2007 Kim
2007 Kim
2007 Kim
Abstract
⁎ Corresponding author.
E-mail addresses: kimhj@inha.ac.kr (H.J. Kim), gpan@unimelb.edu.au (G. Pan), pansl@comp.nus.edu.sg
(S.L. Pan).
0740-624X/$ - see front matter © 2006 Elsevier Inc. All rights reserved.
doi:10.1016/j.giq.2006.09.007
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 339
1. Introduction
2. Theoretical foundation
The rapid development of technology is contributing to the growth of interest in the use of
technology as a powerful tool to enable and aid transformation in organizations (Orlikowski &
Robey, 1991). A review of the existing IS literature reveals a wide range of fundamental
factors that may affect IT-enabled organizational transformation that includes a shared vision
for change (Doz & Prahalad, 1987) to project management practices (Prahalad & Oosterveld,
1999). Besides these factors, prior research has also exhibited several difficulties associated
with IT-enabled organizational transformation (e.g., Child, 1987; Orlikowski, 1993). Despite
340 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
the growing interest in this area, in-depth enquiry into how public sector organizations manage
IT-enabled transformations has remained relatively limited (Tan, Pan, & Lim, 2005). A
possible explanation for the dearth of research interest is the jaundiced impression of public
sector organizations as rigid, risk-averse and having little desire for improvement (Bozman &
Kingsley, 1998). However, despite this unfavorable belief, recent years have witnessed a rush
of the implementation of e-government to re-invent public services using IT (Kawalek &
Wastell, 2005).
Governments try to adapt to today’s fast-moving environment by implementing e-
government (Lovell, 1995). Aicholzer and Schmutzer (2000, p. 379) suggest that “e-
government covers changes of governance in a twofold manner: (1) transformation of the
business of governance—improving service quality delivery, reducing cost, and renewing
administrative processes; (2) transformation of governance itself—re-examining the
functioning of democratic practices and processes. Prior e-government research has
focused on issues such as e-citizenship (Bucy & Gregson, 2001); e-democracy (Coleman,
Taylor, & Van de Donk, 1999); e-legislatures (Coleman et al., 1999); governance in the
information age (Tapscott, Lowy, & Ticoll, 1989); tele-cooperation (Devadoss, Pan, &
Table 1
A six-stage technology diffusion model (adopted from Cooper & Zmud, 1990)
Stage Process Product
Initiation Active and/or passive scanning of A match is found for an IT solution and its
organizational problems/opportunities and application in the organization.
IT solutions are undertaken. Pressure to
change evolves from either organizational
need (pull), technology innovation (push),
or both.
Adoption Rational and political negotiations ensue to A decision is reached to invest the resources
get organizational backing for needed to accommodate the implementation
implementation of the IT application. effort.
Adaptation The IT application is developed, installed, The IT application is available for use in the
and maintained. Organizational procedures organization.
are revised and developed. Organizational
members are trained both in the new
procedures and in the IT application.
Acceptance Organizational members are induced to The IT application is employed in
commit to IT application usage. organizational work.
Routinization Usage of the IT application is encouraged as The organization's governance systems are
a normal activity. adjusted to account for the IT application,
which is no longer perceived as something
out of the ordinary.
Infusion Increased organizational effectiveness is The IT application is used within the
obtained by using the IT application in a organization to its fullest potential.
more comprehensive and integrated manner
to support higher level aspects of
organizational work.
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 341
Huang, 2002); electronic commerce (Shi, 2002); and a mechanism for crisis management
(Pan, Pan, & Devadoss, 2005), while studies that examine the process of e-government
implementations appear rather limited in comparison (Tan & Pan, 2003; Irani et al., 2006).
In fact, e-government projects can be complicated due to the lack of fundamental structures,
human and technical resources, and the vast size and bureaucratic nature of government
(Pan et al., 2006). As such, these initiatives remain challenging and deserve much more
attention. Due to the frequency of e-government implementations in recent years (World
Bank, 2006), the shortage of such implementation process studies presents a knowledge
gap that needs to be plugged. It is the aim of this paper to narrow this gap in the IS
literature.
2.1. Adopting Cooper and Zmud’s (1990) technology diffusion model as an analytical
framework
To ensure a structured and systematic approach to interpret our data, we adopt Cooper and
Zmud’s (1990) Technology Diffusion Model, which is shown in Table 1. The model identifies
six stages of organizational transformation with IT implementation: initiation, adoption,
adaptation, acceptance, routinization , and infusion. The model helps to develop better
understanding for both IT and organizational issues, during the IT implementation process.
