In any democracy citizens are not customers, they are partners with civil servants and elected public leaders and they are also the end-users.
An end user in this example is anyone or anything who depends on you for a service or product to get their work done, achieve their outcomes or thrive. For Public Servants this generally means citizens, colleagues, students, or other living systems which depend on our care and protection. When Dr. Edward Deming, the father of total quality management, met with senior leaders all over the world, he would always say “Do not tell me what is in your job description tell me who depends on you and how you are meeting their needs.”