More than Pathological Formalization: Understanding Organizational Structure and Red Tape

Most research has conceptualized red tape as being a pathological subset of organizational formalization. This article argues that focusing on a single dimension of organizational structure as a red tape driver is unrealistically narrow. Specifically, the article advances hypotheses as to how organizational centralization and hierarchy affect perceived red tape, in addition to formalization. This reasoning is tested using survey data from employees of three local government organizations in the southeastern United States. All three hypotheses are supported: higher levels of organizational formalization, centralization, and hierarchy are associated with more red tape. Open‐ended comments also indicate that red tape is not solely perceived as related to formalization. The findings imply that red tape is a multifaceted perception of organizational structure rather than perceived pathological formalization.     

An Organizational Echelon Analysis of the Determinants of Red Tape in Public Organizations

This article adopts an organizational echelon approach to the study of red tape in public organizations and argues that the nature and extent of red tape will vary at different levels of the organizational hierarchy. These propositions are tested with a multiple‐informant survey using a lagged model. The empirical results across the three organizational echelons sampled indicate modest variations in the levels of perceived red tape and major variations in its determinants. Results from the more senior managers uphold prior research findings and hypotheses on the determinants of red tape. This is not surprising because earlier studies typically sampled senior executives. Yet the lower down the organizational hierarchy one travels, the more red tape officials perceive and the more multifaceted the findings on determinants become. The authors conclude that prior empirical work is likely to have underestimated the extent of red tape in public organizations, and oversimplified its determinants. The implications for theory and practice are discussed.     

Strategic Human Resource Practices: Introducing Alternatives for Organizational Performance Improvement in the Public Sector

Can public sector organizations increase productivity through competition in spite of inherent limitations, such as budget constraints? This study addresses that question by examining the impact of four factors that contribute to employees’ expectations regarding competitive work environments on organizational performance in terms of overall quality of work and client satisfaction. The four factors measured include rewards for merit such as salary and benefits, opportunities, organizational rules, and the capacity to deal with risks as perceived by employees. Using data on public and nonprofit sector employees, expectations for merit rewards were positively related to employees’ perception of organizational performance when the conditions of performance‐based organizational rules and risk‐taking behaviors were also satisfied. Moreover, employees’ perceptions of organizational performance tended to increase when they felt that organizational rules were oriented toward performance plus organizational members and top leaders exhibited greater risk‐taking behaviors. However, no correlation was evident between employees’ expectations of opportunities and perceived organizational performance.     

Do Rules Breed Rules? Vertical Rule-Making Cascades at the Supranational,National, and Organizational Level

Understanding where (ineffective) organizational rules come from is of vital importance for both public administration scholars and practitioners. Yet little is known about the underlying mechanisms that explain why external rules may cause organizational rule breeding and, as a by-product, red tape. Using a combination of archival and interview data, the authors empirically study rule-breeding processes in the case of Gasunie, which is a heavily regulated Dutch gas transport organization. The archival findings indicate that rule stocks have increased substantially over time at every policy level. Furthermore, the interview data support the notion that policymakers at different levels are jointly responsible for excessive rule breeding and, ultimately, organizational red tape.     

Emotions in Management and the Management of Emotions: The Impact of Emotional Intelligence and Organizational Politics on Public Sector Employees

Readers are invited to a rendezvous with the meaning of the heart and emotions in public administration. Despite the growing interest in recent years in emotional intelligence within the managerial literature, too little has been written about emotional intelligence within the public sector. This is surprising in light of New Public Management voices that stress flexibility, responsiveness, and a focus on the needs and demands of citizens. The functionality of the heart in a mind‐oriented bureaucracy is analyzed, and a model is suggested for exploring the relationship between emotional intelligence, organizational politics, and employees' performance in public agencies. This model is empirically tested in two Israeli municipalities. The results support a moderating role of emotional intelligence in the relationship between organizational politics and emotional commitment, as well as between organizational politics and employees' absenteeism. Other direct mediating effects of political perceptions and skills are noted. Implications for theory development, future empirical studies, as well as practical recommendations are suggested.     