Table 1 explains the model in terms of the process characteristics and product outcomes at
various stages of the implementation process. We adopt this particular analytical framework
because we believe that the model shapes the process of IT-enabled organizational
transformation and is applicable to the kind of technology innovation (e-government) and
adoption context (public sector organization) in this particular research (Cooper & Zmud,
1990).
3. Research approach
Our initiative to undertake an in-depth case study (Yin, 1994; Walsham, 1995) of an e-
government project at SCRO in South Korea proves prudent. The case study approach is
particularly appropriate as it allows us to better capture the organizational dynamics of the
phenomenon (Klein & Myers, 1999). Generally, the use of a case study method is well
supported by previous literature, which suggests that case studies are deemed to be particularly
good for answering the “how” and “why” questions (Yin, 1994). The case study method is
recognized as an appropriate way of empirical inquiry when the complex phenomena to be
studied cannot easily be separated from their organizational contexts (Langley, 1999).
Altogether, 27 semi-structured interviews were conducted with 27 interviewees including staff
from the SCRO, LGCNS (the IT consulting firm), and various registry offices. The interviews
focused on the interviewees’ involvement and actions taken during the project implemen-
tation. On an average, each of these interviews lasted for an hour and a half. Additional sources
of data, including on-site observation and documentation, also provide useful insights to the
project implementation process.
342 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
As the first step to our analysis, the first author uses the interview transcripts to prepare a
detailed case description, containing a summary of the entire implementation process. Major
events that have facilitated the project implementation process are identified and summarized.
We use Cooper and Zmud’s (1990) model as an analytical framework for data analysis. Our
reasons for using this framework are to apply it as “a sensitising devise to view the world in a
certain way” (Klein & Myers, 1999, p.75) and to facilitate the complex analysis of the
implementation of a new technology and the dynamics of organizational transformation (i.e.,
Cule & Robey, 2004). Data have been validated with several individuals who are familiar with
the project’s history. To reduce researchers’ bias, the project information is shown to other
authors who are uninvolved in data collection to identify portions containing stakeholders’
perceptions towards the project and actions taken during the implementation process. The
entire data analysis process has undergone numerous iterations, with each iteration cycle
following the double hermeneutic circle principle to case study development (Klein & Myers,
1999).
4. Case description
4.1. Background
At the time of the research, the SCRO had 49 district registry offices incorporated in the 13
district courts. The core function of SCRO is to manage the nation’s land and residency
registration and related legal issues. Each registry office has three divisions: “Administrative,”
“Correction and Investigation,” and “Public Access.” The Administrative Division provides
application services and serves as a public contact point. The Correction and Investigation
Division evaluates the legitimacy of application documents. Finally, the Public Access
Division handles public requests for registry documents. The rationale behind the initiation of
the e-government project at the SCRO is to provide efficient public services to the citizens.
SCRO aims to achieve three goals: (1) to promote unrestricted and flexible communications
between different governmental agencies; (2) to effectively manage resources by reducing the
cost of communication and coordination; and (3) to improve the public’s perception towards
the government’s operational efficiency. The project team has 30 members, 15 of them
represent the Supreme Court and 15 are from LGCNS (at least in the beginning). The IT
consulting firm is responsible for: the reviewing of SCRO’s existing work practices, the
designing of new processes, the building of a computerized database, the developing of
software programs, and the providing of training to internal users. The e-government system
consists of three major components: “Property Registry Document Application Process
System,” “Document Referencing and Requesting System,” and “Statistical Management
System.” The Property Registry Document Application Process System is used to input
relevant information, such as the purpose of registry document application. The Document
Referencing and Requesting System provides services such as obtaining copies of registry
documents from registry offices. The Statistical Management System provides information
such as the volume and frequency of publics’ requests for services.
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 343
The following section presents aspects, related elements, and interview quotes of the e-
government implementation process at SCRO.1
For the Administrative Division, the major changes include the availability of online
services, and the simplification of the application procedures for the registry documents.
Several steps have been taken to simplify the application procedures by reducing the number
of columns and providing clearer terminology in the application forms. For the Correction and
Investigation Division, less time is spent on checking and correcting information written on the
application forms. In addition, the availability of online documentation also saves many hours
of filing and retrieving paper-based documents. For the Public Access Division, the
computerized database has allowed the staff to search, download, and print registry documents
with ease.
