NONPROFIT ORGANIZATIONS AND FOR-PROFIT ORGANIZATIONS PROVIDING HOME CARE SERVICES FOR THE ISRAELI FRAIL ELDERLY: A COMPARATIVE ANALYSIS

The article presents a longitudinal study on the behavior and functioning of voluntary nonprofit organizations (VNPOs) and for-profit organizations (FPOs) providing home care services to frail elderly persons in Israel according to the Long Term Care Insurance Law, which was implemented as of 1988. The study examined differences and similarities in the strategic, structural, administrative, and human behavior of VNPOs and FPOs over a 10-year-period. The main findings point to blurring distinctions between organizations in both sectors, which can be attributed to their high dependence on governmental resources, adoption of similar service technologies, and transmission of professional norms. In light of the above, the article seeks to shift the focus of research from the question who provides to how services are provided and what structural and organizational properties may contribute toward improving service effectiveness.     

EXPLAINING THE WILLINGNESS OF PUBLIC PROFESSIONALS TO IMPLEMENT PUBLIC POLICIES: CONTENT,CONTEXT, AND PERSONALITY CHARACTERISTICS

The willingness of public professionals to implement policy programmes is important for achieving policy performance. However, few scholars have developed and tested systematic frameworks to analyze this issue. In this study, we address this by building and testing an appropriate framework. The aims have been: (1) to build a three‐factor model (policy content, organizational context, and personality characteristics) for explaining willingness to implement policies; and (2) to quantitatively test the model through a survey of Dutch professionals. The results show that policy content is the most important factor in explaining willingness. Nevertheless, organizational context and the personality characteristics of implementers also have a significant effect and should be considered when studying the attitudes of professionals towards policies. This research helps in understanding the willingness or resistance of professionals when it comes to implementing policies.     

Forget “Blind Leading the Seeing” – Improving Public Service Management

The aim of this research is to identify the most effective public service management approaches for outsourced services. Our focus is on the phases of transition and service management post provider selection. To reach this aim, comparative case studies across sectors were conducted. The studied cases indicate that managing an outsourced service should not be a separate area of public management research nor practice, but rather a part of service management. Best practices in (outsourced) public service management are provided. Management focus on transition phase after provider selection, performance measurement, and evaluation will bring efficiency to public sector service production.     

How does diversity affect public organizational performance? A meta-analysis

Research in public administration examining the effects of diversity on public organizational performance has produced mixed results. However, the lack of a comprehensive theoretical framework has failed to provide an explanation for the mixed diversity effects. This study introduces a systematic analytical model, Categorization-Elaboration Model (CEM), to help identify the contextual constructs which can promote the positive effects of diversity on public organizational performance. A meta-analysis is conducted on 37 quantitative studies to test the empirical validity of a CEM constructed theoretical model with 253 effect sizes which will promote a better understanding of the circumstances or contexts that lead to the benefits of diversity within public sector organizations. The empirical results of meta-regression point to the appropriate range of contextual factors which can alleviate the potential negative effects of diversity and promote its overall positive effects.     

NEW PUBLIC MANAGEMENT IN PUBLIC SECTOR ORGANIZATIONS: THE DARK SIDES OF MANAGERIALISTIC ‘ENLIGHTENMENT’

For many years the proponents of New Public Management (NPM) have promised to improve public services by making public sector organizations much more ‘business‐like’. There have been many investigations and empirical studies about the nature of NPM as well as its impact on organizations. However, most of these studies concentrate only on some elements of NPM and provide interesting, but often anecdotal, evidence and insights. Perhaps exactly because of the large amount of extremely revealing and telling empirical studies, there is, therefore, a lack of a systematic identification and understanding of the nature of NPM and its overall relevance. This paper contributes to a systematic identification and understanding of the concept of NPM as well as its multi‐dimensional impact on public sector organizations. First, the paper aims at (re‐) constructing a comprehensive taxonomy of NPM's main assumptions and core elements. Secondly, the paper tries to provide a more comprehensive and meta‐analytical analysis of primarily the negative consequences of NPM‐strategies for public sector organizations as well as the people working in them.     

