PUBLIC SERVICES MANAGEMENT: ACTIVITIES, INITIATIVES AND LIMITS TO LEARNING

Private sector-style management initiatives to ensure UK public services managers’ learning from private sector management practice are examined, and their rationale questioned. The lack of a coherent, systematic and agreed view of what constitutes ‘management’ and ‘managerial work’ in the private sector is discussed. It is argued that there are reasons for believing that the particular character and organizational contexts of public services will require different managerial behaviours. The manner in which experimental managerial initiatives in some public services have shifted into mandatory innovations is examined. Such innovations can be incompatible with the values of those managing in the public service, who frequently fail to recognize the advantages of late innovation, incrementalism and circumspection. In public services particularly, many managerial activities are the province of ‘non managerial’ staff. Though frequently not considered, the values of these de facto managers may be central to the progress of such innovations. It is further argued that risk-taking as applied in a business context is inappropriate to the degree that public services managers must be concerned with the common weal, equity and accountability. The article concludes with a detailed research agenda to support the need to recognize public services management as a rich and varied area of managerial behaviour in its own right. Its character and variation warrants further investigation as a basis for formulating more appropriate management concepts against which to measure public services managers’ behaviour and performance.     

‘RESILIENCE’ IN ORGANIZATIONAL ACTORS AND REARTICULATING ‘VOICE’: Towards a humanistic critique of New Public Management

Assumptions of resilience are frequently made about organizational actors, both by scholars and practitioners. It is argued that resilience is unlikely to be the usual outcome from the trauma routinely confronted in organizational life. It is suggested that ‘assumptions’ of resilience stem from either a reification of what is perceived to be a highly desirable trait in organizational actors or a lack of acknowledgement of what, if recognized, would be regarded as an ‘unthinkable’ aspect of organizational life. Managers are unlikely to recognize and admit that the pain they inflict on others in the name of efficiency, organizational down-sizing and out-sourcing will contribute to long-term changes in organizational actors. It is also likely that, while coping skills and resources may be sufficient to equip individuals for the myriad problems they routinely face, even the ‘successful’ actor may not remain unscathed. Some of the negative organizational outcomes of this unthinking ‘assumption’ of resilience are canvassed and suggestions are made as to what strategies may ameliorate the situation. A rearticulation of actors' ‘voice’ in formal organization, at a time of a hegemonic dominance of economic rationalism, is especially overdue.     

Unpacking Commitment: Multiple Loyalties and Employee Behaviour*

abstract We present findings from three UK studies on the nature and consequences of employees’ multiple commitments in the workplace, with samples drawn from private manufacturing, private services and the public sector. Co‐workers, the union, the union representative, customers, and the immediate boss emerge as separate foci of commitment, distinct from ‘global’ commitment to the organization as a whole. Consistent with social exchange theory, attitudinal and behavioural outcomes are predicted by commitment to those foci that might be expected to benefit from the outcome in question. There is evidence that global organizational commitment mediates the relationship between foci‐specific commitments and organization‐related outcomes, but there is no mediation in the case of those foci and outcomes that are more cognitively distant from the organization. A comparison of the studies suggests that the pattern and outcomes of commitment are influenced by the nature of the job and of the work context.     

Implementing the third way

This article examines the transfer of NPM strategies by comparing Service Charter initiatives in the United Kingdom, United States and Australia. These three countries, together with Canada and New Zealand,are partofwhathas beendescribedas the ‘core’ new public management (NPM) policy community (Common 1998). Service Charters are an NPM strategy intended to change the culture of public service delivery to focus on the needs of the users, identified as ‘clients’ or ‘customers’. The objectives are to make service providers more responsive to users by guaranteeing specific standards for service delivery, providing a substitute for competition and a benchmark for measuring service quality. The first section examines the historical and political context of the development of the Citizen's Charter and Service First programmes in the UK, customer service plans in the USA and Government Service Charters in Australia. The second section explores the similarities and differences between these charter initiatives based on analysis of public documents. There is evidence of convergence at the ideological level as managerial values underpin the service charter frameworks in all three jurisdictions (Walsh 1994; Pollitt 1995; Kettl 1997). Despite drawing from a similar toolkit influenced by private sector techniques, significant differences between the country contextshaveresultedindivergent strategies. Timing in the three countries examined suggests that national politics rather than global policy convergence is more significant in explaining the development of service charters. This case study provides evidence of policy transfer rather than policy convergence (Common 1998). The final section considers the limitations of the customer service model. Monitoring quality iscentral to theprogrammes in all three countries. Performance monitoring is essentially a quantitative methodology that requires criteria and indicators for measuring the quality of service delivery and programme outcomes. Two problems are considered. The first is the difficulty of specifying and measuring service quality. The second is that quality indicators derived from services marketing and management research do not take into account the characteristics of public services.     

