Creating a Performance Culture? Performance-based Pay in the Australian Public Service

This article provides a critique of the operation of performance-based pay in the Australian public service from 1992 to 1996 and questions proposals for further experimentation with such managerial initiatives. Performance agreements underpinning performance-based pay were unable to measure adequately the performance of senior officers undertaking policy work. Appraisal reviews of these agreements also failed to increase performance feedback between supervisors and senior officers. The process of rating senior officers by supervisors, and the moderation of those ratings by senior agency management, proved to be inherently subjective and considerably increased the prerogatives of public service managers over senior officers. Linking pay to individual performance undermined teamwork and increased friction between those eligible for performance bonuses and junior officers excluded from the scheme. Yet the emphasis on individual employment relationships did not serve to undermine collective values, in particular workforce commitment to unionism.     

Company level localization and public affairs officers' educational background in Switzerland

As corporate public affairs officers have only rarely been researched in Switzerland, this study contributes a situation analysis of Swiss public affairs officers, their work processes, and biographical background to further fill this empirical gap. First, the existing public affairs research regarding Switzerland is reviewed, and research questions are derived. The research was conducted by sending out a survey to the members of the Swiss Association for Public Affairs, followed by personal in‐depth interviews with 11 public affairs officers. The findings show that respondents work in organizations that employ 1 to 82,100 people are all Swiss nationals, and their departments are mostly called ‘public affairs’. The responsibility of public affairs is predominantly for senior or top management level, and the majority of public affairs officers report to the director of their department. The respondents are highly educated. Moreover, the paper asks whether public affairs is conducted in a strategic way by taking Fleisher's 10 elements as a conceptual basis. Results show that strategic involvement of their activities is rather low. Recommendations are discussed in order to increase the strategic involvement and advance professionalization of public affairs in Switzerland with specific regard for the political system. Copyright © 2014 John Wiley & Sons, Ltd.     

THE DEPARTMENT OF THE PRIME MINISTER AND CABINET IN PERSPECTIVE

As much as any department, the Department of the Prime Minister and Cabinet comes in for its share of public comment, both as to functions and purpose, on its alleged struggle for supremacy in the economic or welfare or foreign policy field or somewhere else. Inside the Department we tend to give this sort of allegation a tired smile; and because it is wide of the mark, a first reaction is to be critical of the commentators. The second reaction, probably the proper one, is realization that there needs to be greater understanding of the role of the Department and its objectives, which can only be achieved by wider discussion and public debate. The proper reticence of senior officers about entering public debate on policy issues tends sometimes to flow over to a reticence on questions of public service administration. That is a pity, because public administration is our business: better administration is our objective. It is not something to be achieved within the confines of the public service; or more precisely it is to be achieved in fuller measure by debate and analysis inside and outside the Service.     

The use of mindfulness to promote ethical decision making and behavior: Empirical evidence from the public sector in Thailand

The study has two main purposes. First, the study explores core ethical values and behaviors from the perspective of Thai public service organizational leaders. Second, the study investigates the extent to which public sector leaders in Thailand consider Buddhist-based mindfulness practice to be a potentially effective mechanism for reinforcing core ethical values and behaviors in the public sector in Thailand. Using interview data derived from in-depth semi-structured interviews with 12 senior public sector officials in Thailand, the analysis elicits four dimensions of core ethical values and behaviors that are perceived by Thai public service organizational leaders as central to ethical behavior in the public sector. The study also sheds light on the interviewees' positive perceptions towards mindfulness and the role its associated practices can play in promoting ethical decision making and behavior in the public sector in Thailand.     

Reflections on CIA Analysis: Is it Finished?

Despite the CIA's improved analytical tradecraft and increased resources, the future of its analytic mission remains in doubt. Post-9/11 improvements have been coupled with a continued focus on current intelligence priorities that minimize attention to the development of strategic research and deeper knowledge. Simply increasing the number of analysts has not produced deeper expertise. The CIA's traditional recruitment and training methods, as well as its rewards and promotion system, encourage analysts to avoid concentrating on any single area of regional or functional expertise in favor of moving around the agency to build a successful career. A continued reliance on risk-avoidance security practices also restricts analysts' contact with non-government and foreign experts who often have needed political and cultural knowledge of intelligence topics. To rectify these inadequacies, the CIA's analytic directorate needs to develop incentives for analysts who wish to develop more strategic analysis and remove the security barriers to closer collaboration with experts outside the US government. Developing cross-agency analytic collaboration would also maximize expertise and would benefit from intelligence community-wide training programs similar to what the US military does at its senior service colleges.     