Penetrating the Performance Predicament: Communication as a Mediator or Moderator of Organizational Culture's Impact on Public Organizational Performance

The role of communication in public administration has been emphasized over time in public administration theory. Nonetheless, communication—with the exception of political communication—has been neglected in scholarship. Garnett's performance predicament posits the difficulty of showing linkages between communication and performance. This paper explores the role that communication plays in achieving organizational performance through a review of research that bears on communication's direct and indirect influences on performance. The primary thrust is communication's indirect role in achieving performance by mediating or moderating the effects of organizational culture on performance, thereby adding another perspective on the culture–performance relationship. Adapting the typology of Zammuto and Krakower, two types of organizational culture—rule-oriented culture and mission-oriented culture—are examined to explore how the relationship between organizational culture and organizational performance is influenced by communication. The analysis supports the claim that communication acts as a meta-mechanism for shaping and imparting culture in mission-oriented organizational cultures, thereby influencing performance. In particular, task orientation, feedback, and upward communication have positive effects on perceived organizational performance in mission-oriented organizations but potentially negative effects on performance in rule-oriented cultures.     

The influence of red tape on bureaucratic behavior: An experimental simulation

Understanding how certain organizational and individual attributes shape responses to red tape is an area that has received little research attention. This study uses an experimental simulation to address these questions. It examines the effect of red tape upon the propensity to provide assistance to clients in a simulated public assistance agency. The findings showed that increasing levels of red tape produce in a corresponding reduction in benefits provided to clients, but that this relationship is strongly moderated by the respondent's perceptions of clients. Clients perceived as more sympathetic consistently received higher levels of benefits than those perceived as less sympathetic. Education and professional training also played a role in influencing award decisions. © 2000 by the Association for Public Policy Analysis and Management.     

Green Tape and Public Employee Rule Abidance: Why Organizational Rule Attributes Matter

Ever since Max Weber identified formal rules as one attribute of bureaucratic organizations, scholars have uncovered a range of cooperative and uncooperative behavioral responses to organizational rules. The question for public management theory and practice is how to design and execute organizational rules in ways that elicit cooperation rather than resistance. Green tape, a theory of effective rules, provides one answer to this question. Green tape theory argues that the cooperation of stakeholders—individuals who comply with, explain, or enforce rules—depends on the presence of five rule attributes. This article tests the relationship between these attributes and stakeholder rule abidance using mail survey data obtained from the employees of four cities in a Midwestern state. The results indicate that employee perceptions of four of the five theoretical green tape attributes are correlated with higher rule abidance. Thus, stakeholder perceptions of organizational rules appear to matter because they alter the extent of cooperation in rule implementation.     

Organizational Pathology Compared to What? Impacts of Job Characteristics and Career Trajectory on Perceptions of Organizational Red Tape

Early studies of organizational red tape emphasized that worker perceptions of organizational rules and procedures are dependent on workers’ frames of reference. However, most prior studies do not account sufficiently for how and why these reference points vary across employees, even if they work within the same or similar organizational contexts. While the effects of contemporaneous employee attitudes on perceptions of red tape have been considered in prior analyses, how do perceptions of organizational rules and procedures as red tape relate to workers’ prior career trajectories and occupational contexts? Variable norms and expectations across organizations as well as across the public and private sectors may produce different attitudes toward rules and procedures. Of equal import, current occupational characteristics are relatively unexamined in studies of worker perceptions of red tape. Using a survey of state level public managers, this paper examines how employees’ perceptions of red tape are mediated by their prior career trajectories and experiences, as well as by their occupational context. Implications for theory and practice are discussed.     

