Large-scale system-level digitalisation initiatives in the National Health Service in England: insights from three national evaluations

Abstract

There is a growing number of large-scale digitalisation programmes in health and care, each aiming to coordinate digital technologies across systems and organisations. This paper draws on findings from three independent evaluations of national initiatives within the English National Health Service, examining implementation, reception, and lessons for future efforts. We evaluated three national programmes collectively valued at £13 billion. We conducted 1079 interviews with implementers, frontline staff, patients, decision-makers, and vendors. We also observed 819 clinical encounters and meetings, and reviewed 2219 documents, including plans, minutes, business cases, and lessons-learned reports. Data gathered over 15 years enabled detailed analysis of temporal and contextual variation. Although programme goals differed, common themes emerged. Integrating new technologies with existing legacy systems constrained progress and demanded long-term systemic change, particularly in larger programmes involving multiple technological systems. The most significant challenges were sociotechnical. Expectations were inflated, timelines politically driven, and governance unstable, with objectives drifting over time. Conflicting priorities undermined coordination, and valuable learning was not consistently retained. National support and system-level coordination are essential for large-scale digital transformation. We propose a three-stage model: invest in infrastructure, enable shared learning, and build on these foundations to drive advanced innovation.

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