Trends in Australian and Canadian Public Service Perceptions from an Employee Survey Perspective

A comparative analysis of results from the 2011 Institute of Public Administration Australia and Institute of Public Administration of Canada surveys of public service leaders is mapped against related public sector employee survey tools results. Alignment of past results with current leader perceptions shows remarkable consistency across the jurisdictions over time. This overarching coherence points to two broad hypotheses: either senior public service leaders possess a common set of preoccupations in the modern global context, or a more critical perspective would question the shortcomings of the instruments given that remarkable change has occurred that one would expect should have driven result variance. Regardless of the conclusion brought to this preliminary analysis, ongoing identification and mapping of senior leader perceptions through such tools is celebrated as an important contribution to ongoing public service organizational health.     

Craft and Capacity in the Public Service

Over the past 8 years, debates about Australia's public service have evolved from being focused mainly on skills and capacities to being now increasingly concerned about the operating environment for career officials, their ability to fulfil their stewardship obligations, and to practice their ‘craft’. In this article, I track those changes and ask what is the craft of public administration? How should we understand it? Are concerns it is imperilled or has been lost valid or overblown? I draw on the observations of current and former senior officials, and the findings of recent Capability Reviews. My primary focus is on the Australian Public Service, because here is where the debate has been most public and direct. I note that the focus of concern has shifted from public servants towards ministers, who have been largely absent from public sector reform initiatives of the past 40 years.     

Community not the Councillors: A Study of Commitment of Australian Senior Council Officers Working under a Politicised Employment Relationship

Council officers as public managers are expected to work for the community. Yet, it has been argued that council officers working under a politicised employment relationship are likely to be more committed to the elected councillors than to the community. This proposition has been examined through a survey of senior council officers across Australia and the results are presented in this article. This study develops an analytical approach which combines for the first time the multi-focus and the multiple bases of managerial commitment approaches, applies this to the case of Australian local government managers and finds that although most senior council officers perceive that their employment is politicised they remain committed to the community. Based upon these findings, it is argued that a conceptual framework utilising a combined multi-focus and multiple bases approach is more appropriate to the study of commitment of local government managers and to managers in the public sector in general than the use of either approach alone.     

How Organizational Learning Is Supported by Performance Management Systems: Evidence from a Longitudinal Case Study

Abstract

Performance management is meant to encourage organizational change by providing better and more relevant feedback to managers. But there is no denying the complexity of learning and change. How performance management helps this process goes beyond the simple availability of performance information. In this study, we examine the learning processes in a large Belgian public organization through interviews of managers, directors, and administrators. By using 4Is framework of organizational learning—from Intuitions to Interpretation to Integration to Institutionalization—we identify critical blocks and enablers of learning and change. Critical impediments include off-topic discussions of performance information, lack of opportunity to share and discuss management practices, and limited motivation to change entrenched processes of work. Performance management also provides reliable enablers of organizational learning, such as giving credibility-by-results to new management practices, focusing discussions on processes that lead to measurable results, the ability to follow new innovations closely as they are implemented, and the possibility of creating a learning culture supported by performance information. Finally, we discuss how perceived credibility of performance information is crucial to organizational learning and how it is reinforced by use and dialogue.     

Public Values in Special Districts: A Survey of Managerial Commitment

Special districts are increasingly important in the landscape of public organizations and now constitute about 40 percent of all U.S. jurisdictions. Yet little is known about the public value commitments of managers in special districts. This systematic study of senior managers in large special districts finds that support for public values is strong and similar to that of senior managers in cities. This study explores the effect of concomitant commitments to “businesslike” values on public values and the impact of concomitant commitments on perceived organizational outcomes. Though a positive relationship exists between commitments to public and businesslike values among senior managers, the authors find evidence that both too much and too little commitment to businesslike values has a negative impact on perceived organizational outcomes, which are furthered by strong commitment to public values. This article demonstrates that special districts are a relevant but underresearched area of public administration.     