Overall, the e-government initiative not only improves the quality of service delivered to the
public, but it also enhances the timeliness and comprehensiveness of information management
across various governmental agencies. For example, an improvement on the coordination of
different governmental agencies has been the implementation of the Statistical Management
System. Basically, the information that is generated from the system will be sent to the
Ministry of Government Administration and Home Affairs to generate the most updated
demographic information of the nation. The availability of such information would benefit
staff at the Statistic Bureau as it reduces the amount of time required to process, prepare, and
produce the relevant reports. Moreover, policy makers also utilize the information to develop
policies to address demographical changes. When the new online public services are launched,
feedback from the public is highly positive as they appreciate the government’s determination
to provide efficient and convenient public services.
5. Discussion
We adopt Cooper and Zmud’s (1990) model to help us to interpret our data (see Table 2).
Table 2 explains the data in terms of the process characteristics and product outcomes at
various stages of the implementation process: initiation, adoption, adaptation, acceptance,
routinization, and infusion. Interviewees’ quotes are also included in Table 2 to support the
analysis. For example in the initiation stage, the key aspects include understanding the
stakeholders’ requirements and forming a project team which are consistent with SCRO’s
activities in the case.
1
We structure the data containing the e-government implementation process based on Cooper and Zmud’s
model. We have summarized most of the narratives of the e-government implementation into Table 2 due to the
word limit constraint.
344 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
Table 2
Aspects, related elements, and the supporting evidence of the e-government implementation process at SCRO
Stage Aspect Related element Exemplar evidence
Initiation Evaluate requirements and (1) Recognize the need to “It becomes very difficult to
generate solutions to address establish a nationwide IT clear the registry
stakeholders' needs. infrastructure. applications. To do all the
(2) Identify inadequacy in work, we need at least 2–3
existing information-processing times of our current
capacity of SCRO to provide workforce.
unrestricted service. The applications simply
(3) Align new technological keep coming.”
solutions with SCRO's business (Source: A registry branch
processes. manager)
(4) Aim to change SCRO's poor “It is frustrating when we are
public image. preparing the summary
(5) Select an outsourcing reports. It is extremely
vendor. difficult to obtain the ‘right’
Form a steering group. The purposes are as follows: information. You do not
(1) to manage the budget; know who has the documents.
(2) to facilitate the selection of Even if you know, you need
the vendor; to hunt for the files.
(3) to select and form the Sometimes, we
project team; and look everywhere and yet we
(4) to support the project team. cannot locate them.”
Form a project team and carry (1) Select team members from (Source: An administrative
out initial project analysis. two different groups (SCRO officer at the registry office)
and Supreme Court). “We have representatives
(2) Analyze current business from various related registry
processes and technology. offices in the system design
(3) Identify needs of the public. team, together with the
external vendor. We try
to anticipate customers'
requirements and include
them in system designs.”
(Source: Chairman from the
project steering group)
Adoption Evaluate regulatory issues. (1) Supreme Court judges are “A project of this scale is
consulted over the legal difficult. We have to consider
implications of the project. the regulatory issues
(2) Project plans are complied involved. To avoid project
with current regulations. delays, proper project
Finalize project plans. (1) Assign relevant personnel planning and regular progress
with responsibilities based on reporting are very important.”
their expertise. (Source: A consultant from
(2) Schedule key project LGCNS)
milestones.
(3) Finalize technological
specification.
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 345
Table 2 (continued)
Stage Aspect Related element Exemplar evidence
Provide assistance to the project (1) Involve members from the
team. steering group to attend
monthly project meetings.
(2) Provide regular updates to
steering group about the project
progress.
Adaptation Modify project plan to comply (1) Modify project plan to “We have too many
with regulations. incorporate new regulations. complicated and outdated
Establish the technical (1) Customize the new systems documents in the registry
infrastructure. Customize the used in all parts of the SCRO. offices which need
systems, and install new (2) Replace and upgrade old organizing and re-designing.”
hardware and software. hardware. (Source: A registry branch
(3) Install new software. manager)
Inform various stakeholder (1) Organize training courses “We face several challenges.
groups of the project progress and workshops to equip The technical issues include
and manage their expectations. end-users with necessary skills. system infrastructure
(2) Arrange various road shows problems. Organizational
to communicate and showcase issues revolve around
the key milestones met by the managing stakeholders'
project. expectations.”
