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'Meer Grip Op Digitalisering – Een Internationale

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'Meer Grip Op Digitalisering – Een Internationale Meer grip op digitalisering Een internationale vergelijking van parlementaire werkvormen Rapport Meer grip op digitalisering 2 Auteurs Roos de Jong, Ira van Keulen, Lilian van Hove en Geert Munnichs Illustraties Rathenau Instituut Foto omslag Andrey Armyagov/Shutterstock Bij voorkeur citeren als: De Jong, R., I. van Keulen, L. van Hove & G. Munnichs (2020). Meer grip op digitalisering – Een internationale vergelijking van parlementaire werkvormen. Den Haag: Rathenau Instituut Meer grip op digitalisering 3 Voorwoord Op 10 april 2018 verschijnt Facebook-CEO Mark Zuckerberg in een hoorzitting voor de Amerikaanse senaat. Hij moet zich verantwoorden over het oneigenlijk gebruik van 87 miljoen Facebook-profielen door het databedrijf Cambridge Analytica in opdracht van de verkiezingscampagne van Donald Trump. Vooraf verwachtte iedereen verbaal vuurwerk maar Zuckerberg komt vijf uur lang nooit echt in de problemen. De senatoren weten niet de juiste vragen te stellen. De publieke discussie na afloop gaat dan ook vooral over de onkunde van de senatoren om de Facebook-oprichter het vuur aan de schenen te leggen. Voor het Congres zelf is deze geruchtmakende hoorzitting een directe aanleiding om de ambtelijke ondersteuning voor het onderwerp ‘technologie’ flink te verstevigen. In Nederland heeft de Tweede Kamer de Tijdelijke Commissie Digitale Toekomst opgericht die ook nadenkt over werkwijzen die de Kamer meer grip geven op ontwikkelingen in technologie. Maatschappelijke en politieke vragen die hiermee samenhangen kunnen dan eerder en beter worden besproken. De Commissie is daarbij geïnteresseerd in andere parlementaire werkwijzen. Het Rathenau Instituut is verzocht in kaart te brengen hoe parlementen in andere landen zichzelf organiseren rondom digitalisering. Via onze zusterorganisaties hebben wij dit overzicht kunnen maken. Op verzoek van de Commissie hebben we daarbij ingezoomd op recente ontwikkelingen in de Verenigde Staten, Groot- Brittannië, Duitsland, Denemarken en Noorwegen. In al die parlementen bestaat een waaier aan werkwijzen, ingebed in een eigen parlementaire cultuur. Het is nu aan de Commissie om te bekijken welke werkwijze zij vindt passen bij de Nederlandse politiek met zijn brede vertegenwoordiging van maatschappelijke en levensbeschouwelijke opvattingen. Het Rathenau Instituut doet zijn werk voor de Tweede Kamer vanuit een onafhankelijke positie waarbij het de politieke meningsvorming ondersteunt, zonder advies uit te brengen over politieke besluiten. Dit doen we door in een vroeg stadium via onderzoek en dialoog maatschappelijke aspecten in beeld te brengen. Rondom digitaliseringsvraagstukken hebben we de afgelopen jaren verschillende waarden, argumenten en bijbehorende beleidsopties geïnventariseerd waarbij het onze opdracht is vooral ook oog te hebben voor de effecten van digitalisering daar waar burgers er mee te maken krijgen. Welke werkwijze de commissie ook kiest, het Rathenau Instituut zal ook daarbij graag de Kamer ondersteunen. Dr. ir. Melanie Peters Directeur Rathenau Instituut Meer grip op digitalisering 4 Samenvatting Inleiding De Tijdelijke Commissie Digitale Toekomst (TCDT) van de Tweede Kamer heeft het Rathenau Instituut gevraagd, een internationaal vergelijkend onderzoek te doen naar hoe andere parlementen omgaan met digitaliseringsvraagstukken en welke werkvormen zij daarvoor hanteren. Met dit onderzoek wil de TCDT nagaan hoe de Tweede Kamer haar kennispositie op het gebied van digitalisering kan versterken, en meer grip kan krijgen op de gewenste en ongewenste ontwikkelingen die samenhangen met digitalisering. Aanpak Het door het Rathenau Instituut uitgevoerde onderzoek bestond uit twee fasen. In fase I is een quick scan gedaan van de verschillende werkvormen die tien parlementen gebruiken om digitalisering aan de orde te stellen: België, Denemarken, Duitsland, Estland, Finland, Frankrijk, Noorwegen, Verenigd Koninkrijk, Verenigde Staten en Zwitserland. Per werkvorm hebben we – met name op basis van deskresearch – de functie en positionering van de werkvorm, de gebruikte aanpak en methoden en de behandelde digitaliseringsvraagstukken beschreven. In fase II is een selectie van vijf landen met werkvormen die het meest relevant en veelbelovend leken voor de Nederlandse situatie, nader onderzocht. Het ging hierbij om Duitsland (met drie verschillende interessante werkvormen en een parlementair systeem dat enigszins lijkt op het Nederlandse), het Verenigd Koninkrijk (met veel verschillende werkvormen en resultaten die internationaal ook erkenning hebben gekregen, o.a. over desinformatie en AI), de Verenigde Staten (met vaste commissies die veel en verschillende vormen van ondersteuning kennen), Denemarken (met