The service reference model is a classification system for service producers who provide services worthy of service to the consumer. Therefore, independence between service producers is the most fundamental attribute of the service reference model. In this paper, to develop a service reference model, a method has been proposed to identify a service consumer using a business reference model, and to analyze the cohesiveness between business functions and subject data to identify mutually independent service producers. The service reference model development methodology of this study has been applied to the Botswana Government Enterprise Architecture project, and its effectiveness and practicality have been verified. The methodology will help countries that are trying to establish a new government EA.