STRUGGLING WITH AMBIGUITY: PUBLIC MANAGERS AS USERS OF NPM‐ORIENTED MANAGEMENT INSTRUMENTS

Improving public sector performance involves both ‘knowing’ and ‘doing’ problems. With the emphasis on the ‘doing’ problem, this study examines public managers as users of management instruments (MI) in attempts to improve the performance of public services. The article explores uses of three MIs in Finnish local government by using the conceptual framework of ambiguity. The article demonstrates why and how the use of MIs does not always simplify the public management exercise. It may become even more ambiguous. It is important to comprehensively understand the ways in which uses and users of MIs intervene in the process of public service delivery. It is argued that understanding MI uses in public administration necessitates a more profound theoretical approach acknowledging the ways in which ‘rational intentions' for performance improvements turn into situated, boundedly rational, managerial practice. In the context of productivity programmes, such understanding is essential to researchers and practitioners of public administration.     

FROM RED TAPE TO WHICH PERFORMANCE RESULTS? EXPLORING THE RELATIONSHIP BETWEEN RED TAPE AND VARIOUS DIMENSIONS OF PERFORMANCE IN HEALTHCARE WORK UNITS

Decades of research on red tape have still to provide final answers as to whether red tape reduces performance. This may be due to not distinguishing the different dimensions that public service performance consists of. Shifting the focus to rules and their characteristics, this study analyses how the degree of compliance burden and lack of functionality of rules relates to overall and dimensional public performance. Building upon the argument that red tape reduces resources and motivation and by doing so influences performance, hypotheses are put forward regarding the relationship to performance. Using red tape reports from employees in 49 work units and performance rated by the supervisor, this study shows that performance is at its lowest when the rules have a high compliance burden and lack functionality. Moreover, the dimensional analyses show that compliance burden may be most detrimental for output, whereas lack of functionality reduces responsiveness and democratic outcomes.     

Performance-Related Payments in Local Governments: Do They Improve Performance or Only Increase Salary?

Personnel policies in public sector organizations are fundamental to improving public services, since they have an impact on both individual and organizational performance. Within the broad area of Human Resources Management (HRM), Performance-Related Pay Systems (PRPSs) are widely considered one of the cornerstones of public sector managerial reforms. Monetary incentives should be paid for performance achievements of single employees and/or teams, according to a defined set of objectives. While the role and appropriateness of PRPSs in the public sector have been widely discussed in the literature, in some countries monetary incentives have been used as a tool to increase individual salaries, without considering them as a motivating instrument in a wider HRM system. A small number of studies have been conducted to understand the limitations of this form of incentives and to investigate whether it can be replaced by different and more effective incentives in order to avoid the de-motivating effect caused by money, as recognized in the literature. This study tries to fill this gap investigating, through twenty-five interviews to informed respondents the effectiveness of existing PRPSs at Local government level in Italy both in terms of performance and motivation and the possibility to substitute monetary with non-monetary incentives. The findings suggest that the limitations of monetary incentives have been widely recognized, but it is still difficult to replace them with different and more effective alternatives.     

Implementation Studies: Time for a Revival? Personal Reflections on 20 Years of Implementation Studies

This paper presents a review of three decades of implementation studies and is constructed in the form of a personal reflection. The paper begins with a reflection upon the context within which the book Policy and Action was written, a time when both governments and policy analysts were endeavouring to systematize and improve the public decision-making process and to place such decision-making within a more strategic framework. The review ends with a discussion about how public policy planning has changed in the light of public services reform strategies. It is suggested that as a result of such reforms, interest in the processes of implementation have perhaps been superseded by a focus upon change management and performance targets. It is further argued that this has resulted in the reassertion of normative, top-down processes of policy implementation. The paper raises points that are important ones and indeed are reflected throughout all four papers in the symposium issue. These are: (1) the very real analytical difficulties of understanding the role of bureaucratic discretion and motivation; (2) the problem of evaluating policy outcomes; and (3) the need to also focus upon micro political processes that occur in public services organizations. In conclusion, the paper emphasizes the continued importance of implementation studies and the need for policy analysts to understand what actually happens at policy recipient level.     

