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Digitalizing the public organization: Information system architecture as a key
competency to foster innovation capacities in Public Administration
Claude RochetProfesseur des universités
Institut de Management Public et de Gouvernance Territoriale, Aix-en-Provence
The need to rediscover
Francis Bacon
Tallinn, May 2011
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eGov is not « putting lipstick to a bulldog »
NPM & neoclassical economy: I.T. as manna from heavenOn the contrary, IT operate in a Schumpeterian mode: through innovation and endogenous change.Technology is “nature organized for our purposes” (B. Arthur) => We must define those purposes“Technology is knowledge”: an evolutionary process between techné and logos
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The Baconian approach
Bacon: Knowledge as a process that must rely on both theoretical and empirical knowledge. If real knowledge “takes away the wildness and barbarism and fierce of men’s mind”, a superficial knowledge “does rather a contrary effect” (1605). The real knowledge implies experimentation and a round trip to theory. This process must be guaranteed by the state, as an architect of the numerous initiatives in research activities, through appropriate institutions: Royal society in England (1660) and Académie des sciences in France.
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We have forgotten the Baconian tradition
“The application of inductive and experimental method to investigate nature, the creation of a universal natural history, and reorganization of science as a human activity” (Mokyr)Consequences:
Failures in IT projects, not specific to the public sectorAmplified in the public sector:
Quantity of big projectsHeterogeneous dataNumber of stakeholdersMoving perimeter
The rules to fail:
Thank you NPM and mainstream!
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Rules to fail in eGov’t: UK
De-emphasis on open competition Capture by providers Segmentation b agencies
Domination of large firms:Globally correlated with high costsNZ: counterbalanced by the small market sizeUS: counterbalanced by the SBA.
In house technological capabilitiesInternal expenses > 50% NL, CA NL: Innovation through interaction with provider, thank to an architecture of small marketThe strongest value creation lever
Standard market costs
Conclusions: - No universal model: national characteristics matter- Poor technology transfer and learning process- In-house technological capacities is the key
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NPM is inappropriate for ICT deployment !
UK: NPM’s KingdomOutsourcing based on costsLost of competencies to the profit of providersOligopolesNo innovative capacity creation
Netherlands• Partnership and negociations• Strong IT competencies whithin the buyer• Innovation in the margins of customer - provider relationship
Source: Dunleavy &Margetts, LSE
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No correlation between success and amounts of investments
The success relies in architecture design through interaction with users
Learning through failed projects
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The Chaos report
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Why so many failures?
The bigger the projects, the worse the results:
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Unrealistic expectations from politicians who favor spectacular projects
Technology is thought to be a problem solver in itself without rethinking the processes
Managers see the problem of digitalizing the organization as a technical problem. They consider only the emerged part of the iceberg.
IT projects are not seen as processes reengineering tools that upset the current organization
Why so many failures?
General Chaos report reasons to fail Public sector context
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Innovation in processes Innovation in I.T
Opens new avenues for
Calls for alignment of
Endogenous innovation Endogenous innovationMay do (strategy pulled)
Can do (techno pushed)
Understanding technology as an evolutionary process
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Framework: An isomorphism between the IS and the organization
SoftwareHarware
OrganizationBusiness processes
General management
CIO
Technical system
OrganizationBusiness, R&D
Organization
Information system
IT strategy implementation
Business processes
Technical system
ProvidersCompetitorsExogenous innovationStakeholders
Strategic and innovation
system
Institutional framework
Strategic stakes
Innovation policy
Innovation opportunities
A Baconian training program
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Training enterprise architects
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Mapping the systems tree structure
Computer Infrastructure
External systems
Computing system
Information system
Environment
Softwares
Organization(people)
Business systems
Defining outside and inside is a key issue in systems mapping
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A basic concept: the triangle
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A Baconian approach
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First balance, made with participants
Strenghts:It’s crystal clear!The sequence of concepts is naturalIt’s ready to useThe triangle is limpid!.The methodology allows going form the global to the detailEven a beginner in architecture may apply itCase studies and testimonies.
Weaknesses:The problem of poor support from the management remains unsolved, in spite of the high price of this training, although the immediate impact on the daily performance is visible. The program reveals this lack of support stronger since architecting process needs to present trade-off. We are thinking in a special short session for top-executive to explain what their role is.
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Some basic (best?) practices identified
1- Practice modeling to solve a specific problem, not for the pleasure of building a model using the latest up-to-date tool.
2- Modeling architecture is a key part of any IT project, and this, since the very beginning.3- Stay KISS (keep it short and simple) : do we need that? For which purpose?...4- An information system is a virtual reality, not the “real” real, so there will always remain many
uncertainties that must be permanently explored.5- Never forget any human and technique dimension of a project!6- A modeling process is effective only if it fosters iteration between the clients and the architect.7- There is no black box: clients must be associated in every task of the design process.8- A model needs to be stable but not congealed: it is an ongoing process that may be capable of
evolution as we approximate the real of the real: it is the condition for the model to be trustworthy.
9- The sooner the better: begin with a simple model that will be sophisticated as the project advances.
10- A big grain model is more useful than an unreadable but complete model.11- Experience is key!!! We estimate than at least ten years of business practices is necessary to
begin with architecting.12 -Once designed, a model is an asset of the organization, a building block that will improve further
modeling
« Baconizing » IT management in the public
sector
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“Baconizing” eGov’t management
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Interventions scenarios
Charting the means allocations banks of processes
Agile and scalable processes
Intervention systems
RETEX Relevant Interventions
Improvement
SIG Météo France
Cellules FIRE
Linking exogenous and endogenous innovation
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Pôle 1
Pôle 2
Pôle 3
Pôle 4
Pôle n
Terri-
toire
Terri-
toire
Terri-
toire
Terri-
toire
Terri-
toire
Terri-
toire
Indicateurs de processusIndicateurs de processus
Indicateurs de processus
Indicateurs de processus
Indicateurs de processus
Adding value by architectureProcess reengineeringIntegrating all the services in a one stop shop
Projet « Maison du Rhône Numérique »
Focusing the “Maison du Rhône” on high value service
delivery
Automatizing processes building blocks through
the web
1 2
Distribution des prestations
Conception et pilotage des prestations
Digitalized house of departmental services
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IT management: a lever for institution evolution
As Bacon put it four centuries ago, the success of a nation doesn’t rely on race, climate, geography or natural resources but on his ability in arts defined as the capability to stimulate the production and selection of useful knowledge through a permanent round trip from epistemic knowledge to empirical practice. Good institutions – rules of the game – for creating value using IT will emerge from this process of digitalizing public administration.
