2014 IEEE/ACM 7th International Conference on Utility and Cloud Computing

Smart City as a Service (SCaaS) -

A Future Roadmap for E-Government Smart City Cloud Computing Initiatives

Trevor Clohessy, Thomas Acton, Lorraine Morgan

Business Information Systems, Whitaker Institute,
National University of Ireland Galway, & Lero -
The Irish Software Engineering Research Centre, Ireland
{t.clohessy2, thomas.acton, lorraine.morgan}@nuigalway.ie

Abstract - The concept of a smart city has been identified as included:

not only representing a crucible for technological innovation, a
medium for realizing global integration but also as an “Communications will become sight-sound and you will see
exemplar response for addressing current and impending as well as hear the person you telephone. The screen can be
global issues (societal, environmental economic and used not only to see the people you call but also for studying
governance). There is now general consensus that emerging documents and photographs and reading passages from
information communication technologies (ICT) such as cloud books.”
computing can be deployed as a vehicle for catalyzing smart
city innovation. There is also evidence to suggest that cloud “In 2014, there is every likelihood that the world population
computing has become a strategic direction for many e- will be 6,500,000,000…. Although technology will still keep
government initiatives as evidenced by the emergence of global
government clouds (G-Cloud). In this paper, we delineate the
up with population through 2014, it will be only through a
concept of a smart city and explore the propitious potential of supreme effort and with but partial success. Not all the
cloud computing to enable the development of smart cities. We world's population will enjoy the gadgetry world of the future
review the current state of the art pertaining to a selection of to the full…. Nor can technology continue to match
cloud schemes currently being operationalized by international population growth if that remains unchecked.”
governments aimed at capitalizing on the nascent innovation
capabilities of the technological paradigm, and present a future “the I.B.M exhibit at the present fair has no robots, but is
research roadmap for cloud facilitated smart city development. dedicated to computers which are shown in all their
complexity…. if machines are smart today, what may not be
Keywords - cloud computing; smart city; innovation; in the works 50 years hence? It will be such computers,
government; g-cloud much miniaturized…”

It is now 2014, and despite Asimov’s unrealized

I. INTRODUCTION predictions for “underwater luxury hotels” “moon colonies”
“There is a pervasive feeling that the future has already and “robot maids”, we live in a world, which has been
largely moulded by rapid accelerated advances in
arrived…the pace of the future is dramatically faster than
technology over the past 50 years, where information,
the speed of the past. Should the future carve a roadmap for
communication and technology (ICT) pervades all facets of
us to tread or should we become competent enough to modern society, industry and government. Concurrent to
construct a roadmap for our future? This needs a concerted advancements in ICT, “the acute crisis of economic
decision. Let’s make it now”. [28] recession exacerbates the problems plaguing all cities,
including the quality of public education, gaps in health
In 1964, American author and Professor Issac Asimov, care, crime rates, transportation, and preparation for a
following a visit to the world fair technological conference, globally competitive digital future” [2]. In addition, rapidly
penned his imagining, in an article for the New York Times, increasing urban sprawl and population growth have only
of what technological advances would come to be in the served to compound these issues. The word urban
world of 2014 [1]. Remarkably, he was quite accurate in his population is expected to increase by 72 percent by 2050,
extrapolating of not only future global population growth from 3.6 billion in 2011 to 6.3 billion in 2050 [3]. City
and corresponding technology chasms but also with regard services and infrastructure, which are already experiencing
to future technological advances based on the exhibits excessive strain, will experience great difficulties when
displayed at the fair. Examples of Asimov’s envisioning attempting to provision the most rudimentary of services
[4]. However, [2] profess their vision for future smart cities in

