Performance Regimes—The Institutional Context of Performance Policies

Performance measurement, targeting, reporting and managing of public services has spread across jurisdictions in recent years. The most usual stance adopted by governments in developing performance policies has been shaped by principal-agent theory and a hierarchy of principal-agent relationships from core executive to service delivery. Such notions have been challenged from several directions, both in theory and empirically. Writers on accountability and those analyzing the “audit explosion” and the growth of “regulation inside government” have pointed to the way in which multiple actors and accountabilities have grown. Drawing on these and other sources this article develops a “performance regimes” perspective that offers a heuristic analytical framework of the main groups of institutional actors who can (but do not always) attempt to shape or steer the performance of service delivery agencies. The aim is to create a framework that can be applied comparatively to study changes in total performance regimes over time and between jurisdictions and sectors.     

From Corporate Governance to Local Governance: Stakeholder‐Driven Community Score‐Cards for UK Local Agencies?

Abstract

This paper compares the methodology of the “comprehensive performance assessment”, recently proposed by the Audit Commission for all UK local authorities, with the “community score‐card” approach which has been used in the United States of America for a number of years. It suggests that the Audit Commission approach should be altered to take on board some of the more imaginative aspects of the community score‐card, particularly in relation to the inclusion of those quality of life measures, which local people regard as important, and measures of the quality of local governance.     

Post-NPM Reforms or Administrative Hybridization in the French Health Care System?

New public management (NPM) provides an opportunity to analyze a reform trajectory that is influenced by country-specific institutional and social traditions. France adopted its own version of NPM, embracing some of its “traditional” elements such as quasi-markets and performance evaluation and rejecting others. NPM reforms in France pursued a re-centralization agenda rather than a disaggregation of public agencies. Outcomes were below expectations in core areas such as citizen participation and physician professional satisfaction. Subsequent health reforms indicate convergence toward a hybrid system rather than toward a post-NPM paradigm.     

Administration in the year 2000: serving the client

One component of the increasing emphasis on management in the public sector is an emphasis on serving the “customer” of public sector agencies. Although it is difficult to argue that the clients of the public agencies should not be served courteously and efficiently, there are a number of questions about whether they should be thought of as customers in the same way as in the private sector. Some of those questions are empirical, related to difficulties in clearly identifying the customers of agencies. Other questions are normative, related to the proper definition of the role of the clients of public agencies and the definition of the public interest. These problems require serious rethinking of any simplistic adoption of a customer orientation in government.     

An Ethical Governance Perspective on Anti-Corruption Policies and Procedures: Agencies and Trust in Cameroon,Ghana, and Nigeria Evaluation

The purpose of this research is to state that ethical governance is important, because it concerns the right thoughts (values) and elements (mechanisms) needed for a successful anti-corruption crusade. Trust is strongly linked to performance; ethical governance can help in actualizing anti-corruption agencies’ expected or desired performance. The subjects of the comparative research are the anti-corruption agencies of Cameroon, Ghana, and Nigeria. A qualitative analysis of documents and interviews and a triangulation approach are used in arriving at research results, because policies and procedures are studied through anti-corruption agencies documents and public trust is investigated through expert interview. Ghana represents the strong case and best practices, because it has anti-corruption policies and procedures that agree more with ethical governance, followed by Nigeria, which is the moderate case, before Cameroon, which is the weak case. “Independence” as an ethical mechanism occupies the strongest position to achieving result in anti-corruption related crusade.     

Child Welfare's Iron Cage: Managing Performance in New Zealand's Child Welfare Agency

The purpose of this article is to explain the performance management practice in use within one of New Zealand's public service agencies—Child, Youth and Family Services. These practices are described with reference to New Zealand's formal model of public sector management and the professional social work model understood by the majority of the agency's staff. The article draws on recent research into performance management practices in nine of New Zealand's public service agencies that included Child, Youth and Family Services. This involved a number of semi-structured interviews with managers and staff from the national, regional, and local levels of each agency together with a review of relevant documentation.

