Modernization Programs in Perspective: Institutional Analysis of Organizational Change

Contemporary reform programs give students of comparative public administration a new chance to update their theoretical ideas about organization and organizing. Do forms of government and political institution matter? If so, what are the effects of different organizational forms? Why do we have the institutional forms we have? How can we explain their origins, persistence and development? This article explores the possible value of organization theory for the study of comprehensive administration reform. An attempt is made to specify how modernization efforts may be affected by properties of existing institutions. It is argued that contemporary modernization programs are based on an instrumental view of organizational decision-making and change. An institutional perspective is then outlined.     

Introduction to Jesse Burkhead Symposium

Government budgeting is one of the major processes by which the use of public resources is planned and controlled. To the extent that this is done well, governmental programs are brought increasingly to the service of its citizens, enhancing their material and cultural status.
The study of government budgeting is a study in applied economics—in the allocation of scarce resources. This study must look at operations and begin with organization and procedure, the routines which have been established for decision–making in government. It should extend to an examination of the influences, governmental and nongovernmental, that come to bear on the decision-making process.
Ours is both an organized society and a society of organizations. The significance of organization is nowhere more evident than in the public sector. Here organizational arrangements bring together the learning of all social scientists. The patterns for decision-making do not provide separate compartments for economic knowledge, for political knowledge, for social knowledge. These are merged in the organizational arrangements which have been established for the conduct of governmental affairs.1     

Toward Interest Inarticulation: A Major Consequence of Corporatism for Interest Organizations

The main issue discussed is the difficulties in collective action. Three logics of collective action are identified and discussed in terms of their implications for solidarity within interest organizations and for organizational action. Both solidarity and organizational action are important for successful policymaking. Policies can be decided without the support of the members, but their implementation may thus prove difficult. The theoretical issue of interest articulation by interest organizations is the important one here. The article concludes that encompassing organizations will most likely have difficulty in articulating a definite organizational policy. It is maintained that corporatism and public responsibility-taking can severely hamper the articulation of organized special interests. They lead to interest inarticulation. This may lead to legitimacy problems for the organization and be one explanation for the recent decline in certain established interest organizations in Sweden and recent discussions on the future of corporatism.     

The Public Service Mutual: Theories of Motivational Advantage

Public service mutuals are a form of employee‐led organization in which service workers spin out of the public sector to form “mutuals” that contract back with government to provide a service. This article draws on economic and psychological theory to demonstrate that mutuals can align both self‐interested and altruistic or public service motivations so as to serve the social good; moreover, by offering greater autonomy to public service professionals, mutuals are predicted to encourage energetic and persistent behaviors. In both cases, there is an advantage over alternative forms of organization such as the public sector bureaucracy, the shareholder‐owned private firm, or the nonprofit organization. The employee‐led mutual form, however, may not appeal to risk‐averse workers, its collective decision‐making systems may be inefficient, and external mechanisms may be required to ensure that organizational outcomes are always directed toward the social good.     

Value-Based Integrity Management and Bureaucratic Organizations: Changing the Mix

ABSTRACT

This article examines integrity management initiatives designed to introduce more value-based elements in public bureaucracies. Incorporating value-based practices, which emphasize the personal ethical responsibilities of individual public servants, into a hierarchical, rule-based system may present difficult organizational problems. A central issue is to determine whether any change has actually occurred or whether the organization is simply functioning as it did previously. In addition, there are problems of implementation: new value-based initiatives may conflict with the pre-existing system; they may not be adequately reflected in training programs; and there may be differential impacts on departments and agencies. We analyze problems in this new organizational mix in a classical Weberian bureaucracy, the Hong Kong civil service. The findings are based on a 2011–2012 administrative ethics survey of 355 senior public servants, a separate survey of 70 Ethics Officers, and semi-structured interviews with 32 senior public servants.     

