Aurora Sanchez-Ortiz

Mauricio Solar
email: msolar@inf.utfsm.cl

Elsa Estevez

Gabriela Viale-Pereira
email: gabriela.viale-pereira@donau-uni.ac.at

Identification of Competencies and Teaching Models for the Governance of Smart Sustainable Cities in the South American Context

Keywords: Smart Cities, Sustainable Cities, Governance, Human-Capacity, South America

des établissements d'enseignement et de recherche français ou étrangers, des laboratoires publics ou privés.

Introduction

The use of innovative digital technologies to improve the quality of life of residents in urban contexts has been a goal for many local-level governments around the world and it is known as smart city efforts. However, the concept, that has gained popularity in the academic and practitioner world during the last decade, is still at an infancy stage in terms of current governance capabilities of urban centres [START_REF] Ruhlandt | The governance of smart cities: A systematic literature review[END_REF] and available education programmes. Many frameworks, rankings, and technical standards have been conceived to assess the level of smartness of cities but, a uniform approach or a single recipe that can fit for all cases is difficult to be envisioned, in part due to the multidisciplinary nature of the field and the uniqueness of different countries and cities [START_REF] Albino | Smart cities: Definitions, dimensions, performance, and initiatives[END_REF][START_REF] Anthopoulos | Defining smart city architecture for sustainability[END_REF][START_REF] Chourabi | Understanding smart cities: An integrative framework[END_REF][START_REF] Giffinger | Smart cities -Ranking of European medium-sized cities[END_REF][START_REF] Marsal-Llacuna | Lessons in urban monitoring taken from sustainable and livable cities to better address the Smart Cities initiative[END_REF][START_REF] Nam | Conceptualizing smart city with dimensions of technology, people, and institutions[END_REF][START_REF] Ramaprasad | A unified definition of a smart city[END_REF].

Many cities in developed countries are transiting towards being considered smart and sustainable in those rankings. Yet, cities in the Global South, and in particular, in South American countries, face a completely different reality compared with the former, mainly considering the technological, cultural and geographical perspectives [START_REF] Viale Pereira | South American expert roundtable: increasing adaptive governance capacity for coping with unintended side effects of digital transformation[END_REF]. The design of smart sustainable cities (SSC) training modules contextualized to the Latin American region is one of the main goals of the CAP4CITY Project. To address the problem, several workshops were conducted in Argentina, Brazil, Chile, and Colombia to assess the training needs for each country. In this research, we identified the main competences and training needs concerning planning, development and management of smart sustainable cities in Chile and Argentina. This article therefore describes and discusses the main competences and teaching methods identified as most relevant during the workshops with stakeholders from government, academia, private companies, and third sector, conducted in Chile and Argentina.

The rest of this article has the following structure. Section 2 presents some background concepts in SSC and discusses related work. Section 3 explains the methodology applied to conduct the workshops and to gather data. Section 4 discusses the major findings of the workshops in Chile and Argentina as well as lessons learned. Finally, Section 5 summarizes conclusions and future work.

2

Literature review

Smart Sustainable Cities (SSC)

The term 'smart city' has become trendy to distinguish or promote cities that are considered advanced in the deployment and use of digital technology, and many cities are currently developing long term plans to become one. However, the concept of a `smart city` is still ambiguous and complex since efforts for its development have to integrate multiple disciplines behind the city and the smartness dimensions, ranging from the urban and social related issues, through economic and environmental, to the technological areas. Additionally, we need to see the need to adapt it to cultural, social and geographical differences [START_REF] Caragliu | Smart Cities in Europe[END_REF][START_REF] Han | Introduction: Innovation and identity in next-generation smart cities[END_REF]. Some commonly used definitions are the following:

 A smart city is one that utilizes Information and Communication Technologies (ICT) to meet the demands of the market (residents of the city), and to promote community involvement in the process. Thus, a smart city would be a city that not only possesses ICT technology in particular areas, but has also implemented this technology in a manner that positively impacts the local community [START_REF] Deakin | From intelligent to smart cities[END_REF].  A smart city promotes regional competitiveness, transport and ICT economics, natural resources, human and social capital, quality of life, and participation of citizens in the governance of the city [START_REF] Giffinger | Smart cities -Ranking of European medium-sized cities[END_REF]. The CAP4CITY Project, part of the Erasmus+ Programme of the European Union, defines Smart Sustainable Cities (SSC) as a progression of how cities apply digital technology to serve their populations, pursue sustainable socio-economic development, and transform themselves. The urban development that leads SSC requires a growing number of roles and competencies to work together in order to plan, design, implement and manage the ongoing transformations of the city, enabled by technological innovation. A large number of competencies are needed for pursuing SSC efforts, mainly related to areas such as Business Administration, ICT, Computer Science, Engineering, Architecture and Urbanism, Urban Planning, Law, Political Science, Sociology, and Communication, among others. In addition, although the SSC concept has gained considerable attention in Latin America, there is a need for improving old and developing new teaching and learning tools, as well as curricula in all levels of higher and continuous education to build the needed qualified human resources able to develop SSC in the region.

 A smart
The smart city concept integrates ICT, and various physical devices connected to the IoT (Internet of Things) network to optimize the efficiency of city operations and services and to connect citizens [START_REF] Peris-Ortiz | Sustainable Smart Cities: Creating Spaces for Technological, Social and Business Development[END_REF]. Such infrastructure enables to integrate data collected from citizens, devices, and assets. This data is processed and analyzed to monitor and manage traffic and transportation systems, power plants, utilities, water supply networks, waste management, crime detection, information systems, schools, libraries, hospitals, and other community services [START_REF] Mclaren | Sharing cities: a case for truly smart and sustainable cities[END_REF]. Technology deployed in a smart city allows city officials to interact directly with both community and city infrastructure and to monitor what is happening in the city and how operations and daily activities in the city evolve. ICT is used to enhance the quality, performance, and interactivity of urban services, to reduce costs and resource consumption, and to enhance interactions between citizens and government. Smart city applications are developed to manage urban flows and allow for real-time responses [START_REF] Komninos | What makes cities intelligent? Smart Cities[END_REF]. Therefore, a smart city is more prepared to respond to challenges than one with a simple "transactional" relationship with its citizens [START_REF] Bhatt | Smart Development of Ahmedabad-Gandhinagar Twin City Metropolitan Region, Gujarat, India[END_REF]. Yet, the term itself remains unclear to its specifics and therefore, open to many interpretations [START_REF] Cavada | Smart cities: Contradicting definitions and unclear measures[END_REF]. When considering the sustainable dimension to the smart city concept, we could see that there is no general consensus since most frameworks are not integrating all the areas that should be assessed. Ahvenniemi, Huovila, Pinto-Seppä and Airaksinen [START_REF] Ahvenniemi | What are the differences between sustainable and smart cities?[END_REF] compared the frameworks and standards to assess smart sustainable cities and suggested that the initial target of sustainability of a city is not sufficiently addressed in some of the smart city frameworks with environmental indicators clearly underrepresented and a large variety of indicators considering economic and social aspects of a city.

Competencies and Massive Online Open Courses (MOOCs)

Researchers in many fields agreed about the importance of identifying competencies in the development of new curriculums rather than only focus on the knowledge itself. This change in perspective is characterized by a change in emphasis from teaching to student learning [START_REF] Prøitz | Learning outcomes: What are they? Who defines them? When and where are they defined? Educational Assessment[END_REF]. Then the words competencies, competence and competent become relevant when talking about learning and performance in education. These words mainly refer to a person´s state or quality of being able and fit. Katane and Selvi [START_REF] Katane | Teacher competence and further education as priorities for sustainable development of rural school in Latvia[END_REF] defined competencies as "the set of knowledge, skills, and experience necessary for future, which manifests in activities" (pp. 44). Although Selvi [START_REF] Selvi | Teachers' Competencies[END_REF] proposed the existence of various competencies for teachers , most researchers grouped the competencies in only three main areas: field competencies, pedagogical competencies and cultural competencies. Field competencies are related to the question of "what should school teach." In the past, field competencies were considered as the most important ones based on the concept that teachers were the only actor responsible for transmitting the content. However, today, other competencies, such as pedagogical competencies, are also necessary. The UK Training Agency [START_REF] Agency | Development of Accessible Standards for National Certification Guidance[END_REF] defines competence as a broad concept which embodies the ability to transfer skills and knowledge to new situations within the occupational area. It includes those qualities of personal effectiveness that are required in the workplace to deal with co-workers, managers, and customers. Elam [START_REF] Elam | Performance Based Teacher Education. What is the State of the Art?[END_REF] sustained that under the Performance-Based Teacher Education program the main characteristics for the assessment of the student's competency should include i) using performance as the primary source of evidence, ii) taking into account evidence of the student's knowledge relevant to planning for, analyzing, interpreting, or evaluating situations or behavior, and iii) striving for objectivity. Another relevant approach to the understanding of design learning was made by Bloom [START_REF] Bloom | Taxonomy of educational objectives[END_REF] who proposed a taxonomy of cognitive domains that has been extensively used in competence-based learning. Bloom's taxonomy structured educational goals into the 'cognitive', 'affective' and 'psychomotor' domains, a structure which is closely related to the contemporary concept of competency as made up of knowledge, attitude and skill components.

