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Despite significant progress in modernizing technology to streamline internal processes and enhance citizen-facing services, many local government agencies still depend on “Frankensuites,” a fragmented collection of mismatched software solutions pieced together over time to meet evolving organizational demands. While these disjointed systems might address basic operational needs, they come with substantial drawbacks, from rising maintenance costs and continuous technical challenges to heightened cybersecurity risks and inefficiencies in decision-making.

These patchwork systems also hinder an organization’s ability to meet growing citizen expectations, as the rise of online transactions, widespread mobile device usage, and seamless customer service in the commercial world has raised public expectations for how they interact with local government agencies. Additionally, Frankensuites and the contrived system of stems needed to keep them running often prevent organizations from optimizing their operations—an issue that becomes even more salient as staffing shortages continue to grow in the public sector.

Join us as we explore Frankensuites, their implications for citizen-facing services and government efficiency, the characteristics of next-generation government experiences, steps taken by high-performing agencies, as well as key challenges and roadblocks facing local government in 2024 and 2025.

What Are Frankensuites?

Many organizations unknowingly operate a Frankensuite, a fragmented software ecosystem that develops organically as technology needs arise and additional tools and services—such as payment processing, billing, or general ledger—are layered into existing solutions. These fragmented systems are characterized by ill-matched components housed across multiple cloud environments, with some legacy systems still hosted on-premises.

Despite a push for integration, Frankensuites rarely work cohesively as a unified system. Each additional software solution introduces a new data model or structure, limiting interoperability and diluting the integrity of an organization’s “single source of truth.”

From a management perspective, maintaining a Frankensuite can feel like holding an entire system together with duct tape while playing “whack-a-mole” as issues inevitably arise. This IT fragmentation leads to increased frustration as complexity grows and wastes valuable staff time and money. Particularly in the public sector, organizations cannot afford to be in the business of managing the complex infrastructure associated with legacy solutions, particularly as challenges are compounded by concerns of cybersecurity risk and compliance. Moving beyond maintaining outdated systems and taking an integrated platform approach empowers organizations to focus on focus on innovation and drive the best outcomes for constituents.

Frankensuites come at a significant cost, impacting both employee satisfaction and an organization’s ability to serve citizens effectively.

1. Customer Satisfaction – Inconsistent or inefficient systems can delay service delivery and frustrate citizens.
2. Employee Engagement and Retention – Complex, unreliable tools can lead to employee dissatisfaction and turnover.
3. Technology Modernization – The ongoing expense of maintaining outdated, disconnected systems diverts resources away from innovation.

Evolving Citizen Expectations

Historically, most people expected government services to lag a bit behind the private sector in technology modernization. But in recent years, the prevalence of online transactions, mobile device usage, and efficient customer service in the consumer world has directly impacted the way citizens want to engage with their local government agencies as well.

However, with outdated websites and patchwork systems with multiple logins, many organizations are failing to keep up. According to the Springbrook Research Institute’s 2024 survey on citizen expectations, dissatisfaction with online government services is widespread:

• 98% of respondents want improved user experiences and stronger investment in security, especially as local governments are prime targets for cyberattacks.
• 74% rate their interactions with local government websites as “somewhat non-user friendly” or “not user-friendly at all.”
• 34% are specifically looking for updates to the visual and functional design of online customer portals.

The message is clear: citizens demand a significant overhaul of their digital experience with local governments, including in areas such as end-user portals, billing, customer service, data protection, and more.

Local governments will also need to prioritize mobile enablement—an increasingly vital component of successful technology modernization, as half of all website visitors use mobile devices, and many rely exclusively on smartphones to access government services. In addition, citizens expect to engage with government services on multiple channels—whether through in-person interactions at city hall, social media, or online portals—and move seamlessly between them.

Meeting these expectations will require more than simply adding more services to the website or making PDF forms available online. Organizations must rethink both the front-end tools that citizens interact with and the back-end systems that support these processes, creating a seamless, omnichannel experience across all touchpoints. This modernization will not be possible without uprooting the Frankensuite system of mismatched technologies and replacing it with a platform-based solution.

Addressing Employee Engagement & Retention

Technology modernization isn’t just about citizen-facing improvements; it also affects how key services are delivered by employees. Workforce challenges rank high among top concerns for government agencies, as many face significant talent shortages. While the number of job postings is steadily increasing, the number of applicants is declining in tandem.

