The Implementation of Welfare Technology in Municipal Care: A Qualitative Study of Procurement Practices in Sweden
Abstract Background: Welfare technology has been launched as a concept to accelerate digital transformation in care services, but the implementation of these technologies is still hindered by organisational resistance, lack of infrastructure, and juridical and ethical issues. This paper investigates the decision-making among municipal actors in the implementation of welfare technology in a specific task that is procurement. The study explores the perceptions and negotiations in purchasing welfare technology in each stage of the procurement model revealing the impact of technical, economic, juridical and ethical competence on the mapping and planning, procurement, implementation and management of welfare technology. Methods: The study presents empirical findings from a qualitative interview study for municipal actors in Sweden. Semi-structured interviews were gathered among procurement managers, IT managers, and managers in social administrators in three different municipalities in 2020 (N=8). Inductive content analysis and systematic categorisation were employed resulting to 17 sub-categories, 9 generic categories and 3 main categories of procurement practices. Results: Challenges in the procurement practices occur in all stages of the procurement model. In mapping and planning, municipal actors outline barriers the need analysis, requirement specification and market analysis. In procurement stage, economic resources, standardisation and interoperability hinder the procurement process. Implementation and management is complicated by supplier assessment, legislation, cross-organisational collaboration and political strategy. Building on these findings, the study defines the procurement competence to consist of technical, economic, juridical and ethical expertise to assess and evaluate welfare technology. Technical and ethical competence is needed in early stages of the procurement, whereas juridical and economic competence relates to later stages of the model.Conclusions: Procurement competence is associated with the implementation of welfare technology in 1) assessment of the end-users needs, 2) estimation of the costs and benefits of welfare technology, and 3) management of the juridical and legislation issues in data management. Economic and juridical decisions to purchase welfare technology are not value-neutral, but rather associated with socially shared understandings of technological possibilities in care provision. Optimisation of procurement process requires a combination of capabilities to implement welfare technology that meet the demands and needs of end-users.