Transdisciplinary public leadership theory: Between the extremes of “traditional public administration” and “new public management”

The 21st century public organization is faced with complex problems, informed stakeholders, and information flows, which necessitate a corresponding open system view of leadership. The traditional notions of public administration and new public management had been structured by strict bureaucratic rules and managerial flexibility, respectively. This paper begins by theorizing two hypothetical constructs (helicopter and deadbeat leadership), which engage in extreme micromanagement/surveillance and negligence/indifference, respectively. Those form basis for designing an optimal (transdisciplinary) leadership, which forges synergistic link between leaders, subordinates, and external actors in codesigning objectives and strategies to address societal problems. Strategies to promote transdisciplinary leadership are discussed.     

Support for Performance‐Based Funding: The Role of Political Ideology,Performance, and Dysfunctional Information Environments

As performance‐based mechanisms for accountability have become increasingly commonplace in the public sector, it is apparent that administrative reactions to these reforms are central in determining their effectiveness. Unfortunately, we know relatively little about the factors that drive acceptance of performance‐based accountability by administrative actors. This article employs data collected from an original survey instrument to examine the perceptions of presidents at American public colleges and universities regarding performance funding. The author finds that acceptance of performance as a basis for funding is driven by a variety of factors, including the partisanship of the state legislature, organizational performance (measured by institutional graduation rates), dysfunction in the external information environment, and the political ideology of university presidents.     

The Other Side of the Coin: NGOs,Rights‐Based Approaches,and Public Administration

The majority of the world's population resides in low‐ and middle‐income countries, where the problem of sustainable development is among the most pressing public administration challenges. As principal actors within the international development community, transnational nongovernmental organizations (NGOs) play a leading role in piloting a wide variety of development‐focused strategies. During the past decade, many of these transnational NGOs, along with the United Nations, have embraced a rights‐based approach (RBA) to development as an alternative to traditional service delivery. Despite the growing popularity of RBA among NGOs and other development actors, surprisingly little attention has been paid to understanding the significance of RBA for public administration and for public managers—the “other side of the coin.” Drawing on current research in NGO studies and international development, this article describes several varieties of contemporary rights‐based approaches, analyzes their impact on development practices, and examines the intersection of RBA and public administration.     

The Role of Management and Representation in Improving Performance of Disadvantaged Students: An Application of Bum Phillips's “Don Shula Rule”1

Scholars and practitioners within the U.S. education system have focused considerable attention on developing new programs aimed at raising educational achievement for disadvantaged students. New programs are only one way to improve student performance, however; recent work in public administration suggests that public management and implementation practices might also have a large impact on student performance. Existing research shows that managerial networking, managerial quality, and effective personnel management can significantly improve the quality of the education received by disadvantaged students. Additional work highlights the contribution of representative bureaucracy. Because these research agendas have targeted the public administration literature rather than the education policy literature, this article seeks to bring this research back to education policy. Using data from several hundred Texas public school districts, spanning 1995 to 2002, and focusing on disadvantaged student performance (Latinos, blacks, and low‐income students), this article illustrates how both management and processes to enhance the representativeness of teaching faculty produce benefits for disadvantaged students.     

Does Involvement in Performance Management Routines Encourage Performance Information Use? Evaluating GPRA and PART

The Government Performance and Results Act (GPRA) of 1993 and the George W. Bush administration’s Program Assessment Rating Tool (PART) established new routines that were intended to foster performance management practices. Using data from two surveys, the authors find that the involvement of agency employees in GPRA processes and PART reviews generally had little direct effect on performance information use once other factors are accounted for. The main exception is that managerial involvement in GPRA processes and PART reviews is associated with the use of performance data to refine measures and goals. This reflects the limits of government‐wide reform efforts that depend on difficult‐to‐observe bureaucratic behavior. The authors also find that a series of organizational factors—leadership commitment to results, learning routines led by supervisors, the motivational nature of the task, and the ability to link measures to actions—are positive predictors of performance information use.     