Civil service management and corruption: What we know and what we don't

Numerous studies have linked a range of economic, social, and institutional variables with corruption in government. Yet, most of this literature overlooks the management of public officials themselves. This is a relevant omission: almost all corrupt exchanges involve public officials. This article reviews studies—36 in total—that do address civil service management and anti‐corruption. It finds that prior works assess a narrow set of civil service management structures. Meritocratic recruitment and, less robustly, pay levels have been associated with lower corruption. By contrast, robust evidence on how corruption relates to other established public personnel management areas—such as distinct pay structures (rather than levels), promotion, transfer, and job stability practices—is largely unavailable. The article thus calls for research assessing the effects of a broader set of civil service management practices to gain a deeper understanding of corruption, and how to curb it.     

IMPROVED PERFORMANCE IN LOCAL ECONOMIC DEVELOPMENT: A WARM EMBRACE OR AN ARTFUL SIDESTEP?

This article examines the extent to which changing approaches to performance management have had an impact on a range of agencies responsible for local economic development programmes in Britain. It explores the possibility that the effectiveness of public programmes could be more sharply highlighted and incorporated in the performance review of organizations. It demonstrates that major improvements have occurred but that overall the planning and management of local economic development remains largely incremental. While the FMI (Financial Management Initiative) has led to greater understanding of the extent to which corporate and programme accountability can be achieved in public agencies, it is not clear that sufficient momentum has been achieved for future changes to be self-generating. Further progress in performance management continues to be dependent on strong external pressures to publicize, probe and reward demonstrable improvements in public sector performance.     

Creating Better Employees through Positive Leadership Behavior in the Public Sector

This paper advances the notion that leaders’ behavior in public organizations impacts employee emotions and workplace functioning. The paper proposes a conceptual model showing the impact that specific leader behaviors have on employee momentary emotions and thereby subjective well-being, organizational citizenship behavior, and job performance. Findings from research on leader behaviors and follower outcomes in private organizations and workplace emotions are used to show the importance of understanding and promoting types of leader behaviors that enhance employee and organizational outcomes within public institutions. It is expected that this model will facilitate future research in this area.     

Public value creation and appropriation mechanisms in public–private partnerships: How does it play a role?

Scholars have extensively investigated public value creation and appropriation concerning public services delivered strictly by the government and public–private arrangements, such as public–private partnerships (PPPs). However, such studies often focus on value for money and economic performance criteria. This study examines how public value can be created and appropriated in PPP settings and how public value mechanisms can influence these phenomena. Considering that the literature lacks an integrated and structured analytical framework to assess such phenomena, this conceptual article addresses four mainstream PPP topics regarding public value mechanisms (information sharing, public and private capabilities, risk governance, and stakeholder orientation), which can be associated with PPPs' public value creation (destruction) and appropriation (misappropriation). Thus, this article highlights a need to evaluate PPPs in terms of public value creation beyond the economic performance criteria and fills the literature gap by proposing a public value creation and appropriation framework.     

TOWARDS A GENERAL THEORY OF COLLABORATIVE PERFORMANCE: THE IMPORTANCE OF EFFICACY AND AGENCY

Much of what has been written about collaboration treats it instrumentally as a means–ends tool of improvement. However, despite considerable collaborative activity there is little evidence that clearly links collaboration to improvements in service‐user outcomes or reduced inequalities. In this article we draw on literature from critical public policy and governance studies to recast collaboration as an expression of cultural performance associated with a rather different set of values and measures. We argue that understanding collaboration in the round means that we need to pay attention to all dimensions of performance including cultural performance. We argue that this in turn helps to explain the persistent appeal of collaboration amongst policy makers and practitioners.     

The limits of proceduralism: Critical remarks on the rise of ‘throughput legitimacy’

‘Throughput legitimacy’ is among the most successful conceptual innovations that scholars of public policy and administration have produced in recent years. I argue that this new understanding of legitimacy needs to be seen in the context of an increasing proceduralism in political science and public administration. Throughput legitimacy attracted so much attention because it is the perfect normative companion to the analytical concept of governance. Governance is procedure, and throughput legitimacy tells us what good procedures are. In my critical discussion of this innovation I examine the analytical value of the concept, as well as its normative and practical implications. I argue that, regarding concept formation, throughput legitimacy may enrich existing typologies of legitimacy but at the same time has a severe problem of fuzzy borders. Politically, throughput legitimacy lends itself to apologetic uses when it is applied as a tailor‐made normative standard for technocratic, non‐majoritarian institutions.     

