PUBLIC SERVICE VALUES: A NEW APPROACH TO THE STUDY OF MOTIVATION IN THE PUBLIC SPHERE

This article details an approach for empirically eliciting and examining public service values and their impact on decisions made by public servants. The approach involves adaptation of the Schwartz Portrait Values Questionnaire such that it: (1) elicits values relevant to an individual's public service role rather than broad personal values; and (2) incorporates values omitted by the Schwartz framework, including those identified by Jørgensen and Bozeman and others. To examine the impact of public service values on specific public management decisions, we use structured decision context statements similar to those proposed by Tetlock. We find that: (1) the adapted instrument maps favourably to the Schwartz personal value space; (2) the public service values space includes value sets that expand and refine the personal value space defined by Schwartz; and (3) the public service values elicited can be used to predict decisions made by respondents in specific public service decision contexts.     

TRUTH IN GOVERNMENT AND THE POLITICIZATION OF PUBLIC SERVICE ADVICE

Recent controversies over intelligence in Iraq, to give one example, have raised problems about the politicization of official advice from government, particularly what we are led to believe is factual or ‘objective’ advice. Objectivity is a contested value and the lines are often hard to draw between fact, spin and misrepresentation. Public servants are held to higher standards of objectivity than politicians, a fact on which politicians trade when they seek to attribute assessments of evidence to their officials. The growing openness of government documentation is placing pressure on departmental officials who wish to be both loyal to their political masters and honest in their factual assessments. These issues are discussed with reference to recent Australian experience (and also with reference to the UK Hutton Inquiry into the death of Dr David Kelly.     

THE SHINING LIGHTS? PUBLIC SERVICE AWARDS AS AN APPROACH TO SERVICE IMPROVEMENT

Award schemes have proliferated in the public sector worldwide – yet there is little analysis of their role in improving public services through celebrating performance and sharing good practice. This paper theorizes this development, establishing a research agenda to examine the functioning, attractiveness and effectiveness of award schemes, which may be classified as being threshold or competitive schemes. The paper examines a major English competitive award, the Beacon Scheme, and focuses initially on its attractiveness to applicants. The research constructed a database of applications and awards of all English local authorities over six years as well as using interviews and observation. The analysis examined trends over a changing policy context, along with differences in application rates across eligible authorities and perceptions of the scheme. The analysis is used inductively to construct criteria by which the attractiveness of award schemes and their effectiveness in service improvement can be conceptualized.     

MANAGING CITIZENS' EXPECTATIONS OF PUBLIC SERVICE PERFORMANCE: EVIDENCE FROM OBSERVATION AND EXPERIMENTATION IN LOCAL GOVERNMENT

Citizens' expectations of public service performance influence their attitudes and behaviour towards services, including satisfaction, choice of service and political voice about them. However, there has been little research on what sets expectations. This paper assesses the effects of prior service performance and information about prior performance on two forms of citizen expectations, positive expectations of what performance will be and normative expectations of what performance should be. In an observational study, prior performance is positively related to expectations of what performance will be. Prior performance is positively related to high normative expectations but is unrelated to low normative expectations. The resilience of normative expectations suggests that poor performance will trigger dissatisfaction and citizen response rather than lowering expectations creating passive acceptance. In a field experiment, performance information effects are found for positive but not normative expectations. Providing information about excellent performance raises positive expectations and providing information about poor performance lowers positive expectations; negativity bias is evident with information about poor performance having a larger effect. Performance information that is credible to citizens can be used to manage citizens' positive expectations but their normative expectations are less amenable to influence by this route.     

PUBLIC SERVICE MOTIVATION,CIVIC ATTITUDES AND ACTIONS OF PUBLIC,NONPROFIT AND PRIVATE SECTOR EMPLOYEES

Using the 2005 Australian Survey of Social Attitudes dataset, this study compares the public service motivation (PSM), and civic attitudes and actions of public, nonprofit and private sector employees in Australia. Sectoral similarities and differences were noted. This research also analyses the relationships between PSM and civic attitudes and behaviours of these groups of employees. High PSM employees were found to have higher confidence in key national public and private institutions, place more importance on citizens' rights, and engage in more non‐electoral political and prosocial acts than low PSM employees.     

STRUCTURAL CHANGE AND PUBLIC SERVICE PERFORMANCE: THE IMPACT OF THE REORGANIZATION PROCESS IN ENGLISH LOCAL GOVERNMENT

Organization theory suggests that structural change has disruptive effects on managerial behaviour and organizational outcomes, and that these effects are likely to emerge in the period between the announcement and the commencement of the new structure. We evaluate the validity of this argument by analysing the performance of English county councils in the transition period before the voluntary restructuring of a sub‐set of these organizations. Disruptive effects are tested while controlling for a range of other variables, including the relative prosperity of the local population and the diversity of their service needs. The empirical results indicate that the performance of local authorities facing reorganization deteriorated prior to the onset of the new structures, and support the view that structural change has disruptive effects on organizational outcomes.     

