Loughborough University Institutional Repository Modelling the implementation and acceptance of the Police National Database in UK police forces ThisitemwassubmittedtoLoughboroughUniversity’sInstitutionalRepository by the/an author. Additional Information: • A Doctoral Thesis. Submitted in partial fulfilment of the requirements for the award of Doctor of Philosophy of Loughborough University. Metadata Record: https://dspace.lboro.ac.uk/2134/14594 Publisher: (cid:13)c Tessa Lambri Please cite the published version. This item was submitted to Loughborough University as a PhD thesis by the author and is made available in the Institutional Repository (https://dspace.lboro.ac.uk/) under the following Creative Commons Licence conditions. For the full text of this licence, please go to: http://creativecommons.org/licenses/by-nc-nd/2.5/ Modelling the Implementation and Acceptance of the Police National Database in UK Police Forces By Tessa Lambri A Doctoral Thesis Submitted in partial fulfilment of the requirements for the award of Doctor of Philosophy of Loughborough University December 2013 © By Tessa Lambri, 2013 ACKNOWLEDGEMENTS Firstly, I would like to give special thanks to my Home Office supervisor, Mr Martin Hollingsworth, without his support and direction, I would not have been able to engage with police forces to conduct this research. My supervisors– Dr Louise Cooke and Professor Tom Jackson have been amazing. Their encouragement, patience and support were immeasurable! And I will miss working with them so much. I would also like to thank Mrs Lynda Langton – PhD Student Administrator, who is a real asset to us all at the Centre of Information Management, And also, my thanks to Dr Gillian Ragsdell, former Director of Research Degree Programme, for her positivity and advice. I am gratefully thankful to the following colleagues for supporting my research: Detective Chief Inspector Richard Winser (Cambridgeshire Constabulary), Detective Chief Inspector Brendan O’Shea (Greater Manchester Police), Detective Chief Superintendent Mick Campbell (Hertfordshire Constabulary), Detective Chief Inspector Dave Tweddle, (Durham Police), Detective Superintendent Nigel Bashem (Metropolitan Police Service), Inspector Dave Weston (Northamptonshire Police), Superintendent Brian Douglas (Home Office), Sharon Harby (College of Policing), Kylie Lucas (NPIA), Steve Underwood (Cambridgeshire Constabulary) Senior Project Manager Darryl Smith (Essex Police) Project Manager’s Paul Hooseman (Leicestershire Police), John Curtin (Essex Police), Rebecca McCullough (Hertfordshire Constabulary), and Will Murphy (Bedfordshire Police). 2 ABSTRACT The Police National Database (PND) was launched in June 2011 as a direct recommendation from the Bichard Inquiry. Its main purpose is to provide a national platform to share police information and for the first time, the PND will provide a single view of data held in police intelligence, custody, crime, child and domestic abuse systems across the UK. The PND will not replace local police systems, but it will allow all forces to see and share information - that until now has only been available within individual force boundaries. The implementation process of the PND evoked significant business change, which has not only impacted on the way police officers and staff manage information, but also challenged cultural practices toward the sharing of police information. Delivery of the PND was incremental, and local variations in its deployment have influenced the extent to which the system was adopted. This study explores the inception, implementation and acceptance processes of the PND using a longitudinal and qualitative research design, which focuses on identifying propelling factors that have shown to influence the integration of the system from both a user and stakeholder perspective. Key lessons have been captured throughout this research, which relate to managing system transition, the pivotal role of strategic leadership, the management of police information, and meeting users’ technical and business requirements. In terms of sustaining the ongoing use of the PND, the findings of this research suggest that the success of the system is largely dependent on maintaining rigorous and robust data quality standards, so that users’ remain confident in the integrity of the PND. The original contribution of this research is the contextual development of a police system acceptance toolkit (P-SAT), which comprises of a conceptual model, an activity flow chart and a strategic alignment map. This is to support the future delivery of national IT/IS projects in the police organisation. Keywords: Police Organisation; Sharing Information; Technology Implementation and Adoption; Police System Acceptance Toolkit. 3 ABBREVIATIONS ACPO Association of Chief Police Officers BPR Business Process Re-Engineering CEOP Child Exploitation Online Protection Agency CT Counter Terrorism FIB Force Intelligence Bureau HMIC Her Majesty’s Inspectorate of Constabularies ILP Intelligence Led Policing INI Impact Nominal Index IS Information System IT Information Technology MoD Ministry of Defence MoPI Management of Police Information MPS Metropolitan Police Service NHS National Health Service NIM National Intelligence Model NPIA National Policing Improvement Agency NSPCC National Society for the Prevention of Cruelty to Children NUG National User Group P-SAT Police System Acceptance Toolkit PEOU Perceived Ease of Use PNC Police National Computer PND Police National Database PSD Professional Standards Department PU Perceived Usefulness RUG Regional User Group SOCA Serious and Organised Crime Agency TAM Technology Acceptance Model 4 THESIS CONTENTS ABSTRACT ........................................................................................................................................... 3 ABBREVIATIONS ............................................................................................................................... 4 THESIS CONTENTS ............................................................................................................................ 5 FIGURES ............................................................................................................................................... 9 TABLES ................................................................................................................................................. 9 CHAPTER 1 ........................................................................................................................................ 10 INTRODUCTION AND BACKGROUND ....................................................................................... 10 1.1 Introduction .......................................................................................................................................... 10 1.2 Police National Database – Organisational Context ............................................................. 12 1.3 Operation YEWTREE – Jimmy Saville Investigation and HMIC Review ...................... 16 RESEARCH AIMS & OBJECTIVES ................................................................................................. 