Hard Lessons from Hard Times: Reconsidering and Reorienting the “Managing Decline” Literature

Does the public administration research from the late 1970s and 1980s on managing decline contain useful lessons for today's Great Recession? Do these studies serve our current research needs? Why has decline continued to be a major focus of research in generic management, but not in public administration? The answers to these questions give some clues as to a possible new, revitalized research agenda for our field. Whereas public administration often viewed organizational decline as a self‐contained set of problems requiring remedial action, generic management and sociology research on decline tended to view the topic as part of organizational phases and life cycles, linking decline to growth, stability, and change. Viewing decline as part of the organizational life cycle encourages researchers to take a longer view of organizations and their management, and thus its orientation is more strategic than reactive. Three areas of decline studies are identified as relevant irrespective of sector: (1) implications of decline for human resources management, (2) effects of decline on organization structure and design, (3) the relation of strategy and decline.     

The Theory and Practice of “Nudging”: Changing Health Behaviors

Many of the most significant challenges in health care—such as smoking, overeating, and poor adherence to evidence‐based guidelines—will only be resolved if we can influence behavior. The traditional policy tools used when thinking about influencing behavior include legislation, regulation, and information provision. Recently, policy analysts have shown interest in policies that “nudge” people in particular directions, drawing on advances in understanding that behavior is strongly influenced in largely automatic ways by the context within which it is placed. This article considers the theoretical basis for why nudges might work and reviews the evidence in health behavior change. The evidence is structured according to the Mindspace framework for behavior change. The conclusion is that insights from behavioral economics offer powerful policy tools for influencing behavior in health care. This article provides public administration practitioners with an accessible summary of this literature, putting these insights into practical use.     

Does the Motivation for Market‐Based Reform Matter? The Case of Responsibility‐Centered Management

Organizational theorists have long examined the implications of market‐oriented policies for public agencies. Current research often aims to understand the effects of policies imposed on organizations by external stakeholder groups, but few studies have attempted to gain a better understanding of what mechanisms cause agencies to select into these strategies. The purpose of this article is to understand, first, which factors make an organization more likely to adopt a decentralized, market‐based budgeting system—termed “responsibility‐centered management (RCM)—and, second, whether this type of system has implications for organizational performance. Using data on doctorate‐granting public and private nonprofit four‐year universities in the United States, the authors find that mission, resource dependence, and state party control influence the take‐up of RCM. In terms of effects, RCM creates winners for graduation rates (white students) and degree production (science, technology, engineering, and math departments), which raises questions of equity across groups.     

The Obama Administration and PBB: Building on the Legacy of Federal Performance‐Informed Budgeting?

The administration of President Barack Obama, like those of his immediate predecessors, is focused on trying to improve the quality of, and use of, performance data. The federal government has been pursuing performance‐informed budget reforms for more than 50 years. Most recently, the Bush administration reforms included the President’s Management Agenda and the Program Assessment Rating Tool (PART). The Obama administration reforms include: measuring the effects of the American Recovery and Reinvestment Act; reducing or eliminating poorly‐performing programs; setting a limited number of short‐term, high‐priority performance goals; and funding detailed program evaluations. The administration is taking a more agency‐driven approach than the Bush administration, but continues to find it challenging to move beyond production of performance data to its use. There should be opportunities to show how performance information can be used for decision making, given the change in the political climate and the needs to reduce spending and the deficit. Historically, there has been little appetite in the Congress for evidence‐based decision making. The administration, however, can continue to demonstrate how federal agencies can use performance information to more effectively manage programs.     

Transformational Leadership and Organizational Processes: Influencing Public Performance

Leaders are essential actors in public performance improvement and organizational change. However, a key question has not been adequately addressed in prior literature on the topic: how do leadership processes make a difference? Using data on New York City public schools, this article explores the organizational mechanisms by which a specific form of principal's leadership—transformational leadership—influences objective organizational outcomes as measured by standardized test scores. The empirical results indicate that a principal's transformational leadership style affects student test scores through the mediating effects of purposeful performance information use and stakeholder engagement.     

