Responsibility to Be Enthusiastic? Public Servants and the Public Face of “Promiscuous Partisanship”

Contemporary public service leaders are no longer the anonymous mandarins of Westminster folklore. Whether giving public speeches to outside organizations or communicating directly with the media, senior public servants are emerging from anonymity to become public actors in their own right. This article undertakes a comparative study across four Westminster jurisdictions—Australia, Canada, New Zealand, and the United Kingdom—to examine the formal rules and guidelines that apply to public servants when making public statements in their official capacity. Drawing on the late Peter Aucoin's notion of “promiscuous partisanship,” the article argues that public servants are expected to demonstrate a new level of enthusiasm when explaining or justifying government policy to the public. This has implications for the extent to which nonpartisanship can continue to effectively function within Westminster systems.     

People: hearts and minds Towards rebirth of the public service ethic

No country will escape the enormous forces that are now buffeting the public sector worldwide. The massive changes underway are affecting people—public servants and citizens alike—and not just bottom lines. Standard approaches to dealing with change may unwittingly overlook the fact that Public Services are first and foremost “people systems”. The article provides a timely reminder that players in public organizations—senior officials, middle managers and front-line workers—experience change differently given their distinct perspectives and levels of authority. While responses to change may vary considerably within organizations, a common humanity is what ultimately unites people. As a result, governments that choose to ignore rather than acknowledge the human side of change may experience needless difficulty in bringing about the successful renewal of the public sector. (© 1997 by John Wiley & Sons, Ltd.)     

How Can Local Governments Address Pandemic Inequities?

COVID-19 is exposing a nexus between communities disproportionately suffering from underlying health conditions, policy-reinforced disparities, and susceptibility to the disease. As the virus spreads, policy responses will need to shift from focusing on surveillance and mitigation to recovery and prevention. Local governments, with their histories of mutual aid and familiarity with local communities, are capable of meeting these challenges. However, funding must flow in a flexible enough fashion for local governments to tailor their efforts to preserve vital services and rebuild local economies. The authors argue that the Community Development Block Grant and the Energy Efficiency and Conservation Block Grant programs are mechanisms for providing funds in a manner that is adaptable to local context while also focusing on increasing social equity. Administrators must emphasize the fourth pillar of public administration—social equity—in framing government responses to the pandemic.     

One Standard Fits All? The Pros and Cons of Performance Standard Adjustments

Despite the wide‐ranging use of performance measures within the public sector and the growing use of performance bonuses to recognize performance achievements, the use of formal performance standards adjustment procedures in public performance measurement systems is relatively rare. Burt S. Barnow of Johns Hopkins University and Carolyn J. Heinrich of the University of Wisconsin–Madison set forth the basic arguments in favor of and against the use of formal or informal procedures for adjusting performance expectations. They describe how performance standards adjustments processes are currently (or have been) in use, review the evidence of their effectiveness or problems encountered in their application, and explore the consequences of the inadequacy of performance standards adjustments. The authors offer recommendations for the improvement of public sector performance measurement systems and conclude why this area remains fruitful for future research experimentation. The nice thing about standards is that there are so many of them to choose from. —Andrew S. Tannenbaum     

Introduction to “charting,tracking, and mapping: new technologies,labor, and surveillance”

Advances in information technologies over the last two decades have offered the promise of revolutionizing workplaces and other settings by expanding the capabilities of individuals working in various professions. Enabled by high-speed computing systems and marked by an intensification of command and control properties, new technologies have expanded, and in some cases intentionally surpassed, the scope of the senses. Technologies such as drones, surveillance cameras, and airport and border security systems promise the seemingly infinite catchment and infinitesimal account of human actions, while computer processing software provides real-time data on large-scale transactional processes occurring in monetary systems and security markets. Charting, tracking, and mapping functions open up new vistas for quantifying social behaviors and detecting misbehaviors, creating new frontiers for criminal justice, the military, and economic activity. The papers in this special issue reveal the processes guiding the rapid transformation and flexible adaptation of institutional structures, economic and financial systems, and threat surveillance and military/police mobilization in the near future.     