The massive adoption of technology in education has given birth to various approaches, including Massive Open Online Courses (MOOCs), who materialize the interest in providing tools to support distance education and company training. Kalz [START_REF] Kalz | Lifelong learning and its support with new technologies[END_REF] acknowledges the importance of technological advancements in MOOCs to remove existing barriers in lifelong learning. Castaño-Muñoz, Kreijns, Kalz and Punie [START_REF] Castaño-Muñoz | Does digital competence and occupational setting influence MOOC participation? Evidence from a cross-course survey[END_REF] emphasize the importance of MOOCs to provide access to education for people who could not access to this opportunity for financial reasons or because they lack the necessary qualifications. Most MOOCs today are free and open to any interested participant. They provide the opportunity to numerous students to access simultaneously to online educational resources, without charge, in highly recognized institutions such as MIT Open Courseware, Stanford Engineering Everywhere, Khan Academy, and others. MOOCs are based on the principles of open learning with the student at the center and a strong focus on learning rather than teaching. MOOCs provide students with flexibility and choice in meeting their educational goals. They comprise various non-traditional learning opportunities, from short courses to degrees.

Methodology

The main purpose of the study documented in this paper was to identify the perception of main stakeholders in the South American community about knowledge, skills, and competencies that should be present in courses building human capital for SSC. Such courses include elective courses at the undergraduate level, at the postgraduate level, including a Specialization and a Master degree programs, as well as MOOCs for continuous education. Applying the roadmap for SSC developed by the CAP4CITY Project, the study collected data and information through eight workshops conducted in the regionparticularly in Argentina, Brazil, Chile, and Colombia. In this paper, we focus on the four workshops conducted in Chile and Argentina with representatives from government, NGOs, private companies, and academia. The study collected quantitative and qualitative data. Quantitate data was analyzed using IBM SPSS, and qualitative data was analyzed using logical tools and a computer-aided word-driven analysis with the software KH Coder. KH Coder recognizes patterns in word co-occurrence [START_REF] Higuchi | A two-step approach to quantitative content analysis: KH Coder tutorial using Anne of Green Gables (Part I)[END_REF].

Workshop activities

To conduct the workshops in Argentina and Chile, we apply the same methodology comprising the following three activities:

1) Raising awareness -delivering presentations about results of preliminary work explaining the state of the art on educational programs related to SSC 2) Identifying knowledge areas and competenciesconducting group discussions about knowledge areas and type of competencies to be delivered by new courses. 3) Proposing pedagogical modelsconducting group discussions to identify innovative pedagogical models suitable to deliver the proposed competencies.

The workshops conducted in Chile took place in Antofagasta and Valparaiso, while the ones in Argentina, in La Plata and Bahia Blanca. All workshops were conducted in Spanish, and one researcher from the CAP4CITY Project presented the "Raising awareness" activity, explaining the partial results of the project and the methodology for the workshop. Following, participants were divided into groups to have team discussions. At the end of this activity, each group presented and discussed in plenary sessions the knowledge areas and competencies that they found necessary to be included in SSC courses. The third activity was conducted following the same approach previously used for the second one, but the theme to discuss and present was the pedagogical models most suitable for delivering the knowledge and developing the already identified competencies. The workshops followed the same methodology to allow for a combined analysis of the results.

Population and sample

In total, 113 participants attended the workshops in Chile and Argentina. In Chile, there were twenty-eight representatives from academia (58%), fourteen from the private sector (29 %), and six from the government (13%); while in Argentina, fifty-four representatives from academia (83%), five from the private sector (8%), and six from the government (9%). Figure 1 shows the number of workshop participants per sector. In each workshop, the organizers requested participants to assemble into teams, each of them constituting round tables with 6 to 8 attendees.

Results

Based on their experience and understanding, participants identified knowledge areas and competencies needed to develop SSC in their cities. The study classified the competencies based on the participants´ contributions respecting their main ideas but syntactically rephrased them. The researchers used the conventional style for defining competencies, i.e., starting with a verb in the infinitive. The identified competencies were organized according to the knowledge areas that appeared in the group presentations.

In both countries, a total of 270 SSC competencies classified in 14 knowledge areas were identified by participants as relevant for SSC. Table 1 summarizes the identified knowledge areas and, for each country, the number of competencies per area. Similarities in the results of each country include the relevance of three topics: The CAP4CITY project team grouped the competencies in nine major themes according to their similarities. Figure 2 shows the percentage of competencies mentioned by the workshop participants in the nine themes by country. We could see that Argentina mainly mentioned competencies in the following themes: Governance (20.5% of the total competencies), Urban Studies and Sustainability (19.3%), and Public Administration and Management (15.9%). Meanwhile, in Chile, the themes in which more competencies were identified include Urban Studies and Sustainability (21.4%), Socio Technical ICT (15.4%), and Public Administration/Management" (13.7%).

Comparison of knowledge areas using co-occurrence analysis

This part of the study analyzes similarities and differences among the knowledge areas and competencies mentioned during the workshops conducted in Argentina and Chile. Initially, we clustered the competencies identified by the workshop participants and coded them in the fourteen knowledge areas enumerated in Table 1. Later, a word analysis using the KH Coder software was performed to analyze and conceptualize the text. This software analyzes the structure of a text using statistical tools [START_REF] Higuchi | A two-step approach to quantitative content analysis: KH Coder tutorial using Anne of Green Gables (Part I)[END_REF]. We applied the co-occurrence network [START_REF] Palmer | Text analytics visualisation of Course Experience Questionnaire student comment data in science and technology[END_REF] to analyze the similarities and differences among the competencies mentioned by the workshop's participants. This analysis showed that even though both countries share some competencies, many others were different, as we see in figure 3.

Discussion

The workshops organized in Chile and Argentina, aimed at identifying competencies and teaching models for the governance of smart sustainable cities in the South American context, enabled to collect more than two hundred competencies in various knowledge areas. The four workshops were conducted applying the same methodology and attracted a wide variety of participants from government, private companies, and academia. One essential requirement related to the participants was to include professionals from different areas of expertisee.g. lawyers, IT professionals, urban planners, economists, and sociologists, among others, to cover the multiple dimensions and views needed for governing SSC efforts.

Results showed that even both countries being geographically close; their perception of the competencies needed for SSC development is not similar. The main differences between both countries can be summarized as follows. The Argentinian community emphasizes Governance and Social Sciences more than the Chilean community, but the Chilean community emphasizes Communication and Ethics, Socio Technical ICT, and Business and Economics more than the Argentinian community. Despite the differences, some similarities we found is the shared interest in areas such as Information and Data; Urban Studies and Sustainability; Legal and Ethical Implications of SCC; and Public Administration/Management. In addition, the pedagogical models identified by the participants were very similar in both countries. For instance, in the workshops conducted in the cities of La Plata, in Argentina, Valparaiso, and Antofagasta in Chile, participants identified the use of case studies and project-based learning as suitable learning methods for building competencies for SSC. Workshop's results were the first stage for the envisioned implementation of the courseselective undergraduate courses, postgraduate courses and postgraduate programs -Specialization and Master, and MOOCs. Currently, the consortium defined a portfolio of 31 courses to develop the total set of the identified competencies. The usage of such courses will be open to the community. Moreover, acknowledging that each city has its own values, and one recipe does not fit all cases, we argue that each university, government or actor willing to use the courses, will need to select those that best fulfills the need of the local context.

