Building a digital state: Top-down v. bottom-up approaches

By Heiko Vainsalu, Head of Interoperability and Solutions 

Digitalising a country is a long and complex process that transforms how services are delivered, reshaping public service provision and societal norms. It involves many stakeholders, challenges existing practices and tests societal values, bringing both risks and opportunities. The key challenge lies in finding the most effective approach to creating meaningful, lasting change while balancing innovation and stability. 

Over the years, eGA experts have worked with numerous countries to address the complex challenges of digital transformation, gaining valuable insights into effective strategies. Among these collaborations, Madagascar and Zimbabwe stand out as two African nations that have adopted distinctly different approaches to their digital transformation journeys. Madagascar has taken a bottom-up strategy, focusing on addressing challenges at the ground level and tailoring solutions to meet immediate needs. In contrast, Zimbabwe has chosen a top-down approach, emphasising strategic planning and comprehensive frameworks to guide its transformation efforts. These contrasting strategies provide valuable lessons on how governments can shape digital futures. At eGA, we have been privileged to support these nations in their journeys, applying our expertise to help refine and implement strategies that best fit their unique contexts. 

Which direction to take? 

Both the bottom-up and top-down approaches offer distinct advantages, and the right choice depends on a country’s specific circumstances. The bottom-up approach focuses on identifying obstacles at the operational level and implementing targeted projects to resolve them. By addressing immediate, practical challenges, it often delivers quick wins and solutions tailored to specific needs. 

By contrast, the top-down approach begins with a strategic vision. This involves creating a master plan or whole-of-government architecture, defining key building blocks of digital transformation, and cascading these capabilities down to organisations and service providers. While slower to start, this method ensures consistency with broader goals, delivering planned and predictable outcomes. 

Finding the balance 

The key question is: which approach offers “more bang for the buck”? The bottom-up method may seem advantageous because it directly addresses pressing issues. However, its impact may be limited if solutions are not in line with larger strategic goals. This is where the top-down approach excels – it provides a cohesive framework that aligns efforts with a nation’s overarching vision. Though gaining momentum may require more time, the top-down approach can yield impressive results once stakeholders adopt the necessary values and mindset. 

The answer lies in striking a balance. Combining the strengths of both approaches maximises benefits and ensures a comprehensive digital transformation, but this requires meeting specific prerequisites for each model. 

• Top-down success relies on a strong ICT governance model consistently applied to drive necessary mindset changes. However, long-term planning frameworks also offer stakeholders the time and assurance to adapt effectively. 

• Bottom-up success demands a thorough understanding of organisations’ practical challenges and the flexibility to adjust plans as new needs arise. 

Ultimately, finding the right balance depends on an organisation’s management style and readiness for change. There is no single approach to digital transformation that fits every scenario – that is what makes it dynamic and adaptable. By blending the strategic vision of the top-down approach with the practical focus of the bottom-up method, governments can address immediate needs while building a resilient foundation for long-term success. 

The experiences of Madagascar and Zimbabwe illustrate how tailored approaches can shape successful digital transformation journeys. While their paths differ, they highlight a universal truth: meaningful progress comes from understanding local contexts, connecting strategies with national goals and maintaining flexibility in execution. 

These lessons resonate far beyond these two nations. Over the years, eGA has worked with governments across various regions, applying these principles to create impactful digital solutions that meet the unique challenges of each country. Whether implementing secure data exchange systems, developing national digital strategies or supporting institutional reforms, eGA’s expertise is grounded in a commitment to building inclusive, sustainable digital futures for all.