By Francie Fink
This story is part of a series on partnerships developed by the Midwest Big Data Innovation Hub with institutions across the Midwest through the Community Development and Engagement (CDE) Program.
Finding help for health and social services shouldn’t be as difficult as the challenges people already face. Yet, often these services are buried in dead-end mazes of incomplete or outdated information. Imagine finding help for housing or healthcare as easily as Googling directions to a coffee shop. That’s the vision behind Open Referral’s latest project: a participatory tool kit for building community-resource directories that work—and that truly serve the public good.
The Open Referral Initiative has a clear-but-effective goal: transform access to health, human, and social services by developing data-sharing standards to make community resources a public good. If we think back to Econ 101, resource information as a public good means it’s accessible to everyone, and one person or organization’s use of it doesn’t reduce its usefulness for others; however, nobody is inclined to pay for it. This presents dilemmas. So, although there are many tactical questions pertaining to the technical details of any given resource directory, Open Referral is focusing on strategic questions of institutional design: ways in which communities can agree on a shared approach to supplying resource-directory data as an open, infrastructural resource that is accessible by all.
Greg Bloom is a visiting scholar with the Ostrom Workshop at Indiana University, and also leads the Open Referral Initiative. Bloom’s inspiration for Open Referral actually stems from firsthand experience with maintaining resource directories. As a professional, Bloom repeatedly encountered deep-rooted inefficiencies in how communities and their primary-service providers produced and shared information about services. His inquiries eventually led him to explore this “problem of the commons.”
The Ostrom Workshop, named for Elinor Ostrom, draws from the Nobel laureate’s groundbreaking research on how communities can successfully manage shared resources—often called “commons”—without centralized management. Through group-governance structures with clear frameworks, decentralized groups can sustainability manage common resources. Thinking about that problem and applying it to data, it’s easy to see how, without effective community governance, data can become unreliable, siloed, and redundant.
This problem is particularly tricky in smaller communities, but the problem is really a systemic one, as Bloom writes about in a December 2023 blog post that introduced a white paper sponsored by the Ostrom Workshop. Bloom chalks the resource-directory problem up to a lack of incentives for human-service providers to collaborate and share data—a phenomenon he calls the “resource directory anti-commons.”
As a practitioner, not an academic, Bloom began searching for practical solutions to this problem over a decade ago. Although academic literature on the “digital commons” exists, it is largely siloed in academia and university research. In other words, it’s not available—or at least not available in an accessible format—to communities themselves that can benefit from findings. Bloom envisioned a common language—simple icons and terminology—for service providers and data intermediaries to apply data-governance frameworks in solving the digital-commons problem.
Bloom began engaging with the Ostrom Workshop in Bloomington in 2014 and five years later was invited to be a visiting scholar. Here was his opportunity to refine his vision of resource-directory information as a public good in line with Ostrom’s original theory of commons governance.
By 2023, Open Referral was prepared to engage communities with a practical tool kit. In partnership with the Midwest Big Data Innovation Hub’s Community Development and Engagement Program, Open Referral developed a participatory workbook and facilitated a pilot workshop to help communities eliminate redundancy and inefficiency in data collection. The intended users are information managers and their partners—those who do the work of data sharing and governance.
“Sometimes resources are more effectively shared as commons than privately managed—and this works best when the people who use those resources are also involved in the governance of the resources,” said Bloom. “That blending of user and producer is called co-production.”
The co-production approach paid off. Open Referral worked with a partner in Minnesota, Stratis Health, to facilitate a two-day pilot workshop in October 2024. Dozens of participants representing public, nonprofit, and for-profit organizations across the healthcare and human-service sectors worked with the Open Referral team to “draw” their own data-sharing plans. Partner organizations were challenged to answer core questions to data sharing, including Which agencies are involved with the same types of data? What services do they provide? Where are they located? When and how are they accessed?


