Designing Health Service Organization in the UK, 1968 to 1998: from Blueprint to Bright Idea and 'Manipulated Emergence'

Four sets of reforms of the National Health Service are employed to illustrate the changing character of policy making in this sector over a thirty year period, from the production of a carefully developed technocratic blueprint for its organization to the promulgation of a series of bright ideas accompanied by incentives for local actors to develop them into concrete organizational arrangements consonant with these ideas. We term this latter approach 'manipulated emergence' and relate it to the literatures of organizational culture and of post-Fordism. The approach adopted by the 1997 Labour government is largely, though not wholly consistent with this, and it remains to be seen whether the high-water mark of manipulated emergence has passed.     

Stepping Out: Rhetorical Devices and Culture Change Management in the UK Civil Service

Organizational culture is the pattern of values and beliefs held by members of an organization and the management of culture is now one of the most frequently discussed of all organizational concepts. The excitement associated with culture is attributable to two factors. First, it is argued that culture is the key to organizational performance; simply stated, a strong organizational culture can be a source of competitive advantage. Second, culture is perceived as an alternative method of control to traditional and technocratic forms of management and can be manipulated to ensure that employees are enthusiastic and committed to organizational objectives.
Despite the extensive interest in this topic, culture remains an elusive concept. This paper investigates the nature of culture and considers strategies for introducing cultural change. Specifically, the aims of the paper are threefold. First, to locate and explain the interests and significance of culture change for the public sector. Second, using a case study of a newly created agency, to investigate the problems and issues affecting cultural change in the civil service. Third, to reassess and critically evaluate the claims for culture management made in the literature. Finally, this paper questions some of the assumptions in the literature, which with few exceptions are biased toward top management and the unitary conception of organization, an ideological frame of reference which is particularly problematic in the public sector.     

Rethinking the ‘open functional’ approach: Ideas,problem pressure and reform in the contemporary welfare state

Recognition that welfare states continue to change has fostered debate about the relationship between ideas and policy problems in driving governments towards reform. To move the debate forward, this article proposes a modification of Barbara Vis and Kees van Kersbergen's ‘open functional approach’. It first argues that while policy problems may provide ‘functional pressure’ to reform, this pressure is significant only in so far as inaction would risk electoral punishment. Reform pressure is hence best evaluated with reference to contemporaneous expert advice, public opinion data and the timing of elite and media attention. Second, it suggests that ideas may also lead parties to act as reform seekers, using policy problems as justification for cherished solutions or long‐held programmatic goals. The modified approach is demonstrated through comparative application to two case studies, attempts at pension reform in Sweden and the United States.     

“Let's organize”: The organizational basis for stable public governance

This study carries two distinct contributions to extant literature. Theoretically, it introduces an organizational approach to the study of public governance. Empirically, it demonstrates how the organizational architecture of government represents a stable and systemic capacity for public governance across time. The study establishes how stability serves as an enduring feature of public governance and how this is anchored in the organizational architecture of government systems. Moreover, structured flexibility is illustrated by how the civil service adapts to both international organizations and societal stakeholders. Theorizing the organizational dimension of public governance, this study also introduces a design tool that may be useful for deliberately (re)structuring public governance. Empirically, these arguments are probed by a sizable dataset with 13,173 observations across 40 years, consisting of nine surveys of civil servants at ministry and agency levels. The data enables a long-term perspective on government civil servants over nearly half a century, thus allowing for a comprehensive study of the organizational basis for public governance.     

‘RENEWING DEFRA’: EXPLORING THE EMERGENCE OF RISK‐BASED POLICYMAKING IN UK CENTRAL GOVERNMENT

Risk‐based policymaking is a form of reflexive policymaking that uses risk analysis to address both the primary objects of policy interventions and their secondary adverse consequences. As such, it has become central to debates about efficiency, control and accountability in UK government. To better understand the factors shaping its emergence, this article studies the UK Department for Environment, Food and Rural Affairs' (Defra) adoption of risk‐based policymaking. In‐depth interviews with Defra staff suggest that risk‐based policymaking serves conflicting objectives and struggles to perform its ostensive functions. The article concludes, first, that risk understandings can be organizationally filtered in ways that reinforce rather than challenge entrenched policy practices. Second, that using risk‐based policymaking for audit purposes can undermine policymaking reflexivity. Third, that the value of risk ideas in reconciling competing accountability and blame‐avoidance pressures leads to risk ‘colonizing’ increasing dimensions of policymaking.     

