行为红利：解决数字政府‘最后一公里’问题

Solving the ‘Last Mile’ Problemin Digital Government © 2026 International Bank for Reconstruction and Development / The World Bank 1818 H Street NWWashington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org This work is a product ofthe staff of The World Bank with external contributions. The findings, interpretations, and conclusionsDirectors, or thegovernments they represent. The World Bank does not guarantee the accuracy,expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executivecompleteness, orcurrency of the data included in this work and does not assume responsibility forany errors, omissions, or discrepancies in the information, or liability with respect to the use of orfailure to use the information, methods, processes, or conclusions set forth. The boundaries, colors,denominations, and other information shown on any map in this work do not imply any judgment on thepart of The World Bank concerning the legal status of any territory or the endorsement or acceptance ofsuch boundaries. Nothing herein shall constitute or be construed or considered to be a limitation upon orwaiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Rights and Permissions The material in this work is subject to copyright. Because The World Bank encourages dissemination ofits knowledge, thiswork may be reproduced, in whole or inpart,for noncommercial purposes as long asfull attribution to this work is given. Any queries on rights and licenses, including subsidiary rights, shouldbe addressed to World Bank Publications, TheWorld Bank Group, 1818 H Street NW,Washington, DC20433,USA; fax: 202-522- 2625; e-mail:pubrights@worldbank.org. Citation: Gill, R., Afif, Z., Dugas, M., Ikindji, M., Li, G. R., Lim, J. R., Nasr, N., Vakis, R. (2026).The behavioral dividend: Solving the “last mile” problem in digital government.World Bank. Report creative direction, design, infographics, and layout by Human Indeed Studio(serrana@humanindeed.com) Cover designed using AI generated images. Table of Contents 04 Acknowledgments Executive Summary: when services aren’t built around their users, users don’tengage with services 06 How to Navigate This Report11Context and Alignment13 Part 1: The Core Framework Chapter 1.The ‘Last Mile’ Problem in Digital Government: Infrastructure Without Impact17 Chapter 2.The Solution: A Behavioral Toolkit for Closing the Gap201. Behavioral User Journey Maps212. COM-B Model243. Diving Deeper: Developing Personas Using COM-B284. Identifying the Hidden Issues: Testing, Monitoring, Evaluating31 Part 2: Diagnosing and Solving User Engagement Problems Chapter 3.Awareness and Discovery: The Empty Store34 Chapter 4.Consideration and Motivation: The Crossroads with No Signs37 Chapter 5.Access and Onboarding: The Closed Gate41Extended Case Study 1: Moldova’s criminal record certification service44 Chapter 6.Navigation and Transaction: The Lost Path48Extended Case Study 2: South Korea’s digital government guidelines51 Chapter 7.Payment and Finalization: The Last-Minute Wobble54 Chapter 8.Confirmation and Receipt: The Panic Loop57 Chapter 9.Follow-up, Reuse, Maintenance: The One-Time Wonder59Extended Case Study 3: Brasil’s Tesouro Direto62 Chapter 10.Serving Skeptical and Vulnerable Populations65 Part 3: The Ideas Bank Chapter 11.Out of Sync: The Cross-Cutting Barriers that Stop Users from Engagingwith Digital Services Chapter 12.Breaking Down Barriers: Practical Solutions80 Conclusion and Recommendations 98 References 99 Acknowledgments “The Behavioral Dividend: Solving the ‘Last Mile’ Problem in Digital Government” was jointly prepared bythe Behavioral Research Hub in Saudi Arabia and the Mind, Behavioral, and Development (eMBeD) Unitin the Development Impact Group at The World Bank. The World Bank Team was led by Hoda Youssef(Task Team Leader and Senior Country Economist) and Zeina Afif (Co-Task Team Leader and Senior SocialScientist). The World Bank team consisted of Michelle Dugas, Rupert Gill, Meltem Ikindji, Jungkyu Rhys Lim, GraceRuijia Li, and Nour Nasr under the leadership and guidance of Zeina Afif. The report benefited from the strategic guidance of Renos Vakis and Steffen Janus. We thank all of The World Bank reviewers and contributors who provided feedback and helped shapethe report’s direction, including Saniya Ansar, Audrey Ariss, Luda Bujoreanu, Claire Casher, Julia MichalClark, Sylvan Herskowitz, Kimberly Jones, Samia Melhem, Stela Mocan, and Aneliya Muller. For the in-depth case studies, we are particularly grateful for the contributions of the followingindividuals: •Moldova: Diana Zaharia, E-Governance Agency, and Vad Manoil, now World Bank.•Brazil: Paulo Moreira Marques, National Treasury, Christianne Bariquelli, B3, Richard Mathera,Katie Dove, and Isabel Macdonald, Irrational Labs.•South Korea: Hyunjung Kim, Sunkyung Kim, Jongjin Lee, Ministry of the Interior and Safety. THE