Red Tape: Developing and Validating a New Job‐Centered Measure

Red tape studies typically focus on burdensome rules that have negative effects on organizations, as perceived by managers. The one‐item general red tape scale is representative of this approach. However, scholars have called for improved measures that address the scale's shortcomings. This article introduces a new measurement scale that features (1) red tape as a two‐dimensional construct that includes compliance burden and lack of functionality and (2) a job‐centered approach that measures red tape as experienced by employees in their jobs rather than more generally in the organization. A set of survey questions derived from interviews with government employees was validated using data from 1,203 government employees. The findings indicate that the two‐dimensional job‐centered red tape scale is reliable and valid. The authors conclude that this measure can improve research and be used by managers for a “quick scan” to detect the location and severity of red tape.     

Unionization and Work Attitudes: How Union Commitment Influences Public Sector Job Satisfaction

This article explores whether union commitment dampens public sector job satisfaction. By examining the connection between union commitment and two workplace attributes that are presumed to be more prevalent in public sector workplaces—perceptions of higher red tape and greater public service motivation—this article develops three hypotheses exploring the direct and indirect relationships between union commitment and public sector job satisfaction. The findings from a series of structural equation models indicate that union commitment directly increases members’ job satisfaction, but it more prominently increases members’ job satisfaction indirectly by reducing perceived red tape and enhancing public service motivation.     

Organizational Citizenship Behavior in the Public Sector: A Systematic Literature Review and Future Research Agenda

This article presents a systematic literature review of organizational citizenship behavior (OCB) in the public sector. The findings show that although OCB is gaining more attention in the public sector, research often does not take specific public sector characteristics or concepts into account. Based on the available evidence, the authors develop a framework of antecedents, outcomes, mediators, and moderators of OCB. Three areas for future research are recommended: (1) regarding theory: link OCB to public sector concepts such as bureaucratic red tape, public leadership, and public service motivation; (2) regarding research designs: use stronger survey designs, experiments, and case studies and devote more attention to cross-sectoral and cross-country differences; and (3) regarding the consequences of OCB: address the gap in our knowledge of how OCB has an impact on public organizations, including negative impacts.     

Stakeholder Red Tape: Comparing Perceptions of Public Managers and Their Private Consultants

Despite the abundance of red tape literature and the growing popularity of outsourcing in the public sector, no study has yet investigated red tape in consulting relationships. Using survey data from public managers and the contractors with whom they work, the authors investigate public managers' and private consultants' perceptions of organizational and contracting red tape. They identify the determinants of red tape perceptions, variation in those perceptions, and the characteristics of respondents with stronger divergent views of contracting red tape. The results indicate that government managers perceive higher levels of organizational red tape and contracting red tape than their consultants. Public managers' perceptions of red tape are associated with job satisfaction and time spent managing and communicating with consultants. Consultants' perceptions of red tape are associated with perceptions of the appropriateness of the government agency's rules, the number of years the firm has worked with the agency, and the percentage of the firm's cost-plus contracts.     

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.     

Managing Diversity in U.S. Federal Agencies: Effects of Diversity and Diversity Management on Employee Perceptions of Organizational Performance

Diversity in the workplace is a central issue for contemporary organizational management. Concomitantly, managing increased diversity deserves greater concern in public, private, and nonprofit organizations. The authors address the effects of diversity and diversity management on employee perceptions of organizational performance in U.S. federal agencies by developing measures of three variables: diversity, diversity management, and perceived organizational performance. Drawing from the Central Personnel Data File and the 2004 Federal Human Capital Survey, their findings suggest that racial diversity relates negatively to organizational performance. When moderated by diversity management policies and practices and team processes, however, racial diversity correlates positively with organizational performance. Gender and age diversity and their interactions with contextual variables produce mixed results, suggesting that gender and age diversity reflect more complicated relationships. This article provides evidence for several benefits derived from effectively managing diversity.     

Organizational Structure and the Optimal Design of Policymaking Panels: Evidence from Consensus Group Commissions’ Revenue Forecasts in the American States

Increasing both the size and diversity of policymaking panels is widely thought to enhance the accuracy of collective policy decisions. This study advances the theoretical conditions in which improving collective accuracy necessitates an efficient trade‐off between a panel's size and its level of organizational diversity. This substitution effect between these organizational characteristics is empirically supported with data on official general‐fund revenue forecasts made by consensus group (CG) independent commissions in the American states. Evidence of an asymmetric substitution effect is also uncovered, whereby increasing organizational diversity in large CG commissions produces revenue forecasts that reduce collective accuracy by slightly more than three times as much compared to decreasing such diversity in small CG commissions. This study underscores the limits of organizational diversity as a mechanism for improving collective judgments when policymaking authority is diffuse among many panel members.     