Accountability infrastructures: Pragmatic compliance inside organizations

We trace the pragmatic turn in regulatory governance from the level of the state and civil society to the coalface of the regulated organization. Since the 1980s, an array of new regulatory models has emerged. These models, while distinct, are unified in two related tendencies. First, they support the devolution of responsibility for standard setting, program design, and enforcement to the regulated organization. This delegation of governance to the organization itself has catalyzed the creation of accountability infrastructures within organizations, a network of offices, roles, programs, and procedures dedicated to aligning the organization's operations with external standards, codes of conduct, ethical and normative expectations, and regulations. Second, the diverse regulatory models depend, often implicitly, on organizational accountability infrastructures that incorporate the tenets of pragmatist philosophy: inquiry through narration, adaptation to context, and problem-solving through experimentation. Reviewing the empirical literature on organizational compliance, we find ample evidence of inquiry through narration at the organizational coalface. However, we find limited evidence of narrating plurality in the organization and narrating experimentation as problem-solving, as these activities create tensions with internal and external parties who expect singular, stable representations of governance. These tensions reveal an important incongruity between pragmatic governance across organizations and pragmatic governance within organizations. We contribute to the regulatory governance literature by documenting this important shift in the locus of governance to the organizational coalface and by charting a new research agenda. We argue that examinations of regulatory governance should be retraced in three ways. First, attention should shift to the organizational coalface, recognizing and analyzing accountability infrastructures as the central contemporary mechanism of governance. Second, the long-standing focus in regulatory studies on why parties comply should shift to understanding how regulated parties manage themselves to achieve compliance. Third, analyses of compliance should examine the tensions in narrating adaptation and experimentation, and the implications of such tensions for the achievement of prosocial outcomes.     

The Impact of Competing Institutional Pressures and Logics on the Use of Performance Measurement in Hybrid Universities

Abstract

This study contributes to the current debate on competing institutional pressures and logics and performance measurement practices in hybrid universities and examines how shifts in logics have affected performance measurement practices at the organizational and individual levels. It draws upon the theoretical lenses of institutional theory and adopts a longitudinal case study methodology based on participant observations and retrospective interviews. The findings show that universities and academic workers are affected by external pressures related to higher education that include government regulations and control of the state (state pressure), the expectations of the professional norms and collegiality of the academic community (academic pressures), and the need to comply with international standards and market mechanisms (market pressures). Academic workers operate in an organizational context in which conflicting conditions from both academic and business logics co-exist. The results indicate that institutional pressures and logics related to the higher education field and organizational context shape the use of universities’ performance measurement practices and result in diverse solutions. While previous literature has focused mainly on competing logics and the tensions they may generate, this study shows that, in a university context, potentially conflicting logics may co-exist and create robust combinations.     

Goal-Based Learning and the Future of Performance Management

All levels of government have begun to pursue results-based reforms, which assume that managers will use performance information to make better decisions. However, reforms have neglected the insights of a large and relevant literature on organizational learning. This article revisits this literature, treating results-based reform as an organizational learning mechanism and a deliberate structural effort to induce learning. From an organizational learning perspective, most results-based reforms target narrow process improvement (single-loop learning) rather than a broad understanding of policy choices and effectiveness (double-loop learning), even though the latter is more critical for long-term organizational success. Case evidence from state governments illustrates single- and double-loop learning and the importance of two frequently neglected aspects of organizational learning: learning forums—routines where performance information is deliberately examined—and the role of organizational culture in enabling or limiting learning.     

Politics and the organization of collective action: The case of Nigeria, 1960–1975

The case of Nigeria provides support for an organizational conception of collective action. Such a conception rests on the notion that collective events—riots, demonstrations, strikes, marches, and violent confrontations—are the accompanying manifestations of routine politics and are instigated by many of the same organizations that sponsor nonviolent, ordinary political and economic activity. It is argued that collective action is organized action; its vehicles are mainly preexisting organizations that determine the location and timing of collective action, select the forms of contention, articulate the issues, and choose the targets of collective protest. It is further argued that insofar as a society's organizational base determines the shape of collective action, then political policies that affect the society's organizational composition will have a corresponding effect on the shape of collective action. That is, policies of organizational repression and facilitation will decrease or increase associated forms of collective action.     

