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Implementing
Implementing change in a public change in a
agency public agency
Leadership, learning and organisational
resilience 239
Jenny Stewart
School of Business and Government, Division of Business,
Law and Information Science, University of Canberra,
Canberra, Australia, and
Michael O’Donnell
School of Management, Marketing and International Business,
College of Business and Economics, Australian National University,
Canberra, Australia
Abstract
Purpose – The article aims to investigate implementation problems arising from the introduction of
a new computer system in a public agency.
Design/methodology/approach – Two analytical lenses were employed: a prescriptive model of
technology-based implementation and planned and emergent models of change.
Findings – Unintended consequences tested the organisation’s resilience. It was found that those
parts of the organisation with enhanced resilience exhibited localised leadership.
Practical implications – Successful implementation of change involving new technology requires a
balance between “top-down” planning and distributed leadership. Adequate attention to
organisational learning is also a significant factor.
Originality/value – Implementation involving new computer systems is a commonly-encountered
problem in the public sector, yet there are few empirically-based studies that deal with organisational
and management issues in this context.
Keywords Change management, Computers, Workplace training, Leadership,
Public sector organizations
Paper type Research paper
Methodology
Characterising an implementation process poses considerable methodological
242 problems, not least because change involves complex interactions between decisions
(choices) and their consequences occurring simultaneously at different sites and at
multiple levels in the organisation.
Our first step was to establish, in as much detail as possible, the sequence of
decisions and events that characterised the change process. In order to do this, we used
the “multi-level” data-gathering technique developed by Stewart and Kringas in order
to compare change patterns across five public sector organisations (Stewart and
Kringas, 2003). This technique rests on the assumption that, not only does change
“change” as it is driven outwards and downwards in a complex organisation, but also
that inevitably, reactions differ according to the position and perspective of the
observer. Understanding change, therefore, requires giving as much weight to the
perspectives of those at operational as at strategic levels in the organisation.
Accordingly, to ascertain the “how” of the computer system implementation, we
undertook semi-structured single-person and group interviews at five sites, and four
levels in the organisation, as well as reviewing the agency’s own project management
documentation. Interview questions covered participants’ detailed recollections of the
change period, their understanding of, and reactions to, the way change was driven,
and their views about what might have been done differently. Group interviews were
conducted with 32 client service officers (eight interviewees at each of four regional
sites, in groups of four to five people). Team-leaders at each site were interviewed
together. Single-person interviews were conducted with senior regional managers,
stream leaders (middle managers) and designated change agents (coaches), and group
interviews with three members of the senior executive group in charge of the project,
and two senior planners.
In selecting interviewees, the liaison officer at each site was asked to include, as well
as senior managers, key figures from the implementation period (i.e. those who were
perceived to have been key decision-makers), as well as a broad cross-section of
team-members who had been with the agency before, during and after the change. In
this way, we built up a complete picture of the planning and training for the change, as
well as the measures that were taken after “go-live” day to address the problems that
occurred.
Answering the “why” question (that is, why did problems occur) involves assessing
the effectiveness of the steps that were taken. We took two approaches to doing this:
first, we compared the agency’s actions with prescriptive models derived from the
literature relating to the implementation of computer systems in medium-sized
organisations. Second, we undertook an in-depth investigation of the agency itself,
attempting to understand what had occurred and the reasons for it. The fact that some
parts of the agency were able to recover more quickly than others from the setbacks
that occurred, despite being part of the same formal implementation process, suggested
that factors outside the reach of that process might be significant both for
understanding what had occurred and preparing more effectively for future change.
Ensuring reliability Implementing
Because we were using interviews as sources of information with which to map the change in a
implementation process, it was important to corroborate individual recollections by
cross-checking with others in a position to observe the same events. We did this by a public agency
process of iterative questions, following up on new points and logging old ones, until
we were satisfied that we had the main sequence of events correct. In this way, we were
able to construct detailed sequences of events for each office that we investigated in 243
depth. These sequences were then used as a basis for comparing the more resilient with
the less resilient parts of the agency.
Analysis
Our agency’s implementation, matched against Carlopio’s criteria (see Table I)
highlights deficiencies in risk analysis and management. The proximate reason for the
crisis related to the complexity of the decision-making undertaken by the agency,
which had led to many “work-arounds” under the old mainframe system. The new
system was more structured, and would not process additional inputs for cases with
pre-existing errors. Limited testing of the new system before roll-out compounded the
problem. A second deficiency (linked to the first) related to training. With insufficient
IJPSM resources to build a training database, the lack of familiarity of staff with the new
20,3 system in its “live” form (as distinct from stylised training modules) slowed processing
of problematic cases.
With the advantages of hindsight, a better understanding of the risks inherent in the
automation of some processes would have enabled the agency at the very least to warn
staff of the problems that were about to occur. However, even extensive testing would
246 not have revealed the full extent of the problem, because of the intricate nature of the
records held by the agency. There was little alternative to fixing cases as they came up
– which was essentially what the agency’s client service officers were called upon to do
after “go live” day. Given these factors, was it inevitable that the agency struggled the
way it did, or were there, possibly, other problems that had been laid bare by the
stressful events of the implementation period?