The cultural labor of surveillance: video forensics,computational objectivity,and the production of visual evidence

This essay argues that the status of video evidence as an index of real events—a sign or representation that offers a direct, empirical connection to material reality—is the result of an intentional process of production. This process involves the repurposing of new technologies borrowed from the domain of creative media production in order to transform a chaotic field of raw surveillance video into useable evidence. In addition to the exchange in technologies, an unavoidable epistemological and interpretive exchange takes place between evidentiary uses of surveillance video on the one hand, and the now prevalent forms of surveillant narration found in both fictional and reality-based storytelling. But despite this exchange in meanings and technical systems, considerable effort has gone in to establish formal standards for the evidentiary uses of surveillance video that distinguish the discovery of video evidence from the production of creative content. Building on Daston and Gallison's historical study of the prevailing “epistemic virtues” that have defined objectivity over time, I argue that what we see emerging in the field of forensic video analysis, as a means of establishing its scientific and legal status, is a commitment to a new epistemic virtue of “computational objectivity.”     

The Quiet Revolution? The Labour Party and Welfare Conditionality

Labour's 2017 general election manifesto contained a pledge to ‘end the punitive sanctions regime’ in the British welfare state. Whilst the specific implications of this pledge were not elaborated, such a policy would nevertheless constitute a profound break with a welfare consensus spanning over twenty years. The depth of the suggested changes on welfare are also evident in the scale of reform proposed to disability benefits, as well as plans—confirmed in August 2018 by the Shadow Chancellor John McDonnell—to pilot universal basic income. Collectively, these policies would seemingly be deeply at odds with public opinion on the benefits system, which over the course of the last two decades has significantly hardened. Yet despite the seemingly radical and controversial nature of the policy, it received very little media or public attention during the election campaign. This article explores Labour's ‘quiet revolution’ on welfare, examining whether Labour's new welfare approach is indeed a bold attempt to reshape public opinion on welfare or, alternatively, a mostly pragmatic reaction to changing social attitudes. The argument presented is that whilst there are persuasive explanations that Labour is responding to a change in the public mood, there is also evidence of a more ambitious goal at stake: the aim of reshaping, not simply responding to, public opinion on the welfare state.     

Promiscuously Partisan? Public Service Impartiality and Responsiveness in Westminster Systems

Public servants in Westminster countries are being drawn into the limelight by demands from their political masters that they publicly defend policies. Critics suggest these conditions undermine the capacity and willingness of senior public servants to manage the enduring Westminster tension between serving elected governments and remaining nonpartisan. Interviews with senior officials from Australia, Canada, and the United Kingdom challenge this pessimistic view, showing that officials consistently stress the importance of not “crossing the line” when dealing with their elected masters. Two exploratory case studies are presented—one of an Australian ministerial department (Treasury) and another of a Canadian quasi‐autonomous agency (Statistics Canada)—in which public servants faced pressure to defend controversial government policies. These cases show how contemporary public servants actively interpret, establish, and defend the line between appropriate responsiveness and inappropriate partisanship in Westminster systems.     

Transformational Leadership and Public Service Motivation: Driving Individual and Organizational Performance

Despite growing evidence about prosocial motivations and their effects on employee behavior, how can new public service motivation research translate into more effective management practices—which, so far, regrettably remain underdeveloped? Increasingly, public service motivation studies have moved from understanding what motivates public servants to exploring how public service motives influence performance. Similarly, greater attention is now paid to the practices of transformational leadership. Drawing on concepts from transformational leadership, this essay explores how managers can harness the positive aspects of public service motivation to enhance employee and organizational performance and outlines strategies that can help managers incorporate public service motivation values across management systems.     

Leading and Learning through Dynamic Performance Management in Government

Performance management in government is at a crossroads. The advent of big data and advances in technological and analytical tools have provided opportunities to measure and track a wider variety of internal and external indicators on a more timely basis. Public leaders require new vision and capacity to design and manage knowledge-building systems. This article provides two tools: (1) a more comprehensive open systems performance management framework and (2) a model of leadership needed to orchestrate such systems—knowledge brokers who orchestrate the demand for and supply of evidence. This article recommends that public agencies strategically build evidence to better track measures of the effects of governmental actions on public value and their intended and unintended consequences on the ecosystem; articulate, measure, and test the assumptions built into their operating models; and learn from routine monitoring of the dynamic environment in which their organizations strive to achieve their missions.     

Overcoming resistance to resistance in public administration: Resistance strategies of marginalized publics in citizen‐state interactions

There has been a general resistance to resistance studies in public administration (PA) research. Although previous research has documented instances of selective policy implementation by PA practitioners that put minority groups at a comparative disadvantage, we still have a limited understanding of the different ways in which these groups contest discriminatory administrative practices especially within non‐western developing countries. To address this gap, in this article, I discuss the various strategic responses the Khawaja Sira—a genderqueer group of Pakistan—employ in their interactions with the frontline police workers to contest their hyper‐surveillance and moral policing. The discussion illustrates that while Khawaja Sira mostly rely on individual acts of contestation in their interactions with police officers, the emerging leadership of the Khawaja Sira is enabling emergence of new forms of resistance based on social capital and collective protests. In addition to contributing to the limited literature on citizen perspectives and LGBT issues in PA research, the theoretical framework of resistance presented here can serve as a good template to analyze citizen responses to discriminatory frontline practice in other sociopolitical contexts as well.     