Conclusions

Cities around the world are rapidly evolving, and they need to become smart and sustainable, adapting to the technological changes and the new demands of their citizens. Policymakers at the country and city level in South America need SSC programs that are adapted to their geographical and cultural condition. The series of workshops in South America, in the context of the CAP4CITY project, provided insights for developing a suite of courses that any city can adopt, customize, and use depending on their training needs. The successful implementation of such workshops allowed the researchers to identify the competencies and pedagogical models that could be both general but adapted to the South American context. This approach can be repeated to assess the training needs in a city. The findings of this study are of key importance for government, private companies, and academia to drive towards finding a balance between knowledge areas, pedagogical models, and SSC programs adapted to their environment.

The study has some limitation. We were able to consider only two cities per country, and a limited number of participants. Therefore, the methodology used in the workshops can be replicated by other cities to identify their specific training needs before implementing an educational programme in SSC. In this sense, the contribution of this study is mainly oriented to present a methodological approach that any city can adopt rather that claiming any generalization of the results.

Future work includes completing the design and content development for the courses, designing the most appropriate implementation mode of the curricula, and designing and establishing postgraduate programs based on the courses. We believe that this work may lead to new approaches for training city leaders to better govern their cities, addressing the challenges of the South American cities in the 21st century.

Fig. 2 .

 2 Fig. 2. Percentage of competencies identified by SSC theme

Fig. 3 .

 3 Fig. 3. Co-Occurrence Network between competencies in Chile and ArgentinaParticipants in both countries mentioned the competencies with the words design, management, project, planning, data, information, urban, open, and sustainability. The words governance, participation, strategy, social, organizational, and environmental stood out in the Argentina`s workshops, but they were barely mentioned in the Chilean workshops. Chile, individually, mentioned the words policy, datum, interoperability, tool, legislation, and regulations, among others. The analysis of pedagogical models are shown in Figure4, which also shows similarities and differences between the models identified in the workshops conducted in the four cities.

Fig. 4 .

 4 Fig. 4. Co-Occurrence Network between pedagogical models identified in Chileand Argentina. The analysis clearly identified more similarities than differences in the suggested pedagogical models.

Participants attending the workshop in Chile and ArgentinaTable 1 . Number of competences by area of knowledge

 1 1) Technology and Apps, ranked second in Argentina and first in Chile; 2) Urban and Territorial Development, fourth in Argentina and second in Chile; and 3) Governance and Citizens, third in Argentina and fifth in Chile. Some differences refer to: 1) the high position of the knowledge area Management and Projects in Argentina, ranked first, and the lower level in Chile, ranked seventh; 2) the high relevance of Communication and Ethics in Chile, ranked third, and the lower appearance in Argentina, ninth; and 3) the high relevance that Argentina gives to Society and People, ranked sixth, and the low level in Chile, eleventh.

	Fig. 1. Knowledge Areas	CHILE	ARGENTINA
	Urban and Territorial Development	23	9
	Laws and regulations	15	6
	Entrepreneurship and innovation	7	1
	Technology and Apps	28	10
	Data	18	5
	Environment and sustainability	16	8
	Governance and citizen participation	17	10
	Management and Project	16	14
	Security and Privacy	5	3
	Social media and Marketing	9	0
	Communication and ethic	20	5
	Society and people issues	6	8
	Education	2	5
	Information	0	4
	TOTAL	182	88

https://www.ieee.org/membership-catalog/productdetail/showProductDetailPage.html?prod-uct=CMYSC764

2 http://www.businessdictionary.com/definition/smart-city.html

Acknowledgements. The research presented in this paper is part of the CAP4CITY Project, co-funded by the Erasmus+ Programme of the European Union. Grant no: 598273-EPP-1-2018-1-AT-EPPKA2-CBHE-JP.


Rodríguez Bolívar

Manuel Pedro
email: manuelp@ugr.es

Alcaide Muñoz

Al- Caide Muñoz

Identifying Strategic Planning Patterns of Smart Initiatives. An Empirical Research in Spanish Smart Cities

Keywords: Smart cities, strategic planning, smart initiatives, planning patterns, citizens' profile

The Smart Cities' projects favor the improvement and efficiency in public services, as well as the dis-closure and access more information, offering extraordinary opportunities for cities to spark a new wave of wealth creation. However, despite the relevance and complexity of designing strategic planning for smart city development, it continues to be ignored. This research contributes to prior research through the analysis of the demographical and citizens profile of SCs, identifying key patterns in the strategic planning processes of the smart initiatives in city governments in order to ensure the success of SCs initiative implementation. To achieve this aim, this paper has sought to analyze strategic planning process in a number of Spanish SCs under the microscope examining a total of 1,635 smart initiatives with the aim at identifying patterns in the strategic planning design. Findings show that smaller-size cities with a higher proportion of older people usually perform formal strategic planning processes.

Introduction

In the last decades, cities have had to face numerous challenges concerning the adoption of technological advances, economic growth, urban development, operation processes, governance or environment sustainability, giving place to the so-called smart cities (SCs) [START_REF] Letaifa | How to strategize smart cities: Revealing the SMART model[END_REF]. These cities have been involved in undertaking new socioeconomic environments based on the introduction of emergent and new information and communication technologies (ICTs) to face these challenges for all residents [START_REF] Grossi | Smart cities: Utopia or neoliberal ideology?[END_REF]. This way, public managers and politicians have designed and planned new strategies implementing smart initiatives, which are based on ICTs to enhance city performance and sustainability with the aim at providing efficient public services and improving citizens' quality of life [START_REF] Angelidou | Smart city policies: A spatial approach[END_REF] [START_REF] Bolívar | In the search for the 'Smart'Source of the Perception of Quality of Life in European Smart Cities[END_REF].

Thus, the SCs provide infrastructure and services that improve its citizens' lives in a sustainable way [START_REF] Brorström | Translating sustainable and smart city strategies into performance measurement systems[END_REF], undertaking smart initiatives in different domains (mobility, economy, governance, environment, living and people) [START_REF] Letaifa | How to strategize smart cities: Revealing the SMART model[END_REF]. These projects favor the improvement and efficiency in public services, as well as the disclosure and access more information, offering extraordinary opportunities for cities to spark a new wave of wealth creation [START_REF] Anthopoulos | Smart utopia VS smart reality: Learning by experience from 10 smart city cases[END_REF].

However, despite the relevance and complexity of designing strategic planning for smart city development, it continues to be ignored [START_REF] Letaifa | How to strategize smart cities: Revealing the SMART model[END_REF], considering an abstract idea and a largely unknown field [START_REF] Angelidou | Smart city policies: A spatial approach[END_REF]. So, Yigitcanlar [START_REF] Yigitcanlar | Smart City Policies Revisited: Considerations for a Truly Smart and Sustainable Urbanism Practice[END_REF] and Mora et al. [START_REF] Mora | Strategic principles for smart city development: A multiple case study analysis of European best practices[END_REF] are promoting prospective research and further critical debates and report of current practices about strategic planning tools used in smart city development because it needs to be carefully and critically revisited.

Although these smart strategies and initiatives could be implemented in different levels of public administration, like in national or in local governments [START_REF] Angelidou | Smart city policies: A spatial approach[END_REF], special attention should be paid to strategies that can be applied by city governments because, according to Harrison and Donnelly [START_REF] Harrison | A theory of smart cities[END_REF], the focus on cities is relevant to analyze the functions assigned to them like the construction of urban infrastructures, the performance of strategic planning and process as well as the implementation of local policies and investment of financial resources.

Based on these previous comments, this study aims to analyze the smart city phenomenon and its current strategic planning practices on smart initiatives with the aim at identifying patterns in strategic planning approaches. In order to achieve this aim, we have analyzed smart city strategies and planning approaches of 1,635 smart initiatives undertaken by a number of the Spanish SCs (n=12) through the lens of the demographic and citizens' profiles of sample SCs, which have demonstrated to be relevant attributes that could influence on public policies regarding both the introduction and use of new technologies [START_REF] Bolívar | Political Ideology and Municipal Size as Incentives for the Implementation and Governance Models of Web 2.0 in Providing Public Services[END_REF] [START_REF] Basu | Viability assessment of emerging smart urban para-transit solutions: Case of cab aggregators in Kolkata city, India[END_REF].

The remainder of this paper is as follows. The next section presents the demographical and citizen' profile's attributes of SCs and shows the research questions of our research. Then, we describe the research methodology and data collection methods, analyzing the sample selection and the attributes examined in this research. Also, we describe the main results of our study. Finally, the discussion and conclusions bring the paper to an end.