It is argued that performance management practices exist on a continuum representing the “rationality of control” which extends from a regulative control model of rules and fixed targets to one that is more reliant on shared understandings, learning, and flexible targets. It is further suggested that the institutional structures underlying this continuum determines the extent to which performance management practices within individual agencies are loosely coupled with those used for purposes of external accountability.

The article highlights the tension that exists in an organization that encompasses the substantive logic of “a values-based profession” (Ronnau, 2001 Ronnau, J. P. 2001. “Values and ethics for family-centered practice”. In Balancing family-centered services and child well-being: Exploring issues in policy, practice theory, and research, Edited by: Walton, E., Sandau-Beckler, P. and Mannes, M. 34–54. New York: Columbia University Press.  [Google Scholar]) but which is bound by the formal, instrumental rationality implicit in its system of external accountability that, it has been claimed, “reduces a complex reality to something simplistic and one dimensional” (Tilbury, 2004 Tilbury, C. 2004. The influence of performance measurement on child welfare policy and practice. British Journal of Social Work, 34: 225–241. [Crossref], [Web of Science ®] , [Google Scholar]). It, therefore, argues that the formal model of performance measurement and management of the public service should encompass the broader information and rationality used by managers within public service agencies.     

Performance Management and Deficit Adjustment in U.S. Cities: An Exploratory Study

Performance management or PM has been promoted as a tool to transform government. Claims that PM will enable governments to “do more with less,” “increase efficiency,” provide “value for money,” and make “rational budget decisions” abound. Has PM helped city governments in the United States cope with the effects of the 2007–2009 Great Recession? Theory suggests that PM can provide the informational and analytical foundation necessary for city officials to implement comprehensive but conflictive budget-cutting and revenue-raising strategies. By facilitating deep expenditure cuts and tax increases, PM can indirectly influence budget deficits. Using data from a national survey of city governments and multiyear audited financial reports, the empirical analysis shows that PM cities favored what are essentially decremental responses to fiscal crises that lead to marginal changes in revenues and expenditures. Not surprisingly, there is no evidence that PM influences the size and change in budget shortfalls.     

Regulatory management: Government as a regulated industry

This article looks at the various forms of regulatory management that the US Office of Management and Budget uses to sontrol the national regulatory agenda. Tracing the evaluation of the strong central the national regulatory manangement role, the author looks at the key executive orders on regulatory review and planning and the requirements for a unified regulatory agenda and paperwork control. These four management areas -- review, planning, agenda publication, and paperwork oversight -- put federal agencies in OMB’s oversight web. More accustomed to bring the regulators, the agencies are now a regulated “Industry” themselves.     

Integrated written and oral assignments for the MPA curriculum

The article describes an integrated approach to written and oral assignments throughout the MPA curriculum. Beginning with the program orientation and the lead course in the MPA program, a series of written assignments that blend theory and practice are used as the basis for later advanced work and special projects such as internships, major papers, or theses. A three-part assignment in the first course, an assessment center for developing interviewing and other skills, and a conscious attempt to develop linkages across courses in the MPA curriculum are the keys to implementation of the model.

The integrated writing and speaking model introduces students to research through preparation of an article review essay on some aspect of public policy or management. Another paper requires field work to analyze a particular aspect of the policy or management process. The third assignment produces a “usable product” for a level of government or public agency, such as a policy or management options paper. Written assignments are coupled with a formal assessment center conducted outside of regular classroom time. The field work helps students begin a networking process for obtaining clients for other projects in other courses and for internships, field papers, and jobs. Presentations of the final course “product” are via a poster session format that includes written, graphic, and oral presentations open to faculty and students, as well as the public agencies and/or governmental units for whom products are prepared.     

The Relationship Between State Government Performance and State Quality of Life

Abstract

This article examines the relationship between government performance and quality of life in the American states. We contend that the management capacity of state governments should have direct, tangible impacts on the overall social and economic well‐being of state citizenry. In order to test this idea, we examine the influence of state management capacity (using the 1999 Government Performance Project grades), alongside other economic and political variables, on two prominent measures of state quality of life—The Morgan Quitno “Most Livable State” Index and State Policy Reports' (SPP) “Camelot Index.” We find that both state economic conditions and governmental policy priorities have significant impacts on state performance levels. But, our results clearly indicate that the management capacity of state governments also contributes directly to improving the overall quality of life for state citizens.     