Adding to the challenge is the impending “Silver Tsunami,” as 76 million Baby Boomers prepare for retirement across multiple sectors. This wave of departures is expected to impact government agencies as well and will result in a significant loss of institutional knowledge, creating further limitations for agencies. As more experienced employees leave, the need for effective workforce strategies becomes even more urgent.

There is no silver bullet that can resolve this problem overnight. However, optimization will play a key role in navigating these challenges. By leveraging modern, integrated technology to streamline workflows across departments and reduce manual data entry into multiple systems, local government agencies can empower their staff to do their jobs more efficiently and continue providing top-notch services to constituents. Maximizing the productivity of their shrinking teams allows agencies to do more with less, ensuring that both employees and citizens benefit from innovative, streamlined solutions.

The Quest for Technology Modernization

Technology modernization isn’t merely about keeping up with the private sector – it is at the very foundation of delivering better experiences to citizens and employees. With most processes heavily dependent on technology, any disruptions or issues with interoperability, common with Frankensuites, can undermine operational efficiency and service delivery. Local governments cannot afford to be in the business of building, connecting, maintaining, and securing a patchwork of mismatched solutions.

By shifting toward an integrated platform approach and leveraging modern technology strategically, organizations can de-risk their operations and maximize outcomes for both employees and citizens. Part of this process will include a significant overhaul of front-end solutions.

To date, most modernization efforts have focused on back-end infrastructure rather than citizen-facing touchpoints, leaving many organizations with inconsistent, siloed online services. To address citizen needs more effectively, local government will need to take a human-centered design approach that inherently emphasizes both citizen and employee experience and removes complexity from online interactions.

Next-generation government experiences are all Connected and Agile. They offer seamless Omnichannel, Human-Centered experiences to staff and citizens. The best experiences are Data-Driven and Anticipatory, leveraging AI-Augmented functionality. In addition, they prioritize Interoperability, Security, and Data Privacy. They are also Inclusive, Equitable, and Open.

There is no single Frankensuite that meets all these requirements.

The Digital Cities Survey conducted by the Center for Digital Government (CDG) provides additional insights and a roadmap for agencies aiming to elevate their performance and meet the evolving needs of their communities. According to the survey, key characteristics of high-performing agencies include robust cybersecurity and risk management strategies that ensure advanced protection and disaster recovery to safeguard operations. These agencies prioritize citizen-centered service delivery, offering user-friendly technology that enhances interactions for both citizens and employees.

High-performing agencies also emphasize resiliency and digital equity, focusing on upskilling employees, bridging the digital divide, and addressing tech literacy challenges. Additionally, they adopt integrated software systems and process automation to streamline operations and take a platform-based approach to innovation.

By strategically embracing emerging technologies like AI and machine learning, they pilot innovative solutions that drive efficiency, including leveraging artificial intelligence for data-driven decision-making and turning complex datasets into actionable insights.

Patchwork systems of legacy solutions and standalone apps are unable to meet these standards. For example, adding artificial intelligence to fragmented, outdated platforms can result in unreliable outputs and is ineffective at best. Organizations may be able to leverage AI to create new communication templates or summarize text. However, to unlock the real value of artificial intelligence, local government will need a solid, integrated data foundation.

With the more robust data governance of an integrated, platform-based approach, agencies can leverage actionable insights. For example, organizations can compare their general ledger to other cities with a similar size per capita to identify cost-saving opportunities and optimize spending. AI utilized as a “data scientist as a service” can provide scalable expertise for resource-strapped agencies.

2024 – 2025 Challenges

In 2024 and 2025, local government agencies are navigating a complex landscape of financial, technological, and regulatory challenges that demand a strategic approach to modernization. These challenges make the transition from fragmented systems to an integrated, platform-based solution all the more pressing.

Upcoming Federal Funding Cliffs

With significant federal funding set to expire at the end of 2026, government organizations are under immense pressure to optimize resources, especially on the local level. Upcoming funding cliffs require smarter, more efficient systems that empower agencies to maximize current investments and ensure the long-term sustainability of their programs, even amidst tighter budgets.

