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e-Infrastructures: How Do We Know and Understand Them? Strategic Ethnography and the Biography of Artefacts

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Abstract

In health research and services, and in many other domains, we note the emergence of large-scale information systems intended for long-term use with multiple users and uses. These e-infrastructures are becoming more widespread and pervasive and, by enabling effective sharing of information and coordination of activities between diverse, dispersed groups, are expected to transform knowledge-based work. Social scientists have sought to analyse the significance of these systems and the processes by which they are created. Much current attention has been drawn to the often-problematic experience of those attempting to establish them. By contrast, this paper is inspired by concerns about the theoretical and methodological weakness of many studies of technology and work organisation—particularly the dominance of relatively short-term, often single site studies of technology implementation. These weaknesses are particularly acute in relation to the analysis of infrastructural technologies. We explore the relevance to such analysis of recent developments in what we call the Biography of Artefacts (BoA) perspective—which emphasises the value of strategic ethnography: theoretically-informed, multi-site and longitudinal studies: We seek to draw insights here from a programme of empirical research into the long-term evolution of corporate e-infrastructures (reflected in current Enterprise Resource Planning systems) and review some new conceptual tools arising from recent research into e-Infrastructures (e-Is). These are particularly relevant to understanding the current and ongoing difficulties encountered in attempts to develop large-scale Health Infrastructures.

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Notes

  1. Though we use the term e-infrastructure we note that these various terms (cyberinfrastructure, information infrastructure etc) are used in inconsistent and overlapping ways.

  2. We find it interesting that there are very few CSCW studies of ERP implementation. (Indeed, the area of packaged software appears rather strangely to have been mostly ignored by this group of scholars). The few studies we did find, however, exemplified similar aspects of the more general information systems literature in highlighting the gap between expectations and outcomes. Taylor and Virgili (2008: 68), for instance, write: ‘...it then became possible to conceptualise the gap between current modes of working, and those that SAP envisioned. As this process transpired, however, the complexity of the SAP technology was also beginning to reveal itself. How to reconcile accepted practice and new system now became less a simple matter of identifying discrepancies and correcting them than it did of finding a way to deal with the intractable realities of practice either by modifying the technology, or abandoning the practice—or both. This was not exactly the way the development process had been envisioned. It was more complex—considerably more’.

  3. Indeed classical ethnography, which involves immersive acquaintance with what is involved with being ‘a member of the tribe’, might in many ways escape our critique of short-term, local case-studies.

  4. Our critique of the naïve empiricism of localist studies (especially those inspired by ethnomethodology) also applies to the simplistic methodological nostrums of Actor-Network Theory (ANT) as exemplified by Latour’s (1987) much cited exhortation to ‘follow the actor’. This begs the obvious question—“which actors should we follow?” (see Sørensen and Levold 1992). What is at stake here is an orientation to theory. ANT Theorists have argued against the resort to the existing body of social science findings on the grounds that these may offer misleading generalisations and presume that the world of tomorrow will simply repeat patterns entrenched in current structures. Similarly, ANT writers suggest, social science methodologies embed potentially misleading presumptions about what are the key factors at play—and in this way may unintentionally constitute reality, for example by naturalising the power imputed to existing institutions (Callon and Latour 1981; Law 2004). However their claims to be able to apply ‘naturalistic’ observation methods, unencumbered by theoretical commitments, fall foul of well-established critiques of empiricism, and not least of failing to address taken-for-granted social relations (and they have been criticised for overlooking entrenched asymmetries for example of class and gender). We argue instead that the existing research base should be treated as provisionally or partially-valid background knowledge—that we can use to inform research design choices and interpretation rather than to prejudge outcomes (Pollock and Williams 2009).

  5. See previous footnote.

  6. There will be sharp differences for example between the exigencies surrounding the development of different kinds of software development—for example between complex organisational technologies discussed here and discrete or component technologies such as personal productivity tools) (Brady et al. 1992).