Pictured Left: Workshop participants with Greg Bloom (photo credit: Open Referral)
Pictured Right: Workshop participants take part in a system mapping exercise (photo credit: Open Referral)
Senka Hadzic is a Program Manager with Stratis Health, working on social determinants of health (SDOH) and opioid-overdose-prevention initiatives. Hadzic works with others at Stratis on a Shared Directory Infrastructure strategy, part of the organization’s larger initiative to improve social-needs referrals.
“We first engaged with Greg Bloom [of] Open Referral in 2023 as a national subject matter expert on resource directories,” said Hadzic. “He helped convene a multisector work group of resource directories, health plans, health systems, and community organizations to craft an initial set of recommendations on how we as a state move toward the comprehensive and universally accessible resource directory infrastructure. That set of recommendations proposed a central coordinating role, data utility, or this shared infrastructure. The workshop held in 2024 was proposed to further flesh out what this could look like.”
Open Referral offers participants some shared terminology to describe the problem that they all experience in different ways. There are, of course, the actors that exist in any data-sharing framework: help seekers, service providers, data stewards, and referral providers. There are also key concepts to data governance: databases, service records, and resource data utilities. But perhaps most importantly, the Open Referral workbook invites participants to explore various institutional-design frameworks, ultimately choosing which best fits their own unique challenges and circumstances.

Pictured: Status quo of ineffective and siloed resource-directory ecosystem. Source: Open Referral Community Resource Data Infrastructure Design Workbook

Pictured: Vision of a healthy resource-directory ecosystem. Source: Open Referral Community Resource Data Infrastructure Design Workbook
Data registers are official lists that are routinely monitored and verified for accuracy. A resource data utility is a designated provider of universally accessible, open data services within a specific domain that is often maintained for the good of the general public. Finally, a resource data collaborative is a group of organizations maintaining and collecting data together, resulting in higher quality and lower cost than if they had maintained a database independently.
Communities often benefit from more than one of these frameworks, with registers embedded in a resource data collective, for example. At the workshop, participants from similar service areas first drew their current data ecosystems. Then, they identified siloed areas and redrew an improved future state.
Each data-sharing ecosystem might look a little different; for instance, a group of individuals from organizations involved with food assistance (a directory of food assistance, 211, and a food pantry) mapped out the landscape of local food-assistance providers in which a data utility maintains open-access data. Another group of community-based organizations (CBOs) relied more heavily on an open-data register. The exercise identified overlapping data collection in some cases and, in others, it even highlighted gaps in data.
“The tool kit is designed to empower groups of information intermediaries, particularly those doing the work of data management, along with their community partners who stand to mutually benefit from their work,” Bloom explained. “We want to provide clear guidance for designing collaborative conversations, asking productive questions about data governance and applying first principles without needing to learn all the jargon.”
Feedback from the Minnesota workshop was critical for the Open Referral team to iterate and improve on their workbook. By and large, the feedback from participants was positive. Said one participant, “[There were] productive and insightful conversations. [We discussed] creative solutions from different industry perspectives.” Participants in the Minnesota workshop consistently reported that the event enhanced their understanding of the resource-directory landscape in Minnesota and deepened their awareness of the challenges involved in managing resource data.
“While there are still outstanding questions that need to be addressed among the workshop participants, I am very pleased that we came out with specific outputs that we can act upon,” said Hadzic, of Stratis Health. “I also appreciated Greg’s approach to the design of this workshop by not only obtaining participant feedback before the workshop, but also taking into consideration the 2023 recommendations and our feedback as a convener on the needs of this community. His expertise and facilitation and the workshop provided us with the structure and outputs that we need in order to advance data utility in Minnesota.”
Bloom and his team are incorporating feedback to improve the tool kit, adding clearer prompts, expanding iconography, and refining examples of information flows. The workshop findings are outlined in a recent Open Referral blog post, and the workbook will be available online soon. Open Referral plans to bring this framework to more communities nationwide, addressing inefficiencies that impede service delivery.
Learn More/Get Involved:
Contact Greg Bloom if you are interested in hosting an Open Referral workshop in your own community.
Contact the Midwest Big Data Innovation Hub to learn more about other Community Development and Engagement projects we’ve supported. The Midwest Big Data Innovation Hub is an NSF-funded partnership of the University of Illinois at Urbana-Champaign, Indiana University, Iowa State University, the University of Michigan, the University of Minnesota, and the University of North Dakota, and is focused on developing collaborations in the 12-state Midwest region. Learn more about the national NSF Big Data Hubs community.