Problems like PPARs arise when those in charge see technology systems as a matter for the experts, rather than for themselves, writes Joe McDonagh.
It is heartening to see how in recent times the effective deployment of information and communications technology (ICT) in public service organisations has made it to the top of the political agenda. A deeper understanding of key challenges in this realm can contribute to a richer and more fruitful political dialogue.
When exploiting ICT in large, complex public service organisations becomes an issue at a political level, it is not unreasonable to expect that political utterances should be highly informed and intent on inspiring effective action in a realm that continues to pose great difficulties for governments around the world. The magnitude of the challenge should not be underestimated.
The effective deployment of ICT in complex systems of organisations requires a highly systemic approach to change. Such an approach seamlessly integrates both technological and organisational change throughout the entire system. Without strong leadership, it is almost impossible to deliver change of this nature.
Five decades of experience with the deployment of modern computer-based systems in large complex organisations confirm that the effective integration of technological and organisational change is central to success.
Best international practice clearly supports the view that no more than 25 per cent of an ICT project spend will be absorbed by technological aspects of change, while the remaining 75 per cent will be absorbed by organisational aspects of change. Failure to address this integrated change agenda undoubtedly contributes to poor outcomes and often outright failure.
While the difference between success and failure on major change programmes that depend on the effective exploitation of ICT is well known, it remains that the ICT landscape in large organisations is often blighted with persistent failure syndrome.
There is a long stream of empirical research which confirms that 50 per cent of all ICT initiatives fail, 40 per cent are delivered late, over budget and with reduced functionality, while as few as 10 per cent deliver business value as promised.
Irrespective of the nature of computer-based systems deployed, these statistics have persisted across the last five decades and apply to large public- and private-sector organisations alike.
To get a deeper sense of the magnitude of the challenges surrounding ICT, there is value in looking beyond these shores. For example, in recent years the Child Protection Agency in the UK abandoned a new ICT system, having invested £600 million. Similarly, having invested almost £1,000 million in a magnetic stripe card that never saw the light of day, the UK government admitted that its Pathway initiative was a failure and was being cancelled.
The pervasive nature of this dilemma with ICT investments in the UK is clearly evident in a recent assessment by the Work Foundation which concludes that the landscape is "a minefield littered with exploded and hidden project failures".
The statistics cited earlier and the specific examples in the UK are intended to convey a sense of the challenges ahead.
No government is immune to the pathologies associated with the deployment of ICT in their respective public service organisations. No European government has a natural antidote for the failure syndrome associated with ICT. No health service system, not even the Health Service Executive, has a natural immunity to this bug.
If there is immunity against this persistent failure syndrome, it is clearly to be found in strong leadership that emphasises the systemic nature of ICT-enabled change both within and across public service organisations.
Yet there is often a paucity of such leadership in practice when one considers root weaknesses that impede the effective delivery of large-scale change enabled by modern ICT systems.
First, what it takes to shape and deliver systemic change in complex systems of organisations is not well understood. This is a particular problem for governments and large corporations which are intent on maximising the full impact of ICT throughout the entire enterprise. Systemic thinking and a systemic approach to change cannot be taken for granted.
Second, what it takes to effectively integrate ICT and organisational change is equally poorly understood. Unfortunately, it is the ICT element that gets the lion's share of attention. Often, ICT is treated as a technical issue that must be addressed by technical specialists. The need to embrace a more integrated and holistic approach to technological and organisational change is regularly on no one's agenda.
Third, an appropriate institutional mandate and supporting framework for change are regularly missing. It is not uncommon to see governments and international public service organisations promote highly ambitious programmes of ICT-enabled change without clear mandates and supporting frameworks for change.
Such deficiencies give rise to a potent vacuum in which change is progressed and regularly result in wasted resources and much duplication of effort.
Finally, the diverse roles of executive leaders in shaping large-scale ICT-enabled change over time are poorly understood. Again, this is unfortunate since a well-developed understanding of such roles ensures that intervention strategies are targeted and that a highly integrated approach to change is adopted.
Progress here in many public- and private-sector organisations is slow, since executive leaders are all too often prone to seeing ICT as an issue for ICT specialists, not for themselves.
While perceived difficulties have brought ICT to the top of the political agenda, there is enormous value in keeping it there. What is required now is a deeper dialogue that focuses on how the full potential of modern ICT systems can be harnessed as an integral part of ongoing public service modernisation and reform. Grasping this challenge will require strong political leadership.
Dr Joe McDonagh is senior lecturer in business studies at Trinity College