Never Change a Winning Policy? Public Sector Performance and Politicians' Preferences for Reforms

Despite the increasing stress on performance in public sector organizations, there is still little empirical evidence on whether—and if so, how—politicians respond to performance information. This article addresses this research gap by linking registry statistics on school performance in Norway's 428 municipalities with data from an information experiment embedded in a survey of local politicians. Findings show that school performance bears only a weak relationship to politicians' preferences for resource‐related reforms, but it strongly affects preferences for governance‐related reforms, indicating the importance of accounting for heterogeneity across alternative types of (school) reforms. Moreover, local politicians are, on average, well informed about school performance. This reflects the force of local inhabitants' high information level on politicians' accountability.     

Incentives in Third‐Party Governance: Management Practices and Accountability Implications

Contract incentives are designed to motivate contractor performance and to provide public managers with a powerful tool to achieve contract accountability. Our knowledge of contract incentives is rooted in contract design, yet as we move beyond contract specification and further into the contract lifecycle, we know little about why and how managers implement incentives. This study assesses public managers’ use of contract incentives in practice and advances theory development. A typology of contract incentives is constructed to capture a comprehensive range of formal and informal incentives, and the factors that influence managerial use of incentives are identified. The findings shed light on the complexities of maintaining accountability in third‐party governance structures and the management techniques aimed at improving the performance of public agencies.     

Extending the Theory of Goal Ambiguity to Programs: Examining the Relationship between Goal Ambiguity and Performance

One of the main assumptions of empirical studies conducted on the influence of goal ambiguity in public management is that goal ambiguity relates negatively to performance. However, this relationship has rarely been tested at the program level because common goal ambiguity and performance measures for disparate government programs have been scant. The availability of Program Assessment Rating Tool (PART) results for a number of federal programs provides the opportunity for an analysis testing the foregoing assumption. Measures of program goal ambiguity—target, timeline, and program evaluation—are shown to have negative relationships with different program performance scores, taking into account alternative influences or biases on performance. This analysis extends the theory of goal ambiguity by providing the first analysis of large‐sample federal programs. The theoretical and practical implications are presented in the discussion and conclusion.     

Using Data to Manage for Performance at Public Universities

As performance‐oriented reforms have become more commonplace in recent years, questions about the factors that drive organizational adoption and use of performance systems for internal management are of central importance. This article uses data taken from a survey of presidents at public universities to advance our understanding about the use of data and performance management strategies within public organizations. The central research question is, why do public administrators choose to employ performance management strategies? In addition, the author also explores variation in the extent to which public universities use performance management strategies for three tasks that are central to public management: (1) strategic planning, (2) evaluating employees, and (3) interacting with external stakeholders. Findings indicate that public universities often use performance data to help manage, but many of the causal factors that lead to data use vary across management functions.     

Government Communication Effectiveness and Satisfaction with Police Performance: A Large‐Scale Survey Study

For the last two decades, performance management theories and practices have focused on outcome‐oriented management but have paid little attention to the role of public communication. Using multiple large data sets from Kansas City, Missouri, for 2009–14, this research suggests that the perceived effectiveness of public communication has a more substantial impact on public satisfaction with police protection and crime prevention than neighborhood crime rates and broken windows factors and that perceived effectiveness moderates the negative impact of crime rates. After controlling for residents’ demographic characteristics, the authors find that the perceived effectiveness of communication is associated with public satisfaction with the content and quality of the city website and the government television channel. The implications for public safety management and police–citizen relations as well as directions for future research on public communication strategies and public performance management are presented.     

Analytics and Beliefs: Competing Explanations for Defining Problems and Choosing Allies and Opponents in Collaborative Environmental Management

The rationale for collaborative environmental management often hinges on two factors: first, specialized training creates biased analytics that require multidisciplinary approaches to solve policy problems; second, normative beliefs among competing actors must be included in policy making to give the process legitimacy and to decide trans‐scientific problems. These two factors are tested as drivers of conflict in an analysis of 76 watershed partnerships. The authors find that analytical bias is a secondary factor to normative beliefs; that depicting the primary driver of conflict in collaborative environmental management as between experts and nonexperts is inaccurate; that compared to the “life” and “physical” sciences, the social sciences and liberal arts have a stronger impact on beliefs and choice of allies and opponents; and that multiple measures are needed to capture the effect of analytical biases. The essay offers lessons for public administrators and highlights the limitations and generalizations of other governing approaches.     