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which world leaders combine technological capabilities and denotes the increasing ability of enterprises and consumers,
social innovation to enable the development of a smarter, utilising software products and services, to innovate for
sentient even, world comprising smarter communities that themselves. [5] propose a typology which delineates the
sustain the eudemonia of all citizens. Cities however “can only typical functions inherent in a smart city comprising smart
be smart if there are intelligence functions that are able to economy (competitiveness), smart people (social and human
integrate and synthesize data to some purpose, ways of capital), smart governance (participation), smart mobility
improving the efficiency, equity, sustainability and quality of (transport and ICT), smart environment (natural resources)
life in cities” [5]. This paper contributes to the e-government and smart living (quality of life). Innovative ICT can be used
literature because currently, to the best of our knowledge, no by “visionary, innovative leadership to create sustainable
research has specifically explored the role of cloud computing solutions that reduce costs, focus resources on issues high on
in the development of smart cities. This research represents an the public agenda and forge connections amongst
initial step in a series of planned future research aimed at organisations and agencies with similar goals” [2]. Cities
investigating how the nascent capabilities of the cloud worldwide are increasingly undertaking the role of facilitators
computing paradigm can be harnessed by governing of innovation in critical areas such as business, health,
authorities. To this end, we first discuss the concept of a smart environment and inclusive ICT [7]. City authorities are
city and explore the role ICT has played in the evolution of striving to deploy intelligent cost effective ICT solutions in
smart cities. In Section III, we delineate cloud computing and their management of everyday public services. The emergence
review the current state of art pertaining to a selection of of innovative low cost technological platforms such as cloud
global e- government cloud initiatives currently being computing can equip city and urban policy makers with the
operationalized. Section IV outlines a future roadmap for technological arsenal not only to analyse data and business
smart city research and we also formulate a proposal detailing metrics for cogent decision making but also enable them to
how cloud technology initiatives can be mobilized by anticipate issues to resolve them proactively and coordinate
governing authorities in order catalyze smart city city resources to operate more efficiently.
development. Finally, we conclude the paper in section V.
A. Smart City Evolution
II. SMART CITY
From antiquity to modern times, ICT has been utilised by
City and urban environments represent abstruse social ruling authorities to augment their ability to govern and
ecosystems which comprise of local government, citizens and support cities. [11] provides examples of four case studies to
organisation entities. Currently these entities are experiencing illustrate the cogent role which information systems played in
specific requirements relating to salient themes such as the development of the lost city civilisations of Shurrupak
business and employment creation, sustainable development, (Sumerian city), Sumer (Mesopotamia Empire), Cuzco
energy and water, public safety, environment, healthcare, (capital city of Inca Empire) and Hattusa (capital city of Hittie
education and public services, all of which are, in some form Empire). For example, the city of Shurrupak, active between
or another, are being increasingly facilitated and enabled by 3000BCE and 2000BCE, operationalized an administrative
ICT. Concurrently to these requirements, the latest turbulent system which enabled the structure and life of the city to be
global economic downturn is increasingly placing pressure on sustained via flows of information which drove economic
cities to cut budgets resulting in deleterious effects not only on activity. These flows of information were documented in
the maintenance and upgrade of current ICT infrastructure and tablet form, which resembled ‘dynamic computers’, and stored
facilities but also on future innovation polices. However, the in tablet houses. While the purpose of these aforementioned
concept of a “smart city”, also known in the guises of information systems served the best interests of the ruling
intelligent city, information city, digital city, e-city and virtual elite, there is no reason to deduct that the purpose of present
city, has been identified as being an exemplary example of a day information systems is any different, driving the political
response to address the current and future complex challenges agendas of powerful stakeholders in government and in the
of increasing resource efficiency, reducing emissions, private sector [11].
sustainable health care services for ageing populations,
empowering youth and integrating minorities [6, 7]. In the 1960s, the concept of “model cities” was contrived
in the U.S as means of creating an effective city and social net,
Smart cities have been characterized as “places generating however due to political discord and the inherent failure to
a particular form of spatial intelligence and innovation, based address the interconnected nature of government, enterprises
on sensors, embedded devices, large data sets, and real time and citizens, the initiative never came to fruition [2]. The
information and response” [8]. [9] propose a holistic definition arrival of the “New Economy” during the 1990’s,
for a smart city which embodies a city where “investments in encompassing the commercialization of the internet and
human and social capital, transport and modern ICT corresponding advancements in innovative ICT, provided
infrastructure fuel sustainable economic growth and a high governments, existing enterprises, de novo entrants and
quality of life, with a wise management of natural resources customers with opportunities to exploit new virtual market
through participatory government”. Two salient issues places and rejuvenate economic prosperity [12]. By 1996,
identified in the aforementioned definition include the public organizations were coming under increasing pressure to
requirement for investments in modern ICT and also the capitalise on the commercial success of the web, thus resulting
requirement for participatory government, a concept which in the initiation of the first digital city initiatives [13].
refers to the empowerment of cities citizens, a form of
“democratic innovation”, first popularised by [10], which