Are public organizations suffering from repetitive change injury? A panel study of the damaging effect of intense reform sequences

In the last decade, reforms in the public sector have been implemented at an ever‐increasing pace. Hereby, organizations are repetitively subject to mergers, splits, absorptions, or secessions of units; the adoption of new tasks; changes in legal status; and other structural reforms. Although evidence is largely missing in the literature, there is a growing belief that such intense reform sequences may be damaging to organizations. This article aims to fill this gap in the literature by empirically examining the existence of such repetitive change injury for public organizations. To do so, we employ organizational absenteeism rates as an indicator for repetitive change injury and link this to the reform sequences an organization experienced. Results indicate that intense reform sequences disproportionally increase organizational absenteeism rates, supporting the existence of repetitive change injury and suggesting that reforms remain rooted in organizational memories for a longer time than is often assumed.     

Collective Reputations Affect Donations to Nonprofits

Maintaining their organization's reputation is an important challenge for nonprofit managers. Organizations are often linked via a common reputation within their industry or sector such that publicity about one organization can spill over to affect how stakeholders view its peers. The linkages of common reputations may be particularly pronounced among nonprofits because important dimensions of their quality are difficult to observe directly. In this paper, we show that when the third‐party evaluator Charity Navigator rates nonprofits and displays ratings of their peers, it creates a collective reputation among groups of nonprofits performing similar functions in the same region. Through an analysis of 3,413 charities from 1993 through 2008, we find that donations to nonprofits rated by Charity Navigator rise and fall with the published Charity Navigator ratings of their peers. The effect appears to be due to the charity updating fundraising choices in response to the ratings rather than donor reactions. The presence of collective reputations has important implications for nonprofit management, such as collective self‐regulation programs.     

绩效管理改革的效果:来自美国联邦政府的证据

从1993年的《政府绩效与结果法案》(GPRA)以及布什政府的项目评估定级工具(PART)已经建立了一种新的政府管理惯例,两者的目的均在于促进美国联邦政府绩效管理实务的发展。但从绩效信息的使用方面来看,两者所做出的努力都极其有限,即一旦考虑其它因素,机构雇员不论是否参与PART评审,是否参与GPRA的实施进程,他们几乎都没有影响到绩效信息的使用。本文采用顺序Probit回归模型,通过对美国联邦审计总署基于1996、2000、2003和2007年的数据进行调研,最终得出依赖于难以观测的官僚行为来实现的政府改革是具有局限性的以及在政府绩效改善的过程中绩效信息使用的重要性。对数据的深层分析还揭示了一系列影响绩效信息使用的组织因素,这包括领导对结果的承诺、监管者引导学习惯例、工作动机的性质、将测量与行动链接起来的能力、管理的自由裁量权以及利益相关者之间的政治冲突。     

Organizational turnaround: moving beyond one-size-fits-all solutions

Abstract

Literature on organizational turnaround has frequently suggested, but rarely investigated, the possibility that turnaround strategies for failing organizations must be matched to the specific needs of the organization. Building on work related to causes of decline in private sector literature, this study offers a framework for matching strategic interventions to the current state of an organization’s functioning in terms of resources (material and human), coordination (horizontal and vertical), and the environment. Using a panel dataset of New York City schools, we find that two understandings of turnaround that often appear mutually exclusive—that an organization can improve performance by shoring up weaknesses and that an organization should play to its current strengths—can complement each other and may both appropriately describe different types of organizational challenges.     

Efficiency,Incentives, and Transformational Leadership: Understanding Collaboration Preferences in the Public Sector

In the public sector, participant attitudes are an important determinant of the success of inter-organizational collaboration initiatives. In this study, a model of employee willingness to collaborate is proposed in which the influence of transformational leadership is determined in part by the performance orientation of the organizational context in which it is enacted. The theoretical model is tested empirically using survey data collected from public employees in South Korea and regression-based Monte Carlo simulation. The analysis suggests that the effect of transformational leadership is amplified by an organization’s emphasis on internal efficiency and its use of performance-based incentives, factors that themselves have independent positive and negative effects, respectively, on attitudes about collaboration. This study links transformational leadership to an increasingly necessary process in the public sector and highlights its context-dependent influence. Implications of the findings are discussed, including the notion that the efficacy of tactics adopted to support inter-organizational collaboration may be a function of their consistency with the realities of established organizational policies and processes.     

