Encouraging Writing on the White Walls: Co‐production in Museums and the Influence of Professional Bodies

Museums, along with other public sector organisations, have been urged to co‐produce. Co‐production may offer increased resourcing and greater effectiveness, and enhances public value through stronger relationships between government and citizens. However, co‐production, particularly that which involves collaboration with communities, is largely resisted by public sector organisations such as museums. This research examines the extent to which museums co‐produce and the role played by professional bodies in driving or inhibiting co‐production. It finds that the study of co‐production in museums reveals the influence of ‘institutional inertia’ and the limits to which professional bodies are able to ‘diffuse’ co‐production and change established professional practice.     

Reforming Social Services in Hong Kong: The Role of Contracting and Performance Management in the Non‐Profit Sector

Contracts and performance management, along with the concept of consumerism, have become the fundamental metaphors for New Public Management (NPM) and key changes in the public service. ‘Doing well while doing good’ and finding generally acceptable accountability measures for social services have become the perennial aspirations of planners, service providers and funders. This article examines the contingent factors and rationales behind the quality movement and recontracting exercise in reforming the delivery of personal social service programs in Hong Kong within the framework of New Public Management (NPM). It explains the use of long‐term relational contracts rather than the standard business contracts between the government as funder and non‐profit organisations as service providers. It also deals with the complex relationships among quality issues, quality standards, consumerism, accountability, performance indicators, and performance management.     

Promoting Accountability in Municipalities

Local government financial reporting reforms in Australia in the late 1980s and early 1990s were promoted on the basis of usefulness for decision making and for enhanced accountability purposes. Persistent criticisms of these reforms continue to be made, including those made by councillors and other ratepayers who often appear to find such information to be too narrow, too complex and often bewildering. A case is made for rethinking the present mentality, requirements and practices, especially with respect to the contrived recognition of ‘community assets’. Instead, an emphasis is placed on advancing broad‐scope accountability and meaningful financial reporting. To this end, the disclosure of a set of factual, reliable and interpretable indicators is proposed to enable a broader, more functional notion of accountability to be applied in Australian local government within prevailing social and organisational contexts. This contribution seeks to present a series of views, questions and proposals that are strictly concerned with ‘promoting accountability in municipalities’ (PAM).     

Promoting Public Service Integrity: A Case for Responsible Accountability

We discuss below difference between the concepts of accountability and responsibility, in the context of government administration. We argue that New Zealand's public sector reforms, in particular, have depended on an essentially mechanistic as distinct from an organic interpretation of public organisations. A mechanistic approach focuses disproportionately on notions of organisational accountability at the expense of responsibility, and as a consequence may prove counterproductive over the longer term in maintaining high standards of ethical probity. A concept of responsible accountability needs to be developed further as a means of countering this possibility. We speculate on whether the emphasis on contractualism has enhanced or undermined an integrity-based as opposed to a compliance-based ethics regime, and the possible implications of this for the maintenance of ethical standards.     

Contracting for Indigenous Health Care: Towards Mutual Accountability

In Australia and other industrialised countries, governments contract with the non‐government sector for the provision of primary health care to indigenous peoples. Australian governments have developed policies and funding programs to support this health sector, but the current arrangements are unduly complex and fragmented. The results of our study show that the complex contractual environment for Aboriginal Community‐Controlled Health Services (ACCHSs) and their funders is an unintended but inevitable result of a quasi‐classical approach to contracts applied by multiple funders. The analysis in this article highlights potential policy and program changes that could improve the effectiveness of funding and accountability arrangements, based on the use of an alliance contracting model, better performance indicators and greater clarity in the relative roles of national and jurisdictional governments.     