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 Following the collapse of the dot.com bubble in the early component for the development of a smart city where
2000s, it became apparent that there had been a widespread operations and services are truly citizen-centric.
misconception amongst these entities on how to best leverage
Government G-clouds have been identified as “promising
ICT advancements. However, driving factors such as the
emerging knowledge economy, the restructuring of global models for smart cities, creating urban clouds that reduce IT
financial services, increasing demand for efficient and costs, and providing platforms for small business applications
effective public services and increasing environmental and e-services” [13]. [18] opine that government cloud
awareness, have catapulted the propitious capabilities of initiatives represent promising models for larger cities which
emerging ICT back into the policy arena. In the next section, not only enable a reduction in IT costs, but also create
we define the cloud computing paradigm and we also discuss effective innovative platforms for applications and e-services
how the nascent capabilities of the cloud are being leveraged which may be leveraged by enterprises and citizens.
by city authorities as a vehicle for catalysing their smart city According to [19] cloud computing represents “a
agenda. fundamentally different way for government to architect
computing resources, allowing governments to leverage
powerful IT infrastructures in a fraction of time.” Use of
III. CLOUD COMPUTING emerging technologies such as cloud computing can enable
In its entirety, cloud computing represents the evolution the “development of smart governance infrastructures which
and convergence of several independent computing trends provide transparency of public efforts, promotes cultural
such as Internet delivery, ‘pay-as-you-go’ utility computing, flourishing and can increase accountability [20]. A
elasticity, virtualisation, grid computing, distributed ubiquitous/pervasive computing infrastructure has been
computing, storage, and more [14]. These components are identified as constituting a key technological component in the
typified and converged in the description presented by [15] as development of a smart city enabling the provision of
that proposed by the American National Institute of Standards “interoperable, Internet-based government services that allow
and Technology (NIST), describing cloud computing as “a ubiquitous connectivity to transform key government
model for enabling ubiquitous, convenient, on-demand processes, both internally across departments and employees
network access to a shared pool of configurable computing and externally to citizens and businesses”[17]. [21] explored
resources (for example, networks, servers, storage, the enterprise resource planning (ERP) potential of cloud
applications and services) that can be rapidly provisioned and computing for e-Government as a viable mechanism for
released with minimal management effort or service provider replacing the traditional cumbersome implementation process
interaction.” Further, this description is specific in detailing of ERP. The authors identified particular aspects of the cloud
cloud computing as comprising five essential characteristics, computing model of direct relevance to public sector cloud-
four deployment models, and three service models. The cloud based ERP such as low implementation, continuing, licencing
infrastructure consists of a physical layer (hardware resources) and support costs; faster implementation of IT projects,
and an abstraction layer (software deployed across physical increased agility and the enhanced ability to demolish public
layer) which resides on top of the physical layer. This sector silos in order to align public service legacy systems and
definition for the continually evolving cloud computing processes. On a global level, a number of government
paradigm is “intended to serve as a means for broad agencies, having witnessed the capabilities of the cloud in the
comparisons of cloud services and deployment strategies, and private sector arena, rather than paddling are diving in to the
to provide a baseline for discussion from what is cloud cloud computing waters.
computing to how to best use cloud computing” [15]. In South Korea, the government are currently in the
process of migrating to the cloud with the intention of
A. Catylyisng Smart City Development with Cloud Computing becoming the “strongest cloud computing country in the world
In an effort to improve efficiencies, reduce expenditures by 2014” [22]. Their comprehensive strategy to promote pan-
and deliver a high standard of living expected by citizens governmental cloud computing will initially commence with
while balancing budgets, city authorities are increasingly migrating public sector service agency services, involving the
looking to innovative ICT [4]. The technical architecture of a integration of 40 government departments, to the cloud with
smart city is comprised of a hardware layer (transducers, the intention of laying a foundation for rejuvenating the
signal conditioning, communication links, energy harvesting private sector market in South Korea. The government have
and so on) and an application layer (data presentation, big data adopted a private cloud for their migration process, in contrast
analysis, geolocation, web integration and so on) which is to other international governments who have adopted public
enabled by smart technologies such as cloud computing [16]. clouds, due to security concerns. The South Korean
Cloud computing can enable “economies of scale, government recognise that in order to have a consistent cloud
standardisation of applications and turnkey solutions for implementation across all public sector agencies, there needs
software as a service (SaaS), which dramatically decrease the to be cohesive implementation of laws, policies, project
development costs associated while accelerating the learning promotion, technology development, personal nurturing, and
curve for operating smart cities” [6]. [17] argue that smart public relations (PR) at pan-governmental level thus
government, which “interconnects dynamically with citizens, necessitating the requirement for a robust governance system
communities and enterprises in real time to spark growth, [22]. Furthermore, the South Korean government in
innovation and progress”, represents a fundamental conjunction with the private sector have collaborated on a
cloud computing project entitled “Next-Generation Digital