  7. Arising from our work on the development of standards for inter-organisational network systems (The Networked Enterprise: The Shaping of Institutions and Standards in E-Business. UK Economic Social Research Council (ESRC) E-Society Programme), we (Ian Graham, Robin Williams, Neil Pollock) organised an international research workshop on “Information Infrastructures and Architectures” (e-Science Institute, Edinburgh 27–28 September 2006 http://www.nesc.ac.uk/esi/events/700/). By coincidence Edwards and colleagues in the USA simultaneously organised a National Science Foundation funded Workshop on “History and Theory of Infrastructure: Lessons for New Scientific Cyberinfrastructures” in Michigan (Edwards et al. 2007).

  8. Data from NHS Information Centre http://www.ic.nhs.uk/statistics-and-data-collections/workforce sampled 10 March 2010.

  9. And many current visions of health service reform envisage the extension and integration of services, and the IT systems that support them, between health and social care.

  10. The centralised architecture proposed in England for an electronic Summary Care Record that will be available to NHS staff involved in a patient’s care, anywhere in the country, has proved rather controversial, in a context in which some have expressed deep concern about the confidentiality of Electronic Patient Records. The potential sensitivity of information stored on Health e-Is, as well as the clinical importance of data integrity, underpin the strict regulation of access and exchange of health information, and has a profound influence on system design and architecture and the procurement and implementation process. The competing exigencies—for example the stringent data protection requirements for personal health data coupled with the frequent need to share such data for risk abatement and effective care (Norris 2002)—create additional contradictions to the development of health e-Is.

  11. Personal correspondence with Sampsa Hyysalo 18th March 2010.

  12. Indeed there are evident similarities between the visions and models of change between healthcare and other industrial sectors, including the notions of information integration as well as a process orientation to technology enabled restructuring (Norris 2002; Bragato and Jacobs 2003).

  13. A wide range of other factors have been advanced to help explain the particular difficulties that seem to be associated with information technology adoption in health services. As well as their complexity and large scale, these include organisational fragmentation and the difficulties integrating political reform with the often rather longer timeframes for large-scale procurement, implementation and evolution of health e-Is (Johnson 2009). As a result, despite an extremely long history of IT adoption in health services, dating back to the 1960s and before, we do not always find the cumulative development of IT capabilities and infrastructures. At the same time, our colleague Mark Hartswood has drawn our attention to an implication of our analysis (personal communication, 30th March 2010) that the emergence of Health e-Is is inevitably going to be a ‘long road’: a mixed bag of failure and partial success in the development and maturation of generic technologies and systems that support complex organisational work over a number of decades.

  14. See http://www.connectingforhealth.nhs.uk/ The description that follows addresses the unfolding of NPfIT in its major area of England. Other parts of the UK have followed somewhat differing approaches.

  15. As we have noted elsewhere (Pollock and Williams 2009: 66), market provision of complex organisational solutions frequently encounter ‘incomplete contracting’ issues. Though effective monitoring of the contract calls for strict prior specification of customer requirements which can be embedded in the contract and their fulfilment policed, in practice the user organisation only has an imperfect initial understanding of its own requirements, which invariably evolve as the system becomes implemented, partly in reaction to the capabilities of the package.

  16. For example, as Anderson et al. (2006) observe, when classification systems become embedded in organisational software solutions, deficiencies in agreeing classification systems are transposed into a categorisation problem—of getting idiosyncratic events to conform to standard categories.

  17. Personal correspondence with Mark Hartswood 30 March 2010.

  18. Indeed these tools developed for analysing the evolution of e-Is can also contribute to analyses of the biographies of other large-scale, complex and evolving technologies.

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Acknowledgements

We acknowledge the support of the UK Economic and Social Research Council for various studies and especially Research Grant [Res 000 23 0466] The Biography and Evolution of Standardised Software Packages, on which this paper primarily draws. The research team was Robin Williams, Neil Pollock, Luciana D’Adderio and Robert Procter. We would particularly like to acknowledge valuable comments provided by Dr Mark Hartswood, University of Edinburgh, School of Informatics, and Dr Sampsa Hyysalo, University of Helsinki, College for Advanced Studies, as well as three anonymous CSCW referees.

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Pollock, N., Williams, R. e-Infrastructures: How Do We Know and Understand Them? Strategic Ethnography and the Biography of Artefacts. Comput Supported Coop Work 19, 521–556 (2010). https://doi.org/10.1007/s10606-010-9129-4

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