A THEORY OF CULTURE‐SWITCHING: LEADERSHIP AND RED‐TAPE DURING HURRICANE KATRINA

This article draws upon studies of organizational culture and sense‐making to develop a theory of culture‐switching. Culture‐switching occurs when organizational actors shift emphasis from one existing organizational cultural assumption to another to reshape organizational action. The concept is demonstrated in a case study of the Hurricane Katrina response by the US Department of Defense (DOD). A slow initial DOD response arose because of self‐imposed red‐tape designed to limit engagement in crisis response, reflecting a cultural assumption of the need to maintain autonomy. DOD leaders altered the nature of the response by committing to another widely‐shared cultural assumption: a ‘can‐do’ approach to achieving difficult goals regardless of obstacles. The case illustrates how different organizational cultural assumptions interact with red tape to foster either inertia or a proactive response.     

CONTROL PATTERNS IN CONTRACTING‐OUT RELATIONSHIPS: IT MATTERS WHAT YOU DO,NOT WHO YOU ARE

The contracting‐out of public services has often been accompanied by a strong academic focus on the emergence of new governance forms, and a general neglect of the processes and practices through which contracted‐out services are controlled and monitored. To fill this gap, we draw on contracting‐out and inter‐organizational control literatures to explore the adoption of control mechanisms for public service provision at the municipal level and the variables that can explain their choice. Our results, based on a survey of Italian municipalities, show that in the presence of contracting‐out, market‐, hierarchy‐, and trust‐based controls display different intensities, can coexist, and are explained by different variables. Service characteristics are more effective in explaining market‐ and hierarchy‐based controls than relationship characteristics. Trust‐based controls are the most widespread, but cannot be explained by the variables traditionally identified in contracting‐out and inter‐organizational control studies.     

Binary decision analysis: An empirical approach to predicting and understanding organizational decisions

Binary decision analysis is an alternative approach to the analysis of organizational decisions that lends itself well to mathematic analysis. The purpose of this paper is to present and test the application of the binary approach to decision analysis and its subsequent mathematical testing using logit regression. Binary decision analysis focuses on each decision as a single choice between two distinct alternatives or a step in a sequence of such binary choices in more complex organizational decisions. Logit regression is a type of regression especially developed to deal with binary dependent variables in the context of inferential statistical testing. By successfully combining these two approaches, and adhering to the theoretical and statistical assumptions upon which they are based, a potentially useful tool of organizational decision analysis results. An applied example of this approach tests its utility. Appropriate conclusions about the method are made based on that test.     

EVIDENCE‐BASED MANAGEMENT: THE VERY IDEA

This essay critically evaluates the recent phenomenon of ‘evidence‐based management’ in public services that is especially prominent in health care. We suggest that the current approach, broadly informed by evidence‐based health care, is misguided given the deeply contested nature of ‘evidence’ within the discipline of management studies. We argue that its growing popularity in spite of the theoretical problems it faces can be understood primarily as a function of the interests served by the universalization of certain forms of managerialist ‘evidence’ rather than any contribution to organizational effectiveness. Indeed, in a reading informed by the work of French geographer Henri Lefebvre, we suggest that in the long term the project is likely to inhibit rather than encourage a fuller understanding of the nature of public services. We conclude with a call for forms of organizational research that the current preoccupations of the evidence‐based project marginalize if not write out altogether.     

‘We are this hybrid’: Members’ search for organizational identity in an institutionalized public–private partnership

There has been significant scholarly interest in organizational hybridity, the combination of multiple institutional logics in one entity. However, the extant research has mainly studied the implications for organizations and individuals, neglecting the challenges for organizational members as a collective. To mitigate, this article examines how members of a British institutionalized public–private partnership grapple with the question of what their organization may be, highlighting the confusion they are experiencing and their attempts to overcome it. Drawing on the concept of organizational identity (theorized as the outcome of collective sensemaking), the analysis identifies two mechanisms that recursively connect the organization and its members. Relational positioning draws on possible configurations of institutional logics and associated identity resources while discursive framing captures members’ hopes and expectations. The main contribution of this article is a better understanding of collective sensemaking in hybrid organizations in the light of institutional complexity.     

