Bridging the Capability Gap: A Multidimensional Maturity Model for Smart City Development in German Municipalities

Municipal smart city programs remain hampered by conceptual fragmentation and the absence of validated, context-specific maturity assessments. We develop the Smart Municipality Maturity Model (SMMM) via a design-science process, synthesizing 183 publications and adapting a practitioner-oriented self-assessment with 99 binary items across ten dimensions. Validation proceeded in four stages: expert review, industry validation, a pilot with 24 municipalities, and a large-scale rollout to 1136 municipalities. The five-level model yields comparable maturity scores and reveals a structural capability gap—governance and strategy outpace foundational technical capacities, especially digital infrastructure and data management. Maturity rises with municipality size, yet leadership, partnerships, and innovation culture act as moderators. The SMMM represents one of the first empirically validated, large-scale maturity assessments tailored to municipal administrations, providing a robust analytical basis for diagnosing capability gaps at scale. Its architecture directly supports municipal policy by translating conceptual smart city ambitions into measurable, comparable operational capacities and by enabling more targeted, evidence-driven interventions. The SMMM provides a low-burden instrument for self-assessment, peer benchmarking, and evidence-based policy design. Closing the identified capability gap requires capability-first investment and more explicit integration of cybersecurity and data privacy in future models and municipal practice.