Explaining Digital Public Infrastructure
Government exists to serve people. Whether they're renewing a passport, applying for benefits, or filing taxes, Canadians interact with government through services. In the digital era, these services depend on something less visible but absolutely essential: digital public infrastructure (DPI). DPI is the modern foundation that connects the internal systems governments use with the external services the people in Canada rely on every day. For public servants, understanding DPI is crucial, because it is reshaping not only how government operates but also how Canadians experience services.
What is digital public infrastructure?
DPI refers to the shared digital systems, standards, and frameworks that make it possible for individuals, governments, and businesses to securely prove who they are, pay for goods and services, share information, and access entitlements online. It provides the underlying foundation that allows digital services to work with one another reliably and securely.
Think about your smartphone. Before you can use apps for banking, shopping, or chatting, your phone needs a secure operating system and an app store that lets you download and use many different apps. The operating system makes sure your apps can talk to each other, manage data properly, and run smoothly without crashing your phone. DPI works in a similar way but at the scale of a country's economic and digital infrastructure. It provides a shared digital foundation that allows different online services—from government portals to banking apps—to connect, share information, and deliver services safely and efficiently. Instead of every organization building its own "mini app store," DPI provides a common, secure environment where innovation and delivery of services to citizens can happen. When these systems are in place, government agencies, banks, small businesses, and app developers can all build on top of them—resulting in faster and more connected online services for everyone.
DPI is an ecosystem that combines technology, data, policy, and trust frameworks. Hallmarks of DPI models appear in the following illustration:
- Digital credentials or authentication: tools that allow people and organizations to verify who they are online (also known as digital identity)
- Digital payments: systems for secure money transfers between governments, businesses, and citizens
- Data exchange: the sharing of information between organizations in a secure consistent way
- Governance and trust frameworks: policies and oversight that ensure these systems are secure, inclusive, and accountable
Digital physical infrastructure as a goal and Canada's current progress
Although we talk about DPI as a goal, a vision of fully integrated, secure, and inclusive digital systems, Canada has made meaningful progress in several areas with shared authentication systems like Canada login (formerly "GC sign-in") and sign-in partners, which allow secure access to a wide range of federal services, including tax filing, employment insurance, and immigration applications. Electronic payment services like Interac e-Transfer and direct deposit are part of daily life but depend on extensive technical infrastructure and intermediary organizations, which are overseen and regulated by the Government of Canada. Canada is also advancing data interoperability standards through initiatives like the Pan-Canadian Trust Framework, which aims to harmonize digital identity and data sharing among provinces, territories, and the federal government.
However, these successes are often limited to specific programs or jurisdictions, and full interoperability between federal, provincial, and territorial systems remains a work in progress.
Learning from global examples
Canada is part of a growing global movement to modernize public services. Over 50 national governments are investing in large-scale DPI initiatives. You can explore how these efforts are unfolding around the world with this global interactive DPI tracking map.
Around the world, countries are building DPI using common foundations: digital identity or credentials, payments, and secure data exchange. While each approach is different, they share a focus on making services easier to access, faster to use, and more secure.
Digital identity and credentials (Australia and Singapore)
Australia's myID and Singapore's Singpass give people secure ways to prove who they are online and access multiple services with a single login. Users can choose how much information to share, and services request only what they need, with clear consent at each step.
These systems are widely used for everyday services like filing taxes, accessing benefits, signing documents, or applying for permits. By reusing verified information across services, they reduce repetitive form-filling and make online interactions more seamless.
Payments (Brazil)
Brazil's Pix system enables instant payments between individuals, businesses, and government services. Transfers happen in seconds, 24/7, and are free for individuals.
Users can send money using simple identifiers, like a phone number or QR code, without needing to provide full banking details. This has simplified everyday transactions, from paying bills to receiving salaries or government benefits, and has made digital payments more accessible.
Data exchange (Estonia)
Estonia's X-Road connects government and private sector systems so they can securely share data when needed. Instead of storing all data in one place, information stays with the organization that owns it and is only shared upon request.
Every data exchange is authenticated, encrypted, and logged. Citizens can see who accessed their information and why, which strengthens transparency and trust. This approach supports services like health care, taxation, and business registration without duplicating data.
These global examples highlight how DPI can improve access, speed, and convenience in public services. At the same time, they show the importance of strong governance. Clear rules for privacy, consent, and accountability are essential to maintain trust and ensure that systems are used responsibly.
No single model fits all countries, but these building blocks offer practical lessons for designing DPI in a way that balances innovation with the protection of people's data.
From digital public infrastructure to government as a platform
The next step in enabling digital government is adopting a "government as a platform" service delivery model that relies on common components for common service interactions.
DPI lays the groundwork for a new way of delivering public services that is often described as government as a platform (GAAP). While DPI is the shared digital foundation that supports secure and interoperable digital interactions across all sectors (not just government), GAAP is about how government uses that foundation to build and deliver services safely and efficiently.
