Synarch Framework – Agile Governance Centered on User Communities: Applications in Digital Health Software Development
agile development, user community, digital health, synarch framework, product governance, requirements engineering, user experience (UX), digital transformation.
Context: Agile software development in the public sector faces a range of structural, organizational, and cultural challenges that hinder the continuous delivery of efficient, user-centered digital solutions, especially in complex contexts such as public health. The specialized literature highlights key obstacles including: (i) the rigidity of hiring processes; (ii) institutional and technological fragmentation among federative entities; (iii) interoperability issues with legacy systems; (iv) the absence of structured mechanisms for user feedback and participation; and (v) low institutional maturity in agile governance practices. In response to these challenges, the Synarch Framework is proposed as a process architecture aimed at enabling agile, collaborative, and user-community-centered governance, supported by collegial decision-making structures (technical boards) responsible for shared decision-making across the product life cycle. Objective: To propose, model, and validate a governance framework for agile software development centered on user communities, oriented toward collegial decision-making throughout the product life cycle in complex organizational contexts, with emphasis on the digital health domain. Method: This applied research adopts a qualitative-quantitative and exploratory approach. The methodological procedures are grounded in action research, with deep immersion of the researcher acting as a transformation agent and participant observer. The study was structured in iterative cycles composed of diagnosis, planning, intervention, observation, and reflection, which enabled the progressive refinement, evolution, and validation of the framework. Interventions were carried out in strategic digital health projects from 2021 to 2024, notably the RN+Vacina, Vacina e Confia, and PEP+RN systems, as well as the National Salus 2.0 Platform, developed in partnership with state health departments and the Brazilian Ministry of Health. Results: The Synarch Framework was modeled with six interdependent iterative cycles, 14 processes, 126 activities, 39 knowledge artifacts, 7 actors, and 6 groups, integrating agile development practices, participatory design, crowdsourcing, and product governance. The model enabled continuous co-creation with expert users and multidisciplinary technical teams and contributed to the development of scalable, resilient, and responsive digital health solutions. Notable solutions developed during the research include: (i) the Salus 2.0 Platform, used in 1,399 municipalities across 16 states for syphilis epidemiological surveillance; (ii) RN+Vacina, implemented in all 167 municipalities of Rio Grande do Norte, benefiting 3.4 million citizens; (iii) Vacina e Confia, which impacted 4.4 million citizens in Espírito Santo; and (iv) the Electronic Health Record system (PEP+RN), operational in six state hospitals in Rio Grande do Norte, with over 1.7 million recorded patient evolution, 115,000 electronic medical charts, 210,000 outpatient visits, and 5,800 healthcare professionals. Conclusion: Conclusion: The Synarch Framework proved to be both adaptable and replicable, fostering advances in the digital transformation of Brazilian public health across federal, state, and municipal levels. The structuring of user communities into technical boards proved to be an effective strategy for institutionalizing collective intelligence, enhancing decision-making, fostering co-creation and co-design, and enabling collegial governance of the product life cycle in complex and regulated environments such as digital health.