Strategic planning of smart initiatives for smart governance

The development of SCs is a complex procedure, as it involves multiple interactions between several stakeholders and dimensions into a "networking" strategy of governance [START_REF] Bolívar | Characterizing the role of governments in smart cities: A literature review[END_REF], which requires an integrated view of technology, processes, products, services and participants [START_REF] Guenduez | Smart Government Success Factors[END_REF]. Due to this complex structure, scholars emphasize the need of a road map to guide stakeholders and dimensions involved in the development of SCs to reach the ambitious target efficiently [START_REF] Guenduez | Smart Government Success Factors[END_REF] Nonetheless, the different demographic urban profile could lead to different patterns in governing smart cities [START_REF]European Parliament: Mapping Smart Cities in the EU[END_REF] and, therefore, in the strategic planning processes in these cities. In this paper, strategic planning processes are understood as the organization's process of defining its strategy, or direction, and making decisions on allocating its resources to pursue this strategy. It may also extend to control mechanisms for guiding the implementation of the strategy (Wikipedia). Prior research has demon-strated that the planning objectives and the type of smart city initiatives that cities implement in these cities are highly diverse [START_REF] Yigitcanlar | Smart City Policies Revisited: Considerations for a Truly Smart and Sustainable Urbanism Practice[END_REF]. This way, it could be interesting to analyze how strategic planning in SCs are being performed under different demographic profile of these cities.

To begin with, several research studies have shown that population size affects both the adoption of new technology in public sector [START_REF] Bolívar | Political Ideology and Municipal Size as Incentives for the Implementation and Governance Models of Web 2.0 in Providing Public Services[END_REF] and the innovation of city governments [START_REF] Bonsón | Local e-Government 2.0: Social media and corporate transparency in municipalities[END_REF]. On one hand, larger SCs are engaged in the development and delivery of more complex and efficient services [START_REF] Cegarra | E-government and citizens engagement with local affairs through e-Websites: The case of Spanish municipalities[END_REF], which makes necessary the engagement of citizens with different competing interests into the public sector delivery [START_REF] Bolívar | Political Ideology and Municipal Size as Incentives for the Implementation and Governance Models of Web 2.0 in Providing Public Services[END_REF]. By contrast, smaller communities often possess their own powerful sense of place and identity, which helps in obtaining consensus and collaboration [START_REF] Bradford | Creative cities: structured policy dialogue report[END_REF]. In brief, according to prior research, it is expected to find different patterns in strategic planning of SCs according the municipal size (based on the Cambridge dictionary, a pattern is defined as a particular way in which something is done, is organized, or happens). Therefore, our first research question in this study is the following: RQ1 -Are there patterns in the strategic planning of smart initiatives based on population size?

The citizens are increasingly an active part of the development of SCs [START_REF] Foth | Citizen's right to the digital city: urban interfaces, activism, and placemaking[END_REF], which makes us to question about the profile of citizens that demands the implementation of new technology as well as their participation in the strategic planning process of SCs.

In addition, recent prior research has put emphasis on the need of digital awareness of citizens [START_REF] Guenduez | Smart Government Success Factors[END_REF]. In this regard, several scholars have showed that young people increasingly demand the adoption of new technologies to enable their quality of life [START_REF] Basu | Viability assessment of emerging smart urban para-transit solutions: Case of cab aggregators in Kolkata city, India[END_REF]. In fact, they have a more proactive attitude to use and test new technology than elder people because young people are aware that the learning of using ICTs and its use leads to a greater accessibility to labor market and education, resulting in better work opportunities and, in turn, an increased per capita income [START_REF] Priya Uteng | Addressing the Linkages between Gender and Transport in Low-and Middle-Income Countries[END_REF].

Therefore, it seems that strategic planning of SCs could be different according to the different citizen age structure of the city. Hence, the following research question is derived: RQ2 -Are there patterns in the strategic planning of smart initiatives based on the age of inhabitants?

Finally, both education and income per capita are the most powerful predictors for the adoption of new technology to improve services delivery efficiently [START_REF] Kiiski | Cross-Country Difusion of the Internet[END_REF]. Local governments with a well-educated and higher income population demand the adoption of new technology to access information and the development and delivery of services efficiently [START_REF] Cabas-Perez | The determinants of government financial reports online[END_REF]. Additionally, these local governments obtain more resources to implement projects on ICTs into their cities [START_REF] Sol | The institutional, economic and social determinants of local government transparency[END_REF].

As with e-government, SCs growth has a closely relationship with education and income per capita, since availability of finance play a significant role in building this human capital and lead to the development of smart city [START_REF] Arora | Financial sector development and smart cities: The Indian case[END_REF]. Local governments with higher skilled people experience stronger growth in the quality of life, and have a proactive attitude towards the implementation of smart initiatives [START_REF] Winters | Why are smart cities growing? Who moves and who stays[END_REF]. In fact, different research studies show that cities with more educated population have better employment opportunities, resulting in a more growth in quality of life [START_REF] Giffinger | Smart cities ranking: an effective instrument for the positioning of the cities?[END_REF]. As indicated by Foth [START_REF] Foth | Citizen's right to the digital city: urban interfaces, activism, and placemaking[END_REF], in order to make cities smarter, we need to make people smarter in the first place.

As for income per capita, in a specific case, Basu [START_REF] Basu | Viability assessment of emerging smart urban para-transit solutions: Case of cab aggregators in Kolkata city, India[END_REF] showed that the upper middle-income and middle-income groups (30% and 28.75%, respectively) were mostly inclined in the use of mobility application aimed to smart mobility improvement in India. However, the lower income group used less this service comparatively. Based on these prior findings, the last research questions in this study are: RQ3 -Are there patterns in the strategic planning of smart initiatives based on the level of education? RQ4 -Are there patterns in the strategic planning of smart initiatives based on the income per capita?

In brief, this study analyses smart cities strategy and planning approaches of smart initiatives in Spanish SCs from the demographic lens and citizen's profile, since it might be significant to identify patterns of behavior in smart initiatives planning experiences in SCs in order to ensure the success of SCs initiatives implementation.

3

Research Methodology

Sample Selection

Prior research [START_REF] Muñoz | Using tools for citizen engagement on large and medium-sided European Smart Cities[END_REF] has showed that SCs in Spain, UK, Germany, Italy and France are those that have undertaken a higher number of smart initiatives and projects into their cities. It makes interesting to focus our attention in SCs in these countries and collect evidences from the analysis and exploration of their smart initiatives. Thus, this paper is focused on the analysis of the smart initiatives implementing in SCs in Spain as a first approach of this issue, which could be interesting for SCs in other countries.

According to Harrison and Donnelly [START_REF] Harrison | A theory of smart cities[END_REF], we focused on the large-size SCs because it allows a more efficient innovation development that creates many challenges for the planning, design, finance, construction, governance and operation of urban infrastructure and services. Also, these cities are highly competitive economies and get a higher knowledge about urban problems and more flexibility of governance models to face them, as well as the possibility to get insights of smart solutions from others similar cities [START_REF] Angelidou | Smart city policies: A spatial approach[END_REF]. Finally, our sample selection is composed by cities having globally recognized as a SCs in the different leading world rankings.

In this sense, with the aim at collecting a wide range of Spanish cities, data collection of this research has been gathered following two steps. Firstly, we analyzed a sample composed of large-size Spanish cities (cities from 200,000 to 4 million inhabitants), which have been labelled "smart" by a European project sponsored by Asset One Inmobilienentwicklungs AG -see http://www.smart-cities.eu-. Taking into account the information, classification and factors considered from this European SCs ranking [START_REF] Giffinger | Smart cities ranking: an effective instrument for the positioning of the cities?[END_REF], we collected seven Spanish SCs to the sample selection.

Secondly, we also analyzed large-size Spanish cities that are members of the EUROCITIES network (http://www.eurocities.eu). This network is composed of the local governments of the major European SCs with the objective of strengthening the important role that they should play in the adoption and implementation of smart governance structures. This second step allows us to collect five new Spanish SCs to our study aim. Therefore, our sample selection is composed of a total of twelve large-size Spanish SCs.

