“Implementing a policy is something else”. Governance of a complex health management information system and its digitalization in Tanzania: A qualitative study

Health management information systems are crucial for a country’s health service planning and monitoring. Research findings indicate however that data produced within this system is often of low quality or not used for decision-making in low-resource settings like Tanzania. Policymaking and -implementation towards efficient data processes and use take place in an environment challenged by limited availability of human and other resources, low levels of supervision and feedback on data quality despite national and international guidance. To better understand how this complexity affects system governance, it is crucial to analyse perceptions and practices of national policymakers and subnational healthcare managers responsible for policy implementation. We therefore aimed to understand how policymakers and health care managers perceive and practice governance of health management information data systems and processes including the introduction of digital technology in Tanzania. We conducted 16 interviews with policymakers and healthcare managers experienced in governance and use of health management information systems in two districts, two regions and at national level in Tanzania between October 2022 and January 2023. Reflexive thematic analysis grounded in constructivism was used. Themes were developed through reflexive sessions underpinned by complexity theory and Lipsky’s theory of street-level bureaucracy. Health management information system governance took place in a complex environment characterized by unpredictable funding and human capacity impairing policy agenda setting and its implementation. Policymakers at national level and healthcare managers at subnational level resorted to different power practices to ensure implementation of national policies and agendas. While policymakers mainly governed data processes using institutionalized means, e.g. international tools and guidance or formal communication platforms, healthcare managers governed implementation by making discrete, contextualized choices on managing relations with other actor groups through negotiation and connection. This led to transformed agendas in some cases but also allowed for innovations to make policies work. A new perspective may be needed to understand how governance of routine health information, which is central to health system strengthening, is implemented in policy environments characterized by unpredictability, where governments strive for efficient data use. Drawing on the concept of complex adaptive systems, we propose expanding the definition of Health Management Information System governance to include not only process management but also the relationship management of interdependent actor groups, especially healthcare providers, the primary data collectors. • Health management information systems (HMIS) are complex adaptive systems. • Adaptation to implement policy leads to incomplete implementation, transformation or inaction. • Monitoring adaptation during implementation can improve system governance.