Effective Electronic Records Management in 21 st Century Government (Part 2)

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1 Effective Electronic Records Management in 21 st Century Government (Part 2) Reinventing Public Information Management: Strategic Issues & Implications of using New Technologies in the New Zealand Public Sector Professor Miriam Lips and Anita Rapson Victoria University of Wellington 25 November 2009

2 Research Questions 1. How do New Zealand government agencies identify and manage electronic records that are of significant value and importance, created through the use of text messaging, instant messaging, digital video or wikis? 2. To what extent and in what ways are the electronic records management practices to manage records created by using emergent technologies, such as text messaging, instant messaging, digital video or wikis, in line with legal and policy requirements? 3. What recommendations for effective electronic records management across the New Zealand government can be made?

3 7 Case Studies

4 The Police Act Review Wiki Organisation Purpose: Date Technology Services Provided: Audience: New Zealand Police The Police Act Review wiki provided an innovative way to capture public views on what a new policing act might look like Available for comments from 26th September 2007 and closed for editing from 1st October 2007 Wiki The wiki provided an online platform to capture views about policing External to the agency

5 Police Act Review Wiki 1 phase in a 3 phase consultation process. In the week it was available, the wiki received more than 5000 visits from NZ IP addresses. Interest in the wiki quickly became international after the BBC published the story. The team of 4 reviewed and moderated all posts, according to a set of moderation rules, which was published on the wiki. Initially the wiki was available 24/7 but moderating the wiki was a full time job for the team and the wiki changed to only being editable during NZ office hours.

6 Analysis of Police Act Review Wiki Identification and management of electronic public records Consideration was given to recordkeeping by the Police Act Review team early in the project: all electronic items were identified as potential public records prior to the start of the consultation process. The teamasked the SSC for advice. The team decided to maintain all submissions electronically so that they would manage all submissions in a single electronic repository, while retaining paper copies of all submissions. As a result all records created were captured and managed, while deletion of records was avoided. The team printed significant comments posted on the wiki, wrote internal codes on the printed comments and then scanned them into the system used to manage all of the submissions. At the end of the project, the wiki was made read only and retained on the Internet. The project team handed over 35 boxes of documentation to the records management (RM) team and 1 DVD of electronic copies of all submissions.

7 Analysis of Police Act Review Wiki Recordkeeping challenges The capture and management of records created on the wiki required a new set of recordkeeping behaviours While full records were made of the wiki enabled consultation activities, the team would struggle to demonstrate that captured records are accurate and provide reliable evidence of the business activity: As wikis support easy modification of content, it was possible to easily change, intentionally or unintentionally, a public record. Moreover, as this wiki did not require registration of participants, the wiki did not automatically capture details on who edited the records, resulting in potential incomplete recordkeeping metadata (e.g. the author). Records were created and captured in both electronic and physical formats. This approach raises questions about which copies need to be managed as original copies.

8 Fuelled 4 School Organisation Purpose: Ministry of Education To engage students directly with quizzes, competitions and giveaways, while providing advice and encouragement to eat well and stay active at school Date January 2008 June 2009 Technology Services Provided: Audience: SMS and video sharing website (YouTube) SMS service to enter competitions, ask questions and provide comments A YouTube channel to post related videos External to the agency

9 Fuelled 4 School Campaign involving a competition (Fuelled 4 School Challenge), a welcome pack for Year 9 students and the interactive website. There were more than 1000 SMS subscribers registered at the start of 2009 (with little promotion). A third party company held the database of student details, including the contact details and SMS transcripts. YouTube provided a cost effective solution, particularly as videopublishing functionality was not available in the Ministry s content management system. Emerging issues for staff included the lack of ability to control the advertising and which videos YouTube recommended. A member of the team checked the website and the SMS service daily. Posting of comments on YouTube was disallowed. If students volunteered any personal information on the website, the team removed it.

