selecting discussion topics, ensuring that the meetings reflect the collective vision and progress of the project. These events provide a platform for various departments to align their strategies, share updates, and brainstorm solutions to common challenges.

Managing the Rudi project at Rennes Métropole presents a complex challenge: integrating a participatory approach involving its citizens. While the engagement of citizens in designing and constructing the platform raises critical political questions about representation, the recent inclusion of new data producers introduces diverse viewpoints that enrich the co-implementation phase.

The complexity of citizen participation in the Rudi project can be attributed to various factors. These encompass managing diverse expectations, navigating the intricacies of data sharing concepts, and addressing concerns about representativeness within the platform's governance structure. In this context, the project continuously strives to strike a balance between educating citizens about personal data and eliciting practical and valuable input for the platform's development.

A significant hurdle in citizen participation is the complexity of data sharing concepts for most citizens. Rudi's success relies on fostering a shared understanding of personal data, its value, and its potential benefits for the public interest. This necessitates a two-fold approach: initiating a local dialogue on personal data and ensuring that this dialogue provides actionable insights for the platform's design.

To bridge this gap, Rudi has undertaken efforts to raise data literacy levels among citizens. Various initiatives have been launched to promote awareness and develop skills and competencies related to data. One notable example is the dedicated website "La Donnée en histoires" created with Rudi's support by designer Berangère Amiot.

Another initiative, the project eRudi, focuses on developing educational tools and methodologies for data, particularly for teachers in local schools. This includes hands-on workshops on connected devices, where participants are encouraged to develop machines and consider the use of data produced by these devices.

While these data literacy initiatives have made significant strides, they often operate around Rudi's platform rather than directly utilising data published on the platform. This is primarily due to the platform's current limitations regarding personal data (Self Data). Addressing this gap is crucial for bridging the divide between long-term data acculturation and active participation in co-implementation.

Representativity is a key concern in the Rudi project, particularly when it comes to citizen involvement in governance. The question of who represents the citizens in the consortium is central to this discussion. Several approaches coexist, ranging from traditional representative democracy, where elected politicians act on citizens' behalf, to participatory democracy, which aims to include citizens at various stages of public policy design.

The initial round of stakeholders involved in the project did not include many local associations, further complicating the issue of representativity. At the project's launch, the Rudi management team theorised three possible roles for citizens: inhabitants (who live in the territory and can share their data), users-consumers (who use services developed with Rudi), and citizens (who can exercise their rights). This comprehensive framework illustrates the diversity of citizen participation in the project, but it also adds complexity.

As Rudi evolves, critical political decisions regarding citizen involvement in governance become increasingly important. These decisions shape the project's direction and impact its outcomes. The project's management framework outlines distinct roles for citizens as inhabitants, users, and citizens, each with unique rights and contributions.

This complex framework highlights the multifaceted nature of citizen participation in the co-implementation context. As Rennes Métropole navigates the delicate balance between traditional representative democracy and participatory approaches, it seeks to integrate citizens into the design and development of the platform while ensuring that their expectations, data literacy, and representativity are addressed effectively. 

The final evaluation of RUDI conducted in April 2023 was carried out by the specialised consultancy SCET and yielded several key findings. Overall, the results of the project are highly positive. The initial version of the platform, launched in late February, is operational and showcases notable technical innovations, particularly in the realm of data producer nodes. Importantly, it successfully meets the needs of various identified user groups, including data producers, data reusers, and citizens.

One of the unexpected but significant outcomes of the project is the establishment and growth of a community of stakeholders interested in data-related issues. This community has expanded both within the Rennes metropolitan area and beyond, fostering interconnectivity and collaboration within the local data ecosystem. While the proof of concept for Rudi has been established, there remain important challenges. It is imperative to test and expand the platform through numerous use cases, particularly those that demonstrate its differentiating features compared to open data platforms.

Looking ahead, the project's future trajectory remains open. Several possible paths include concluding the experiment, ongoing development, or integration into a broader data policy that extends beyond the Rennes Métropole region.

The project has successfully delivered a functional V1 platform that aligns with the needs of various user groups. However, certain distinctive features of RUDI, such as access to restricted data and personal data, require testing on a larger scale to fully realise their potential.

Building a community of stakeholders around RUDI, though not initially an explicit objective, has proven to be a major asset. While the user and beta-tester community has grown, further expansion is necessary to develop a wide range of use cases and fully capitalise on the platform's potential. Some initial use cases have emerged (see Zoom-In #1 video), resulting in finished products and publications. The project has generated numerous documented lessons, and efforts are underway to document and capitalise on these insights for internal and external knowledge dissemination.