Managing for Results in an Impossible Job: Solution or Symbol? Abstract

Abstract

Recent years have been characterized by widespread adoption of reforms that called for governments to manage for results. This article tackles the question: what is the impact of results-based reforms in functions that the public management literature has defined as “impossible jobs?” The implementation of strategic planning and performance measurement in the Alabama Department of Corrections provides a case study of such a scenario. The explicit goals of results-based reforms suggest a solution to “impossible jobs” by achieving improved allocation, effectiveness, and efficiency. However, the case evidence suggests that their main use is as a symbol of rational governance, to be used by beleaguered agencies and governments in a bid to increase resources. Beyond this, the public manager in an impossible job finds little benefit from results-based reform, and seeks to devote as few resources as is necessary to comply with reform requirements.     

Evidence-Based Practice: Challenging the Rational Wisdom

The field of performance measurement (PM) is firmly entrenched as a management practice in many governments, agencies, and nonprofit organizations. Though emerging later, the field of evidence-based practice (EBP) has developed simultaneously as a new approach to enhance agency performance. While both rationality-oriented reforms intend to enhance program or agency performance, these two related rational approaches are seldom considered in concert. This essay examines the conceptual underpinnings and practical linkages between PM and EBP to explore how EBP and PM can be jointly implemented as tools to advance agency goals. As rational approaches aimed at improving performance, these two distinct tools are not substitutes, but integrated components of a results-driven strategic management approach. As a conceptual assessment, the article offers practical advice and broad appeal to performance-oriented practitioners seeking to improve agency performance.     

Рublic Procurement in Russia: What Hinders Innovation?

ABSTRACT

Using public procurement to foster innovation is a widespread practice worldwide. However, in Russia public procurement has had no significant impact on developing innovation. Empirical research with expert interviews and qualitative and quantitative data analysis has revealed the reasons for poor performance to promote innovation, including tough anti-trust and anti-corruption rules, limited use of tenders as well as “life-cycle cost” criteria, and poor management by the procuring agencies. The analysis revealed the contradiction between the rules designed for fighting corruption and monopolies and the need to stimulate innovation through procurement.     

Public service as a calling: An exploration of a concept

Several years ago, the public administration faculty of Virginia Polytechnic Institute and State University issued their famous “Blacksburg Manifesto” the public Administration and the Governance Process: Refocusing the American Dialogue. In this document they call for a substantive change in the American Dialogue regarding the role of the public administrator. Nothing that the founding fathers viewed public service as a “calling”, as did the populists, Progressives, and New Dealers, they suggest that today’s government officials should percive themselves as “trustees” with a sense of a calling in serving for a cause. This call for a renewed convenant stimulated this researcher to speculate on the nature of the calling, its origins, definitions, applications, and its applicability as a psychological motivator for effective. productive performance in the public sector.

Our exploration for understanding starts with an examination of Western society’s earliest written record of man’s behaviour, the Bible, which is replete with stories of divine calls, first from God to the individual, and then to a group or society. We also review subsequent religious and secular calls, noting their universality and the reciprocal phenomena of “good” and “evil” which such calls exemplify. Thus, God’s call to Moses to lead the Jews out of Egypt is balanced by the fombat-driven calling of the city-state of Sparta.

We also not that the calling is subject to a hierarchy process. Plato writes about the natural endowments of individuals which creates three social classes that are called upon to serve the state; artisans, warriors, and philosopher-kings. Later on Eusebius defines a difference in the intensity and degree of suffering suffering between those professing a “high calling” and those following their“calling”.

This study also considers the meaning of the word “calling”. The researcher proposes a modification of its meaning which is less sacred and more secular in context. “Klesis Diakonis”, two separate Greek words, in combination, can be defined as a “call to joyous service”. This secular interpretation of the calling, frees it from its classic, religious association, and provides for its application to non-religious endeavor.

