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Toward a Model for an Anthropology of E-Government Marc K University of South Florida Scholar Commons Graduate Theses and Dissertations Graduate School January 2012 "People...Do Not Come with Standardized Circumstances": Toward A Model for an Anthropology of E-Government Marc K. Hebert University of South Florida, [email protected] Follow this and additional works at: http://scholarcommons.usf.edu/etd Part of the Art Practice Commons, Public Policy Commons, and the Social and Cultural Anthropology Commons Scholar Commons Citation Hebert, Marc K., ""People...Do Not Come with Standardized Circumstances": Toward A Model for an Anthropology of E- Government" (2012). Graduate Theses and Dissertations. http://scholarcommons.usf.edu/etd/4332 This Dissertation is brought to you for free and open access by the Graduate School at Scholar Commons. It has been accepted for inclusion in Graduate Theses and Dissertations by an authorized administrator of Scholar Commons. For more information, please contact [email protected]. “People…Do Not Come with Standardized Circumstances”: Toward A Model for an Anthropology of E-Government by Marc K. Hébert A dissertation submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy Department of Anthropology College of Arts and Sciences University of South Florida Major Professor: S. Elizabeth Bird, Ph.D. Co-Major Professor: Susan Greenbaum, Ph.D. Rebecca Zarger, Ph.D. Joan Pynes, Ph.D. Kathleen de la Peña McCook, Ph.D. Date of Approval: October 22, 2012 Keywords: audit culture, citizenship, design, ethnography, welfare policy Copyright © 2012, Marc K. Hébert DEDICATION To those struggling to access public information and services online, to the librarians and employees at community organizations who help them, and to policy workers striving for e-government program efficiency and effectiveness. ACKNOWLEDGMENTS I am grateful to the many who supported and guided me along the way. Each member of the dissertation committee played an important part from introducing me to new literature and supporting my ideas to encouraging reflection on certain assumptions. The technicalities of this process are numerous. A great deal of gratitude is owed to both of my advisors for their patience, insight and wisdom. I am also indebted to the public librarians and employees of “HELP” and other community organizations as well as to the ACCESS applicants who gave generously of their time. While my research in Melbourne, Australia is not explicitly mentioned here, I appreciate all the research participants there as well as my host advisor and institution at the Swinburne University of Technology for what I learned that informed this work. My family and friends have been instrumental. Their contributions arose from the first conversation about this project to late nights sketching ideas in SOC 15 to clippings from newspapers about my research to sending me cards and emails with words of encouragement to editing drafts diligently. I love and cherish each of you. To everyone else who participated in this research, thank you for sharing a part of yourself with me. I am also grateful to funding from the U.S. National Science Foundation, the Australian Academy of Science, Bright House Networks and the University of South Florida. Humata, Hukhta, Hvarshta. TABLE OF CONTENTS List of Tables v List of Figures vi Abstract viii Chapter 1: Introduction 1 Overview 1 Research Questions 2 Background 3 Literature from Anthropology, E-Government and Design 4 Methods 7 Findings 9 Organization of the Dissertation 12 Chapter 2: Literature Review 15 Overview 15 Structure, Agency and the Personal Responsibility Narrative 16 The Official Definition of Poverty 17 The American Dream as a Cultural Ideology 19 Taxpayer and Social Citizenship 20 An Anthropological Definition of Poverty 22 PRWORA and the Imperative of Evaluating Efficiency 24 Incentivizing Efficiency over Effectiveness 27 A View of the Federal Level 27 A View of the State Level 28 Perverse Incentives as Disincentives to Apply 29 “Audit Culture” 31 “Science of the State” 32 E-Government 34 A Brief History of U.S. E-Government 36 E-Government in Other Countries 39 E-Government in Florida 41 E-Government, Librarianship & Public Libraries 42 “Digital Difference” 45 E-Government Evaluation Research in Theory and Practice 47 The Design Literature 50 Overlapping Historical Tracks of Anthropology and Design 51 Design Techniques 56 i Conclusion 58 Chapter 3: What DCF Knows or Articulates about Applicants’ Experiences 61 Overview 61 The Three Primary Documents 62 The Creation of the ACCESS Program 63 Applying on Paper vs. Online 65 Stages of the ACCESS Application Process 66 What Do DCF Officials Know about the Experiences of Applicants? 