Leadership with an Enduring Impact: The Legacy of Chief Burtell Jefferson of the Metropolitan Police Department of Washington, D.C.

On January 13, 1978, after nearly 30 years of public service, Burtell Jefferson became the first African American to serve as chief of the Metropolitan Police Department of Washington, D.C. This profile describes his personal and professional journey and describes—from the perspective of a cadre of active and retired police chiefs and chief executive officers—the impact of Jefferson's career on the Metropolitan Police Department and policing in America more broadly. Jefferson's story, an exemplary illustration of public sector leadership, has profound implications for contemporary efforts to ensure the equality of employment opportunity. Jefferson's career provides a model of effective leadership that is applicable across organizations and sectors. He not only led his organization well but also encouraged and developed generations of future leaders.     

THE TASMANIAN PUBLIC SERVICE AND THE FUTURE

Abstract: State governments in Australia have been regarded essentially as service deliverers, with the result that the specialist heads of public organizations, although technically competent, have rarely questioned the need for their activities. Nor does the argument that such questioning is the responsibility of the politician take account of the inertia of the existing system; an analysis of the activities which the Tasmanian government has undertaken over the past six years—including those of statutory authorities—shows a fair degree of stability. Thus we should consider building into the State's existing organizational arrangements some means of evaluating existing programs and new proposals. Such policy analysis should widen the narrow focus of the advice currently offered by public servants. Although there have been some moves in this direction in Tasmania (particularly in the Premier's Department), it has not been reflected in the structures of the public service generally. A survey of 22 government departments showed that only eight had officers concerned with evaluatory planning, and only three departments were engaged in innovative and initiatory planning. Other directions in which Tasmania's public organizations could move with benefit include an increase in lateral recruitment; breaking down the rigidity of the promotion appeals and classification systems; introducing flexible management and budgeting procedures throughout the service as a whole; and continually reviewing the structure and functions of public organizations. The questions that have been raised by recent inquiries into State and Federal government administration, namely coordination, efficiency, economy, effectiveness, decentralization and participation, have not stressed sufficiently the key issue for the public services of the 1980s, which is the nature of the relationship between the politician, the public service and the community.     

MARKET IDEOLOGY AND PUBLIC SECTOR EFFICIENCY: INTRODUCTION TO SYMPOSIUM ON THE MARKET AND THE STATE

The four papers of which this symposium consists, together with the papers prepared by discussants, were part of a workshop organised by the Academy of Social Sciences over two days at the end of October 1989. The purpose of the workshop was to stimulate debate on this important public policy issue and to generate findings as well as point to material for further research. This introduction highlights the objectives of the workshop, its program, logistics and findings. It is regretted that one commentator was not able to present a contribution in time for inclusion in the journal. I take the opportunity in this introduction to thank the Academy of Social Sciences for sponsoring this workshop, three of its senior officers for their active participation (President, Peter Karmel; Director, Bruce Miller; and Treasurer, Stuart Harris) and the editors of the Australian Journal of Public Administration for providing this forum for the wider dissemination of the discussion it generated.     

Approaches to the Merit Principle in Queensland Public Service Recruitment 1859–2000. From rich and dumb to gender discrimination to politicisation?

The traditional career service model of public employment was ostensibly based on the merit principle, designed to ensure employment on what you knew rather than who you knew, and to remove patronage. However, the image of public servants is often poor, and many are perceived as having little real merit. This article reviews approaches to merit in the Queensland state public service. It finds that, in earlier times, the merit principle was often enshrined in primary and subordinate legislation, but was subsequently moderated by social values including gender and class discrimination, and by circumstances such as wars. This had implications for the skill levels and quality of public employees, and therefore for public policy and public services. In recent decades, the merit principle has been subjected to extensive redefinition and has been subordinated to the desire for greater political control of public services, and pursuit of ‘responsiveness’.     