THE VALUE OF CHOICE IN PUBLIC POLICY

Conceptualizing and measuring choice is problematic both in theory and in practice. Measuring by counting the alternatives seems counter-intuitive as a smaller set of better or more diverse alternatives seems to provide more choice than one that is simply larger. However, concentrating upon better alternatives leads to choice being defined by welfare or utility which is also counter-intuitive. The implications of this paradox are considered in relation to examples drawn from the choice agenda in British social policy. Empirical difficulties in measuring the welfare gains through implementing greater choice at a time of other central-led policy initiatives such as targets are discussed, and the extant evidence discussed. Criteria for judging whether or not choice has been welfare-enhancing are suggested. It is argued that 'soft choice' where service providers provide information and explain different options is preferable to 'hard' choice of simplistic targets to increase choice by ticking target boxes.     

‘LEADERISM’: AN EVOLUTION OF MANAGERIALISM IN UK PUBLIC SERVICE REFORM

This paper argues that ‘leaderism’– as an emerging set of beliefs that frames and justifies certain innovatory changes in contemporary organizational and managerial practice – is a development of managerialism that has been utilized and applied within the policy discourse of public service reform in the UK. The paper suggests that ‘leaderism’ is an evolution of entrepreneurial and cultural management ideologies and practices. An analysis of the articulation of leaderism with public service reform in the UK is presented. The paper problematizes the construals of leadership contained within these texts and reflects on their promotion of leadership as a social and organizational technology. ‘Leaderism’ is argued to be a complementary set of discourses, metaphors and practices to those of managerialism, which is being utilized in support of the evolution of NPM and new public governance approaches in the re‐orientation of the public services towards the consumer‐citizen.     

RESIGNED BUT SATISFIED: THE NEGATIVE IMPACT OF PUBLIC SERVICE MOTIVATION AND RED TAPE ON WORK SATISFACTION

This article examines the relationship between red tape, Public Service Motivation (PSM) and a particular work outcome labelled ‘resigned satisfaction’. Using data from a national survey of over 3754 public servants working at the municipal level in Switzerland, this study shows the importance of looking more closely at the concept of work satisfaction and, furthermore, of thoroughly investigating the impact of the different PSM dimensions on work outcomes. Unsurprisingly, research findings show that red tape is the most important predictor of resignation. Nevertheless, when PSM dimensions are analysed separately, results demonstrate that ‘commitment to public interest/civic duty’ and, to a lesser extent, ‘attraction to policy‐making’ decrease resignation, whereas ‘compassion’ and ‘self‐sacrifice’ increase it. This study thus highlights some of the negative (or undesirable) effects of PSM that have not been previously addressed in PSM literature.     

NEW MODES OF CONTROL IN THE PUBLIC SERVICE

Controversy exists regarding whether recent changes in the organization of the public services in the UK and elsewhere constitute a paradigm shift towards a post-bureaucratic form. This article argues that in Britain three fundamental but interlocking strategies of control have been implemented over the last decade. First, there has been a pronounced shift towards the creation of operationally decentralized units with a simultaneous attempt to increase centralized control over strategy and policy. Second, the principle of competition (often attached to the development of market relations but sometimes not) has become the dominant method of co-ordinating the activities of decentralized units. Third, during the most recent period there has been a substantial development of processes of performance management and monitoring (including audits, inspections, quality assessments and reviews), again a phenomenon largely directed towards operationally decentralized units.
Taken together these three strategies do not describe a simple movement from a bureaucratic to a post-bureaucratic form, rather they combine strong elements of innovation with the reassertion of a number of fundamentally bureaucratic mechanisms. This may be a peculiarly British phenomenon, certainly the excessive elements of centralization and formalization appear to depart from the ideal-type of the post-bureaucratic organization. It is argued that this'British trajectory'can best be understood in terms of the continued relative decline of the British economy and the Conservative response to it, i.e. the drive to create a'high output, low commitment'workforce.     

STRATEGY CONTENT AND PUBLIC SERVICE PROVIDER PERFORMANCE IN THE UK: AN ALTERNATIVE APPROACH

This article presents an alternative empirical test of the relationship between strategy content and service provider performance. Strategy content, conceptualized as comprising strategic stance and strategic action, has been shown to be a means to improve public service performance. We contribute to this growing body of research by deriving an alternative typology of strategy to better reflect competitive conditions in the public sector, which existing strategy typologies cannot fully explain. By assuming that public service providers must follow strategies best suited to their internal and external conditions for improved performance, we evaluate the significance of ‘fit’ between alternative strategic stances and organizational characteristics. Compromising the delivery of a strategy invariably leads to a misfit between strategy and what the service provider is actually doing. We highlight how to optimize strategic fit, to maximize service provider performance. Conclusions are drawn for public management theory and practice.     

UNDERSTANDING GOVERNMENT: FOUR INTELLECTUAL TRADITIONS IN THE STUDY OF PUBLIC ADMINISTRATION

In this article a conceptual map of the identity of the study of public administration is developed that encompasses its theoretical diversity and richness. It organizes public administration scholarship into four main intellectual traditions: practical wisdom, practical experience, scientific knowledge and relativist perspectives. The objective is to outline the study’s fundamental heterodoxy and interdisciplinarity. While the study clearly has strong national components everywhere, the four main intellectual traditions go across and beyond national traditions of government and of its study.     