As for the methodology used in our research, based on Yigitcanlar [START_REF] Yigitcanlar | Smart City Policies Revisited: Considerations for a Truly Smart and Sustainable Urbanism Practice[END_REF], the selection criteria for determining the strategy documents of sample cities were: (a) The strategy or policy report having a specific focus on SCs and developed for a particular city -rather than a part of the city, region or nation-; (b) The full-text report being available for download from an official website of the city -rather than an executive summary or highlights-and; (c) The report having listed the department responsible of the project in the smart city, the smart city domain, stakeholders involved, vision, objectives, policies or strategies on the smart city transformation of the city; (d) The search was conducted in August-September 2019-only including policies published and made available online until this date.

After a thorough web search, in total 1,635 case smart initiatives were determined fulfilling the mentioned selection criteria. The policy documents of these SCs were downloaded from the official city government websites and their vision or aims, smart domains and smart city strategies or policies were obtained and checked, i.e. we selected the projects taking into account their content and objectives.

Smart Initiatives Attributes and Variables Analyzed

As for getting insights about the way that sample SCs are performing strategic planning of smart initiatives, this research characterizes the smart initiatives examining whether the sample SC has a global strategic planning of the city in which the smart initiatives are included, the formal/informal approach used, the scope of the smart project application (horizontal/vertical pattern), the project development approach (bottom-up/top-down) and, finally, the responsible body of the smart project (the city government or the city government jointly with other stakeholders).

Although other variables could be relevant like the structure of the local government or the level of decision-making decentralization, in this paper, we focus our analysis on the demographical city and citizens' profile attributes with the aim at finding patterns in strategic planning of smart initiatives. In this regards, four attributes are used in this study and consistent with previous studies [12] [29]: population size of the smart city and age of inhabitants, as demographical city profile, and level of education and income per capita, as citizens' profile, due to their relevance in finding patterns in e-government policies, and online information disclosure [START_REF] Araujo | Does Gender Equality affect municipal transparency: the case of Spain[END_REF].

As for the attributes analyzed, in this paper we focus our efforts in the main ones that characterize the different patterns of organizing the strategic planning of smart initiatives in a SC and, specially, regarding the type of strategic planning performed (formal/informal), the scope of the smart initiatives (vertical/transversal) and the stakeholders involved into the strategic planning process (collaboration). Table 2 shows the definition and calculation method of each of the attributes analyzed in this research.

Analysis of results

RQ1 -Are there patterns in the strategic planning of smart initiatives based on population size?

Table 3 shows the characterization of the main attributes of strategic planning in sample SCs based on the population size of the sample municipality. Results reveal that local governments with lower inhabitants mostly develop formal smart strategic planning and, in turn, offer the entire information to their citizens (97.95% of smart initiatives). By contrast, the no-formalization of smart strategies increases as the size of the municipality increases (cities with more 500.000 inhabitants show more than 90.80% of informal smart strategic initiatives).

As for the scope in the implementation of the smart initiatives, cities between 292,879 and 506,124 inhabitants develop smart initiatives involving more than one department area (vertical versus horizontal) (97.50% of smart initiatives). However, local governments with lower inhabitants mainly adopt smart initiatives which do not involve multiple departments (28.21%). They focus all efforts on one single department, which leads the smart strategic initiatives.

Moreover, results show that local governments are the main promoters of strategic planning of SC initiatives in all cities regardless of its size (99.54% and 98.29%, respectively).

Finally, the last attribute related to strategic planning under study (collaboration), it seems to be that the local governments with between 292,879 and 506,123 inhabitants encourage collaboration public-private in smart initiatives (10.34%). By contrast, non-collaborative smart initiatives are mainly concentrated in both smaller-size and larger-size cities (94.08% and 93.68%, respectively). In table 4, we can observe that there are some patterns related to the relationship between formal/informal smart strategic planning and the age of inhabitants. In this regard, the information about smart initiatives is formalized and disclosed when the inhabitants are older citizens (92.45%), meanwhile that the information is not formalized in cities with young people (54.98%), in opposition to the related literature. It suggests that the teenagers are mostly engaged in the adoption and the use of ICTs and, in turn, demand more information from public institutions [29] [11].This controversy can be caused by the fact that our study takes into account too young people (between 15 and 24), whose role is primarily applicant of delivery of services than contributor.

Although the related literature established that the teenagers have more proactive attitude to use and test new technology than elder people, because they have a positive perception of them related to the positive impact of ICTs in the improvement of the quality of life we can observe no patters concerning the age of inhabitants. In order words, smart initiatives are usually promoted by the administration, which takes the lead in implementing technological advances that favor the creation of a smart and sustainable environment in cities, regardless of the age of its inhabitants.

Finally, there are also no patters when we analyze the relationship between the scope in the implementation of the smart initiative and the age of inhabitants (vertical versus transversal) as well as the relationship between the collaboration model for implementing these initiatives and the age of inhabitants. Note: We have calculated median and formed two groups: Young population (citizens over the median of inhabitants from 15 to 24 years old + citizens over the median of inhabitants from 25 to 35 years + citizens over the median of inhabitants from 36 to 64 years) and Older population (citizens under the median of inhabitants from 15 to 24 years + citizens under the median of inhabitants from 25 to 35 years old + citizens under the median of inhabitants from 36 to 64 years).

RQ3 -Are there patterns in the strategic planning of smart initiatives based on the level of education?

Table 5 shows that the information disclosed is mainly formalized when the level of education of citizens in the sample SCs are below the median (94.67% and 93.49%). However, in SCs with higher educated citizens, the information disclosed is not formalized (80.59%), contrary to the related literature. Higher educated people experience stronger growth in the quality of life, and have a proactive attitude towards the implementation of smart initiatives and the demand of public information [START_REF] Foth | Citizen's right to the digital city: urban interfaces, activism, and placemaking[END_REF] [25]. Note: We have calculated median and formed three groups: SCs in which educated population is over the median in both secondary education and superior education, SCs in which educated population is under the median in both secondary education and superior education and a third group with the rest of the options Regarding the score in the implementation of the smart initiative (vertical versus transversal) and the smart initiatives approach, there are no patterns. Local governments mostly develop smart projects involving multiples departments or areas; in addition, local governments are the main promoter of smart initiative, regardless of the education level. Similarly, the education has no influence over the collaboration model for implementing smart initiatives.

4.4

RQ4 -Are there patterns in the strategic planning of smart initiatives based on the income per capita?

In table 6, we can observe that the information about smart initiatives are formalized in SCs with a lower income per capita than the median (93.98%). By contrast, in SCs with an upper income per capita than the median, the information disclosed is no formalized (60.50%).

As for the score in the implementation of the smart initiative (vertical versus transversal), the smart initiatives approach and the collaboration public-private to develop smart initiative, there are no patterns. In this sense, smart initiatives are mainly leaded by the administration and involved multiple departments and, in turn, the nocollaboration public-private is predominant, regardless of the income per capital. Note: We have calculated median and formed two groups: SCs with an upper income per capita than the median and SCs with a lower income per capita than the median.

Conclusions and discussions

Findings show that some patterns can be identified according to both the demographical city profile and the citizen profile living in the SCs. Regarding demographical attributes of the sample SCs, although prior research has demonstrated that formal strategic planning where public managers are involved in could have a strong positive relationship with strategy implementation success [START_REF] Elbanna | Strategic planning and implementation success in public service organizations: Evidence from Canada[END_REF], our findings suggest that both smaller-size cities and those with a higher proportion of older people usually perform formal strategic planning processes. These findings seem to confirm prior research which points out that larger-size jurisdictions may make strategic planning more diffi-cult for them to do so effectively [START_REF] Boyne | Strategic Planning[END_REF], perhaps due to the presence of so many stakeholders with a multiplicity of goals and conflicting accountabilities [START_REF] Bryson | Getting strategic about strategic planning research[END_REF], which makes these municipalities to adopt other different approaches.

As for the young people, the European Union, strongly from the beginning of the 2010s decade [START_REF]An EU Strategy for Youth-Investing and Empowering. A renewed open method of coordination to address youth challenges and opportunities/Commission of the European communities[END_REF], has promoted the young people involvement into public decisions as a key aspect for building cities with the aim at ensuring that they have a say in the democratic processes that shape Europe's future. Our findings show that SCs with a high proportion of older population are used to undertake formal strategic planning processes, which is a novelty result of this research, because it is not linked to the highly education level of this section of the population [START_REF] Beunen | Planning strategies for dealing with population decline: Experiences from the Netherlands[END_REF] as it could be expected. Indeed, findings of our paper indicate that SCs with a high proportion of highly educated population seem to undertake informal strategic planning process.