EXPECTATIONS AND CAPACITY OF PERFORMANCE MEASUREMENT IN NGOs IN THE DEVELOPMENT CONTEXT

There are many obstacles to promoting learning as an outcome of performance measurement in non‐governmental organizations (NGO) social service providers, especially in less developed countries. Building upon a conceptualization of accountability as a multifaceted set of relationships through which funders, or principals, and non‐profit providers, or agents, jointly shape organizational learning, and performance, this study expands our understanding of how accountability mechanisms affect learning within service providers. This paper explores the role that funders play in shaping performance measurement, or monitoring, practices within NGOs serving disadvantaged children in developing countries. We examined the experience of service providers in Egypt and Colombia to assess how the barriers to use of performance data and learning may be addressed. We conducted interviews using the same protocols with program managers in six non‐profit providers in each country that provide services to children, and we also interviewed major donors in the arena of children's services in the USA. We probed the NGO managers' experiences with performance measurement to identify obstacles and potential solutions to improve the use of the data to promote learning. Our findings support previous research about the potential for upward accountability mechanisms to influence internal learning. We suggest that funders should be held accountable for how the incentives and disincentives they provide to grantees affect their internal learning about how to improve their services. This notion of ‘reverse accountability’ means that funders need to be strategic and intentional when they design reporting mechanisms that affect the learning behaviours within their grantees. In line with our call for reverse accountability, we offer a model demonstrating our notion of the two‐way flow of accountability and we offer recommendations to help improve the performance reporting environment for NGOs who are addressing complex problems with less than adequate capacity. Copyright © 2012 John Wiley & Sons, Ltd.     

Slow Change at the Top: ‘Old Hands’ and ‘Accidental Executives’ in New South Wales Local Government

Scholars and practitioners alike have recognised that an increased role for women leaders in Australian local government would strengthen the sector, yet little research to date has examined the career paths of non‐elected officials. This article combines the gender in organisations literature with career theory to examine the career paths of 16 general managers (GMs) in New South Wales. We found that half the participants had linear career paths based entirely within local government and half had boundaryless careers originating outside the sector. This second cohort consisted overwhelmingly of women. Nevertheless, a high incidence of happenstance characterised both career types. Several participants saw themselves pitted against a gendered (i.e. male) group of ‘old hands’ who were resistant to change being driven by ‘accidental executives’, a high proportion of whom were women. The findings have implications for a sector attempting to attract and retain skilled staff, particularly women.     

Decentralization in Kerala: Panchayat government discretion and accountability

Kerala is regarded as one of the most decentralized states in India. Through a ‘big bang’ approach, Kerala implemented a significant fiscal decentralization program and then built the capacity of its local governments. We employ a diagnostic framework to analyze its local government discretion and accountability in political, administrative and fiscal domains. We find that Kerala's local governments have a very high degree of discretionary power accompanied by a high degree of accountability towards citizens. But the areas of administrative accountability and financial management need to be strengthened. Also there may have been excessive focus and investment on social accountability mechanisms at the cost of local government discretion and formal public sector accountability mechanisms. Copyright © 2009 John Wiley & Sons, Ltd.     

Reinventing the Governance of Public Finances in Remote Indigenous Australia

The economies of remote Indigenous settlements are dominated by public finances. The current system of governing public finance is highly saturated, fragmented and centralised, and this has a corrosive effect on local governance capability. The political accountability of leaders to their constituents is weakened in favour of an administrative accountability ‘upwards’ to higher authorities. New Public Management reforms have promoted administrative deconcentration, over political devolution, and this has been accompanied by an influx of public servants, Non‐Government Organisations (NGOs) and private contractors, and a decline in Indigenous organisations and local government. The end result in many settlements is a marked disengagement of Indigenous people in their own governance. There is evidence of considerable political capabilities existing within local government electorates. Decentralised financing arrangements can be used to catalyse these capabilities and then address deficits in administrative and technical performance.     

Organised Interests,Authority Structures and Political Influence: Danish and Norwegian Patient Groups Compared

The article presents a comparative analysis of the strategies applied by Danish and Norwegian patient organisations and organisations for disabled persons in order to promote the interests of their members. Three research questions are addressed: Are Danish and Norwegian patient organisations service organisations operating according to a ‘logic of membership’ or political pressure groups acting according to a ‘logic of influence’? Do patient organisations apply ‘insider’ or ‘outsider’ strategies in their efforts to influence healthcare policies? What impact do different authority structures have on the patient organisations' influencing strategies? The latter question is related to recent reforms in the public healthcare systems of the two countries. The major responsibility for public hospitals now rests with regional authorities in Denmark and central government in Norway. The study is based on a survey among nationwide patient organisations in the two countries and shows that most patient groups are ‘polyvalent’‘venue shoppers’ combining a variety of influencing strategies.     