In conclusion, it is suggested that upon further research and study, the concept of a calling can be a vital and significant motivator, indded, part of the critical psychological and emotional makeup for those individuals in our society who are not fulfilled by material rewards. It is hypothesized here that the public-minded individual can find his or her calling through the medium of public service, can help restore the sacredness of public service as a public as a public trust, and can satisfy his or her search for self-fulfillment through the redefined concept of the calling.     

The Strategic Use of Public Information in Anti-Corruption Agencies: Evidence from the Asia-Pacific Region

In this era of anti-corruption policy-making, the Internet provides a potentially critical strategic resource for anti-corruption agencies (ACAs) aiming to promote organizational and policy learning. Realizing its potential is a creative challenge that will tap different types of capacities in the agency and its environment. We present a framework for understanding the information-related functions that underpin policy and organizational learning for ACAs, develop a rating criteria to assess strategic information usage, and then assess five ACAs in the Asia Pacific region on one aspect of strategic information usage: dissemination via the Internet. Agencies differ markedly in the degree to which their use of public information dissemination via the Internet is “strategic” in nature, pointing towards a new arena for capacity building and strategy development.     

Partnerships in public management: rural enterprise alliances

This paper addresses public management implications of a certain form of network: the rural enterprise alliance, a formal nonmetropolitan partnership among producers, distributors, labor unions, employer associations, credit institutions, and government agencies. Six alliances are examined as examples of “postmodern” public organizing, as it fits into emergent “bottom up” approaches to economic development. Organizing locally for global competition is bringing on more decentralized, flexible, yet comprehensive public management approaches, emphasizing demand programming, self-management, incentives and information, leverage and engagement, and de-differentiated structuring. Public managers must increasingly deal with challenges like those related to the emergence of alliances.     

From reorganizing to reinventing: sixty years and “we still don’t get it”

Sixty years ago the “Brownlow Committee Report” was written by some of the most prominent members of the emerging field of public administration. Its recommendations had serious consequences for the way both our democratic republic and the field of public administration have evolved. In developing principles in which to anchor the recommendations, Luther Gulick, who was both the intellectual and political force behind the committee, contributed to a confusion of the concepts of organizations and the polity and those of management and governance.

Some of the story of how the concepts promoted by Gulick and the Papers on the Science of Administration led to a misconception, which became public administration's living legacy is told in this article. We then discuss the Brownlow Committee Report as something which changed: our very conception of the Constitution; Gulick's rationale for cooperation with Franklin D. Roosevelt; the Report as a misplacement of organizational concepts upon a polity; the dimensions of constitutional change in the report; and the staying power of Gulick's and the Committee's ideas. In conclusion, we contend that if we are to move beyond Gulick's legacy, that the field must learn and act upon the distinctions between organizations and the polity and management and governance.

“The charge that the Brownlow Committee set in train the development of the “imperial presidency” can be advanced only by those who have not read the Committee's report.”

James Fesler, former staff member of the Brownlow Committee Public Administration Review (July/August, 1987)

“How interesting it is historically that we all assumed in the 1930s that all management, especially public management, flowed in a broad, strong stream of value-filled ethical performance. Were we blind or only naive until Nixon came along? Or were we so eager to ‘take politics out of administration’ that we threw the baby out with the bathwater?”

Luther Gulick, member of the Brownlow Committee From Stephen K. Blurnberg, “Seven Decades of Public Administration: A Tribute to Luther Gulick” Public Administration Review (March/April, 1981)

was as old in American politics as it was popular. Yet, before the end of his second term, Roosevelt, with the help of Charles Merriam, Herbert Brownlow, and Luther Gulick, would use such hoary symbolism towards ends that would fundamentally alter our perceptions of the constitutional order, the nature of the presidency, and public administration. How did this come to pass? Barry Karl says that “He (Roosevelt) had continued as President to look at reorganization through the eyes of those who saw in it a means of saving money, balancing the budget, and thereby giving security to the nation's economy.” But Karl adds, “By 1936, this viewpoint had undergone drastic revision.”⁽⁶⁾ The revision in his thinking replaced “saving money” with “managerial control” as the principal aim of reorganization. “Managerial control” by the president would enable him not only to manage New Deal programs but protect them against potential Republican counterattacks, i.e., in short, to strengthen his hand as president.