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Service in a Cloud Computing Environment" which has required not only to overcome problematic issues but also to
developed such projects as the N-Screen Service, which assist with the organizational and cultural changes associated
“enables data sharing on multiple platforms for mobile with migrating to the cloud.
phones, tablet computers, televisions, and personal computers”
[19] acknowledges that due to the lack of technology
[19].
acceptance research a public sector arena there is a need to
In the U.S, the costs savings experienced by the private “develop and gain empirical support for models of technology
sector companies has also manifested in public sector acceptance within the public sector, and to examine
organizations that have transitioned to cloud based technology technology acceptance and utilization issues among public
solutions [29][30]. Under the umbrella of the governments employees to improve the success of implementation in this
First Cloud initiative, which mandates that governmental arena”. In order to assist governments in promoting cloud
agencies harness the full capabilities of cloud computing services as a medium of improving public sector services the
technology, the city of Washington D.C. experienced cost authors propose a framework to “identify the antecedents of
savings of 48% following their transition to cloud computing. users' intentions to adopt cloud computing in the public
In May 2013, the United Kingdom (UK) government adopted sector”. They outline a number of recommendations, based on
a ‘cloud first’ strategy as an extension to their established G- factors drawn from their framework model, for governments
Cloud initiative, which mandates that purchases through the which include; cloud service providers in conjunction with
cloud should be the primary option considered by public governments should actively engage in the promotion of
sector information technology departments when procuring increased transparency with regards cloud security issues,
information technology (IT) products and services. The main policies must clarify the application of trade disciplines to the
aims of the G-Cloud and corresponding First Cloud strategies delivery of cloud services, regulators and policymakers must
are to: increase the adoption of cloud technologies across the collaborate to ensure robust privacy regulations, governments
public service; create more agile structures which facilitate must ensure open access across public clouds and guidelines
enhanced IT delivery which supports government must be designed concerning scalability tolerance and risks.
technological policies and strategies; meet sustainability and
The use of emerging technologies such as cloud computing
environmental targets and create a dynamic procurement
can enable governing authorities to design systems that engage
which supports emerging suppliers.
societal challenges proactively and develop “smart governance
In Ireland, November 2011 marked the launch of the Irish infrastructures which provide transparency of public efforts,
Government’s Public Service Reform Plans, which contained promotes cultural flourishing and can increase
commitments to cloud computing and shared services. accountability”[20]. However, current smart city technological
Specifically, the reform plans outlined a commitment to solutions “are more vendor push than that city government
maximize new and innovative service delivery pull based” [6]. Therefore, further research is warranted into
channels through piloting the use of cloud computing and exemplar examples of smart city initiatives which investigate
evaluating a roll-out across the public service. There is also a the dynamics of various stakeholders and the mechanics of
commitment to the establishment of consistent baseline policy innovation in city governments [17]. Further research is
performance information across a number of functional areas also warranted into the development of effective smart city
e.g. Finance, HR, ICT. In February 2012, the Irish government strategies which incorporate urban development objectives
unveiled its first cloud computing initiative Cloud4Gov. The and strengths, weaknesses, opportunities and threats (SWOT)
Cloud4Gov programme, a synergetic partnership between IDA analysis [8].
Ireland and the EMC Corporation, involves the construction of
In the next section, we outline a future roadmap for smart
a cloud center with hubs in government networks. The
city research also explicate our proposal for city authorities
Cloud4Gov programme has been lionized not only as a vehicle
contemplating utilizing cloud computing to mobilize their
for driving the smart economy but also as a means of putting
future smart city agenda.
Irish e-government on the map as a “first mover” in its
attempts to leverage the innovation capabilities afforded by
cloud computing. IV. FUTURE ROADMAP
Despite the Hong Kong government’s optimistic view of Enterprises such as Ericsson, IBM, Cisco and Microsoft
cloud computing that “collaboration and communication – are also largely involved in the moulding of the smart city
internally, between departments, and with citizens – hold research agenda. These companies are conducting innovative
maximum potential with a shift to cloud technologies” they research into how next generation ICT, such as wireless
are maintaining a cautious and parsimonious approach to network sensors, the internet of things (IoT), open data,
migrating specific public sector services to the cloud which is semantic web and cloud computing can be applied to address
mainly rooted in security and privacy concerns [19]. In an the challenges and issues facing future cities. Ericsson labs
attempt to improve operational efficiency and reduce costs, the research is focused on technology enablers which facilitate the
Japanese government, with their Kasumigaseki strategy, hope development of ‘future-connected megacities’ that embody the
to unify all government ICT systems into a single cloud [23]. tagline: the Safe City, the Creative City and the Greener City.
However, following an in-depth analysis of cloud service In 2008, IBM launched their smarter planet vision which
implementation strategies in the US (First Cloud), UK (G- envisaged that future smart cities would benefit from
Cloud) and Japanese (Kasumigaseki), Song et al. [22] instrumented (embedding of sensors across entire ecosystems),
concluded that comprehensive government guidelines are interconnected and intelligent systems.