AI Fragmentation

In addition, the rise of generative AI introduces the risks of hyperfragmentation. Agencies using disparate AI models already face challenges in standardizing data processes and complying with existing regulations. For example, by most state definitions, employee-written AI prompts are subject to archival and retention requirements. However, not all AI-powered solutions allow for prompts to be archived, maintained, and stored according to the record attention schedule. Additionally, concerns about bias and the use of copyrighted materials in training data further complicate AI adoption in the public sector, emphasizing the need for a unified approach.

Workforce Limitations

A shrinking workforce compounded by the ‘Silver Tsunami’ of retiring baby boomers leaves agencies struggling to retain institutional knowledge and fill critical roles, making process optimization and streamlined operations essential for maintaining effective citizen-facing services.

Regulatory Uncertainty

State governments are also expected to introduce new regulations around data usage, AI implementation, cybersecurity, and consumer privacy in the public sector. For agencies relying on fragmented systems, compliance becomes a significant challenge, as updates often need to be made to each software solution individually. A modern, platform-based approach enables organizations to adapt to regulatory changes quickly and comprehensively by updating systems centrally, effectively avoiding the “whack-a-mole” game of piecemeal upgrades.

Procurement Challenges

Lastly, local government organizations are also expected to face significant procurement challenges. Post-pandemic, the rise of shadow applications—SaaS tools purchased outside of formal procurement processes—has created a minefield of enterprise management challenges. While shadow apps allowed agencies to meet their unique needs by selecting the software best aligned with their requirements, many of these solutions now complicate compliance with regulatory requirements and open records requests. For example, regulations are not clear whether data stored on shadow apps is subject to open records requests.

The Impetus to Move: Justifying the Investment

As local government agencies grapple with the decision to transition from fragmented technology systems to unified solutions, IT management can play a crucial role in justifying the shift to the governing board by highlighting financial implications and the risks of inaction. Educating stakeholders about the necessity of modern, integrated platforms can catalyze the release of necessary funds for modernization.

While existing systems might seem to meet the organization’s most immediate needs, a fragmented technology stack undermines efficiency, security, and scalability. “Good enough” is no longer enough.

The technology market has also shifted from the prevalence of one-time capital expenditures (CAPEX) to ongoing operational expenses (OPEX), reflecting the need for continuous investment in technology to ensure security, improve outcomes, and meet modern citizen expectations. Agencies must change their mindset and reconcile this new reality with their budgeting processes with the understanding that robust, unified solutions are critical for long-term success.

In addition, delaying modernization efforts only compounds technical debt, making future transitions more complex and costly. The longer an organization waits, the more duct tape is applied to a makeshift system, the harder it is to make a change. By educating stakeholders on the risks of accumulating technical debt and highlighting the flexibility of a potential phased implementation, IT teams can make a compelling case for immediate action.

Maintaining an outdated system may seem less expensive in the short run. But postponing investment in unified technology solutions carries significant risks and hidden costs:

• Cybersecurity Liabilities: Fragmented, leaky systems are more vulnerable to breaches, exposing agencies to financial and reputational harm.
• Fraud, Waste, and Abuse: Disparate systems make it easier for irregularities to go unnoticed, increasing the risks of fraud, particularly with vulnerable online systems.
• Regulatory Challenges: New federal and state regulations, such as GASB standards and AI policies, will require seamless integration to update systems to a new reporting infrastructure without manual configuration.
• Employee Efficiency: Workforce shortages and skill gaps demand tools that empower employees to deliver public services effectively.
• Time Wasted: Quantifying the time and resources lost to maintaining outdated systems, including helpdesk ticket volumes and constituent satisfaction surveys, strengthens the business case for modernization.

Transitioning to a unified platform approach isn’t just about competing with the private sector—it’s about delivering effective service to citizens, providing employees with the right tools, and building a resilient, future-ready government. By addressing these challenges holistically, local governments can create streamlined, modern, and secure end-user experiences that empower employees and meet the expectations of today’s citizens.

No matter where an organization stands in its modernization journey or the challenges it faces, moving forward is essential. This doesn’t have to happen all at once—it can be done step by step. Taking the time to build the business case, engaging all stakeholders, and making gradual progress allows local government leaders to build a solid foundation and grow momentum from there. And when challenges inevitably arise, innovation success stories, such as drones used in inspections, can always serve as inspiration.

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