NEW PUBLIC MANAGEMENT VALUES AND PERSON‐ORGANIZATION FIT: A SOCIO‐PSYCHOLOGICAL APPROACH AND EMPIRICAL EXAMINATION AMONG PUBLIC SECTOR PERSONNEL

This paper takes a socio‐psychological approach to NPM and its value‐based theory in public administration. We develop a model for the study of NPM values based on the idea of Person‐Organization Fit (POF) and examine it empirically. Findings, based on a survey of 205 Israeli local governance personnel, revealed that the POF of several core NPM values (that is, responsiveness, transparency, innovativeness, and achievement orientations) was positively related with job satisfaction, organizational commitment, and service climate, as reported by these public personnel. The findings suggest that, beyond modern strategies and effective policies for the public sector, lies an essential quest for NPM value‐fit with public personnel. Consequently, the study advocates a better theoretical and practical understanding of the socio‐psychological interfaces, such as POF, in public administration. Implications and directions for future studies are discussed, both in the context of public administration research and in the generic field of organizational behaviour theory and practice. The detailed results of the factor analyses are available directly from the authors.     

HOW TRADITIONAL ARE THE AMERICAN,FRENCH AND GERMAN TRADITIONS OF PUBLIC ADMINISTRATION? A RESEARCH AGENDA

Consistent with the notion of tradition, public administration scholars usually interpret and compare administrative developments in the US, France, and Germany as inheritance, assuming continuity. However, administrative traditions have thus far not been an object of systematic research. The present research agenda aims to address this research gap by introducing the transfer‐of‐ideas approach as a means to examine the empirical substance of national traditions. We claim that for current research, the benefits of this approach are twofold. First, the transfer‐of‐ideas approach contributes to comparative public administration since it reveals in how far intellectual traditions are hybrid instead of distinctively American, French or German developments. Second, the approach may help to address the polysemous meanings of and terminological difficulties within administrative concepts that prevail in Public Administration on both sides of the Atlantic.     

BRINGING STRUCTURES BACK IN: THE ‘GOVERNANCE NARRATIVE’, THE ‘DECENTRED APPROACH’ AND ‘ASYMMETRICAL NETWORK GOVERNANCE’ IN THE EDUCATION AND SPORT POLICY COMMUNITIES

We reflect upon the ‘governance narrative’ as a means of conceptualizing recent developments in the British state. Recent public administration research has advocated a ‘decentred approach’ that would reject the linear narrative of a shift from hierarchical to network governance. We seek to build on ‘decentring’ theorists' critique of existing governance literature by offering case studies of the education and sport policy communities, arguing that the ‘new’ governance form is present in these sectors, but only as an element of a state strategy, the effect of which is to reduce autonomy and increase dependence on the centre among actors outside the core executive. We use the case studies to reflect back on the utility of the decentred approach and suggest that the range of questions it might tackle could be expanded by allowing for a greater role for structures and institutions in explanation, alongside the ideas, culture and belief of actors.     

The Reinvention of ‘Traditional Values’: Nataliya Narochnitskaya and Russia’s Assault on Universal Human Rights

Russia’s emergence as a leading opponent of universal human rights is one of the defining features of the Putin era. Under the banner of ‘traditional values’, Russian diplomats and clerics have re-forged cultural relativism into a weapon that can be used by repressive regimes to deflect criticism of their human rights records. This article examines the contribution of Nataliya Narochnitskaya, a historian and nationalist politician, to this exercise in authoritarian soft power. By tracing the formation of Narochnitskaya’s ideas and their adoption by state institutions, it demonstrates that the ‘traditional values’ campaign was intricately bound up with the collapse of Russian democracy.     

THE DYNAMICS OF IRONY IN ORGANIZATIONAL CHANGE: COPING WITH A SCHOOL MERGER

The potential of an ironic perspective for understanding public service change is portrayed through a re‐analysis of data on a merger between two English primary sector schools, an extreme change involving organizational termination alongside phoenix‐like emergence. The ironic perspective focuses on synchronic dissonance and diachronic divergence in meaning underlying verbal and situational forms of irony respectively, endemic sources of organizational ambiguity, its exacerbation by change which creates conditions favouring irony, and the dynamics of their relationship. The case illustrates how ironic consequences flowed iteratively from diverse sources of ambiguity for those managing the merger, often recursively generating further irony. It is suggested that an ironic perspective can deepen theoretical understanding of the relative unmanageability of public service change, within structural parameters delimiting its scope. This perspective also offers a generic heuristic for organizational analysis with potential to inform efforts to cope with ambiguity and consequent irony in the change process.     