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 IBM have also developed several tools, including the number of cloud technologies on a hosted platform to
Smarter City Assessment Tool, the Actionable Business support and assist with the standardisation of core city
Architecture, and the Municipal Reference Model, which services. As smart city research is currently being steered by
enable governing authorities to evaluate their smart city needs salient priorities concerning contemporary urban development
and identify opportunities for innovation. However, there is and city governance [6], we suggest that this G-Cloud pilot
an urgent need for governments to “coordinate and integrate project could harness the propitious capabilities of two
technologies that have hitherto been developed separately emerging open innovation platforms in the form of living
from one another but have clear synergies in their operation laboratories and crowdsourcing for enabling the participation
and need to be coupled so that many new opportunities which and intelligence of citizens and enterprises.
will improve the quality of life can be realized” [5]. European
The living laboratory concept, which embodies open
commission pilot smart city schemes such as FP7-ICT and
business models of collaboration, represents a fundamental
CIP ICT-PSP are currently experimenting with user-driven
methodology for the manner in which user-driven ecosystems
innovation environments. The main aim of these initiatives are
should be organised. Cities such as Amsterdam (Visible City),
to demonstrate that smart cities possess the potential to assume
Copenhagen (Realtime City) and Rome (Wiki City) have
the role of innovation ecosystems that can “empower the
established pilot networked Living Lab initiatives, for
collective intelligence and the co-creation capabilities of
investigating how ICT interacts with citizens and how those
user/citizen communities for designing innovative living and
citizens are moulding these ICT solutions to incorporate them
working scenarios” [6].
into their everyday lives [13]. The 'European Platform for
[6] have identified a number of actors that will have Intelligent Cities' (EPIC) living laboratory project combines
pertinent roles to play in the development of user driven cloud computing platforms with emerging internet
open innovation smart city ecosystems which include: technologies to provide advanced e-Government service
citizens, governments, enterprises and researchers. The applications which support city administrations, citizens and
authors argue that the synergistic partnering and linkages, enterprises via the creation and distribution of effective,
incorporating clear cooperation strategies and frameworks sustainable user driven smarter city services.
amongst these aforementioned stakeholders, will enable
them to effectively share technical, research and innovation Crowdsourcing may be also leveraged by city policy
resources such as user communities, experimental ICT makers, for catalysing user driven smart city open
platforms and tools, methodologies and know-how. innovation [24-26]. According to La Vecchia and Cisternino
“a natural convergence of crowdsourcing techniques is
[18] present a technological innovation roadmap toward cloud computing”. One example is the Amsterdam
comprising of a two dimensional mapping of layers and smart city living lab that currently operationalises
