Designing Serious Games for Citizen Engagement in ...

Designing Serious Games for Citizen Engagement in Public Service Processes Nicolas Pflanzl1 , Tadeu Classe2 , Renata Araujo2 , and Gottfried Vossen1,3 1

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DBIS Group, Westf¨ alische Wilhelms-Universit¨ at M¨ unster, Germany SIGAC-CIBERDEM, Federal University of the State or Rio de Janeiro, Brazil 3 University of Waikato Management School, Hamilton, New Zealand

Abstract. One of the challenges envisioned for eGovernment is how to actively involve citizens in the improvement of public services, allowing governments to offer better services. However, citizen involvement in public service design through ICT is not an easy goal. Services have been deployed internally in public organizations, making it difficult to be leveraged by citizens, specifically those without an IT background. This research moves towards decreasing the gap between public services process opacity and complexity and citizens’ lack of interest or competencies to understand them. The paper discusses game design as an approach to motivate, engage and change citizens’ behavior with respect to public services improvement. The design of a sample serious game is proposed; benefits and challenges are discussed using a public service delivery scenario from Brazil. Key words: eGovernment, Public Services Process Design, Serious Games, Game Design

1 Introduction One of the objectives of governments lies in delivering public services to their citizens to support certain administrative tasks. To perform these services, public bodies typically execute and employ cross-organizational business processes, transactions and resources operating on Information and Communication Technology (ICT) platforms. After earlier efforts to improve access, transparency, standardization, and optimization of public services, future challenges for eGovernment initiatives have been identified as citizen involvement and participation [1, 2, 3]. In many contexts, citizen involvement in public service design through ICT is difficult to achieve, and is thus often kept to a minimum. One reason for this is that information technology (IT) is deployed internally in public organizations, and is thus not intended for interaction with citizens, as IT tools for business process management (BPM) are too difficult to be leveraged by citizens without an IT background. Citizen participation is usually addressed optimistically, with the assumption that the availability of an interaction channel during service provision will promote participation [4]. In turn, citizens perceive public services as a boring necessity, usually want to be done with them as fast as possible, and do not develop interest in taking part in public services improvement.

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Nicolas Pflanzl et al.

Although citizens seem to have no interest in participatory involvement, preferring to assume the role of passive customers, actively involving them in the design and improvement of public services would allow governments to offer better services to its citizens. The success of such initiatives depends on the ability of the government body to motivate citizen participation. While the idea of influencing provided services should be intrinsically motivating in theory, this may not necessarily be the case in practice. Literature suggests to move towards innovative solutions for involving citizens, by creating tools that decrease the gap between public services process opacity and complexity and citizens’ lack of interest and competencies to understand them [5]. We explore the use of gamebased ideas and concepts in public-service BPM, based on current research that examines the potential of games to motivate, engage, and enable learning [6, 7]. Games are rule-based systems that engage players in artificial conflicts with uncertain, quantifiable outcomes [8]. They take various forms, including board games, e.g., chess or go, and modern computer and video games. While games serve the primary purpose of entertainment, it has long been recognized that they also have the potential to support, for example, socialization, education, and military training [9]. It can be seen a broad adoption of digital games as objects of research whose impacts can be positive, and whose purpose may exceed that of mere enjoyment [6]. One of the research streams in this regard deals with serious games [10], i.e., actual games that are created for more serious purposes than just entertainment. This paper describes preliminary ideas on how to design and explore the use of serious games as an artifact able to motivate, engage and, to some extent, change citizens’ behavior with respect to public services delivery, while enabling them to learn and understand how public administration works. Section 2 presents the potential benefits and challenges of providing citizen participation in public service design and delivery, by illustrating a real scenario based on Brazilian public service process. Section 3 discusses the basic ideas that underline the proposal of having game-based participative public processes, and discusses related work. Section 4 proposes the concept of a serious game designed to increase citizen involvement in public services process learning and understanding. Section 5 concludes the paper and outlines future work.