10 Analysis of Fuelled 4 School Identification and management of electronic public records Videos: Stored in the Fuelled 4 School section of the Ministry s shared drive. SMS: Monthly reports were downloaded from the third party company, who stored the SMS database. The reports were stored in the Fuelled 4 School section of the Ministry s shared drive. There was no involvement from the agency s Records Management team in the initiative. The Fuelled 4 School team had a general understanding of the Ministry s RM policy and tried to apply standard recordkeeping behaviours. The team decided to save electronic records in this way because it was easier for them to have them in one place and because they knew they needed them for financial purposes.

11 Analysis of Fuelled 4 School Recordkeeping challenges To capture records created using SMS, the team perceived that new recordkeeping behaviours were required. There was high recognition for the need to capture any SMS messages that confirmed financial transactions. These financial records were captured independently of all other SMS based transactions. The team decided to make a copy of all of the SMS transactions using a report generated by the external company on a regular basis. No records created or captured using SMS were disposed of.

12 Other Key Findings Videoconferencing and Instant Messaging > The organisation uses meeting minutes to document the recorded videoconferencing meeting and file notes to capture any business decisions made using IM. Digital Strategy 2.0 Wiki > The organisation operates a paper based recordkeeping system, therefore pages of the wiki were printed on a daily basis. Internal Wiki > RM team were involved in the initiative from early on and were able to ensure some technical changes were made to the system (in relation to permanent deletion) and developed a policy for the use of wikis. SMS > Although staff were not even aware of dealing with new electronic records, a technical solution (automatic logging of SMS messages) led to an appropriate and effective electronic recordkeeping practice

13 Cross Case Analysis The introduction and use of emergent technologies in public sector activities has not led to many new or fundamentally different recordkeepingbehaviours compared to traditional public records management. Only in two cases (Police Act Review Wiki, Workipedia Wiki) we can observe the development and application of a new appreciative setting for public records management. In three cases, all involving the use of a wiki, staff were aware that a new approach to recordkeeping was needed and deliberately explored new electronic records management approaches. Staff involved lack the knowledge of their organisation s recordkeeping policy and their corresponding personal responsibilities. However, in all case studies individuals behaved in accordance with legally acknowledged effective recordkeeping behaviours: they created records, filed and kept records while handing them with care, and did not delete any records. In several cases we can observe tension in the application of existing legislation (e.g. integrity and authenticity of public records, incomplete metadata, authoritative source)

14 Conclusions Government agencies have developed their own solutions to emerging Web 2.0 enabled recordkeeping issues. In developing their own solutions, agencies tended to apply traditional public records management approaches and behaviours rather than exploring new approaches Having an organisational RM policy or an EDRMS system are not sufficient. Approaches are driven by the organisational context e.g. staff awareness of their RM policy, organisational value associated with the information, technological awareness of staff, and the availability & use of an EDRMS. Records are identified according to content, but there are format specific fish hooks that agencies are struggling with e.g. Wiki The processes to manage records according to legislation and organisational policies tend to be manual and involve significant amounts of migration of the records, e.g. records are moved from system to system, or format to format.

15 Recommendations Recognition that there is no one size fits all solution. More empirical research is required to better understand emerging recordkeeping behaviours and practices. Promote cross government learning. Our findings suggest a risk that lessons learnt stay limited within individual teams or organisations Involve RM team at an early stage of the initiative, so that guidelines to staff can be developed in advance and there is less migration of records by building recordkeeping functionality into the systems. Technological solutions to emerging electronic recordkeeping issues should be further explored Further support in resolving some of the format specific fish hooks that agencies are currently experiencing. Benefit from guidelines, fact sheets, FAQs, etc.

16 More Information The full research report is electronically available from: government.vuw.ac.nz/summary_emerging_erecords.aspx The report on Part 1 of the Effective Electronic Records Management in 21st Century Government project is available from: government.vuw.ac.nz/summary_erecords.aspx Our contact details are: Miriam.Lips@vuw.ac.nz Anita.Rapson@vuw.ac.nz

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