What follows is the text from an unfunded NSF proposal in 2008
We had offered to assemble a knowledge resource for NSF-funded virtual organizations to create governance systems that were “open, trustworthy, generative, and courageous” (taking the lead here from Maddie Grant and Jamie Nodder’s book: Humanize). The idea was to raise the level of knowledge and awareness of NSF program managers and funded PIs to the challenges and rewards of creating actual democratic governance when they build a community-led, volunteer-run virtual science organization. The operant word above is: “unfunded.” From recent events it looks like the NSF still could use a broader purview of the role of governance in its funded networks.
New Knowledge is Essential to guide Governance Plan Decisions for future CI Projects
Building the cyber-social-structure that supports cyberinfrastructure projects is equally important as building the information technologies. While critical-path project management might be sufficient to get the code done, it takes community engagement to get that code used. Every project that uses “community-based” research or promises to “serve a user community” needs to consider the issue of project governance outside of critical-path task management. However, a search for the term “governance plan” on the NSF website (January 5, 2008) shows that only five program RPFs (ITEST, PFC, MSP, CREST, and RDE) have ever asked for a plan for project governance. Even in these cases, governance was associated with task management, rather than community engagement/building. Other large scale NSF CI projects such as the DLESE digital library effort, which were/are centered on community-based content development, have had no requirement (nor guidance) on matters of community-based governance. The simple fact is this: the knowledge that would enable the NSF to give guidance to CI/VO projects about community governance planning and execution does not today exist.
Today, there is no place where NSF Program Managers or project PIs can go to gather the knowledge required to make an informed decision on a community based/led governance plan for a proposed project. The literature on VO project/task management and communication has grown considerably of late (See: Jarvenpaa and Leidner (1999), Monge and Desanctis (1998)). However, the role of community participation in decision making for VOs is mostly undertheorized and poorly understood. The Virtual Democracy Project will produce useable knowledge that the NSF and project PIs can use to make concrete decisions on the issue of community-based governance.
Dialogic Democracy in the Virtual Public Sphere
The Virtual Democracy Project centers its work on a novel extension of the theory and practice of “dialogic democracy,” as this occurs within virtual organizations (VO). This term was coined by Anthony Giddens, who wrote in 1994, “…it is the aspect of being open to deliberation, rather than where it occurs, which is most important. This is why I speak of democratization as the (actual and potential) extension of dialogic democracy—a situation where there is developed autonomy of communication, and where such communication forms a dialogue by means of which policies and activities are shaped.” The notion owes much to Habermas’s (1992) notion of the role of conversation in the public sphere (see also: Calhoun 1992).
Large-scale VOs (such as digital libraries and national collaboratories) are created outside of single institutions. They serve as bridges between communities and organizations. In order to be truly interdisciplinary (and/or inter-organizational, inter-agency, or international), they require an external position to their constituent groups. They become, in fact, “virtual public spheres” where discussions concerning the needs and goals of the VO must avoid collapsing into competing voices from within the various communities to which the members also belong (academic disciplines, universities, etc.). A VO of any scale engages this virtual public sphere whenever it proposes to use “community-based (or -led)” research or outreach.
Just as the Public Sphere opens up the space for dialogic democracy in the modern nation-state (Calhoun 1992), the virtual public sphere inside the VO opens up the dialogic space necessary for authentic community-based governance. How is this virtual public sphere created and sustained? How are practices within it enabled to shape policies and activities of the VO? How does this governance effort interact with the project management effort? These are questions that many VOs must face or ignore at their own risk.
Which form of governance is right for your CI effort?
A funded project’s policies and activities can be shaped and decisions made in many ways. When these are made through open communication among peers, a form of democracy is achievable. Conversations, commentaries, discussions, multiple opportunities for feedback into the decision process: practices such as these mark the emergence of a dialogic democracy within a VO. Fortunately for researchers, dialogic democracy is not a subtle, hidden practice. The implementation of community-led governance is a visible, recordable, completely reflexive event. This means that it’s absence is also markedly noticeable. Ask any member of a VO who makes the decisions for the project, and the answer will reveal the presence or absence, the strength or weakness, of dialogic democracy in that organization. Examples of strong and weak community governance in VOs are available for study.