2 Participative Public Service Design & Delivery Public organizations have long focused on BPM initiatives to improve public services delivery performance and citizen satisfaction by improving the efficiency of their internal process management. Social and participative approaches to BPM – so-called Social BPM [11] – have been suggested as an organizational strategy to balance the rigidity of defined processes with the flexibility of social interaction, and as a strategy to provide innovative ways of integrating clients into process definition and execution using social software and its underlying principles. The emergence of Social BPM is envisioned as a promising approach to allow citizen participation in public services process management [5]. Pflanzl and Vossen performed an extensive literature review and outlined the challenges of

Serious Games for Citizen Engagement

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Social BPM initiatives [12]: i) effectively involving external stakeholders; ii) motivating participation; iii) training novice process modelers; iv) providing effective tools and languages for novice users; v) ensuring model quality; vi) handling information overload; and vii) coping with differences in meanings and semantics between participants. If we consider the use of Social BPM in citizen participation in public services modelling, design, delivery and evaluation, these issues can be even more challenging due to the variety of citizens’ profiles, differences in cultural contexts, and the complexity of different service domains [13]. Concerning electronic participation, citizen participation improves at a progressive scale where, at each level, citizens are increasingly empowered in their possibilities for participation, discussion and decision-making in government processes and issues [14]. Through this scale, different relationships between government and citizens can be configured, in which, at the lower levels, government and citizens have very distinct responsibilities and roles, yet at higher levels roles and responsibilities are mixed and interchanged. It has been argued that in order to participate in public services process management, citizens must first understand how the service is provided, i.e., what its underlying process is [15, 16]. By receiving insights into the provision of a service and its implications, citizens may find motivation to participate. Ultimately, citizens should be able to change the process, simulate distinct alternatives for its execution, or even change and adapt the process to suit their own specific needs. As a sample scenario, we consider the public service delivery of the Brazilian Ministry of Social Security (MPS). Social security services address all citizens in Brazil and include health assurance, unemployment support, and retirement. Retirement, for example, is a right for every Brazilian citizen depending on their monetary contribution to the public social security body during their working life. Taking into account a population of est. 200 million inhabitants, a high urbanization, and shortcomings regarding services accessibility in many areas of the country, providing social security services is a costly challenge. The Brazilian government and its institutions have performed significant legal and operational efforts to improve public service delivery [17, 18]. As a consequence, most public institutions nowadays provide basic information about their services online. However, the last survey performed by the Brazilian Internet Steering Committee (CGI.BR) about the use of ICT in the Brazilian Public Sector [19] showed that 66% of the local governments provide public services through websites. The type of service offered through these websites are document or forms downloads (69%); submitting forms (43%), registering for public exams or courses (38%), generating invoices (37%), checking ongoing proceedings (29%), obtaining tax payment slips (26%), obtaining official documents (22%), and scheduling appointments, assistance etc. (13%). The type of resources offered to citizens in those websites are content search engines (66%), videos (35%), requesting services (32%), real-time broadcasts (16%), and audio or web radio (11%). Information about social security services and in particular retirement claims are available on the MPS website (see Figure 1). However, owing most likely to process complexity, information available on the website is kept to a minimum,

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Fig. 1: Services portal of the Brazilian MPS services (top) & agencies (bottom). consisting of a brief service description and facilities to schedule an appointment. Brazilian citizens have limited interface channels with the social security body and to obtain information about a service (Figure 1) . It is very common that after organizing all the documents expected to be required for a retirement claim, scheduling an appointment, and waiting to be attended, they cannot register their claim due to missing documents or lack of understanding about retirement rules. So it is reasonable to ask whether this would change if more interaction channels were provided. In addition to the service complexity and limited channels, Brazilian citizens needing access to social security are often poor, elderly, or even illiterate, and thus do not understand terms and legislation. This entails further challenges for public bodies with regard to operating effectively through social media or online channels. In practice, it is common to find private professionals specialized in helping citizens to cope with the burden of public services delivery, which may help, but at the same time facilitates corruption.