Leadership factors
The implementation was not straightforward but involved substantial amounts of
organisational learning. In fact, the agency had to display innovative characteristics to
implement the new system. While the agency had sufficient flexibility to produce
innovative responses, it did not, when the chips were down, have the capacity to
distribute this innovative power quickly enough to profit from it.
The fact that one of its regions proved much more capable than the others,
underscores the importance of the leadership factor at this level. The most adaptable
region was able to make better use of the information that was available from the
centre of the agency, and was also able to share information more effectively internally,
because it had clear and determined leadership, not only at the regional level, but
within individual teams as well.
This innovative capacity requires, not simply devolution, but leadership behaviours
that combine a detailed analysis of the situation, with a keen understanding of where
and how to communicate across the organisation (Ellinger et al., 1999). To return to
Mintzberg’s point about the importance of strategy encompassing emergent change,
we would argue that distributed leadership provides the mechanism for this to occur,
when rapid organizational learning is required.
Conclusions
The paper has explored the problems that arose within a public sector agency during
the implementation of a new IT system. “Implementation” has been identified as a key
problem for those wishing to design and employ new information technologies in
organisations, particularly in the public sector (Berry et al., 1998). Implementation
covers not just issues relating to the tactics of change management, but also the
planning and design of new systems, as well as their actual “roll-out” in the
organisation. The case study was analysed in line with a planned and emergent model
of technological change (Mintzberg and Lampel, 1999; Dawson, 2003), which facilitated
an understanding of the roles played by managers and employees at each stage in the
process within three different regional locations of the agency.
Our work suggests that in IT implementation, a well-designed system is a necessary
but not a sufficient ingredient for success. The case study pointed to problems with
inadequate staff training: the e-learning modules developed for staff did not provide
sufficient “real time” exposure to the new working environment. In addition, problems
with data integrity were not sufficiently anticipated prior to the new system going Implementing
“live”. Many staff perceived that such deficiencies could be linked to a lack of testing change in a
and employee involvement prior to the system’s introduction. This highlights that
integrating the “human factor” into IT implementation planning is crucial for success public agency
(Levine, 2001). The study therefore reaffirms one of Carlopio’s (1998) central messages
that alongside a centrally planned and top-down strategy for change, significant
attention needs to be paid to improving channels of communication between those 249
undertaking project planning and those implementing the new IT system at the local
level.
Our study also addresses one of the key conundrums in change management, as
highlighted by Mintzberg – how to plan for the unexpected. The paper highlights that
the strategy formation process involves both management planning and design and
the need to allow for emergent learning to occur, with organisational learning
becoming increasingly important in periods of major organisational change (Mintzberg
and Lampel, 1999). The problems precipitated by the IT implementation enabled us to
shine a spotlight on how the agency responded to rapid, emergent change. In detailing
these processes, we were able to suggest important links between resilient responses
and distributed forms of leadership.
In our organisation, managers did the best they could with limited resources and an
exigent time frame. While they could (and perhaps should) have done better in
predicting the problems that occurred, it is difficult to see how they could have done
other than to rely on the adaptive capacity they assumed their organisation possessed.
While this capacity was undoubtedly present, it could not be actualised without strong
leadership from the middle levels of the organisation.
Resilience came from an ability to improvise, which was in turn buttressed by a
sense that the problems could be overcome. Particular individuals in the main regional
site took responsibility for managing problems, for quickly disseminating ways of
using the new system to move cases forward, and taking decisive steps to set priorities
in response to the crisis. Leadership both facilitated and helped to structure these
responses.
The connection to forms of organisational learning is clear. When a new technology
is integral to an organisation’s task (as was the situation in our case study) it requires
the organisation to adapt (learn) rapidly, because the organisation has to keep
functioning while the change is worked through. In other words, when implementing
technology-based change, managers must be prepared to assess the likely response of
their organisation to emergent as well as planned change, particularly where there is
no way that the organisation can predict the innumerable ways in which the new
system might interact with the old. The study therefore suggests that building
capacity is the most appropriate way of reconciling planned and emergent change
within an overall change strategy.
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Further reading
Arcelius, F. and Wright, P. (1994), “Implementation of computer-integrated manufacturing in
small manufacturing firms”, Technology Analysis and Strategic Management, Vol. 6 No. 4,
pp. 411-21.
Buchanan, D. and Badham, R. (1999), Power, Politics and Organisational Change, Sage, London.
Coutu, D.L. (2002), “How resilience works”, Harvard Business Review, Vol. 80 No. 5, pp. 46-51.
Fjermestad, J.L. and Chakrabarti, A.K. (1993), “Survey of the computer-integrated manufacturing Implementing
literature: a framework of strategy, implementation and innovation”, Technology Analysis
and Strategic Management, Vol. 5 No. 3, pp. 251-71. change in a
Harper, G.E. and Uttley, D.R. (2001), “Organizational culture and successful information public agency
technology implementation”, Engineering Management Journal, Vol. 13 No. 2, pp. 11-15.
Leonard-Barton, D. (1995), Wellsprings of Knowledge, Harvard Business School Press, Boston,
MA. 251
Vickers, M.H. and Kouzmin, A. (2001), “Resilience in organizational actors and rearticulating
‘voice’: towards a humanistic critique of new public management”, Public Management
Review, Vol. 3 No. 1, pp. 95-119.
Corresponding author
Jenny Stewart can be contacted at: Jenny.Stewart@ canberra.edu.au