BRINGING THE POLITICS BACK IN: PUBLIC VALUE IN WESTMINSTER PARLIAMENTARY GOVERNMENT

We challenge the usefulness of the 'public value' approach in Westminster systems with their dominant hierarchies of control, strong roles for ministers, and tight authorizing regimes underpinned by disciplined two-party systems. We identify two key confusions: about public value as theory, and in defining who are 'public managers'. We identify five linked core assumptions in public value: the benign view of large-scale organizations; the primacy of management; the relevance of private sector experience; the downgrading of party politics; and public servants as platonic guardians. We identify two key dilemmas around the 'primacy of party politics' and the notion that public managers should play the role of platonic guardians deciding the public interest. We illustrate our argument with short case studies of: the David Kelly story from the UK; the 'children overboard' scandal in Australia; the 'mad cow disease' outbreak in the UK; the Yorkshire health authority's 'tea-parties', and the Cave Creek disaster in New Zealand.     

PUBLIC SERVICE USE AND PERCEIVED PERFORMANCE: AN EMPIRICAL NOTE ON THE NATURE OF THE RELATIONSHIP

Citizen surveys often measure service use as well as perceived performance, typically in the form of quality or satisfaction ratings. But little attention has been paid to the relationship between public service use and satisfaction. How do the service ratings or satisfaction judgements of frequent users differ from those of infrequent users? Is the direction of the use‐satisfaction relationship positive or negative? Or perhaps non‐linear? And does the direction or form of the relationship differ across services? Using data from New York, we examine the relationship between use and perceived performance for five services: buses, subways, parks, public libraries, and roads. Interestingly, this relationship often appears curvilinear, with satisfaction initially rising with use, to a point after which it begins to diminish. We offer some substantive interpretations of this pattern, as well as some practical implications for the analysis and understanding of citizen surveys for policy and management purposes.     

ANALYSING POLITICAL CHOICE IN LOCAL GOVERNMENT: A COMPARATIVE CASE STUDY APPROACH

Despite the centralizing trends which have characterized the 1980s, local authorities have displayed considerable skill in their pursuit of policies designed to cope with effects of the government's grant abatements and other, legislative restrictions. Indeed, it is paradoxical that a continued diversity in response has characterized the strategies of various local authorities over the period. However, our theoretical understanding has often failed to keep pace with the reality of a still vibrant local government. Even those 'output' studies which identified the different influences at work invariably failed to explain why localities diverged in their responses. Similarly, the expository power of sophisticated intergovernmental relations (IGR) models has not fully accounted for such divergence. This research builds on the IGR model but explicitly acknowledges the importance of a 'localities effect' in shaping the application of the model in specific local authorities. This is facilitated by a comparative case study approach based on evidence from Glasgow and Liverpool.     

PROFESSIONALISM AND PUBLIC POLICY MAKING IN GREECE: THE INFLUENCE OF ENGINEERS IN THE LOCAL GOVERNMENT REFORMS

The influence of Professionals in the formulation of public policies has been an issue of scientific research in the past decade. In this article we deal with a less examined as of this issue. Professional influence is analysed in the context of Greek public policy, where the intensely centralized administration is dominated by the demands of political clientelism. Focusing on the case of the influence of peers in local government reform between 1974 and 1989, the article reveals the role of Trofessiondism in the hesitant decentraiization of functions and resources to local authorities and the initiation of institutions that have allowed the birth and development of new organizations at the central and the local level. Given the shift towards partydirected patronage and the intense party politiciza-tion of professional and trade organizations, the central state aparatus and the local authorities in post-dictatorship Greece, professional influence in putlic policies is seen to be closely related to the rise of professionals in party hierarchies. The catalytic role of professionals in the promotion of reform policies reducing organizational diversity and fragmentation is understood within the context of the contradiction between the need to adapt state structures and practices in a rapidl changing international environment and the preservation of traditional political and acyministrative forces in key positions of the power structure.     

CHANGES IN PUBLIC SERVICE BARGAINS: MINISTERS AND CIVIL SERVANTS IN DENMARK

The concept of public service bargain (PSB) has been reintroduced in recent times to the study of public administration to analyse the division of roles between ministers and the civil service in the context of public service reforms ( Hood 2000, 2001, 2002 ; Hood and Lodge 2006 ). The empirical investigation of the concept of PSB in general and changes in PSBs in particular is, however, limited. This article addresses this limitation by investigating what causes changes in public service bargains, particularly with respect to the provision of advice. As argued by Hood, we demonstrate how changes in PSBs can be explained by a combination of changes in the environments of ministries as well as the interests of the political actors. Furthermore, we point to the professional qualifications of civil servants as well as their interests as causes of change which, until now, have not received sufficient attention in the PSB literature. The article is based on a longitudinal case study of PSB between ministers and the permanent civil service in Denmark.