The impetus for this change apparently came directly from the President's experiences in seeking to administer the government's burgeoning and increasingly chaotic Executive Branch. Roosevelt was a skilled, intuitive, and flexible administrator. But, according to Karl, his experience in seeking to administer the Emergency Relief Appropriation Act with a loose arrangement, quickly dubbed “the five ring circus,” taught the President several lessons. First, “it demonstrated the growing dependence of the President on official staff, other than cabinet members, working exceedingly close to the President's own sphere of daily operation. “⁽⁷⁾ Second, the problems of administering the Act raised questions among the participants themselves as to whether or not the President could “administer and control so complex an operation as federal relief given the inadequate machinery in his possession.”⁽⁸⁾ In other words, the effort was not simply a “five ring circus” because of FDR's famed flexible and informal style, but also because of the inadequacy of the available structures. Karl notes that “despite the problems inherent in the fiscal machinery as it stood, a continued development of governments within governments could only lead to a dangerous chaos over which the President would have no control whatsoever.”⁽⁹⁾ The questions raised suggested to the President that perhaps there was some merit to the position of those urging that emergency agencies be absorbed into the existing framework. This could meet a very practical question by “placing agencies within the purview of budget and accounting procedures already in existence.”⁽¹⁰⁾

According to Gulick, FDR told Brownlow and him at a November 14, 1936, meeting “that, since the election, he had received a great many suggestions that he move for a constitutional convention for the United States” and observed that “with Coughlin and other crackpots about there was no way of keeping such an affair from getting out of hand. But,” he said, “there is more than one way of killing a cat, just as in this job I assigned you.”⁽¹¹⁾ Gulick also quotes FDR as specifically telling the Committee, “We have got to get over the notion that the purpose of reorganization is economy. . . . The reason for reorganization is good management.”⁽¹²⁾ Of course FDR meant management as in “presidential management.”

So it was that President Roosevelt by 1936 was prepared to do something quite beyond “abolishing useless offices” in the words of his 1932 speech--something significantly more constitutional in nature. His other aim was no doubt to strengthen his hand significantly to protect the New Deal programs from Republican counterattack. But whatever his aim, the practical effect was to treat the executive branch as a hierarchical organization headed by a chief executive of corporate or city management conception. In so doing, the delicate constitutional balance among branches was altered. Recommending the reorganization of the executive branch as they did inevitably led to reorganization of the larger whole, the government, which was not an organization, but something qualitatively different.⁽¹³⁾     

Financial Health in Australian Local Government: The Application of a Funding Assessment Model to Brisbane and Sydney City Councils

Local government financial viability measurement in an accrual budgeting environment poses complex challenges. Financial measures frequently generate conflicting results. A rating scale to assess financial management, constructed originally for South African municipalities (Dollery & Graves, 2009), represents a useful tool to analyze financial health trends. Applying a “Likert-like” scale to financial performance measures to assess “funding compliance”, the model in this article assists municipalities to avoid financial difficulties. To demonstrate the applicability of this model, we apply the model to the Brisbane City Council and the Sydney City Councils. Results show that the model represents a valuable aid to financial management decision-making.     

Ensuring Employment Equity: Are Federal Diversity Programs Making a Difference?

Abstract

In the last two decades, many public sector agencies have instituted a wide array of “managing diversity” programs designed to remove barriers to the full participation of women and people of color. Meanwhile, agencies are also increasingly responding to pressure to develop measures to monitor performance of all of their programs. Yet there have been few efforts in place to measure the effectiveness of diversity management programs. This article argues that such an evaluation is essential, and offers a preliminary governmentwide estimation of the success federal agencies have had in breaking down these barriers. We found, for the most part, that there is little evidence that broad‐based diversity programs, nor any of their programmatic components, have created a more equitable work environment for women or people of color. We then examine the programs at two federal agencies with significant diversity efforts, in depth, and find again that the results have been mixed. While not meant to be the final word, we suggest that these findings can serve as the basis for generating greater discussion and analysis of these important, but under‐evaluated, programs.