67 What Do DCF Officials Know about the Experiences of Those Who Assist Applicants at Public Libraries and NGOs? 69 Conclusion 70 Chapter 4: Methods 73 Overview 73 Primary NGO and Field Site: HELP 75 Primary Library Field Site: Library B 78 The Department of Children and Families 80 The DCF User Feedback Form 82 Applicants and Employees at NGOs and Libraries 83 Participant-Observation: Articulating and Assessing Experiences and Addressing Challenges 84 Free Listing: Articulating Challenges 85 Think Alouds: Articulating and Assessing Experiences and Addressing Challenges 87 Semi-Structured Interviews: Articulating and Assessing Experiences and Addressing Challenges 88 Ethnographic Survey: Articulating Experiences and Assessing Challenges 91 Ethical Considerations 96 Limitations to the Research Methodology 99 Conclusion 101 Chapter 5: Applicants and Employees Articulate and Assess Their Experiences and Address Their Challenges 102 Overview 102 Think Alouds: Articulating and Assessing Experiences and Addressing Challenges 103 Semi-Structured Interviews: Articulating and Assessing Experiences and Addressing Challenges 113 The Library and NGO Staff Experience 115 Employees’ Reflections about Applicants’ Experiences 118 The Game 120 DCF and Applicants 121 DCF and Community Partners 122 DCF and Public Libraries 125 ii Participant-Observation: Articulating and Assessing Experiences and Addressing Challenges 127 Visits to Other Community Partners in the County 130 Free Listing: Articulating Challenges 131 Survey: Articulating Experiences and Assessing Challenges 135 Demographic Data 136 Comparing Observed and Self-Reported Data 138 Open-Ended Survey Questions 141 Conclusion 153 Chapter 6: Analyzing the Experiences of Applicants and Employees Using the Poverty Studies and Design Literature 157 Overview 157 Concepts Applied from the Anthropology of U.S. Poverty 157 “If I Didn’t Know, Then What about Other People?” 158 “Designerly Ways of Knowing” 160 Three Key Concepts from Design 161 Usability and Its Discontents 162 “Street-Level” E-Government 165 “How Far Can We Help These People? 165 Workarounds in Response to Varying Levels of Assistance 167 “What Do I Do Next?” 168 “Citizen-Centered” Design 169 Conclusion 170 Chapter 7: How DCF Assesses Applicants’ Experiences and Addresses Their Challenges 173 Overview 173 Datasets 173 DCF: Addressing Applicants’ Challenges 174 DCF: Assessing Employees’ Experiences 177 DCF: Assessing Applicants’ Experiences 178 Generalizing Results from the DCF ACCESS User Feedback Survey 185 Conclusion 186 Chapter 8: Analyzing DCF’s Evaluative Practices Using the Policy Studies And Design Literature 189 Overview 189 Privileging an Efficient Program ahead of an Effective One 189 DCF’s Constraints 190 ACCESS Evaluations are Political 191 Informant Consistency 193 Conclusion 196 iii Chapter 9: A Model for Advancing an Anthropology of E-Government 197 Overview 197 The Anthropological Literature 197 Macro-Level Structures: Neoliberal Practices and Techniques 199 Evaluation as a Political “Technology” 202 The Evolving Critiques of Neoliberal Policies 203 The Design Literature 204 The E-Government Literature 206 Chapter 10: Conclusion 210 Overview 210 The First Research Question 210 The Second Research Question 213 The Proposed Model 214 Policy Recommendations 218 The U.S. Social Security Administration (SSA) Website 219 Evaluative Techniques 221 Dissemination of Results 223 Future Research 224 Reflections 225 Epilogue 226 References 229 Appendix I: IRB Approvals 258 iv LIST OF TABLES Table 4.1: Formal data gathering prior to the survey 84 Table 4.2: Formal data gathering with the survey 84 Table 4.3: Amount of time conducting participant-observation during formal gathering 85 Table 4.4: 28 informants completed free listing 86 Table 4.5: Eight ACCESS applicants participated in think alouds 87 Table 4.6: Participation of 20 informants in semi-structured interviews 89 Table 4.7: 27 variables about people’s challenges in general 93 Table 4.8: 10 variables about respondents’ own experiences 94 Table 5.1: Time spent applying online during think alouds 113 Table 5.2: Frequency of free listing categories across informants split between applicants and employees of NGOs and libraries 134 Table 9.1: A model for analyzing e-government anthropologically 209 v LIST OF FIGURES Figure 4.1: ACCESS signage 76 Figure 5.1: Frequency of free listed items by informant group 133 Figure 5.2: Applicants’ ethnicity and race 136 Figure 5.3: Employees’ ethnicity and race 136 Figure 5.4: Applicants’ highest level of formal education 137 Figure 5.5. Employees’ highest level of formal education 137 Figure 5.6: All library applicants provided 42 total responses to Question 3 145 Figure 5.7: 26 NGO applicants provided 50 total responses to Question 3 145 Figure 5.8: All employees provided 72 responses
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