From New Public Management to Public Value: Paradigmatic Change and Managerial Implications

Both practitioners and scholars are increasingly interested in the idea of public value as a way of understanding government activity, informing policy‐making and constructing service delivery. In part this represents a response to the concerns about ‘new public management’, but it also provides an interesting way of viewing what public sector organisations and public managers actually do. The purpose of this article is to examine this emerging approach by reviewing new public management and contrasting this with a public value paradigm. This provides the basis for a conceptual discussion of differences in approach, but also for pointing to some practical implications for both public sector management and public sector managers.     

Public Value Management: A Case Study of Transitional Change in Disability Sector Reform in Western Australia

This paper contributes to the study of public value management (PVM). PVM is distinguished from other approaches to public administration in its focus on establishing community networks and collaborative capacity building for the creation of public value. We explore PVM through a case study of a public–community sector partnership strategy called the positive behaviour framework (PBF), a state government initiative designed to transform services for people with disabilities. The development and implementation of the PBF is analysed via a transitional change or ‘sector awareness’ model. Each phase of the model is illustrated through ‘positive stories’ that depict key moments in the change process and in the activities that public sector managers employed to raise awareness, build capacity, and promote collaboration. We discuss the implications of the study for disability sector change management and for the further study of the PVM approach to public sector administration.     

Digital government units: what are they,and what do they mean for digital era public management renewal?

Abstract

From 2011 onward, Digital Government Units (DGUs) have quickly emerged as a preferred solution for tackling the over-cost and under-performing digital services and lagging digital transformation agendas plaguing today’s governments. This article kickstarts a much-needed research agenda on this emerging trend, which has to date largely been ignored by public management scholars. DGUs exist at the center of the state, and adopt a shared orthodoxy, favoring agile, user-centric design, pluralistic procurement, data-driven decision making, horizontal ‘platform’ based solutions and a ‘delivery-first’ ethos. However, DGUs are differentiated in practice by their governance structures and resources, adding notable complexity to this recent machinery of government phenomenon. The article details the similarities and differences across six of the first DGUs introduced and highlights issues that researchers should address when assessing DGUs as an increasingly preferred instrument of digital era public sector renewal. This includes: their mixed record of success thus far; the risks of top-down reform efforts; external threats to DGUs’ sustainability; and accountability dilemmas accompanying digital government reforms.     

Autonomy and Control in Australian Agencies: Data and Preliminary Findings from a Cross‐National Empirical Study

This article is developed from data gathered through the analysis of a survey of ‘agencies’ at Commonwealth and Australian Capital Territory (ACT) levels of government, undertaken as the Australian component of a cross‐national empirical study of autonomy and control in non‐departmental public sector organisations. It presents preliminary findings from one part of what is potentially a very important enterprise in comparative research, along with discussion of methodological issues which need to be confronted in many such comparative exercises. The data reveal that Australia agencies have been granted more autonomy than agencies in other countries contributing to this survey, though that autonomy varies markedly across functions such as personnel management and financial management. While the article represents just a snapshot in time in agency autonomy, we believe it provides a robust baseline for future changes in the way agencies are managed in the Australian public sector.     

Building institutional capacity for policy analysis: An alternative approach to sustainability

The project approach to development assistance has been criticized for failing to build lasting capacity. The problem lies not in the project approach itself, but in a failure to understand the constraints to capacity development and a consequent misdirection of effort. Policy analysis capacity is developed as an example. Policy analysis requires skills and abilities that public sector institutions in developing countries cannot sustain, owing to a combination of structural and organizational factors, among which personnel constraints are key. These factors inhibit the effectiveness of the standard approach, which seeks to establish analytic capacity within a specialized government unit (‘internal’ capacity). An alternative approach is to build ‘process’ capacity—the ability to get analysis done by other institutions, rather than the ability to do analysis internally. The author concludes that project strategies should be redirected toward a greater emphasis on building process capacity as a useful adjunct to internal capacity.     

How Well Does Accrual Accounting Fit the Public Sector?

