How digital outsiders can reshape government from within

When governments hire “outsiders” to drive digital change, success often depends on more than just their technical skills. A new study from the House of Innovation shows that how these actors tell their story, about themselves and their ideas, can be key to gaining trust and turning bold policies into accepted practice.  

Digital transformation in government is risky, expensive, and often slow. Many public organizations lack the skills needed to introduce new technologies or rethink how they can be used to serve citizens.  

One solution has been to bring in so-called outsiders (from e.g. tech, activism, or industry) to lead the desired change. But giving them a formal role is only the first step. 

In a paper based on her PhD dissertation work, Dr. Anna Fahlgård Lahache (now an Affiliated Research Fellow), together with Postdoctoral Researcher Eleunthia Ellinger, and Professor Magnus Mähring, examines how these somewhat unconventional actors can succeed once inside government.  

The study, recently published in Government Information Quarterly, follows Taiwan’s first digital minister, Audrey Tang, a former tech activist, and shows how her use of “narrative work” helped build legitimacy over time. In other words: how she framed her role and ideas to increase public trust. 

“Digital transformation is not just about technology. It is about trust, culture, and communication,” says Eleunthia Ellinger. “We show that how leaders talk about themselves and their policy ideas can be important for establishing a platform for digital policy in a nation.” 

Using publicly available transcripts and documents, the research team was able to analyze the progression and positioning of a new digital minister role and a national digital policy over time. They found that Tang’s approach evolved through four phases, each combining how she positioned herself with how she promoted policy.  

From outsider to insider, one step at a time 

At first, Tang emphasized her outsider identity, linking internet culture with democracy to explain why open government mattered. This helped make new ideas seem relevant without fully conforming to government norms. 

She then moved into a more experimental phase, creatively reframing digital policy. She introduced ideas such as citizen participation through digital platforms and expanded what “digital government” could mean. 

As her role gained acceptance, her tone shifted. She began presenting herself as a mediator within government, highlighting practical successes such as Taiwan’s digital response to COVID-19 to show that open government works in practice. 

Finally, she adopted a more traditional leadership position, using her platform to promote digital policy globally and embed it across government structures. 

“Our findings show that role-building and policy advocacy are deeply intertwined,” says Affiliated Research Fellow Anna Fahlgård Lahache. She recently defended her PhD dissertation on this topic at the Stockholm School of Economics.

“Leaders do not have to first gain legitimacy and then push policy, they can leverage each other.” 

Why this matters for practitioners 

For policymakers and industry professionals working with government, the study offers clear lessons: 

• Bringing in outsider talent can accelerate change in digital government, but only if those individuals can build credibility.  

• Storytelling is not just communication; it is a strategic tool to create a platform for influence.  

• Early-stage outsider positioning can help introduce bold ideas, but it must gradually shift toward a more established role to scale impact.  

At the same time, the study highlights risks. When a policy becomes closely tied to a single individual, its success may depend too heavily on that person. 

As governments across Europe and beyond invest in digital transformation, the findings suggest that success will depend not only on technology and funding, but also on leadership narratives that connect new ideas to public values. 

Read the full study here: “From the fringes to the mainstream: How narrative work intertwines novel institutional roles and digital policy advocacy.”