Take, for example, two large, currently active VOs that have chosen completely different governance structures. The Federation of Earth Science Information Partners (ESIPFED) uses dialogic democracy as the basis of all of its workings. Its members spent three years creating the organization’s Constitution and Bylaws (ESIP Federation 2000). By contrast, the National Science Digital Library (NSDL), early in its founding period, chose not to embrace community-led governance, even though this was prominent in early discussions (NSDL 2001). How important is/was dialogic democracy to the work and the sustainability of VOs such as the ESIPFED and the NSDL? How much will this have an impact on future CI-funded VOs? How does the NSF manage funding when this also needs to be managed through community-based governance structures? As a part of the Virtual Democracy Project, PIs (past and present) from the ESIPFED and the NSDL will be surveyed about the role of dialogic democracy in these organizations. The Virtual Democracy Project will be the first NSF funded effort to look at the value of and evaluate the practices and the return on investment of dialogic democracy practices (or their absence) in existing VOs.
Software/services with built-in democracy features
While many social networking and peer feedback software services appear to offer functionalities that can be used as-is within community-led governance efforts, democracy places its own requirements on the channels and administration of communication resources. In addition the need for active communication among peers there is a new need for appropriate monitoring of these channels to ensure that their use is transparent and sufficient to support minority voices and sustain a record for review and for possible redress.
The Virtual Democracy Project (VDP) provides paradigm-shifting research for both social-science and computer-science research approaches. The application of the public-sphere based dialogic democracy model to “virtual public spheres” within VOs represents a novel research perspective for CI governance issues. The software services that constitute the vehicles for peer interaction need to also be democratically available for members of VOs, just as the files and folders, the rooms and chambers: the venues that inform the councils of government need to be available for citizens.
Computer scientists on the VDP team will be evaluating available social networking and peer-evaluation services to devise ways for software/services to be open to community inspection. Other software issues include maintaining the privacy of online voting records while allowing for independent validation of results, and maintaining logs of more public member contributions for proper attribution and rewards.
Geography offers a particularly useful domain for VOs that include unstructured crowd-sourcing (such as Yahoo Maps, Wikimapia, and geo-tagging on Flickr). Thousands of strangers every day add nodes and layers to Internet maps that are openly shared. The role of community -building/-governance practices that would promote reliable management of these voluntary community contributions for scientific research offers a window into the very front end of Web 2.0 development.
New IT services are generally built according to the emerging needs of users. Through the proposed research, new user needs for IT in support of dialogic communication will certainly emerge. Because of the dual requirements of privacy and attribution, one can predict that these software services will require novel thinking about database structures and security. The need for non-technical persons to have confidence that information assembled by the VO to inform its decisions is accurate and reflects the contributions of its members requires the construction of new diagnostic tools that can monitor software services to look for evidence of tampering or rigging. A whole new set of questions and concerns will inform the next generation of IT based social networking services that will need to meet new standards for use within VO governance structures.
Meeting concerns for the future of an inclusive cyberinfrastructure
This research effort will have immediate benefits for the remainder of the CI effort, as its outcomes will lead to practical guidance about which forms of governance might best be applied to any proposed CI program/project. Where the proposed effort embraces community participation, the activity of governance for community-building can be better budgeted for time and labor and also timing. Democracy also takes time. A three-year project that starts community-building in year three will probably fail in this task. The larger question of how much should a government agency spend on community-building efforts for any project also needs to be addressed. Planners and program directors will be able to turn to the cybersocialstructure.org site for decision support.
Where issues of community participation and dialogic democracy really come to the fore is in practices designed to improve and reward the efforts of underrepresented communities and individuals within VO decision making. Assuming the goal is actual inclusion of a diverse range of voices and interests in the decision process, authentic (and authenticatable) democratic processes are an obvious need and solution. The Virtual Democracy Project will explore the use of dialogic democratic practices as a feature of building a more inclusive cyberinfrastructure.
A final note, however, is that democratic practices also can inform and potentially improve communication by building community (and so, trust and identification with project goals) within the core group of PIs and Co-PIs (Wiesenfeld, et al 1999). There are potential benefits to the core task management effort that need to be considered in any cost-benefit decision.
Photo Credit: Backbone Campaign (CC general 2.o)