Regulating Public Services: How Public Managers Respond to External Performance Assessment

Performance management systems have become a key component of contemporary public administration. However, there has been only limited analysis of the social construction of performance by public managers who are subject to them. This article examines the ways in which public managers create, maintain, and disrupt performance management practices. The authors find that managers make external performance assessments perform for themselves by constantly negotiating boundaries in ways that combine bureaucratic and managerial rationales. The authors argue that the ways in which organizational boundaries are constructed are fundamental to understanding the success or failure of performance management systems and the transformation of managerial ways of thinking about performance into a logic of improvement through which contemporary public sector reforms become embedded.     

Tackling the Performance Regime Paradox: A Problem-Solving Approach Engages Professional Goal-Based Learning

Public performance regimes are bedeviled by a paradox: they must engage the specialized knowledge of professionals who often perceive those very regimes as a threat to their autonomy. The authors use a mixed-method analysis of performance management in Danish hospitals, with separate data for managers and frontline professionals, to offer two insights into this challenge. First, the study shows that managerial behavior—in the form of performance information use—matters to the way frontline professionals engage in goal-based learning. Second, it shows that the way managers use performance data matters. When managers use data in ways that reinforce the perception of performance management as an externally imposed tool of control, professionals withdraw effort. However, when managers use data in ways that solve organizational problems, professionals engage in goal-based learning. The threat to professional values that performance regimes pose can therefore be mitigated by managers using data in ways that complements those values.     

Personnel Constraints in Public Organizations: The Impact of Reward and Punishment on Organizational Performance

In recent years, many public sector reforms have attempted to loosen personnel constraints on the assumption that more managerial flexibility will increase organizational performance. The authors mount an empirical study to test this assumption using data taken from English local government authorities. Personnel constraints are operationalized using Rainey's long‐standing measures of the concept. Statistical results from multiple regression analyses indicate that “difficulty in removing poor managers” is harmful to organizational performance, but “difficulty in rewarding good managers” has no effect. The authors delve inside the organizational hierarchy and find that attitudes toward personnel constraints vary by organizational level and managerial rank: for example, frontline managers feel more constrained overall, while senior managers’ perceptions of constraints are more closely linked to organizational performance but in some unexpected ways. The implications of these findings, including the fact that personnel constraints have varying impacts on organizational performance, are considered.     

Evaluating congressional reform: Deregulation revisited

An evaluation of the changes in Congress's structure that occurred in the 1970s requires attention to three dimensions of its performance as a policymaking institution: representation of interests, deliberation, and conflict resolution. Considered this way, the changes seem to have enhanced some aspects of congressional capacity (especially the representation of broadly-based interests) but to have diminished others (especially deliberation and conflict resolution on issues that are salient to mass constituencies). The resulting strengths and weaknesses help to explain differences in congressional performance on trucking deregulation and natural gas deregulation in the late 1970s and early 1980s. To some degree, they have altered the opportunities, strategic considerations, and central skills for policy analysts who seek to influence congressional decisions.     

More Similarities or More Differences? Comparing Public and Nonprofit Managers’ Job Motivations

Existing research on career motivations tends to focus either on the difference between private and public organizations or on the difference between nonprofit and for‐profit firms. Although commonalities exist, the literature suggests that there also are many differences in what motivates public and nonprofit employees. Employing data from the National Administrative Studies Project III, this research examines how seven motivational aspects correlate with the choice between public and nonprofit employment. The authors find that managers who value advancement opportunities, a pension and retirement plan, and the ability to serve the public in their jobs are more likely to accept a job in the public sector, whereas managers who value family‐friendly policies and increased responsibility are more likely to accept a position in the nonprofit sector. Participation in volunteering is positively associated with nonprofit employment. The authors suggest a possible link between volunteering and the unique nonprofit motivation that is differentiated from public service motivation.     

Wicked Problems, Knowledge Challenges, and Collaborative Capacity Builders in Network Settings

Networks have assumed a place of prominence in the literature on public and private governing structures. The many positive attributes of networks are often featured—the capacity to solve problems, govern shared resources, create learning opportunities, and address shared goals—and a literature focused on the challenges networks pose for managers seeking to realize these network attributes is developing. The authors share an interest in understanding the potential of networks to govern complex public, or "wicked," problems. A fundamental challenge to effectively managing any public problem in a networked setting is the transfer, receipt and integration of knowledge across participants. When knowledge is viewed pragmatically, the challenge is particularly acute. This perspective, the authors argue, presents a challenge to the network literature to consider the mind-set of the managers—or collaborative capacity-builders—who are working to achieve solutions to wicked problems. This mind-set guides network managers as they apply their skills, strategies, and tools in order to foster the transfer, receipt, and integration of knowledge across the network and, ultimately, to build long-term collaborative problem-solving capacity.     