3 Game-based, Participative Public Service Design & Delivery One of the most prevalent areas in which games or ideas inspired by games have been applied is education and learning [6, 7]. Possible approaches include the repurposed use of commercial games for education, the creation of new games specifically designed for learning, or the incorporation of game elements into non-


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game learning applications [20, 7]. In this context, games can support knowledge acquisition, content understanding, and the development of perceptual, cognitive, and motor skills [6]. Gee argues that videogames, when designed in a way that enables critical thinking and active learning, hold the potential to introduce individuals to new domains, to let them join social groups related to the former, and to enable future problem solving and learning in these domains [21]. Based on these observations, we propose extending present research towards the conceptualization, development, and evaluation of games as a tool for supporting citizens in understanding public service processes, so as to motivate and to empower them to take part in their improvement. This is based on the assumption that playing a game with content that is built on public services allows players to actively learn about these processes, to increase their interest in understanding them, and to reflect them critically. In this way, players obtain literacy in the domain of public services, thus enabling them to correlate the contents of the game with their own, personal experiences, and to share and discuss suggestions for process improvements with related social groups. If this is done in a way as outlined in Section 2, this shall be understood as game-based, participative public service design and delivery. The main challenge here is how to model and design games for this purpose, considering, for instance, how to define game learning objectives, how to define critical aspects of the service to be explained, how to clarify the purpose of playing the game, how to model game dynamics, and how to introduce specific domain and cultural elements so as to allow users to quickly recognize themselves within the game. Previous research has discussed games as a useful tool for BPM learning. Ribeiro et al. described a game called ImPROVE aiming at improving BPM learning, using the real scenario of a Portuguese hospital triage system [22]. Bulander proposed a conceptual framework to INNOV8 game (IBM’s game to learn BPM), in order to measure the level of BPM learning [23]. Santorum proposed a method based on serious games aiming at identifying, simulating and improving organizational process, where the worker can play the game, learning with it, and suggest process improvements [24]. Using BPM to game modeling is the aim of the research presented by Soliz-Martinz et al., where VGPM (a modeling notation based on BPMN) was proposed for modeling game logic [25]. There is also research addressing the use of games for the involvement of citizens on civil proceedings. Poplin evaluated the potential of serious games to support citizen participation in urban planning [26]. A game was designed through which citizens could contribute ideas for improving the urban planning of Billstedt (Hamburg, Germany). They could build their own business in a specific location and discuss issues that could arise with other citizens, helping government decisions. Ahmed et al. discussed how serious games can support citizen participation in public services and depicted a model for designing games for that purpose, including five elements — Environment, Objectives, Goals, Rules and Players [27]. Lounis et al. evaluated the impact of two distinct game elements (incentives and community collaboration) in user participation in a gamified public service [28]. The game objective was to improve “green”

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behavior by motivating users to buy items with lower environmental impacts. Initial results showed that gamification improved collaboration, the users’ sense of duty, and willingness to keep participating. Lastly, Horita et al. described the development and deployment of a gamified social architecture to improve the management of activities and information dissemination among young volunteers during natural disasters [29]. Results indicated that participants showed more attention to the process activities and improvements in communication. Despite of the references above, research on citizen involvement in public processes through BPM using games were not found.

4 Serious Game Concept We now describe the concept of a serious game intended to enable citizens to learn about public service processes, thus preparing them for participative service design. The concept is based on the highly successful, independent game “Papers, Please” that was developed as a commercial product, yet accomplishes a similar goal for the immigration process as outlined in Section 4.1. Afterwards, the design of the game to be developed itself is described in Section 4.2 through three lenses: mechanics, dynamics, and aesthetics (MDA) [30]. Mechanics are the components of a game that allow the player to act within the confines of its rules, dynamics represent the run-time behavior of the game, and lastly, aesthetics are the emotional responses the player exhibits while playing the game. The designer of a game can only influence its mechanics, whereas dynamics and aesthetics emerge from the former. A discussion about the expected outcomes from applying this game is provided in Section 4.3. 4.1 Inspiration The concept described next is based on the highly popular and successful game “Papers, Please” released in 2013. In this game, the player is put into the role of a newly appointed immigration agent of a fictional, totalitarian country. The main task of the game lies in deciding whether to allow or deny individuals’ entry depending on the legitimacy and completeness of their papers. A sample screenshot taken from the game can be seen in Figure 2. For correct decisions, the player earns money which he can use to feed and provide for his family. Too many incorrect decisions, in turn, lead to an eventual decrease in pay. The game is divided into multiple days (i.e., levels), and a time limit is imposed upon the player to make him decide under pressure. “Papers, Please” starts out rather simple, with the only initial rule being that citizens of the fictional country may be admitted with a valid passport. However, the complexity increases quickly, as immigration opens for citizens of other countries, new types of documents to be checked are introduced (e.g., entry permits, work passes, or diplomatic authorizations), and fingerprints need to be checked. The game becomes even more challenging when additional motivations for allowing