(3) Utilize various media
channels to inform the public
about the project's progress.
Manage operational difficulties. (1) Assess the interdependence (Source: An IT development
among individuals' tasks and manager)
the potential impact when one
member's task is delayed.
(2) Standardize the way data
are digitalized.
Address unexpected (1) Evaluate increasing need
technological complexity. for networked systems.
(2) Fulfill the shortage of
technical expertise.
Acceptance Impact on organizational (1) Reduce workload. “We set up a feedback
process. (2) Improve work efficiency, channel to receive feedback
including processing time, from the users. The
information quality and feedbacks are positive
accuracy. and useful. They are used in
(3) Improve access to the discussion of how to
information for different fine-tune and improve the
regional offices and branches. system”
(4) Encourage collective and (Source: A system analyst
mutual learning. from LGCNS)
(continued on next page)
346 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
Table 2 (continued)
Stage Aspect Related element Exemplar evidence
Users' perceptions. (1) Employees see the
usefulness of the project
because of the reduced
workload, and the benefit of a
centralized database.
(2) Employees agree that the “The knowledge warehouse
public services have improved can store the process
significantly. knowledge that specific
agencies have used to create
task execution standards,
and operational knowledge.”
Routinization Routinize the new system (1) Provide training sessions for
and process. users.
(2) Increase ability in the (Source: A registry assistant
back-office personnel to use the branch manager)
new system to produce
graphical reports in addition to
the standard ones that they have
learned from the basic training
courses.
(3) Sharing of experience “At meetings, each registry
between users through informal representative reflects the
interactions. ideas of his/her branch
office.”
(4) The time required to process (Source: A project manager
a document is reduced from from LGCNS)
several minutes to a few
seconds.
Infusion Achieve outcomes. (1) Increase information- “Similar to many other
processing capability. projects in the public sector,
(2) Improve work process you could never see where it
integration between different is ending. Since we have
divisions. started the system, we have
(3) Policy-makers benefit from been systematically trying
the timeliness, to include as many services
comprehensiveness and as possible online. Hopefully
accuracy of information. we can eventually move
(4) Different information towards being paperless—
channels are available to which is our ultimate goal.”
SCRO's employees and the
public.
Continuous extension of (1) Continuous improvement of
innovation. public services.
(2) Enhance capability by using
up-to-date technology.
Add new technologies to Establish an Internet platform. (Source: The project
existing infrastructure. manager)
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 347
5.1. Alignment of technology and business processes enhances the establishment of strategic
directions in governments
Traditionally, public sector organizations are viewed as rigid establishments, with poor
service quality and inefficient operations (Moon & Bretschneider, 2002). However, many
citizens are becoming increasingly demanding on improved public services. This forces
governments to re-think their existing modes of operation to establish new strategic
initiatives—an evolutionary step viewed by many as unavoidable for the survival of public
sector operation in today’s fast-moving and competitive environment (Moon, 2002). By
accurately analyzing the environment and evaluating existing capabilities, governments can
develop strategic foresights (Ho, 2002). Furthermore, experts also suggest that leveraging
technology as a resource and better alignment between technology and business processes
would help to achieve sustainable competitive advantage for organizations in the long run
(Jarvenpaa & Leidner, 1998).
In the Initiation stage of the e-government implementation (refer to Table 2), SCRO
recognizes the need to establish a nationwide IT infrastructure so that it is able to provide
efficient public services to its citizens. SCRO’s strategy is to align technology with its business
processes so that it could promote unrestricted and flexible communications and coordinations
between the registry offices and the public. Furthermore, since the adoption of e-government
has become popular (World Bank, 2006), this tends to raise public sectors’ awareness and
heighten their sensitivity to the e-government adoption phenomenon. As a result, governments
are forced to search for technological solutions in their management and operation practices
(Devadoss et al., 2002). Similarly in the case of SCRO, the organization relies on e-
government to address the inadequacy in its existing information-processing capacity and to
reduce the cost of communication and coordination among its governmental agencies. With
the pressure to ensure the success of the e-government initiative, SCRO integrates many public
services and shifts them online—an important step to move the organization towards a
“citizen-focused” public sector organization (Ho, 2002).