“Civic discovery” as a rhetorical strategy

Much research in the field of public management is distinguished by its rejection of the politics-administration dichotomy and its emphasis on the public manager's responsibility for political management. By rejecting the dichotomy, however, scholars in public management have reopened debate over an old question: Why is it right for public managers to exercise political power in the policymaking process? It is argued that the dichotomy served as a rhetorical strategy for allaying public concern about bureaucratic power, and that public management scholars must now invent a new strategy to take its place. This article evaluates one strategy, proposed by Moore and Reich, which is premised on the idea that managers may legitimize the exercise of discretion by showing it to be consistent with a mandate that is produced through a fair process of deliberation. It is argued that the new strategy may overestimate the ability to build mandates, the ability to build deliberative processes that are manifestly fair, and the willingness of dissentient citizens to defer to such mandates. The new strategy will also bind public managers to a demonstration of neutrality not unlike that imposed by the politics-administration dichotomy.     

Federal labor protetons and the privatization of public transit

Federal transportation officials assert that labor protections in the Urban Mass Transportation Act inhibit the propensity of local transit agencies to contract with private firms for services. The authors present results from a survey of a large sample of transit managers and econometric analysis to support their conclusion that labor protections do not appear to reduce the incidence of contracting. The labor protections, however, may be costly to transit management in other ways. The authors recommend actions, aside from repeal of labor protections, to increase contracting by local transit agencies.     

Image and the impact of public affairs management on internal stakeholders

This paper examines both the direct and indirect effects of images of corporate social performance on internal stakeholders. The authors suggest that public affairs managers must be particularly concerned about the ways in which images that are intended for and projected at external stakeholders are reflected back to internal stakeholders. In this new era of extremely tight labour markets, minimal corporate loyalty and high job mobility, public affairs efforts will increasingly impact upon a firm's employees. By monitoring this process, managers may more quickly identify the moment when internal stakeholders have developed a perception that differs from their original intent. This will allow managers to make a better job of maintaining a consistent image of the firm both inside and outside, and of managing the culture of the firm and its key human resources. Copyright © 2001 Henry Stewart Publications     

Core Concepts and Key Ideas for Understanding Public Sector Organizational Networks: Using Research to Inform Scholarship and Practice

This article provides an overview of the key research findings and core concepts on the topic of organizational networks. The primary focus is on goal‐directed “whole” service delivery networks, which are prevalent in the public and nonprofit sectors. The findings and ideas presented are especially salient for helping public managers build, maintain, operate, and govern multiorganizational networks in ways that will enhance their effectiveness. Because research and theory on networks extend well beyond the boundaries of public management and administration, the authors draw on thinking from a number of fields, providing a broad understanding of public networks and network functioning. The article is intended to provide usable information on networks for both practitioners and students, as well as to suggest directions for future research for the many public management scholars who now study organizational networks.     

Long–Serving City Managers: Practical Application of the Academic Literature

The authors identified 146 city managers who have served in the same city for the past 20 years and asked them to complete a survey to determine the factors leading to their long service. As a part of the survey, the city managers were invited to express, in their own words, the reasons they had stayed in the same city for such an extended time compared to the average tenure for city managers. In the article that follows, the authors quote from the academic literature statements pertaining to practical issues of concern to city managers and the elected officials for whom they work, giving credence to the applicability of the academic literature to today's city management profession. Following the quotations from the literature, the authors present the heartfelt reflections of these senior city managers on their long careers in public service.     

The management and administration of parastatal organizations for the promotion of indigenous enterprise: A West African Experience

Among the various functional types of public corporation and statutory authority, those concerned with the regulation and provision of economic opportunities and social amenities constitute one of the most interesting developments in West Africa's parastatal sector today. Taking as a case study the recent initiatives of the Ghana Government ta promote indigenous enterprise (which have had an important demonstration effect on neighbouring Nigeria), the article analyses the performance of parastatal organizations that have been instrumental in fulfilling public policy objectives in this area. It examines first the management objectives established by the guiding legislation, secondly the corresponding choice of organizational structure, and finally the ways in which parastatal managers therein endeavour to implement the tasks of redistributing opportunities between foreign and indigenous private enterprise. Particular emphasis is placed on the innovative roles played by public officials and their organizations in mediating between government and the two segments of the private sector (foreign and indigenous). This includes especially the organization for disinvestment and the management of access to opportunities thereby created: identification of affected business and evaluation of their assets, provision of information for applicants, determination of rules of eligibility for the channelling of demand, supervision of purchase, transfer of management and labour relations during the period of negotiation and transfer. Finally, the article considers the effectiveness of resources use by recipients of enterprises, including patterns of distribution amongst the latter, in order to determine the impact of parastatal organization procedures on policy outcomes.     