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Fig. 2: Screenshot from the game “Papers, Please”. or denying a request are introduced. For instance, on one day, a woman tries to enter the country without valid documents to visit her son, asking the player to act humanely [31]. By playing “Papers, Please”, players learn about the immigration process and how it allows governments to exert control over people wishing to enter a country, as well as the roles of the involved parties and the required business objects [32]. As new rules are introduced over time, they receive incremental training in executing the work processes, and an in-game rulebook serves as a reference for all decision rules that need to be applied. While “Papers, Please” was developed as a commercial product, it has also been described as a representative of a new wave of serious games that increasingly blur the lines between entertainment and education [32]. 4.2 Game Design The core idea presented in this paper is the creation of a serious game based on the gameplay of “Papers, Please” that allows citizens to learn about public service processes in an enjoyable manner while abstracting from their complexity. For that purpose, players shall be put into the role of a public official responsible for the execution of processes such as the application for a passport or the renewal of a driver’s license instead of acting as citizens. Mechanics. The game is subdivided into workdays, each of which corresponds to a level. On each day, the player has a predetermined amount of time in order to process the requests of citizens. For each request, he must make a binary decision about whether to accept or to deny the request. Which of these two possibilities is correct depends on personal properties of the applicant, the documents that he provides, and certain rules that are currently active. Rules are prescribed in a handbook which the player may consult at any given time. For any request that the player has accepted or denied, he either earns a fixed amount of money if this was correct, or incurs a monetary penalty otherwise.

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The interface of the game is subdivided into two separate areas: a customer area in which a sequence of non-player citizens visualized by cartoon figures appears before the player, and a desk area, in which the player can examine documents provided by the customer. A first draft of the interface is shown in Figure 3.

Fig. 3: Draft of the game interface with customer area and desk area. Dynamics. Put into motion, the run-time behavior of the mechanics is expected to be as follows. At the beginning of each workday, the player may be introduced to any new rules, starting with an initial set of rules on day 1. Before the time limit of the workday is activated, the player may spend unlimited time studying old and new rules in the handbook placed on his desk. Once this preparation phase finishes, a timer presented as a wall clock which clearly denotes start and end of the workday starts running, and customers appear in front of the player in a sequence. The player must read the request of the customer and correlate it with the documents the latter presents in the desk area. At this stage, the player must form an opinion about whether to accept or deny the request. Possible reasons for denial include incomplete/faulty documents or that personal requirements not satisfied by the applicant. If the player cannot reach a decision yet, he may request additional documents, which the customer may or may not be able to provide. As the goal for the player is to maximize his earnings by processing as many customers as possible, he is forced to minimize processing times for each instance, thus acting under time pressure. The game shall start out rather simple, but becomes continuously more complex. During the first few workdays, the player will have to process rather simple requests, such as getting a pothole fixed. After occasional promotions, he will have to look at more complex service requests, e.g., applications for retirement funds. This also coincides with more complex acceptance rules that the player must adhere