EMBRYONIC ASSOCIATIONALISM: NEW LABOUR AND URBAN GOVERNANCE

This article considers the role of ideas in New Labour’s approach to the governance of urban regeneration and characterizes this approach as ‘embryonic associationalism’. This approach contrasts with the economic rationalism of previous Conservative governments and leads to a more determined effort to empower local community groups within the policy process. We analyse the effects of this shift in approach in practice through a comparative case study of changing patterns of governance in different areas of the English city of Sheffield over a ten‐year period. We conclude that while other factors are important in shaping the nature of community empowerment, New Labour’s approach has promoted a political environment in which it is increasingly difficult for local state actors to ignore the voice of local communities. However, while we refer to this as ‘New Labour’s approach’, we are clear that this relates to a tradition of ideas that is far from new in Labour thought.     

Barnard and morality in organizations

Since Chester I. Barnard wrote The Functions of the Executive in 1938 numerous authors have cited his many ideas about organizational and individual behavior. Barnard believed that an individual's willingness to cooperate and function within an organization related to his or her “zone of indifference,” and the amount of authority the individual was willing to grant to a superior. Barnard's ideas concerning the zone of indifference are related in this article to “Stages of Moral Development” as measured by protocols developed by Lawrence Kohlberg.     

Linking Organizational Climate to Work Engagement: A Study in the Healthcare Sector

Using a two-level structural equation approach, this article investigates the links between organizational climate and work engagement in a sample of public hospitals in Italy. Drawing from the Job Demands-Resources model, the model posits a positive association between work engagement and a climate promoting worker’s autonomy, empowerment, and well-being, whereas it suggests that a climate based on efficiency and goal attainment is not favorable for engagement. Results support the hypotheses and suggest that performance based models implemented in recent years as part of public sector reforms are not conducive to engaged workers. Implications for research on work engagement in the public sector and for public management are drawn.     

The Role of Organizational Social Capital in Increasing Organizational Performance in Public Organizations: Evidence from Kyrgyz National Police (KNP)

Organizational social capital can develop a strong foundation for trusted relationships and committed actions in communities and organizations. This concept was examined in the public organization setting in this study. Organizational social capital is a source for trust-building processes where participative decision-making, feedback on performance, and empowerment are important elements of this phenomenon. Three dimensions of organizational social capital (participation, feedback on performance, and empowerment) and organizational commitment were examined in this study. The influence of organizational social capital on the perceived organizational commitment of the Kyrgyz National Police (KNP) is observed by utilizing structural equation modeling (SEM). The results of this study indicate that the three dimensions of organizational social capital have statistically significant relationships with perceived organizational commitment. Overall, results suggest that organizational social capital, with its dimensions, is a source for the trust-building process which influences perceived organizational commitment. Moreover, by practicing empowerment it is possible to increase the number of committed officers, also an important factor in improving organizational performance.     

AFFECTIVE ORGANIZATIONAL COMMITMENT AND JOB SATISFACTION: A CROSS‐NATIONAL COMPARATIVE STUDY

Public managers across countries are faced with challenges of attracting and retaining high‐quality employees in the context of widespread financial constraints and increasing inter‐sectoral competition. These changing circumstances have reinforced the need to enhance public employees' affective organizational commitment, which is related to important outcomes such as employees' performance and retention. However, we know little about the factors that can positively influence affective organizational commitment in a cross‐national context. This study applies a cross‐national comparative approach using data from four US states (Oregon, Florida, Washington, and Utah) and India to examine the factors influencing affective organizational commitment. We focus mainly on the effects of job satisfaction, which is considered to be the most important antecedent of affective organizational commitment. Our findings indicate that, in both countries' contexts, job satisfaction has a significant positive impact on affective organizational commitment. We also examine the US–India differences in the levels of affective organizational commitment. Findings indicate that, compared to the four US states of Oregon, Florida, Washington, and Utah, affective organizational commitment is significantly higher among Indian public managers.