20 1.4 Impact of this Research on the PND Project ............................................................................ 19 1.5 Research Aim - 1 ................................................................................................................................. 20 Objectives ...................................................................................................................................................... 20 1.5.1 Research Aim - 2 ............................................................................................................................. 20 Objectives ...................................................................................................................................................... 20 CHAPTER 2 ........................................................................................................................................ 22 1.6 Thesis Outline ...................................................................................................................................... 21 LITERATURE REVIEW ................................................................................................................... 22 2.1 Evaluating Information Systems in a Complex Context ..................................................... 22 2.1.1 The Role of Information Technology and Knowledge Management ......................... 27 2.1.2 Managing Organisational and Business Change ................................................................ 32 2.1.3 User Acceptance of Information Technology ...................................................................... 34 2.1.4 Police Acceptance of New Technology ................................................................................... 39 CHAPTER 3 ........................................................................................................................................ 51 2.2 Key Findings and Considerations ................................................................................................ 48 RESEARCH DESIGN & METHODOLOGY .................................................................................... 51 3.1 Philosophical Framework - Phenomenology .......................................................................... 51 3.2 Qualitative versus Quantitative Methodologies..................................................................... 54 3.3 Theory Building Methodology for Developing P-SAT ......................................................... 56 3.4 Validating Qualitative Research ................................................................................................... 59 3.5 An Interpretivist and Case-Study Approach ........................................................................... 60 3.6 Participant Observation ................................................................................................................... 64 5 3.7 Research Methodologies on the Acceptance & Utilisation of Technology .................. 65 CHAPTER 4 ........................................................................................................................................ 73 3.8 Data Collection Process .................................................................................................................... 68 INFORMATION SYSTEM TRANSITION: PND INITIATION .................................................. 73 4.1 Introduction .......................................................................................................................................... 73 4.2 Preparing for Information System Changeover ..................................................................... 74 4.3 Research Sample ................................................................................................................................. 75 4.3.1 Participants Questions .................................................................................................................. 76 4.3.2 Interview Questions ...................................................................................................................... 76 4.4 A Case-oriented Approach to Data Analysis ............................................................................ 77 4.5 INI Usage– Advantages, Disadvantages and Resistance to Change ............................... 79 4.5.1 PND User Expectations and Information Management Capabilities ......................... 81 4.5.2 Managing Transition & Business Change During Technology Initiation ................. 92 CHAPTER 5 ........................................................................................................................................ 95 4.6 Summary ................................................................................................................................................ 94 PND POST-IMPLEMENTATION REVIEW (1): ADOPTION .................................................. 95 5.1 Introduction .......................................................................................................................................... 95 5.2 Exploring Conceptual Relationships Empirically .................................................................. 95 5.3 Post-Implementation Review Objectives ................................................................................. 97 5.3.1 Research Sample ............................................................................................................................. 98 5.3.2 Designing the Interview Schedules and the Interviewing Approach ........................ 98 5.4 Analytical Process .............................................................................................................................. 99 5.5 Phase 3 – Post-Implementation Review (1) Findings ...................................................... 103 5.5.1 Technology Factors: End-Users Skills, Data Management & Disclosure ............... 103 5.5.2 Organisational Factors: Information Sharing, Leadership & Peer Influence ...... 107 5.5.3 Implementation Factors: Business Processes, PND Guidance & Training ........... 110 5.6 Post-Implementation: Critical Review Factors ................................................................... 113 5.6.1 Developing a Conceptual Model-PND Post-Implementation Review (1) ............. 115 CHAPTER 6 ..................................................................................................................................... 120 5.7 Summary ............................................................................................................................................. 119 PND POST-IMPLEMENTATION REVIEW (2): INTERNALISATION ............................... 120 6.1 Introduction ....................................................................................................................................... 120 6.2 Research Sample .............................................................................................................................. 