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to. As the services become more complex, the impact that an acceptance or denial has for the customers also increases. Thus, as part of the narrative, they will increasingly try to appeal to the player to grant them their requests even if they do not fulfil all necessary requirements. Similarly to “Papers, Please”, this introduces a motivation for the player to “do the right thing” even if this contradicts the rulebook and thus leads to a penalty. Aesthetics. The emotional responses that a game invokes ultimately determine whether or not it is fun. To that extent, different games implement different aesthetic components appropriate for their design that enable fun and engaging player experiences [30]. Focusing on the outlined game design, one of the major sources of fun is reasoned to be its challenges. This means that the game presents itself as an obstacle course to the player and that the mechanics ensure that the obstacles require more and more skill to be overcome. Optimally, the difficulty of the game and the skills of the player should grow at the same scale to ensure that that the game remains challenging at all times yet allows the player to overcome any challenges. This is one of the conditions for flow experience in games, which makes them enjoyable and rewarding to play [33]. Another aesthetic component of game design is discovery. Each customer can be seen as a sort of puzzle, and the player must discover the solution by finding the necessary grounds for accepting or rejecting his request. 4.3 Evaluation and Expected Outcomes To demonstrate the effectiveness of the proposed game, an evaluation along two dimensions shall be carried out: the game itself and its game design, the effects of the game on its players. The purpose of evaluating the game itself lies in ensuring that the artifact was designed and developed in a way that actually enables it to achieve its intended outcomes. Possible choices to be considered here include user studies, survey-based measurement instruments such as the Play Experience Scale [34] or analysis frameworks specifically tailored to serious games such as the Serious Game Design Assessment Framework [35]. Focusing on the outcomes of the game, a controlled experiment shall be carried out, in which both the experimental as well as the control group will fill out the same survey, whereas the experimental group will be subjected to the proposed game first. The survey shall firstly contain a section with various statements about the realized processes whose correctness the participants must assess. As we expect the experimental group to learn about activities, decision rules, and restrictions that apply to public service processes, we assume them to be better educated about the realized processes than the control group, and thus achieve better results. As a direct result, we anticipate that members of the experimental group are able to achieve a significantly higher perceived self-efficacy, i.e., belief that they might be able to properly consume even more complex public services [36]. Thus, following [36], the survey shall contain properly constructed question items. Lastly, the depiction of public service processes from the perspective of a public servant is intended to increase the understanding of this position and thus the players’ attitudes towards public service delivery in total. Following

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the Theory of Reasoned Action [37], the experimental group may thus exhibit a higher behavioral intention to use such services in the future. Accordingly, appropriate items shall be included in the survey. In summary, we expect the players of the proposed game to be able to make correct statements about particular aspects of the implemented processes, to have a higher belief that they can consume such services, a more positive attitude towards public service delivery in general, and thus a higher intention to consume these services in the future. Results that are gained from the evaluation of the game can be used in subsequent iterations of the implementation process to improve its concept and implementation.

5 Conclusion and Outlook This paper has presented a concept for a serious game whose purpose is to allow citizens to become literate in the domain of public service processes by enabling active learning, critical thinking, and reflection. The content of the game shall be tailored to the specific requirements of Brazil, where it will also be tested and evaluated. Ultimately, the game is intended as a first step towards game-based, participative public service design. To that extent, future developments will focus on allowing citizens to interpret the game within the context of their own experiences with public services, thus enabling them to identify and verbalize their ideas for improvement. Presently, this research endeavor is in the concept stage. The presented approach is just one of numerous possibilities how ideas from games can enrich public services. Independently of the domain and the design approach that is used, games are becoming more and more prevalent throughout various parts of day-to-day life, thus meriting a closer examination of their potentials for public service design and delivery. We are aware that the next challenging issue in this research is the game design itself, what includes, for instance, how to clearly define the aesthetics (fun, emotional involvement) aspects of the game, and how to deal with the game complexity. However, the research is not restricted to the desing of an specific game, but on how to systematically design different games with the purpose of citizen understanding, engagement and learning. Subsequent activities in this research will be the implementation of the concept while following established game design and development processes to ensure that the result can meet its aesthetic goals. Another goal is to define a game engineering process for the context of participative public service design, taking as input business process definitions and models, thus allowing distinct public institutions to develop games for the purpose of engaging citizens with their processes.

6 Acknowledgments The authors thank Prof. Geraldo Xexéo (COPPE/UFRJ) for contributions to this research and the Deutsche Forschungsgemeinschaft for financial support.


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