Concretely, findings show that in SCs, where intermediate and low levels of both educated and low-income people live in, city governments usually undertake formal and transversal strategic planning processes. Therefore, citizen profile also seems to modulate the way that city governments are undertaking strategic planning process of smart initiatives.

As for the scope of the smart initiatives, Guenduez et al. [START_REF] Guenduez | Smart Government Success Factors[END_REF] found that participants and interviewees in a sample survey highlighted the importance of aligning and embedding the smart government strategy in the overall strategy of the government body in question. Our research shows that although general nowadays, transversal type of strategic planning in smart initiatives (using the transversal approach) is mainly performed in medium-sized municipalities (between 292,879 -506,123 inhabitants) and where intermediate and high level of education people are living in. This finding could be linked to the previous one because formal strategic planning process usually takes an integral view of the strategic planning process.

By contrast, prior research has not obtained consistent findings concerning the strategic planning approach to be conducted by public administrations. While some scholars advocate the top-down or centralized approach [START_REF] Poister | Elements of strategic planning and management in municipal government: Status after two decades[END_REF], others find the bottomup or decentralized approach as preferable [START_REF] Robert | The Dilemma of Planning in Large-Scale Public Organizations: The Case of the United States Navy[END_REF]. In any case, in both cases, scholars highlight that the more participation in the planning process (including citizens, external stakeholders and public managers at all levels of the public administration), better results will be obtained [START_REF] Blair | Public participation and community development: The role of strategic planning[END_REF]. Nonetheless, recent research has demonstrated that these prior findings could be context-depend because in the Nordic context, the formal strategic planning and the strategic types may have had little impact relative to stakeholder involvement [START_REF] Johnsen | Impacts of strategic planning and management in municipal government: An analysis of subjective survey and objective production and efficiency measures in Norway[END_REF].

In brief, demographical and citizen profile seems to be attributes that could be relevant in the way of undertaking strategic planning processes into SCs. Nonetheless, this research is a first approach to this issue and some limitations are present such as, for example, the low number of sample SCs and the similar context in which the SCs are located.

Therefore, future research should extend this research to other SCs in different countries and contexts with the aim at identifying similarities and differences. In addition, future research could include other variables that could influence on the strategic planning patterns of smart initiatives in SCs. As recent research has indicated, suc-cessful smart initiatives should focus not only on new technologies, but also on managing organizational capabilities, addressing environmental requirements, building leadership, and developing common strategies and standards [START_REF] Guenduez | Smart Government Success Factors[END_REF]. Finally, future research could analyze the impact of strategic planning patterns on both the efficiency and efficacy of the smart initiatives implemented, and on the outcomes produced by these smart initiatives.

Table 1 .

 1 Table 1 lists the number of smart initiatives on each one of the sample SCs. Sample selection and number of smart initiatives included in this study.

	City	Number of Smart	City	Number of Smart	City	Number of Smart
		Initiatives		Initiatives		Initiatives
	A Coruña	127	Barcelona	56	Bilbao	40
	Gijon	252	Málaga	204	Madrid	103
	Murcia	28	Seville	132	Terrassa	499
	Valencia	15	Valladolid	47	Zaragoza	132
		TOTAL		1,635 Smart Initiatives

Table 2 .

 2 Definition of attributes analyzed in this study.

	Attribute	Acronym	Definition	Calculation
	Type of Strategic Planning	FSP a	Approach used for strategic planning into the Smart City	Formal Informal
	Scope of Smart Initiative	TSP a	Smart initiatives can involve 1 department versal) (vertical) or, 2 or more departments (trans-	1 = Vertical 2 = Transversal
	Strategic Planning Approach	APP a	Strategic planning approach when a Smart City initiative is implemented	Bottom-Up Top-Down
				City govern-
	Collaboration	COB a	Responsible body of the smart initiative	ment/collaborative/public-
				private partnership
	Population	POP b	Population residing in the municipality	Number of inhabitants
				Age 15 from 24
	Age of Inhabitants	AGE b	Age of inhabitants	Age 25 from 34
				Age 35 from 64
	Level of Education	SECEDU b Level of inhabitants with secondary educa-tion SUPEDU b Level of inhabitants with superior education	Inhabitants with secondary education Inhabitants with superior education
	Income per capita	INCO b	Income per capita	Income (thousand euros) per capita
	Notes:

a Local Government Website and b National Statistical Institute (INE) (www.ine.es/)

Table 3 .

 3 Characterization of main attributes of strategic planning in sample SCs based on the population size of municipalities.

	Population		Formal	FSP Informal Vertical	TSP Transversal	APP Bottom	Top	Yes	COB	No
	0 -292,878		97.95%	2.05%	28.21%	71.79%	0.46% 99.54% 5.92% 94.08%
	292,879 -506,123	50.43%	49.57%	2.50%	97.50%	2.30% 97.70% 10.34% 89.66%
	506,124 -714,028	58.33%	41.67%	26.62%	73.38%	2.14% 97.86% 8.97% 91.03%
	714,029 -3,182,981	9.20%		90.80%	26.09%	73.91%	1.72% 98.28% 6.32% 93.68%
	Note: Population has been catalogued by quartiles
	4.2	RQ2 -

Are there patterns in the strategic planning of smart initiatives based on the age of inhabitants?

Table 4 .

 4 Characterization of main attributes of strategic planning in sample SCs based on the population aging in sample municipalities.

	Age of Inhabitants	Formal	FSP Informal Vertical Transversal Bottom TSP APP	Top	Yes	COB	No
	Young population	45.02%	54.98%	26.54%	73.46%	2.02% 97.98% 8.26% 91.74%
	Older population	92.45%	7.55%	26.56%	73.44%	0.62% 99.38% 6.32% 93.68%

Table 5 .

 5 Characterization of main attributes of strategic planning in sample SCs based on the level of education of the population in sample municipalities.

	Level of Education	Formal	FSP Informal Vertical	TSP Transversal	APP Bottom	Top	Yes	COB	No
	Over the median	19.41%	80.59%	30.94%	69.06%	2.97% 97.03% 10.05% 89.95%
	Intermediate	94.67%	5.33%	1.59%	98.41%	0.82% 99.18% 4.51% 95,49%
	Under the median	93.49%	6.51%	28.21%	71,79%	0.43%	9.57% 6.38% 93.62%

Table 6 .

 6 Characterization of main attributes of strategic planning in sample SCs based on the income per capita of the population that live in sample municipalities.

	Income per capita	Formal	FSP Informal Vertical	TSP Transversal	APP Bottom	Top	Yes	COB	No
	Upper median	39.50%	60.50%	28.00%	72.00%	2.81% 97.19% 12.56% 87.44%
	Lower median	93.98%	6.02%	26.06%	73.94%	0.20% 99.80% 3.79% 96.21%

Acknowledgement

This research was carried out with financial support from the Centre of Andalusian Studies (Research proj. No. PR137/19).


Raissa Barcellos
email: raissabarcellos@id.uff.br

Flavia Bernardini

Jose Viterbo
email: viterbo@ic.uff.br

A methodology for retrieving datasets from open government data portals using information retrieval and question and answering techniques

Keywords: Open Government Data, Information Retrieval, Question and Answering

Public administration is one of the largest producers and collectors of data in several domains. Bearing in mind that one of the main pillars of public transparency is the release of social value through government data, and that this right remains a challenge for citizens, in this work we implemented a methodology that uses techniques and Answers and Information Retrieval to retrieve data sets and respond to questions from citizens on a Brazilian open government data portal. Using metrics of information retrieval evaluation, such as accuracy and recall, we obtained satisfactory results in applying the proposed methodology.

Introduction

Around the world, governments have already realized the importance of higher data openness and data transparency [START_REF] Anastasiu | From repositories to switchboards: Local governments as open data facilitators[END_REF]. Currently, there are open data portals in whole world, which provide access to large volumes of them in increasing numbers around the globe. Nowadays, more than a million datasets have been made available by governments around the world [START_REF] Koesten | Searching data portals-more complex than we thought?[END_REF]. This fact is a consequence of a large amount of public information generated continuously, which can refer to finance, health, human development, among other topics [START_REF] Gascó-Hernández | Promoting the use of open government data: Cases of training and engagement[END_REF]. Open government data allows easy access to large amounts of data without the need for repeated data requests, transcription of data from printed formats to electronics, and other tasks that would limit the user's interest and usefulness of the data [START_REF] Whitmore | Using open government data to predict war: A case study of data and systems challenges[END_REF]. Through this openness, the government has the potential to promote transparency, increase citizen participation, and stimulate innovation. Also, open data initiatives can help citizens learn about government activities [START_REF] Whitmore | Using open government data to predict war: A case study of data and systems challenges[END_REF].