Simulation and Managerial Decision Making:A Double‐Loop Learning Framework

Systems approaches present opportunities for public managers and policy makers to view policies and programs in a broader context. This article presents a framework to explain how simulation modeling promotes double‐loop learning in management teams by building and exploring collective mental models as well as by enhancing accuracy of the mental models. The authors discuss the types of problems that may benefit from simulation modeling and illustrate how double‐loop learning occurs in the process of dynamic hypothesis testing. Using a case from New York State's Division of Disability Determination, the article shows how simulation modeling built confidence in a management team's decision by providing the team with tools to share and examine multiple hypotheses about a declining trend in initial disability recipients in the state between 1998 and 2004.     

Geoengineering the climate and ethical challenges: what we can learn from moral emotions and art

ABSTRACT

Climate change is an urgent problem, requiring ways and approaches to address it. Possible solutions are mitigation, adaptation and deployment of geoengineering. In this article we argue that geoengineering gives rise to ethical challenges of its own. Reflecting on these ethical challenges requires approaches that go beyond conventional, quantitative methods of risk assessment. Quantitative methods leave out important ethical considerations such as justice, fairness, autonomy and legitimacy. We argue that emotions and art can play an important role in ethical deliberation about geoengineering. Emotions can point out what morally matters. We also examine the role that works of art can play. Recently, artists have become involved with risky technologies. We argue that such artworks can contribute to emotional-moral reflection and public deliberation on geoengineering, by making abstract problems more concrete, letting us broaden narrow personal perspectives, exploring new scenarios, and challenging our imagination.     

Empathy in a Citizen Deliberation Experiment

Despite increased scholarly attention, there is still limited knowledge on how empathy works in democratic deliberation. This article examines the role of empathy in citizen deliberation with the help of a deliberative experiment on immigration. First, a random sample of citizens was surveyed regarding their opinions on immigration. Based on their opinions, they were then divided into a permissive or a non‐permissive enclave, and randomly assigned into like‐minded or mixed‐opinion groups for deliberation. After deliberation, they were surveyed anew. The study analyzes: (a) empathy differences between permissive and non‐permissive participants; (b) changes in outgroup empathy toward immigrants as a result of deliberation; and (c) differences in prosocial behavior (i.e., donating to charity). The results show that the permissive respondents had more empathy, especially toward immigrants, than the non‐permissive respondents. Among participants, outgroup empathy increased during deliberation. Regarding prosocial behavior, the permissive participants donated more often to charity at the end of the experiment.     

When Does Deliberation Begin? Internal Reflection versus Public Discussion in Deliberative Democracy

Political deliberation involves both internal reflection and public discussion. The former might be far more important than implied by deliberative democrats' heavy emphasis on the discursive component. Analysis of the deliberations of a citizen's jury on an Australian environmental issue shows jurors' attitudes changing more in response to the 'information' phase of the jury proceedings, involving a large degree of 'deliberation within', than during the formal 'discussion' phase. Various ways can be imagined for evoking internal reflection of that sort, even in mass-political settings.     

Repositioning American Public Administration? Citizen Estrangement,Administrative Reform,and the Disarticulated State

Levels of citizen estrangement from government in the United States have risen rather consistently since the late 1960s and have reached all‐time highs in recent years. Evidence is accumulating in political science research to suggest that public administrative theory may have contributed to this trend since the Progressive Era in the early 1900s. The authors develop this thesis by arguing that administrative theory in the United States has persistently portrayed public managers as “bridge builders” who link an expertise‐challenged citizenry to government in ways that emphasize bureaucratic over democratic administration. Moreover, despite claims of yet another “new” paradigmatic shift for the field, collaborative governance scholarship to date exhibits similar tendencies. To support this argument, the authors assess the common citizen‐marginalizing tendencies of three sets of administrative reforms in American public administration: the progressive, associationalist, and polycentric heritages. They offer counterarguments to this thesis and call for critical self‐reflection by the field and a more empirically robust research agenda on this topic.     

Supply creates demands: An organizational process view of administrative expansion

The common explanation for the expansion of bureaus is based on rationalist reasoning. Bureaus grow because it is in the interest of the central decision makers to have them grow. This article presents a different explanation, drawing on the organizational-processes literature. It argues that administrative growth occurs as a byproduct of managers dealing with more immediate concerns, not because it is pursued for its own value. Part of the explanation includes arguments for the highly reactive and highly interactive nature of managerial work. The ways in which the combined behaviors of individual managers translate into organizational expansion are illustrated using data comprised of 29,640 random observations of 52 managers at work.