Opening the Black Box of Administrative Reform: A Strategic-Relational Analysis of Agency Responses to Termination Threats

ABSTRACT

How do public agencies respond when reform proposals threaten downsizing, reduction in functions, or termination? Agency survival during administrative reform is conventionally explained by structural characteristics, informed by the hardwiring thesis derived from the politics of the U.S. federal government. Parliamentary systems provide greater opportunity for agency reform, but there is little evidence of how agencies respond to such proposals or how proposals are altered prior to decision. We consider agencies as active participants in the reform processes, using strategic-relational theory to analyse their strategizing. The article employs detailed empirical evidence on 12 agencies subject to reform by the UK government between 2010 and 2013. We identify three archetypical defence strategies—technical expert, network node, and marginal adaptor—and argue that coding agency strategies alongside structural analysis can help better explain reform outcomes.     

Motivational dilemmas in collaborative learning activities: The case of the Swedish International Development Cooperation Agency (SIDA)

Complex social and environmental problems—such as climate change, rural poverty, and over‐fishing—defy simple policy solutions. An increasing number of scholars, practitioners, and policy makers now agree that coming to grips with such problems requires more collaborative and adaptive forms of learning and decision‐making. Such approaches seek to involve a variety of stakeholders to learn about system‐level effects of past human decisions and adapt future management decisions to the lessons learned. While there are plenty of success stories at the local level, the collaborative learning approach has turned out to be difficult to implement at broader scales—in large public organizations and in society at large. This article provides an explanation for such shortcomings, arguing that the creation of collaborative learning systems is plagued by several motivational dilemmas. By systematically mapping out the institutional incentives of the potential participants in collaborative learning activities, it is argued that one can gain a better understanding of the likelihood that adaptive systems will actually work. These ideas are tested on the case of the Swedish International Development Cooperation Agency (Sida). It is found that most Sida staff face conflicting incentives to engage in collaborative learning, but there are opportunities for management to strengthen such incentives. Copyright © 2009 John Wiley & Sons, Ltd.     

Administrative (de)centralization,performance equity,and outcome achievement in rural contexts: An empirical study of U.S. child welfare systems

Whether public services are better delivered through centralized or decentralized administrative systems is one of the most enduring debates in public administration. This article contributes to the debate with a study of program outcome achievement in U.S. child welfare services. We examine whether centralized state‐administered or decentralized county‐administered systems are more successful at realizing desired outcomes, which exhibit greater performance equity, and which are more successful at securing program outcomes in rural settings. Using a coarsened exact matching approach to quasi‐experimental research, we find that centralized child welfare systems exhibit greater success at achieving desired outcomes—in both rural contexts and overall. No discernible difference is found in centralized and decentralized systems' performance equity; outcome disparities exist under both structures. The study thus lends credence to centralization arguments, but at the same time cautions that centralized administration is not a structural panacea.     

Australia's National Integrity Systems: Introducing a New Blueprint

Australia is sometimes regarded as having well‐developed systems for protecting and promoting public integrity. Nevertheless the functioning of modern integrity systems is not particularly well understood, in Australia or internationally, and to be complacent about their state of health is obviously to court danger. In this introduction Frank Costigan, who as a royal commissioner in the 1980s pioneered new strategies for exposing institutional corruption and organized crime, introduces the results of the Australian National Integrity System Assessment — a collaborative Australian Research Council project seeking better ways of mapping and evaluating the institutions and processes dedicated nationally to ensuring integrity and accountability. The result is a new blueprint for key reforms and continual improvement in Australia's integrity systems over coming years.     

External affairs and trusted family businesses: A research agenda

In the past two decades, the Journal of Public Affairs has solidified corporate public affairs as a legitimate leadership skillset vital to driving future business growth. Yet, more work at a persistently overlooked gap in the Journal, the intersection of public affairs and family businesses, might shed new light on thriving, trusted, and sustainable business practices. This paper examines the unique contributions of family businesses as trusted influencers. As one of the most prominent forms of business, worldwide, family businesses persistently enjoy unusually high levels of public trust while collectively employing millions of wage earners yet their contributions to corporate external affairs research ostensibly have been largely overlooked. These “silent” community and social influencers offer a potentially new perspective on effective public outreach given their persistent and unique trust advantage. Family business' trust-based capabilities can potentially bring new insights to understanding effective stakeholder engagement, credible communications, and issues management—the sweet spot of corporate public affairs functions. Future research opportunities based on relational- and locational- advantages of trusted family businesses are identified.     