Technology transfer,public policy,and the cooperative extension service-OMB imbroglio

The Cooperative Extension Service, although widely cited as an exemplary technology transfer system for its documented contributions to increases in agricultural productivity, is confronting a number of challenges. Recent presidential budgets propose a narrowing of federal responsibilities for Extension to programs related to the transfer of agricultural technology. At the same time, the relevance of its traditional organizational structure to the technical needs of contemporary agriculture has been questioned. Extension's ability simultaneously to correct what it perceives to be a narrow view of its mission as well as to improve its performance as a technology transfer system is constrained by several things. One of these is its need to provide the diverse set of services demanded by the broad constituency that comprises its political base of support. Another is the gradual change in its own internal norms towards an educational information dissemination orientation away from an emphasis on adaptive research and technical problem-solving.     

Top Management Turnover and Organizational Performance: A Test of a Contingency Model

A crucial test of whether “management matters” is whether changes in the team at the top of an organization make a difference. Focusing on turnover in the collective senior team rather than successions of individual chief executives, this article argues that the impact of leadership succession is contingent upon prior organizational performance. The evidence on English local government shows that changes in the top management team lead to improvements when initial performance is bad, but result in deterioration when initial performance is good. The results support the view that high‐performing organizations should attempt to retain members of their senior management team, whereas low performers should seek to replace them.     

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.     

MANAGING IN NETWORK SETTINGS

The focus of this article is on managing networks. A network knowledge base is developed from the authors' studies of city government involvement in economic development, management within rural enterprises and the evaluation of a rural strategic planning project. Other public management network analyses are also incorporated. Management in network settings is not based on central authority and cannot be guided by a single organizational goal as is the case in the classical management approach. Management involves managing flexible structures toward collective efficiency. The ability to manage is related to the internal condition of the manager's primary organization. It involves technical, legal, political and cost dimensions. It requires different capacities, skills and knowledge from that of single organization management. The next steps in the research would include the development of the skills needed, an analysis of the role of organizational power and the operational variables of networks, the issue of network cohesion, and the question of loss of control or difficulty in assessing network accountability.     

Collective Action,Civil Society,and Public Policy in Turkey

Abstract

Understanding policy change mechanisms has been a key question for scholars of public policy and collective action. However, policy scholarship mostly ignores civil society-based explanations of policy processes. In order to address this gap, this study combines the Advocacy Coalition Framework with networked collective action perspectives and analyzes a successful case of mobilization of women’s rights organizations in Turkey to reverse a bill on child marriage. Study findings suggest that advocacy coalitions are not static entities. When different issues in a policy subsystem are invoked, the structure of inter-coalition networks can change substantially and these variations in inter-coalition interactions may have consequences for influencing policy change. Moreover, this paper argues that extensive street protests and online campaigns by civil society organizations have the capacity to boost the bargaining power of minority coalitions, especially in contexts that lack multiple formal venues for making policy claims.     

Practices of Implementation of Sexual Harassment Policies: Individual Versus Collective Strategies1

abstract This article examines the implementation of sexual harassment law in the workplace in Germany and the United States. Both countries have developed different approaches to the issue, with certain trade‐offs for the pursuit of gender equality and changes in gender workplace culture. Germany has developed a corporatist, collective strategy. Yet, few German employers have adopted policies and training programs. New policy approaches focus on sexual harassment as a group‐based, but gender‐neutral, issue in the context of general unfair workplace practices of “mobbing.” In contrast, sexual harassment is primarily understood as an individual rights issue in the U.S. This approach emphasizes individual (internal) redress. Social and organizational change comes at a high cost for individuals who have been harassed. Employers’ practices in both countries have turned sexual harassment into a gender‐neutral issue. I conclude that a synthesis of both individual and collective approaches with an explicit focus on gender inequality would be desirable.