een interessante werkvorm die een coördinerende functie voor hele parlement heeft), en Noorwegen (met een interessante laagdrempelige werkvorm voor het informeren van alle parlementariërs). In fase II is nadrukkelijk ook gekeken naar het functioneren van de diverse werkvormen in de praktijk op basis van semi-open interviews met parlementariërs en de ambtelijke staf (inclusief inhoudelijk ondersteunende instellingen). Meer grip op digitalisering 5 Onderzochte werkvormen De volgende tabel geeft een overzicht van onderzochte werkvormen per land. Land Werkvormen Duitsland • Vaste Kamercommissie voor Onderwijs, Onderzoek en Technology Assessment, inclusief het Büro für Technikfolgen- Abschätzung beim Deutschen Bundestag (TAB)* • Vaste Kamercommissie voor de Digitale Agenda • Studiecommissie AI Verenigd Koninkrijk • Vaste Kamercommissie Digitalisering, Cultuur, Media & Sport (DCMS), inclusief de subcommissie Desinformatie (Lagerhuis) • Vaste Kamercommissie Wetenschap & Technologie (Lagerhuis) • Vaste Kamercommissie Wetenschap & Technologie (Hogerhuis) • Tijdelijke Onderzoekscommissies Kunstmatige Intelligentie (Hogerhuis) • Tijdelijke Onderzoekscommissies Democratie & Digitale Technologieën (Hogerhuis) • Het Parliamentary Office of Science and Technology (POST)* Verenigde Staten • Vaste Kamercommissie Handel, Wetenschap en Transport (Senaat) • Vaste Kamerkommissie Wetenschap, Ruimtevaart en Technologie (Huis van Afgevaardigden) • Vaste Subcommissie Handel en Consumentenbescherming (Huis van Afgevaardigden) • De Government Accountability Office (GAO), inclusief het Technology Assessment and Analytics-team (STAA) & Center for Strategic Foresight* • Parlementaire adviescommissies voor Cyberspace en AI* Denemarken • De parlementaire werkgroep voor werelddoelen, inclusief het brede 2030-netwerk* Noorwegen • Informele parlementaire Teknogruppe, inclusief Norwegian Board of Technology (NBT)* * Voor onze analyse nemen we de rol van deze ondersteunende diensten mee in relatie tot de werkvormen van het parlement. Meer grip op digitalisering 6 Meer politieke erkenning Het onderzoek laat zien dat er in andere landen meer erkenning bestaat van het politieke belang van de digitale transitie dan in Nederland. Zo kent Duitsland een speciale bewindspersoon met digitalisering in haar portefeuille; heeft het Verenigd Koninkrijk een Ministerie van Digitalisering, Cultuur, Media en Sport; en kent de Verenigde Staten de White House Office of Science and Technology (OSTP), dat veel aandacht besteedt aan digitalisering. Ook binnen de Duitse Bondsdag en het Brits parlement is de aandacht voor digitalisering institutioneel belegd. Zo kent de Bondsdag een vaste parlementaire commissie voor digitalisering en hebben zowel de Bondsdag als het Britse parlement meerdere onderzoekscommissies op digitalisering benoemd. Met dit onderzoek trachten we in beeld te brengen hoe de diverse werkwijzen en hun institutionele inbedding bijdragen aan parlementaire grip op maatschappelijke en politieke vragen rondom digitalisering. Drie niveaus De opbrengst van het onderzoek beschrijven we op drie niveaus: • Niveau van de commissies: alle werkvormen die de grip van tijdelijke of vaste parlementaire commissies op het gebied van digitalisering beogen te versterken; • Individuele parlementariërs: alle werkvormen die de individuele (kennis)positie van parlementariërs op het gebied van digitalisering beogen te versterken; • Parlementaire ondersteuning: alle werkvormen die het politieke proces rondom digitaliseringsvraagstukken ondersteunen vanuit de ambtelijke staf van het parlement. Per optie geven we aan wat ze in het kort behelst, wat de impact is (geweest) gebaseerd op de praktijkervaringen in het betreffende parlement en welke functie(s) de werkvorm voornamelijk vervult. Het is niet mogelijk om de impact volledig te achterhalen. De literatuur over impact assessments laat zien dat impact notoir moeilijk is om aan te tonen (The World Bank, 2009). Met impact bedoelen we in deze context de effecten van de werkvormen die direct betrokken parlementariërs en stafleden ervaren. Zo spelen de politieke status en het gewicht van nieuwe of tijdelijke commissies een cruciale rol. We geven ook aan of deze vorm in de Tweede Kamer bestaat, of eventueel in het Nederlandse parlementaire systeem of cultuur zou passen. We onderscheiden daarnaast twee soorten vragen die digitalisering oproept: • Domeinspecifieke vragen: nieuwe digitale technologieën veranderen allerlei professionele en maatschappelijke praktijken, zoals zorg, onderwijs en rechtspraak. Dat levert allerlei technische, economische, ethische en juridische vragen op die voor een deel specifiek zijn voor die praktijk. Een belangrijke Meer grip op digitalisering 7 politieke vraag hierbij is of bestaande reguleringskaders nog voldoen, of aanpassing behoeven. Deze vragen moeten geadresseerd worden door
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