PERFORMANCE-RELATED PAY FOR TEACHERS: An examination of the underlying objectives and its application in practice

Performance-related pay (PRP) is being introduced for schoolteachers in England and Wales at a time when policy makers are concerned with the ‘mission to modernise’ and the requirement for ‘change’ to take place in the public sector (Cabinet Office 1999: 4). In a number of recent government publications, public sector pay has been heralded as an important mechanism that will ensure public services are ‘efficient’ and of ‘high quality’. Kessler and Purcell (1992) examine the managerial objectives underlying the current application of PRP in organizations and provide a useful framework to explore and evaluate PRP systems. Their framework has been adopted to consider the implications of implementing PRP for teachers.     

ORGANIZATIONAL CULTURE AND WORK GROUP BEHAVIOUR: AN EMPIRICAL STUDY

This paper reports on a research study about the organizational cultures of a number of textile manufacturing plants from both the public and the private sector in Ahmedabad, India. These plants were shown to vary along one aspect of their work-group behaviour, namely the rate of ‘loitering’ among loomshed workers. The concept of ‘culture’ is defined in terms of the shared beliefs, values, norms and traditions within the organizations. Methods of observation and informal open-ended interviews were used to identify elements and/or dimensions of organizational culture, which were subsequently measured through structured interviews with loomshed workers. The study shows a definite relationship between ‘culture’ and ‘loitering’; however, the critical elements of culture influencing loitering behaviour vary from public to private sector plants. The implications of the findings of the study for the plants under reference, for production organizations in general as well as for organization theory are discussed.     

Complexity of Innovation in the public sector: A workgroup-level analysis of related factors and outcomes

Complex innovation incorporates more than one innovation type. Using the number of dimensions of the ‘most significant innovation’ implemented by each public employee’s workgroup as a proxy for innovation complexity, this study explores factors that are associated with complexity and examines how complexity affects innovation outcomes. Employing a sample of 4,369 Australian Government employees, we find that the more complex the innovation, the greater the number of barriers a workgroup has to face in its implementation. A broader (but selective) range of idea sources and a more decentralized workplace where both individual and team creativity is encouraged increase the likelihood of implementing complex innovations. Innovation complexity is positively correlated with the variety of beneficial outcomes, suggesting both policy and management interest in supporting complex innovation in the public sector.     

The Marketization of Local Services and the Fragmentation of Labour Markets

This paper is a product of the ESRC's Local Governance research programme which considers the employment implications of the introduction of market forces into the provision of local government services in the United Kingdom. It discusses the fragmentation of labour markets as both a process and outcome of the commercialization of local service provision. In contrast to privatization scenarios, marketization suggests the blurring of the distinction between public and private employment deriving from the commercialization of municipal services and the transmission of local authority work organization and culture into the private sector. An assessment of employment change, workforce recomposition and bargaining capacity is offered which leads to the development of new models for institutional restructuring. ‘Sectoral de-differentiation’ is a concept developed to address the evolution of new labour market patterns and a ‘public capsule’ model is offered to explain the locality and service variations in marketization outcomes.     

Decentralization,the New Public Management,and The Changing Role of The Public Sector In Africa

The role of the public sector in most countries around the world is changing both with respect to public service delivery and the stimulation of economic progress. That change, which was occasioned by the need for policy reform, has resulted in what is now termed ‘the new public management’, reflecting a movement away from the old values and norms of public sector administration. This article examines and analyses the concept of decentralization and its relevance to the changing role of the public sector, within the context of ‘the new public management’. and with special reference to Africa. The perspective of the article assumes that the new public management provides an appropriate framework for responding to the efficient delivery of public services in Africa.     

Obstacles to transnational trade union cooperation in Europe—results from a European survey

This article analyses obstacles to transnational union cooperation within Europe. It is based on a survey of unions in 14 European countries and all members of the European Trade Union Confederation. The result shows that ‘hard’ industrial relations factors are generally more important obstacles to transnational cooperation than ‘softer’ factors such as cultural, linguistic, ideological and religious differences and that there are sectoral differences in experiences of obstacles to transnational union cooperation: unions in the manufacturing sector tend to emphasise differences in industrial relations and a lack of organisational resources for transnational union cooperation, whereas low organisational priorities are held to be of more importance in the services sector and for unions for professional workers.     