Outspoken Insiders: Political Connections and Citizen Participation in Authoritarian China

Few political systems are completely closed to citizen participation, but in nondemocratic systems and developing democracies, such participation may come with risks. In these contexts where fear and uncertainty may be high, why do some citizens still take action and make complaints to authorities? The resource mobilization model identifies the importance of time, money, and civic skills as resources that are necessary for participation. In this paper, we build on this model and argue that political connections—close personal ties to someone working in government—can also constitute a critical resource, especially in contexts with weak democratic institutions. Using data from both urban and rural China, we find that individuals with political connections are more likely to contact authorities with complaints about government public services, despite the fact that they do not have higher levels of dissatisfaction with public service provision. We conduct various robustness checks, including a sensitivity analysis, and show that this relationship is unlikely to be driven by an incorrect model specification or unobserved confounding variables.     

Public–Private Partnerships and the Public Accountability Question

Public–private partnerships (PPPs) are growing in popularity as a governing model for delivery of public goods and services. PPPs have existed since the Roman Empire, but their expansion into traditional public projects today raises serious questions about public accountability. This article examines public accountability and its application to government and private firms involved in PPPs. An analytical framework is proposed for assessing the extent to which PPPs provide (or will provide) goods and services consistent with public sector goals of effectiveness, efficiency, and equity. Six dimensions—risk, costs and benefits, political and social impacts, expertise, collaboration, and performance measurement—are incorporated into a model that assists public managers in improving partnerships’ public accountability.     

Effectiveness: the next frontier in New Zealand

Central agencies face a critical test on how to approach the resolution of issues and problems related to improving the New Zealand public sector management systems from the author’s perspective. A decade has passed since the legislative changes were approved that initiated major financial management reform, and much of the initial reform energy has faded. It is time to assess what has and has not been achieved, and to search for ways to continue to move forward. There is a sense of anticipation, as well as some apprehension, across the New Zealand public sector, particularly in light of the election of a new Government. As New Zealand moves into a new phase of reform, one of the key challenges is to take advantage of what has already been achieved. New Zealand has one of the world’s leading public sector management systems, and should take advantage of that foundation. The key issue focused on in this article is effectiveness. A critical part of raising effectiveness is enhancing information. Better information is needed on outcomes, and it should be packaged in more accessible and relevant ways. More disciplined evaluation of the effectiveness of what is done is necessary. Systems that encourage public servants to raise their horizons should be improved or put in place. Managers who understand what they are doing and why are critical to reform success. Purchase agreements—or output agreements—will play a pivotal role, but they need to be improved. A fresh approach to output specification to better accommodate the range of output relationships that exist is required. Central agencies can facilitate customization of output specifications by being clearer about the basic output framework, and more flexible about how that framework is applied. Outcome measures should be refined and used along with outputs where feasible. Better ways must be found for managing problems of inter-agency coordination. Technology offers a new set of tools, but IT facilitates rather than creates effective relationships. Other coordination mechanisms that help agencies to communicate and to make trade-offs must evolve. New Zealand can move into a new phase of building a “world’s best” public sector. The public sector has an appetite for action at the moment, and a willingness to debate the issues. How this potential will be used is, to a great extent, the critical issue faced by the new Government.     

New Zealand experience with public management reform—or why the grass is always greener on the other side of the fence☆

This article provides an analysis of how New Zealand has achieved the successes made to date, issues and problems yet to be resolved, and directions on how to address current shortcomings in public managment reform of the New Zealand model. Four issue pillars provide the framework for the analysis: Political—problems that are inherent to the political arena under a range of public management regimes; Incompleteness—problems that reflect that the system is incomplete in some areas, but that do not suggest inherent difficulties; Implementation—problems to do with the way the system has been implemented; Inherent—problems inherent in the New Zealand regime, but not necessarily in other systems. The overall conclusion drawn is that relatively few of the problems are inherent in the New Zealand model and that most problems fall under the first of the four issue pillars: politics. The author concludes that there is much to be done—but that it can be done within the framework of the Public Finance Act and the State Sector Act by changing how the system is operated.