Government data geared to the citizen's objective is a useful contribution to decision making. However, open government data portals are complex and multifunctional, due to a large amount of data, usually fragmented and hidden within the portal. An earlier study, conducted by [START_REF] Koesten | The trials and tribulations of working with structured data: -a study on information seeking behaviour[END_REF], with data professionals across a wide range of domains and skillsets states that, in most cases, data search shows characteristics of a complicated task, involving multiple queries, iterations and improvement of the need for original information, in addition to complex cognitive processing. It becomes a challenge for citizens to access, retrieve, and understand the data made available [START_REF] Koesten | Searching data portals-more complex than we thought?[END_REF]. So, the goal of this work is to present a methodology that uses Question and Answering and Information Retrieval techniques to retrieve datasets and answer citizen' questions, using technologies like natural language processing and the CKAN API for data retrieving.

The work is organized as follows: In Section 2, we present a background on open government data, information retrieval, and Question-Answering. In Section 3, we present a literature review. In Section 4, we present our methodology. In Section 5, we present our experimental analysis. Finally, in Section 6, we present our conclusions and future work.

Background

Open Government Data: According to Jetzek et al. [START_REF] Jetzek | The sustainable value of open government data[END_REF], the open data term refers primarily to data that has been created or collected by government agencies for one purpose, but which is now available to the public for other purposes. Opening government data leads to several different communities using it simultaneously for different and productive purposes, and can be used as a means to achieve many ends. According to Jetzek et al. [START_REF] Jetzek | The sustainable value of open government data[END_REF], the following three criteria are arguments in favor of the potential benefit of opening government data: (i) the data can be shared and used by many at the same time at no additional cost; (ii) the data have productive value, often used as a resource for the production of something of interest and are rarely consumed directly; and (iii) the data is versatile and can be used as an input for a wide range of goods and services.

Also, according to Alzamil et al. [START_REF] Alzamil | A new model for effective and efficient open government data[END_REF], the availability of government data can play a crucial role in decision-making by government agencies. By making government data available to the public, citizens, professionals, and other interested groups can access the data to help monitor public spending and increase overall participation. In addition to better decision making, making data available can help prevent or minimize the abuse of government resources. When government officials know that their work is being monitored, they are less likely to make mistakes [START_REF] Alzamil | A new model for effective and efficient open government data[END_REF].

In this scenario, one important issue in Open Government Data is finding and recovering information from different sources. However, there is a lack of patterns for providing data in data portals, as well as data models interpretable by machines that could be useful for this task. In this work, we propose the use of Information Retrieval (IR) and Question and Answering (QA) techniques for this end.

Information Retrieval: According to [START_REF] Manning | Introduction to information retrieval[END_REF], Information Retrieval (IR) is related to finding material (usually documents) of an unstructured nature (usually text) that satisfies an information need from within large collections (usually stored in computers). So, IR is frequently used for helping people to recovery documents, typically by librarians, paralegals, and similar professional searchers.

In order to assess the quality of IR systems, we should measure retrieved data sets as relevant and non-relevant, through formal and appropriate IR assessment metrics. Two metrics widely applied for evaluating IR systems are Precision and Recall. For calculating these metrics, for each search result, all retrievable items fit one and only one of the four cells in a confusion matrix, shown in Table 1: (i) Retrieved or Not Retrieved, and (ii) Relevant or Not Relevant [START_REF] Buckland | The relationship between recall and precision[END_REF]. In this same For a retrieved dataset, with each item labeled as relevant or irrelevant, and its respective constructed confusion matrix, Recall R is the proportion of the number of relevant retrieved items regarding to all relevant items, i.e., R = N rec rel ÷ N rel .Precision P is the proportion of the number of relevant items regarding to all retrieved items, i.e., P = N rel ÷ N rec .

Question-Answering: Question-Answering Systems (QAS) are an extension of search engines using IR techniques, as they aim to automatically provide users accurate answers to questions asked in natural language, rather than only returning a list from relevant sources based on a set of keywords [START_REF] Dimitrakis | A survey on question answering systems over linked data and documents[END_REF]. The architecture of this type of system depends on the type of explored sources. A common approach is to use traditional IR techniques combined with Machine Learning and Natural Language Processing methods to extract answers from simple questions [START_REF] Dimitrakis | A survey on question answering systems over linked data and documents[END_REF]. According to [START_REF] Hirschman | Natural language question answering: the view from here[END_REF], the QA systems present an architecture composed of three basic modules: (i) processing of the question, (ii) processing of the document, and (iii) processing of the response, as shown in Figure 1. Fonte: [START_REF] Almansa | Uma arquitetura de question-answering instanciada no domínio de doenças crônicas[END_REF] The first step "(1) Question Processing" consists of transforming the question asked by the user -from natural language to computational language -and understanding the question in order to extract information that supports the selection of answers. In the second stage, "(2) Document Processing", the query already generated is used to retrieve relevant documents or datasets, and to extract candidate responses. Finally, in the third step, "(3) Response Processing", the candidate responses are ordered based on the analysis of the similarity between the question and the candidate responses and, thus, presented to the user. QAS commonly present a single answer to the user's question. However, they can also present several answers ordered by relevance, whether these responses are in text or visual format [START_REF] Athenikos | Biomedical question answering: A survey[END_REF].

Literature Review

There are some works in literature that tries to enrich user experience when leading to open government data, turning easier to manipulate the available data. Lahti et al (2017) [START_REF] Lahti | Retrieval and analysis of eurostat open data with the eurostat package[END_REF] introduce a package in R programming language, called Eurostat, for providing a rich collection of data through the open data service, including thousands of demographic datasets, economy, health, infrastructure, traffic, and other European topics. Statistics are generally available with optimal geographic resolution and include time-series that span several years or decades. The implemented package provides customized tools for accessing Eurostat's open data. The main features, such as cache, date formatting, organized data principles, and table data format, support seamless integration with other tools for data manipulation and analysis.

Kuo and Chou (2019) [START_REF] Kuo | Metadata assessment for efficient open data retrieval[END_REF] propose an evaluation mechanism based on metadata for analysis of metadata quality, spatial similarity and temporal similarity between user requests and open data. When evaluating metadata for each dataset, the metadata score in the engine contributes two scores, mandatory and optional scores. From the required fields and a combination of recommended and optional metadata fields, they calculate two scores. By extracting keywords from the user's input or addressing the location on a map, they perform the spatial similarity analysis. Also, they conducted a temporal similarity analysis comparing a query and the open dataset. A developed platform presents data related to punctuation, similarity, and classification that help users to obtain the expected data.

A significant problem that Smart Cities' information and data management systems are currently facing is the heterogeneity, not only of data flow but also of external data sources, such as the Linked Data web, whose use is inevitable in making decision making on the scale of a city. [START_REF] Kettouch | Semantic data management in smart cities[END_REF] [START_REF] Kettouch | Semantic data management in smart cities[END_REF] present a theoretical framework to manage data flow in Smart Cities and integrate it immediately with Linked Data for data retrieving and web semantics. The structure consists of a modular architecture that receives, as input, semi-structured, and heterogeneous linked data retrieved from various sensors and the data network, respectively. The general objective of the system is to offer an interface to facilitate automatic access to data from Smart Cities and publish it on Linked Datacloud to allow for future reuse.

Oliveira et al (2016) [START_REF] Oliveira | A platform to enrich, expand and publish linked data of police reports[END_REF] propose a platform capable of enriching police reports with public data available on the Web. The authors present an evaluation tool, which consumes the linked data provided by a Web API, expands it with data extracted from other sources, and provides an interface to assess the relevance of the expansions. The tool is capable of retrieving police reports to store data in a structured format. The main component of the proposed platform is a REST Web API that offers police report data extracted from the Public Security Secretariat of the state of São Paulo system website. The Web API provides report information in a structured and semantically annotated manner with vocabulary terms and ontologies used in linked open data.

As we can observe in these works, none of them present a general proposal that gather data in order to smartly responding open government data portal users. As far as we know, there is not any work in literature that explores IR and QA techniques in this scenario. In what follows, we present our methodology.