121 6.2.1 Focus Groups Questions ............................................................................................................ 122 6.3 Theoretical Considerations in Adopting Innovations ...................................................... 123 6 6.4 Analytical Technique and Process ............................................................................................ 125 6.5 Phase 4 – Post-Implementation Review (2) Findings ...................................................... 126 6.5.1 PND Capability .............................................................................................................................. 127 6.5.2 Managing Information ............................................................................................................... 128 6.5.3 PND Deployment .......................................................................................................................... 129 6.5.4 Phase 4 – Atlas.ti – A Network View .................................................................................... 132 6.6 Business Benefits – Good News Stories.................................................................................. 134 6.7 Theoretical and Contextual Considerations ......................................................................... 136 CHAPTER 7 ..................................................................................................................................... 140 6.8 Summary ............................................................................................................................................. 138 DEVELOPMENT AND REFINEMENT OF THE ....................................................................... 140 POLICE SYSTEM ACCEPTANCE TOOLKIT (P-SAT) ............................................................ 140 7.1 Introduction ....................................................................................................................................... 140 7.2 Toolkit Development Process .................................................................................................... 141 7.2.1 Developing Models for Piloting/Conceptual Development ........................................ 142 7.2.2 Definitions and Descriptive Text for Figure 18: Conceptual Model Pilot Version 1 ........................................................................................................................................................................ 148 7.2.3 Definitions and Descriptive Text for Figure 19: P-SAT Process Pilot Version 1 150 7.3 Piloting Process ................................................................................................................................ 152 7.3.1 Analysing Stakeholders’ Feedback ....................................................................................... 153 7.3.2 Definitions and Descriptive Text for Figure 21: Conceptual Model Post Pilot Version 2 ..................................................................................................................................................... 161 7.3.3 Definitions and Descriptive Text for Figure 22: P-SAT Process Post Pilot Version 2 ...................................................................................................................................................................... 165 7.4 Theoretical Insights to Conceptualisation and Model Development ......................... 168 CHAPTER 8 ..................................................................................................................................... 171 7.5 Summary ............................................................................................................................................. 169 BUILDING THEORY FROM CASE STUDY RESEARCH......................................................... 171 8.1 Introduction ....................................................................................................................................... 171 8.2 Articulating Theory Construction ............................................................................................. 171 8.2.1 Theory Development Process ................................................................................................. 173 8.3 P-SAT Theoretical Propositions ................................................................................................ 174 8.4 Requirements for a Theory ......................................................................................................... 177 8.5 Literature Verification and Validation of P-SAT ................................................................. 181 8.6 Summary ............................................................................................................................................. 185 7 CHAPTER 9 ..................................................................................................................................... 186 DISCUSSION AND CONCLUSION ............................................................................................... 186 9.1 Fulfilling the Aims and Objectives of this Research .......................................................... 186 9.2 Major Themes and Interpretations .......................................................................................... 187 9.3 Future Implications for Police Practice, Theory and Research Design ..................... 189 9.4 Original Research Contribution ................................................................................................. 192 9.5 Research Limitations and Delimitations ................................................................................ 193 9.6 Closing Comments ........................................................................................................................... 194 AUTHOR PUBLICATIONS - APPENDICES .............................................................................. 207 (1) Eastern Region PND Release 1 Drop 2 Report ........................................................... 207 (2) National PND Release 1 Post-Implementation Review Report ............................ 219 (3) National PND Release 1 Post-Implementation Review Lessons .......................... 236 (4) Post-Implementation Review Release 2 Drop 1 Methodology ............................ 238 (5) Findings of the Post – Implementation Review - Focus Groups ........................... 242 (6) PND Good News Stories Report ....................................................................................... 250 (7) The Challenges and Complexities of Implementing and Evaluating the Benefits of an IT System: The UK Police National Database (Research Paper) ...................... 257 (8) Exploring System Transition in the Police Organisation: The Case of the UK Police National Database (Research Paper) ...................................................................... 273 (9) PND Post-implementation Review Eastern Region Questionnaires .................. 291 (10) PND Post-implementation Review Interview Schedule Questions .................. 306 8