The thorny road to technology legitimation — Institutional work for potable water reuse in California

Abstract

Technological innovation that is incongruous with established social rules and practices is often confronted with strong skepticism and a lack of societal legitimacy. Yet, how the early actors in a new technological field create legitimacy for new products is not well researched. This paper addresses this gap by proposing an analytical framework for the early technology legitimation phase that combines recent insights from innovation studies and institutional sociology. Both literatures agree that technology legitimation depends on a complex alignment process in which the technology and its institutional context mutually shape each other. Innovation system studies recently proposed to explore these processes in more detail. So far, this literature has mainly treated legitimacy as an outcome of overall system maturation and has not ventured into assessing legitimation as an active process. The framework we put forward in this paper conceptualizes technology legitimation as being enacted by different actors in a technological innovation system through specific forms of institutional work. This framework is illustrated with a case study on potable water reuse, in this case the injection of treated wastewater into drinking water reservoirs — a technology most consumers confront with revulsion. California is among very few regions worldwide where this technology is becoming common practice. Interviews with 20 key stakeholders and content analysis of 124 newspaper articles reveal how technology proponents worked on legitimizing this controversial technology by engaging in system building and institutional work at various levels. We outline how the legitimation process interrelates with other core development processes of a technological innovation system and discuss how our framework informs recent work in innovation and transition studies.