Methodology

Usually, open government data portals offer to users at maximum a basic search interface, similar to the basic internet search engines. The goal of our methodology is to allow smart data retrieval by users in open government data portals. Is is basically devided into two steps: (i) Processing User Questions and (ii) Retrieving and Delivering Data. Figure 2 illustrates the methodology used in this work.

Fig. 2: Methodology illustration

Processing User Questions: Our methodology firstly identify the citizen's question. We used Natural Language Processing (NLP) techniques, like tokenization and removal of stopwords [START_REF] Manning | Introduction to information retrieval[END_REF], for question processing, in order to point out the real purpose of the citizen when typing his search in the search bar of the application. For this, we used nlpnet library [START_REF] Fonseca | A two-step convolutional neural network approach for semantic role labeling[END_REF], a Python library for NLP tasks, based on neural networks. Currently, it performs identification of semantic functions. It can be used as a Python library or through its independent scripts. Most of the architecture is independent of the language, but some functions have been specially adapted to work with Portuguese. The nlpnet uses word vector representations as input resources for a conventional neural network architecture [START_REF] Falci | An automatic semantic role labeler for the portuguese language[END_REF]. Based on the result of the semantic interpretation of the user's question, we retrieve the title and description of the datasets. In work [START_REF] Pinto | How cities categorize datasets in their open data portals: an exploratory analysis[END_REF], the authors also take a similar approach, implementing a semantic analysis based on open government data, but the analysis is performed to minimize misunderstandings with the the semantics of the dataset categories used.

Retrieving and Delivering Data: From the results of the semantic interpretation of the user's question, a tool for collecting or havesting data is necessary in this step. We use the CKAN API or Comprehensive Knowledge Archive Network for data retrieval task. CKAN1 is a web-based management system, developed by Open Knowledge Foundation2 and is being used by more than 192 governments, institutions, and other organizations worldwide to manage open government data. CKAN is written in Python and it is useful for developers who want to write code that interacts with CKAN sites and their data. The API is also extensively documented and provides a comprehensive way to retrieve the metadata from the [START_REF] Kirstein | Linked data in the european data portal: A comprehensive platform for applying dcat-ap[END_REF] data catalog. For performing data retrieval, it is necessary to perform an API request, where the answer is a JSON file in a data dictionary format. In order to demonstrate the results, we developed two usage scenarios for the experiment.

Experimental Analysis

We implemented a tool that follows the steps of our methodology, available at https://github.com/RaissaBarcellos/openIR, using Python. For conducting our experiment, we retrived data from a catalog of open government data in Brazil called dados.gov3 . It aggregates data from the 26 Brazilian federal states and their municipalities. In order to evaluate the results obtaines in both scenarios, we must label each answer for a question from the retrieved answers as relevant and not relevant, in order to calculate P and R metrics. For calculating Recall, it should be necessary to verify each of the 39269 datasets if they are relevant or not for each question. So, for calculating R (Recall), we used Gauss curve equation to sample data fromt he portal [START_REF] Pasquali | Matemática Discreta[END_REF]. Eq. 1 defines the number n of samples should be selected from the entire population. In this equation, n is the sample size to be calculated; N is the population size (in the case of the experiment, 39269 datasets); Z is the standard normalized variable associated with the confidence level (in this case, a confidence level of 95%); p is the proportion we want to find (in this case, p = 0.5); e is the sampling error (in this case, e = 0.05). Using this equation, we sampled 380 documents at random from the entire data.gov portal.

n = N • Z 2 • p • (n -p) Z 2 • p • (1 -p) + e 2 • (N -1) (1)
Based on this, in order to validate our methodology, we conducted two experiments in two different usage scenarios.

Usage Scenario 1 (UC1): Maria wants to promote a debate about the sports context of Brazil, in her class of the 1st year of high school. With the platform, she can efficiently introduce students to the reality of the situation regarding initiatives to support sports in the country, using open government data. For this, using our methodology, she follows the following steps: (i) She connect to the platform; (ii) She writes "I want to know about sports in Brazil"; and (iii) She gets data related to the requested, shown in Table 2. The first column shows the title of the retrieved dataset, and the second column shows if the dataset is relevant or not for the question, labeled by a researcher in our university. We can observe that all of the datasets are relevant in this case. For matters of comparison, we asked the same question:"I want to know about sports in Brazil", in the search box on dados.gov , the results are shown in the Table 3. We can observe that none of the datasets returned by dados.gov are relevant to the question. Usage Scenario 2 (UC2): Sebastiao wants to understand more about Science in Brazil. With the platform, he can get to know the real situation about the country's Science, using open government data. For this, he follows the following steps: (i) He connect to the platform; (ii) He writes "Science in Brazil"; (iii) He gets data related to the requested, shown in Table 4. We can observe that all the datasets are relevant in this case. For matters of comparison, we asked the same question: "Science in Brazil", in the search box on dados.gov , the results are shown in the Table 5. We can observe that only one of the datasets returned by dados.gov are relevant to the question. In addition to the natural language processing work, our approach performs a search engine where we thoroughly analyze all the titles and descriptions of the datasets, so that there is a more effective result for the user. For each usage scenarios, in our platform, we obtained the following P values (Table 6); R values (Table 7). From these results, we observed high values of precision and recall. The high precision obtained means that our experimental platform returned substantially more relevant than irrelevant results. While the high recall value obtained means that the experimental platform returned most of the relevant results present on the portal.

Conclusions

We present in this work a methodology for retrieving data using Information Retrieval and Question and Answering techniques and methods. Our methodology involves using Natural Language Processing techniques to extract semantic meaning of the user's question and then perform the IR task. We implemented our methodology in a tool, available at https://github.com/RaissaBarcellos/ openIR. We carried out an experiment performing two task of recovering open government data taking into consideration the user's question. We used the Brazilian open government data portal dados.gov. We compared ur mechanism for retrieving data with the simple mechanism available by dados.gov. The results were expressive, considering that high values of precision and recall indicate a high power of data recovery of the platform. As future work, we intend to conduct a discussion of how semantic information retrieval mechanisms are essential in open data portals As a limitation of this work, we experimented with just one open government data portal, we can still perform the integration with other portals.

Fig. 1 :

 1 Fig. 1: Basic architecture of QA systems.Fonte:[START_REF] Almansa | Uma arquitetura de question-answering instanciada no domínio de doenças crônicas[END_REF]

Table , N

 , rec is the number of retrieved data and N rel is the number of relevant data sets.

		Relevant Not Relevant Total
	Retrieved	N rec rel	N rec rel	Nret
	Not Retrieved N rec rel	N rec rel	N ret
	Total	N rel	N rel	Ntot

Table 1 :

 1 Confusion Matrix

Table 2 :

 2 10 first datasets retrieved in our platform for UC1

	Retrieved Dataset	Relevant/Not Relevant
	[2013 to 2016] Stricto Sensu Graduate Teachers in Brazil	Not Relevant
	Methodological adjustment on internal debt -Bal-ances (R$)	Not Relevant

Table 3 :

 3 10 first datasets retrieved in dados.gov for UC1

Table 4 :

 4 10 first datasets retrieved in our platform for UC2

	Retrieved Dataset	Relevant/Not Relevant
	Number of Selected in the Research Support Notice of the Women and Science Program	Relevant
	Scholarships awarded in the Science Without Bor-ders Program	Relevant
	2.1.1 Brazil: National expenditure on science and
	technology (S&T) (1), in current values, by activity,	Relevant
	2000-2016
	Expenditure on science and technology	Relevant
	2.1.2 Brazil: National expenditure on science and
	technology (S&T) (1), in current values, in relation to total S&T and gross domestic product (GDP), by	Relevant
	institutional sector, 2000-2016
	Computer Science -2011	Relevant
	2.2.1 Brazil: Federal government expenditure on sci-
	ence and technology (S&T) (1) by activity, 2000-	Relevant
	2016
	2.2.2 Brazil: Federal government expenditures on
	science and technology (S&T) (1) (2) by agency,	Relevant
	2000-2016

Table 5 :

 5 10 first datasets retrieved in dados.gov for UC2

Table 6 :

 6 Precision Results

		Total relevant items in the sample	Total retrieved items	Recall
	UC1	1	1	100%
	UC2	3	3	100%

Table 7 :

 7 Recall results

https://ckan.org/

https://okfn.org/

https://dados.gov.br/