Despite some challenges, the project has been well-managed, with collaborative methodologies appreciated by partners. The use of work packages and collaborative methods enriched the project but occasionally led to slower decision-making. The organisation into work packages was seen as suitable for a European project, despite coordination difficulties.

On February 28, 2023, the Rudi project reached a significant milestone as it hosted in Rennes an event that brought together over 200 participants from diverse backgrounds. This event underscored the broad appeal of Rudi, drawing interest from a variety of stakeholders, including representatives from other French Urban Authorities. The event had a dual purpose: to officially launch the platform and to encourage active engagement from stakeholders.

The participants represented a wide array of organisations. Notably, 85 individuals from public entities, including Rennes Métropole, Région Bretagne, and others, attended. The corporate sector was well-represented, with 73 participants from enterprises such as Keolis, Enedis, and GRDF. The event also saw active involvement from Rudi pilot projects, academic institutions, associations, and local elected officials responsible for digital affairs.

The event was designed to be dynamic and interactive, featuring open debates, informative presentations, live demonstrations, and informative displays. It revolved around four key themes, catering to different segments of the audience : data re-users (an exploration of how Rudi supports service creation and the presentation of the six pilot projects), data producers (discussions on the importance of data sharing and meetings with data producers), citizens (a focus on the role of citizens in responsible data management and a demonstration of how they can benefit from digital services through Rudi) and a wider ecosystem (discussions encompassed topics such as the potential replicability of Rudi, governance considerations, resource allocation for data sharing in territories, and the creation and nurturing of a local community).

The event concluded with the official inauguration of V1 Rudi, featuring the presence of elected officials. This phase provided valuable insights into Rudi's journey, starting from its inception and its alignment with Rennes Metropole priorities and schedules, to the perspectives and challenges it anticipates in the post-UIA era.

Expanding the scope of the Rennes Urban Data Interface (Rudi) project involves different options that have been subject to evolving perspectives and priorities among project partners. These options include territorial expansion, the recruitment of new data producers, and exploring the potential transfer of the Rudi solution to other regions. 

One pivotal aspect of Rudi's expansion strategy involves territorial growth. The project has considered the possibility of extending its geographical footprint, thereby encompassing a broader area and engaging with new regions. Notably, the Department of Ille-et-Vilaine and the regional bank Crédit Mutuel de Bretagne have entered the fold as data producers, infusing Rudi with a wider territorial dimension. These additions exemplify a proactive stance in expanding Rudi's presence beyond its initial boundaries.

However, contrasting perspectives exist among project partners. While some are enthusiastic about territorial expansion and have already commenced efforts in this direction, others maintain a steadfast focus on consolidating Rudi's existing framework within the Rennes territory. For these stakeholders, perfecting and optimising the Rudi project's initial version remains a top priority. This divergence in priorities underscores the dynamic nature of Rudi's growth strategy, where adaptability is key to accommodating varying viewpoints.

Another facet of Rudi's expansion strategy pertains to territorial proximity. The project has initiated dialogue and collaboration with local authorities in the Brittany region, fostering the potential for future collaborations. This engagement with neighbouring territories reflects Rudi's commitment to building bridges and strengthening partnerships with entities in close geographic proximity. While the transfer of the entire Rudi platform to other regions remains a more distant prospect, the groundwork is being laid for closer regional cooperation.

When considering the broader transfer of the whole Rudi solution to entirely new territories, the current consensus suggests a degree of distance. At this stage, partners are cautious about replicating the entire platform in its entirety in other regions. Instead, the focus has shifted towards a more modular approach. Project partners envision the adaptation and deployment of specific software components, such as the producer node, in diverse geographical contexts or sectors of activity. This approach aligns with the concept of flexibility and customisation, allowing different regions to leverage Rudi's technological assets according to their specific needs.

In June 2023, Rennes Metropole's new project, City Orchestra, officially received financial support from the French government through the Banque des Territoires' 'Smart and Sustainable Communities' call for projects. City Orchestra aims to organise and connect open-source and proprietary tools to ensure the continuity, fluidity, and control of the data processing chain, serving four crucial use cases for the ecological transition of territories. These include providing operational solutions for adapting to climate change, improving air quality, enhancing energy efficiency, and responsibly managing land resources.

This new project draws heavily from the experience gained during Rudi UIA-funded period, in several aspects. Firstly, it involves managing a larger consortium, with Rudi having 12 partners and City Orchestra now comprising 18 partners, including the Brittany Region and Brest Metropole (the second-largest city in the Region). Secondly, Rudi's achievements are considered valuable assets that City Orchestra can leverage. Lastly, City Orchestra provides an opportunity to continue collaboration with local stakeholders on use cases that were already present in Rudi, such as energy consumption reduction and air quality improvement.