In this 'controversy' we challenge the unqualified application of full accrual accounting within the Australian public sector. In particular, attention is directed to the recognition and valuation for financial reporting purposes of public sector resources that are of a non-financial nature, such as library and museum collections. Our main contention is that attempting to recognise such resources at monetary values within the financial reports of public sector organisations is a contrived, imprecise and inappropriate practice that threatens to occlude rather than enable the accountability of public sector institutions and their managers. Building from this accountability theme, we present perspectives on promoting accountability for the technical accounting practices which have been imposed within the public sector.     

When industrial policy shapes public sector reform: Total quality management in Britain and France

Approaches seeking to explain the development of TQM ideas in government are very much ‘business‐centric’. The goal of this article is to show that in reforming the public sector, policy‐makers did not simply follow the lead of the private sector because ‐ in the case of TQM ‐ the private sector was itself, to some extent at least, led by government. In the mid‐1980s, Britain and France launched nationwide ‘quality initiatives’ which provided money for businesses to buy management consulting expertise. Through the implementation of these policies, consultants built channels of communication with the state, and this subsequently opened possibilities for consultants to help transfer TQM ideas from the industrial policy area to the field of public sector reform.     

The colour purple: perceptions of accountability across the Tasman

This article explores the changing rhetoric and substance of accountability in the relationships between parliamentarians and public servants in what Alex Matheson terms the ‘purple zone’—where the ‘blue’ of political strategy and ‘red’ of public administration merge in ‘strategic conversation’. The primary focus is on current developments in Australia. As the Westminster system of governance, and the role of public administration within it, undergo profound transformation, the prerogatives of elected parliamentarians (in the blue corner) and the responsibilities of career public servants (in the red corner) are changing fundamentally. In Australia and New Zealand the increasingly complex relationships that exist between government, parliament, public service and the wider community challenge the traditional notions of accountability. Both the lines of accountability, and its standards, are under challenge. The acceleration of Australia's move to contract out the delivery of government services is creating new arenas of creative tension between administrative review and management for results. Public service agencies are increasingly perceived to be themselves in a contractual relationship with government. There is a risk that the public good may become subverted by private interest. How will we ensure that agencies will ‘not contract out responsibility at the citizen's expense’? © 1997 by John Wiley & Sons Ltd. Public Admin. Dev. Vol. 17 , 293–306 (1997). No. of Figures: 0. No. of Tables: 0. No. of Refs: 33.     

Dilemmas in Policy Support for the Arts and Cultural Sector

This article questions the specific challenges that the management of culture poses for government.² Unlike some ‘public good’ policy domains, such as prisons, defence or infrastructure, or benefit provisions such as unemployment, disability or health measures, the complex area of cultural policy cannot be justified in instrumental terms as an essential ‐ or unavoidable ‐ policy of government. Nonetheless, the cultural lobby is an effective and indefatigable pressure on government. The area of culture is just one small component of the public agenda that governments are obliged to support. Given other pressing portfolios, why do governments continue to take an interest in culture? Moreover, recent government policies seem to be setting up problems for the future such that governments will find it hard if not impossible to extricate themselves from a problematic relationship. So, what is the hold that culture has over governments? Traditionally, the answer seemed to be a combination of boosterism and cultural capital. Governments liked to bask in the reflected glory of cultural success believing that it contributed to their legitimacy and cultural competence. The glow of elite culture was seen to rub off onto political incumbents and their regimes. But in an age of pressures on government to justify public expenditure and meet accountability regimes, cultural support continues to appear on the funding agenda and governments continue to become embroiled in debates about competing support formulae. This relates to both the nature of ‘culture’ and broader definitions under the banner of ‘cultural policy’ as well as the nature of the sector which is, at once, elitist, institutionalized, commercial, highly specialist, niche and industry ‐ all premised on intangible nature of ‘creativity’. Paradoxically, contrary to other trends in public policy, arts and cultural funding has reverted to forms of patronage as the centrepiece of broadly defined policies of access, equity and self‐sufficiency. How has this policy portfolio managed to buck the trends of other domains of government attention? This article attempts to open some new ways of examining the question.³