several time periods, specifically 2014, 2017 and 2022. The crowdsourcing experiments as a means of extracting
vertical dimension addresses factors such as technological wisdom from the collective intelligence of citizens “smart
change, business change, policy change and social change. crowd” to find solutions to policy and technological
The time dimension incorporates short term, medium term and problems. The overall aim of this G-Cloud pilot project
long term targets. The proposed innovation roadmap identifies would be to deliver prerequisite minimum capability and
a number of salient themes at the interchange of future internet depending on the results of the G-Cloud pilot project could
technologies and smart cities. Recurring themes of the provide the foundation for the aligning and standardising of
innovation roadmap, which are identified as being of mission critical city services on a mass scale (fig. 2).
important significance for city policy makers worldwide,
include smart city pilot cloud schemes, city-wide open
platforms for embedded systems and migration to cloud
computing. Cloud computing is identified as being a
significant enabler, over the forthcoming 8 years, for
governing authorities intending to deploy strategies for smart
cities, e-infrastructure and e-services that will address the
challenges of sustainable development. The authors argue that
that innovation roadmap can provide guidance for city
authorities in their endeavours to formulate robust policies
which can address the challenges of planning for future smart
cities and the interlinked layers of technology, people driven
innovation ecosystems, infrastructure and urban activities.
We propose that one possible avenue for g o v e r n i n g
a u t h o r i t i e s to leverage the capabilities afforded by cloud
computing would be to transition and consolidate a number of
core city services, on a pilot project basis, into a single G-
Cloud project (fig.1). This G-Cloud pilot, comprising a
collaborative effort between government, citizens, businesses Fig.1. Pilot smart city G-Cloud project
and researchers, could perhaps trial and implement a

840
 for the development of smart cities. We have contributed to
this research priority by proposing a cloud computing smart
city strategy which would enable governing authorities to
cultivate their e-government and smart city agendas prior to
deployment on a mass scale.

This research represents an initial step in a series of

planned research activities aimed at identifying how cloud
computing can catalyze the smart city research agenda.
However, It can take upwards of a decade for a city to
become smart with the impetus emanating from a
prodigious government investment or from “visionary
leaders who galvanize the citizenry and business
community to channel their energy and resources into such
a project” [4]. It is envisioned that governing authorities
who readily embrace cloud computing on their e-
government and smart city agendas as a vehicle for
changing the status quo and who are adept at fostering a
culture of collaboration and innovation with their citizens
and enterprises will reap the rewards in their endeavors to
build a sustainable future.
Fig.2. Smart city G-Cloud platform
ACKNOWLEDGMENT
This work was supported, in part, by Science Foundation
V. CONCLUSION AND FUTURE WORK Ireland grant 10/CE/I1855 to Lero - The Irish Software
Engineering Research Centre (www.lero.ie).
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