5.2. Integration of resources into core business activities enhances adoption of e-government
initiative
Inefficient resource management has been the main hurdle to the formation of a customer-
centric movement within public sector organizations (Rainey, 1990). As citizens continue to
demand for consolidated public services in a timely and convenient way (World Bank, 2006),
better integration of resources into core business activities can develop the capacity to initiate
and accept changes within public sector organizations (Pan et al., 2005). Besides, prior
research also reveals that to implement new strategic initiatives, resources must be sufficiently
and appropriately integrated with organizations’ key business activities (Hamel & Prahalad,
1994). To institutionalize a new strategic initiative, organizations must embrace the strategy by
integrating the necessary changes within daily organizational activities (Hamel & Prahalad,
1994). Knowledge must spread throughout the organization and be retained within the
organization so as to support the new initiative (Lovell, 1995).
348 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
Lyytinen and Robey (1999) link the effectiveness of organizational learning to IT project
development success and failure. Robey and Boudreau (1999) also highlight the relevance
H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352 349
This paper describes and analyzes the experience of the implementation of e-government at
the Supreme Court Registry Office in South Korea. The inherent limitation of a single case
study notwithstanding, this study has offered insights into the transformational experience of
SCRO from an inefficient governmental agency to an improved public sector organization
which provides efficient public services. The study adopts interviews and documentations as
the key data collection instruments and explores a diversity of implementation issues within
the e-government initiative.
The findings of the SCRO, as presented, provide major research and practical implications.
For researchers, this paper makes a contribution by providing a processual perspective on the
way an e-government project is implemented in a public sector organization. Though previous
studies have identified several IT-enabled organizational transformational efforts, little is
known about the actual implementation practice of e-government projects by governments—
an area which deserves much more attention (Irani et al., 2006) as several governments race to
adopt technology as powerful means to enable and aid transformation in their organizations
(World Bank, 2006). Furthermore, this study also makes a novel contribution to e-government
literature by extending existing knowledge based on the application of the Cooper and Zmud’s
(1990) model as an analytical framework in an e-government context. We believe that the
model offers a vocabulary for framing experiences and learning of potential e-government
initiatives. The case data in this study, their alignment with our proposed model (i.e., Cooper &
Zmud, 1990), help to demonstrate the analytical capability of the model. However, future
350 H.J. Kim et al. / Government Information Quarterly 24 (2007) 338–352
research should seek to formulate more generalizable explanations as to why certain sequences
lead to certain outcomes, or more specifically, why certain interventions during the six stages
of IT diffusion, lead either to success or failure. An interesting avenue for future research is to
attempt to contextualize the framework using a case study or even multiple case studies which
could perhaps provide stronger analytical power. In addition, we believe that the findings from
this study could be validated in other cultural contexts. One direction for future research would
be to replicate this study across various disparate cultures. For example, while South Korea is
on the low end of Hofstedt’s (1991) uncertainty avoidance index, Western cultures such as the
United Kingdom, is at the higher end. According to an earlier IT project implementation study
(i.e., Keil et al., 2000), the level of uncertainty avoidance affects how projects are
implemented, in particular, how project managers perceive project risk. Thus, an obvious
extension of the study is to replicate this study in high uncertainty avoidance cultures to
determine whether the results obtained in South Korea still hold.
For practitioners, this study is important because an e-government implementation is likely
to involve many phases. Understanding these key stages is essential for managing the e-
government initiative. Furthermore, managers should not confine the involvement of
stakeholders to only the design and development phases. Engaging stakeholders after system
rollout would enable managers to correctly assess stakeholders’ overall acceptance of the
system, and the feedback gathered could form the basis of continual improvement to the
system. For this reason, it is important to have sufficient and effective means of
communication between various stakeholders. Finally, regardless to how successfully a
public sector organization is transformed, it is important to continue to generate an effective
learning environment, as individual organizational member feels comfortable with new
knowledge to be put into practice. By following the various stages of e-government
implementation, this study highlights the importance of technology as an enabling mechanism
that incorporates and revolves around many organizational issues. This recognition not only
stresses the importance of choosing the best strategy for deciding what particular IT to adopt,
but it also underlines the need to take into account organizational issues from the start of the
implementation. Finally in this paper, we have used only retrospective data. There is a lack of
real-time longitudinal data that directly examines the other considerations made during the
implementation process. Future research could perhaps attempt to address this gap so as to
unravel new issues surrounding the e-government implementation process.
Acknowledgment
This work has been supported by INHA UNIVERSITY Research Grant. (INHA-33921-01)
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