User Need is a central concept for the new breed of Open Source advocates in UK government. It is generally accepted as a focus on the needs of the citizen end-user. However I also think that as we move from large government projects that cover the front entranceway of government we will move into smaller, lower-transaction services - where at any one time there is rarely an order of magnitude more citizens than government employees engaged in a transaction. For example the number of shops applying for a change in use is hardly larger than the number of Planning Officers.
So there soon become two sets of users. The citizen and the government employee. And if we want to deliver good service to the citizen, its probably a better investment of time to deliver usable software to the government than move a citizens software from 80% to 98%