The idea of government as a platform is to create a set of shared digital services, like authentication, payments, data access, and notifications, that can be reused by any government department and even external partners. In some cases, this can allow a consistent, secure, and connected service experience that avoids each department needing to build its own systems. At the same time, it can allow organizations to build access platforms and applications based on public systems and data, enabling innovation in service delivery approaches and allowing people to access services in a way that serves their needs.
Simply put, DPI provides the foundation and GAAP is the strategy that builds on it to deliver better government services.
Example: iPhone
A helpful way to understand this relationship comes from David Eaves, Associate Professor of Digital Government and Co-Deputy Director of the Institute for Innovation and Public Purpose at University College London, who uses the iPhone as an example.
When you upgrade your phone, he says, you sign in and all your apps immediately work, even though the hardware has changed. This seamless experience is possible because the phone is built in layers.
At the top are the apps you use every day. These change often: they update, improve, and evolve quickly. Beneath them are shared services that all apps rely on, like access to the camera, GPS, or notifications. Below that is the operating system, which stays relatively stable, so apps don't break. And at the very bottom is the network layer, like 4G or 5G, which changes even more slowly. Each layer can improve or evolve at its own pace because the layers below it are stable and well designed.
The benefits of digital public infrastructure
Rather than being a single system, DPI works as a set of interoperable shared building blocks, like digital identity or credentials, payments, and data exchange, that can be reused across services. When these foundations are in place, governments can deliver simpler, faster, and more connected services.
What this can look like in practice
Simpler, connected services: People don't have to repeat the same information in every program. With shared standards and consent, services can work together, creating a "tell-us-once" experience across departments or even jurisdictions.
Faster access to programs and benefits: Eligibility checks can happen more quickly when systems can securely use verified data. This can reduce wait times and help people get support when they need it.
Stronger privacy and trust: Well-designed systems only share the minimum data needed, with clear consent and audit trails. People can see how their information is used, which helps build and maintain confidence in the system.
More efficient government operations: Reusable components reduce duplication. Instead of building the same tools multiple times, organizations can rely on shared services, saving time and resources while better protecting privacy and the safety of data and systems.
Support for innovation and economic activity: Common standards make it easier for businesses to connect with government systems and participate in digital markets. They also create a more stable foundation for emerging technologies, like artificial intelligence.
Challenges of digital public infrastructure
While DPI promises to improve the delivery of public services, building it comes with complex challenges. Many challenges are shared globally, while others are more specific to Canada.
Common challenges
Security and privacy risks: As more services become digital, more data needs to be protected. Stronger safeguards, governance and accountability are essential.
Interoperability: Many organizations rely on older systems that don't easily work together. Aligning them requires time, standards, and technical effort.
Inclusion and access: Not everyone has reliable internet access, devices, or digital skills. Systems need to work for everyone, including those in low-connectivity or remote environments.
Vendor reliance: Depending too heavily on a small number of technology providers can create risks in terms of flexibility, cost, and long-term resilience.
Governance and funding: DPI is not a one-time project. It requires ongoing investment, clear roles, and coordination across many partners.
Challenges specific to Canada
Coordination across governments: Responsibilities are shared across federal, provincial, territorial, and municipal levels. Aligning priorities and systems is difficult but essential.
Siloed systems and inconsistent standards: Departments often use different systems and data definitions, which makes sharing information harder and can lead to duplication.
Policy and legal barriers: Existing rules, including privacy legislation, can make data sharing difficult by default. Clear frameworks are needed to enable safe and trusted exchange.
Indigenous data sovereignty: Systems must respect Indigenous rights and principles for how data is collected, used, and governed.
Digital sovereignty and infrastructure choices: Reliance on external providers raises questions about control, ownership, and the long-term sustainability of Canada's digital systems.
Looking to the future
Building a reliable and effective DPI is a gradual process. Countries that are making progress tend to follow similar paths to help move things forward: they have a shared vision and clear roles. Governments and partners need a common direction with defined responsibilities that cross sectors.
Aligning policies, funding, and procurement: Rules and investments should support open standards, interoperability, and reusable solutions.
Investment in core infrastructure: This includes secure digital credentials, data standards, shared platforms, and skilled teams to support them.
Iterative development: Instead of being a large, one-time project, DPI is built incrementally. Testing, learning, and improving must continue over time.
Learning from others and exploiting new technologies: Countries continue to adapt lessons from global experience while exploring opportunities in areas like artificial intelligence and automation.
What's next for Canada?
Canada already has many of the building blocks in place, but connecting them remains a challenge. Progress will depend on sustained collaboration across jurisdictions, clear governance, and continued investment in shared foundations.
Done well, DPI can support better services, stronger participation in the digital economy, and greater trust while ensuring that people remain in control of their data.
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