军官职业高原现象浅析及对策研究

当前,部队军官面临的职业高原现象已经成为其职业生涯中值得关注的重要问题之一。它不仅造成军官面临个人职业困境,同时也阻碍部队的整体建设和战斗力生成。文章对军官职业高原现象进行了相应的阐述和分析,同时从组织和个人两个角度对如何解决该问题提出了相应的参考性对策。     

Administrative reform in Haiti: Problems,progress and prospects

A growing awareness among officials in Haiti of the need for public service reforms has resulted in the reorganization and revitalization of the country's Administrative Reform Commission (Commission Administrative). At present there is no uniformity in organization, procedures, regulations or remuneration between the different government agencies. The bureaucrats have little security and the bureaucracy is completely dominated by the executive branch of government. Coupled with this, owing largely to the budgeting system, the public service has developed into virtually two separate services, one dealing with development and the other with recurrent tasks. The number of public servants has doubled in the past decade. The Administrative Reform Commission has identified its priorities including the creation of a unified career service system, a restructuring of the bureaucracy and decentralization. This article comments on the Commission's proposals and the problems of implementing them.     

The Odyssey of Senior Public Service: What Memoirs Can Teach Us

This article examines the political, psychological, and moral challenges of senior public service in the executive office. The study uses memoirs published by members of the Clinton administration. The memoirs discuss the consistent background conditions of senior public service as the personality of the chief executive, the vagaries of election cycles, the tension between staff and agency executives, and the role of the media. Senior executives adopt a number of stances to address the tension between the realities of public service and the ideals they bring. The memoirs suggest several stances, such as politics as original sin, seduction, hard work and compromise, and game. The memoirs demonstrate the high cumulative cost that public service exacts on the health and personal lives of senior officials. Finally, the study reveals a number of consistent themes about how senior appointed public officials can navigate the dilemmas and challenges of senior public service at all levels of government.     

One of the Boys? Gender Similarities and Differences in Human Capital among Senior Civil Servants in Denmark

Studies have shown how women are underrepresented in senior executive positions in public and private organizations. Equal representation matters both for reasons of performance and legitimacy, and, to understand the mechanisms behind the glass ceiling, we explore if the women making it to the top of the Danish civil service differ from the men who do so. We want to understand if senior executive positions require something different of women than men. Using a dataset consisting of the entire career trajectory of all senior civil servants in Denmark, we find that, on numerous human capital dimensions, the women and men making it to the top are quite similar, for example, in terms of tenure and educational level. However, we find on the one hand that men are more often employed in the most prestigious departments and, at the same time, it seems that men with a profile deviating from the norm are more likely to make it to the top than women. This may indicate that the most prestigious positions – also in terms of early-career positions – are less accessible to women, and that women are less willing to apply for jobs outside their usual domain, or that those responsible for recruitment are less willing to take a chance on a woman with a slightly unorthodox profile. Hence, our study indicates that greater interest should be paid to the dynamics keeping women at lower levels of the hierarchy and possibly to encourage them to apply for top positions.     

From Virtue to Competence: Changing the Principles of Public Service

Virtue has long been a central principle in the tradition of public service—to what extent is it still relevant today? Focusing on the role of the monitoring officer, a key official in the ethical framework of local government in the United Kingdom, this essay asks which virtues, if any, are still needed for public service and whether these virtues have been displaced by managerial notions of technical competence as the principles of public service delivery. The authors draw an initial distinction between virtue and competence that, upon further investigation, does not appear to be sustainable. Despite being drawn from two different academic perspectives—moral philosophy and management development—the concepts of virtue and competence are, in practice, very similar. This theoretical convergence is reflected in the practical concerns of monitoring officers and their perspective on public service ethics.     

Salient features of the 1988 civil service reforms in Nigeria

The main provisions of the 1988 civil service reform in Nigeria are discussed, including structural reorganization, professionalization and the enforcement of public accountability. As of the time of the reform, the following defects were associated with the civil service: undue importance accorded the generalists at the expense of the professionals; profligacy among public officers; nonchalant attitude among civil servants to their duties; and corruption. Measures taken to rectify these defects by the reform include: the adoption of a uniform structure for the civil service nationwide; the harmonization of power with responsibility; the streamlining of the span of control of officers to not more than eight units; the expansion of the powers of internal audit units complemented by an audit alarm system; the mandating of chief executives to submit progress reports on their ministry to the president; and the rationalization of promotion criteria for public officers. These provisions are little more than the rehashing of past legislations, which failed to achieve positive results, not because they were faulty in precept but because they were sacrificed to sloppy implementation. Therefore, the 1988 reform may suffer from the same fate because it was simply grafted onto the corrupt system that caused the failure of past reforms before it.