Work Opportunities and Organizational Commitment in International Organizations

This article applies social exchange theory to investigate the relationships between work opportunities and organizational commitment in four United Nations agencies. It demonstrates that international civil servants who are satisfied with their altruistic, social, and extrinsic work opportunities are more likely to declare high levels of organizational commitment. Furthermore, perceived organizational support mediates these relationships. The empirical findings highlight the importance of considering the specificity of organizational features in explaining international civil servants' attitudes and behaviors. Their preferences for altruistic, social, and extrinsic work opportunities are not similar to the motivational orientations and rewards valued by public or private sector employees, confirming the hybrid characteristics of international organizations. Drawing on these original results, the research identifies some practical implications for human resource management in international organizations.     

How Do Performance Gaps Affect Improvement in Organizational Performance? Exploring the Mediating Roles of Proactive Activities

Abstract

According to the extensive literature on performance gaps, the various reference points of the problem identification process affect the managerial decisions of public managers. In this article, we propose a theory about the public management decision-making processes based on the roles of proactive behaviors, specifically regarding how identifying such problems (performance gaps) leads to performance improvement. Using panel data from Korea covering 2005–2014, this analysis provides support for our assertion that not all reference points are equally important to public managers’ proactive responses; however, we find evidence supporting the importance of perceiving the external reference point of problem identification as a significant precedent for successful organizational performance. Our results also indicate that practitioners need to become involved in greater feedback processes when searching for proactive solutions that remedy poor organizational performance. This suggests that the creation of diverse and sophisticated performance feedback systems can strengthen public managers’ abilities to find solutions for organizations. Ultimately, the findings enhance our understanding of the relationship between performance gaps and performance improvement by examining the role of public managers’ proactive behaviors.     

Ability to Face Threats of Cyberterrorism: Factors Associated with Organizational Competence

ABSTRACT

Acts of cyberterrorism represent potential, significant negative effects to property, infrastructure systems, security, and an overall way of life. These disruptions garner significant attention from government and the public. Managers concerned by threats of cyberterrorism should understand the components that enhance organizational competence so that doubt and fear do not overtake organizational members when faced with such extreme events. Although organizational competence is important in everyday organizational behaviors, the presence of confidence in organizational abilities is especially critical when operating in the midst of the ambiguity and destructive disruptions associated with cyberterrorist threats. We empirically assess three factors associated with competence for organizations facing simulated cyberterror attacks. Our results support the relationship between two of these factors—organizational identification and deference to expertise—with organizational competence. These findings contribute to research concerning the antecedents critical to organizational competence and also add to the growing research on cyberterrorism.     

Public Service Motivation (PSM) and Support for Citizen Participation: A Test of Perry and Vandenabeele’s Reformulation of PSM Theory

This article examines how public service motivation (PSM) relates to public managers’ attitudes toward citizen participation. Perry and Vandenabeele suggest that PSM effects are moderated and/or mediated by self‐regulation and by the salience of an activity to self‐identity. Using data from Phase IV of the National Administrative Studies Project, latent model results suggest a direct, positive relationship between PSM and citizen participation evaluation. The relationship is not mediated by value congruence but rather is moderated by the perceived importance of the organization’s citizen participation efforts. The moderating effect has three interpretations: (1) PSM has a stronger relationship to evaluation as citizen participation becomes more important in the agency; (2) at low and medium PSM levels, the greater the importance of citizen participation, the lower its evaluation; or (3) at high PSM levels, the greater the importance of citizen participation, the higher its evaluation. This suggests that PSM is more germane for activities such as citizen participation, invoking relevant values as perceived organizational commitment increases.