“… And a suitable living environment”: The failure of housing programs to deliver on neighborhood quality

Abstract

This article evaluates the relative performance of housing programs in terms of neighborhood quality. We profile neighborhood characteristics surrounding assisted housing units and assess the direction of assisted housing policy in light of this information. The analysis relies on a housing census database we developed that identifies the type and census tract location of assisted housing units—that is, public housing, developments assisted under the Department of Housing and Urban Development, the Section 515 Rural Rental Housing Direct Loan Program, the low‐income housing tax credit, certificates and vouchers, and state rental assistance programs.

We conclude that project‐based assistance programs do little to improve the quality of recipients’ neighborhoods relative to those of welfare households and, in the case of public housing, appear to make things significantly worse. The certificate and voucher programs, however, appear to reduce the probability that families will live in the most economically and socially distressed areas.     

One‐way,Two‐way,or Dead‐end Street: British Influence on the Study of Public Administration in America Since 1945

What intellectual influence, if any, have British public administration scholars had on their American counterparts since World War II? In this article, the author briefly reviews the major areas of theory and research in the British study of publication administration, further identifying important contributions by British scholars in the areas of modernist‐empiricism, the new public management, regulation, policy networks and governance, and interpretive theory. Although there is a discernible American influence on British public administration, there is little British impact on U.S. public administration; nowadays it is a one‐way street. Increasingly, British scholars are involved in a growing community of European public administration scholars with whom they share active, two‐way connections. Recent European developments suggest that American and European public administration academics are growing further apart. Due to the immense strength of modernist‐empiricism throughout American universities, plus the interpretive turn to a European epistemology of “blurred genres,” these twin, traditionally self‐referential, communities seem to be parting company with an attendant danger that future intellectual engagement may be a dead end.     

Resilience in Public Administration: The Work of Elinor and Vincent Ostrom from a Public Administration Perspective

This essay examines the remarkable careers of Elinor and Vincent Ostrom, exploring polycentricity and human management of common property resources from the “no‐name fields” of public administration in the late 1950s, through the metropolitan public service industries and public choice approach to democratic administration in the 1960s and 1970s and the institutional analysis of common pool resource management of the 1980s and 1990s. It continues with the diagnosis of the self‐governing capabilities of socio‐ecological systems in the 2000s. Many continuities underlie focal shifts in attention. Their work will be related to developments in the public administration field along with illustrations of their pioneer example for public administration on research as a collaborative enterprise. The 2009 Nobel Laureate in economics, Elinor Ostrom has been working from an academic background and intellectual tradition that, particularly through her long‐term collaboration with Vincent Ostrom, is strongly rooted in the classical and prevailing institutional concerns that may be seen as core to public administration as an academic field of education and research.

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“Editorials at a Glance”: Cultural Policy,Gender, and Modernity in the World War I Bureau of Cartoons

Cultural policy during the Great War, rather than radiating from the central government, evolved from contemporary culture—propaganda, movies, and mass media. The state was a player, but quasi‐public organizations such as propaganda agencies, non‐state actors like the YMCA, and “public opinion” played important roles. The Committee on Public Information (CPI)—the government's propaganda committee—influenced Americans through books, advertisements, posters, and cartoons. This essay examines two of the CPI's efforts: the Bureau of Cartoons and the Division of Pictorial Publicity. In these materials, we can see the intersection of class‐based notions of gendered idealism and a developing media state's use of a sentimental culture of the Victorian middle‐class to represent and motivate the nation. With staff drawn primarily from advertising agencies and newspapers, the Committee's work shows how the formulation of cultural policy is the result of complex negotiated processes involving state interests, cultural liaisons, and ideological assumptions.