Frontline Problem Solvers: The Structuring of Frontline Service Work

The purpose of this article is to contribute to the understanding of the role of frontline employees in organizing public service delivery. Combining inspiration from organizational institutionalism and social theory of practice, this study offers an integrative understanding of frontline agency in organizational dynamics during the institutionalization of a public sector reform. Findings are presented from an ethnographic field study of frontline employees' strategies of adopting new structures of service work during the institutionalization of a public reform. The study illustrates how frontline actions provide the basis for both stability and change in the structures through which frontline work is organized. The agency exerted by frontline employees in institutionalization of reforms may have both equilibrating effects as well as deepen the gaps between the public sector and the public served.     

Exploring Contracts as Reinvented Institutions in the Danish Public Sector

Contracts have been on the agenda in public sector reform in most OECD countries. In Denmark, contracts have been considered as one of the most important tools in reorganizing the public sector. The article examines the implementation of contract agencies in central government in Denmark during the 1990s. First, a review of contractual theory distinguishes between 'hard' and 'soft' contracting. Second, recent developments in contracting in Denmark are examined, and three phases of contract agencies are identified. Contracts have been supported by other tools for reporting on performance like annual reports. Third, it is argued that Denmark has put co-operation and negotiation before more strict management and control. The Danish experience can be seen as an alternative to the principal-agent model. The article finishes by discussing the pros and cons of the Danish approach, and suggests that although the pragmatic approach has merits, it may lead to problems in the future concerning the credibility of the whole project.     

The role(s) of accounting and performance measurement systems in contemporary public administration

The spate of public sector reforms which have taken place in recent decades has triggered the development of a new body of research around public sector accounting and performance measurement both in public administration as well as in the (public sector) accounting literature. However, studies in accounting and public administration have at times ignored each other, proceeding in parallel. This symposium encourages the adoption of interdisciplinary perspectives in exploring the myriad roles played by accounting and performance measurement systems in contemporary public administration. Emphasizing that accounting and performance measurement systems are socially, politically, culturally constructed and, in turn, are implicated in the creation of organizations, society and political values, this symposium aims to extend the dialogue between accounting and public administration scholars in exploring how accounting, accountability and performance measurement considerations are connected to policy-making, public services and, more generally, the building and maintenance of modern states and democracies.     

SOCIAL TRUST,IMPARTIAL ADMINISTRATION AND PUBLIC CONFIDENCE IN EU CRISIS MANAGEMENT INSTITUTIONS

In this article, we investigate whether differences in social trust and impartial public administration have an impact on public confidence in EU crisis management institutions. Our assessment is based on a cross‐country comparison using aggregate country‐level data of the member states in the European Union. Earlier studies on the EU as a crisis manager have not carefully studied to what extent differences in social trust and administrative culture may or may not matter. Our analysis shows that in countries where citizens are treated impartially by their own national public administration institutions, people are less likely to support EU‐coordinated civil protection efforts. In contrast, in places where citizens perceive their government's treatment of them as partial and unfair, citizens will tend to support EU‐coordinated civil protection.     

Biased,not blind: An experimental test of self‐serving biases in service users’ evaluations of performance information

Based on literature about motivated reasoning, this article proposes that choosing a public service provider from among competing options may bias service users in a positive direction when evaluating the performance of their chosen provider. Users are expected to defend their choice through processes of goal reprioritization, meaning that they will alter the weight they assign to given pieces of information depending on the (in)convenience of that information. This article uses nine experimental studies to test this expectation on students who had recently chosen to study at one university instead of competing universities. As expected, findings show signs of biases in students’ evaluations, but the biases are small and not consistently significant. Thus, prior research may have been too pessimistic regarding the general potential of performance information in the public sector.