Customer Orientation and Management Control in the Public Sector: A Garbage Can Analysis

Recent public sector reforms have increasingly tended to re-cast citizens as ‘customers’. This paper explores the implications of such customer orientation efforts for management control based on a field study in a Swedish central government agency. We extend prior research on this topic, informed by critical and institutional theories, with insights from the garbage can literature and focus on a key decision-making process involved in making extant management control practices more customer-focused. Our analysis nuances the predictions of critical scholars, suggesting that customer orientation initiatives will commodify public services and narrow the interests served by public sector organizations. In doing so, we draw attention to how conflicting institutional arrangements fostered a garbage can situation hampering radical change in management control practices. Our garbage can analysis provides a bridge between critical and institutional perspectives by re-instating a focus on decision-making. We show how the intricacies of decision-making may moderate the power embedded in novel management control practices and foster inertia and unintended outcomes. Our analysis also raises important policy implications pertaining to the possibilities of combining customer orientation efforts with rationing of public services.     

Supply and demand of policy indicators

The aim of this article is to question the idea that all professional service organizations are undergoing a process of inter-archetype transformation. This idea, originating in organizational archetype theory, is now being used to interpret contemporary processes of change in British and other public sector services. Drawing on an example of management UK restructuring in social services during the 1990s – that of local authority social services in the UK – two main problems with this thesis are identified. First, this service demonstrates that ‘radical’ change has not occurred and that older professional values and working practices persist. Second, it reveals how, in at least one part of the public sector in the UK, management reforms have been partly undermined by a specific constellation of institutions and practices. These observations call for questioning the proposition that inter-archetype change is what has occurred and that current reforms will inevitably have this sort of transformational effect.     

Results of the first survey of independent trust grantmaking: who is setting the agenda?

Based on an analysis of 2,300 grants made by a representative sample of independent trusts and foundations, ‘Patterns of Independent Grantmaking in the UK’ is the first national survey identifying where independent trusts allocate their funds. The results show that, as in mainstream central and local government expenditure, social care was a clear priority for independent grantmakers, not only attracting the highest proportion of grants overall, but also the single largest proportion of funding, £233m. This figure equals just over one‐third of local authority support for social services in the voluntary sector and indicates that the collective impact of independent funding to the sector is significant. Social care funding consisted mainly of a large number of small to medium‐sized grants. Health was the second largest area, followed by education and the arts. There was a considerable regional imbalance in funding. Given this fairly conservative pattern of funding, the question arises whether funders are led by applicants or vice versa? What is needed to introduce more change and risk into trust funding? Copyright © 2000 Henry Stewart Publications.     

Drawing from a bottomless well? Exploring the resilience of value-based psychological contracts in voluntary organizations

In an era of increased involvement by the third sector in the delivery of social services due to public sector outsourcing, this paper explores the resilience of employee psychological contracts in voluntary organizations in the context of their close relationship with state funding bodies. The results suggest that value-laden psychological contracts exhibit some resilience when state funding bodies interfere with the organizational mission of voluntary organizations. However, there are clear limits as to how far value-based aspects of the psychological contract compensate for unfulfilled obligations on the economic and socio-emotional dimensions caused by externally driven cost pressures. The paper suggests serious implications for HR practitioners and wider concerns relating to the quality of care delivered to the vulnerable.     

Reforming the reform: changing roles for accounting and management in the Italian health care sector

This paper examines the ways in which accounting has intervened in the process of reforming the original ‘reform’ of the Italian health care system. By stepping into an ongoing process accounting has been asked not only to foster efficiency, effectiveness and value for money, but to correct as well the ‘degeneration’ of the original reform, which subjected health care delivery to ‘democratic’ scrutiny and political control. The call for a greater accountability in the use of public resources has been thus interpreted as both a mechanism of surveillance and control and a way to resist the ‘over-politicization’ of health sector management together with the abuses, scandals and fraudulent behaviour it induced. In seeking to interpret the specificity of the Italian experience, the paper suggests that the range of ‘the contexts in which accounting operates’ should be broadened in order to gain a deeper understanding of its roles in those institutions, such as health care systems, which play a crucial role in modern societies. In order to move in this direction systematic and empirically grounded cross-national comparisons are called for, since, although accounting and management are involved in virtually all attempts to redesign health care services, consequences are likely to be different when conditions of possibility differ at the outset.     

The ‘post-bureaucratic’ public sector organization. New organizational forms and HRM in ten UK public sector organizations

This paper evaluates the extent to which ‘post-bureaucratic’ organizational forms have been introduced to the UK public sector and the implications for human resource management policies and practices in the sector. The study draws from interview data at ten public sector organizations including local authorities, the National Health Service, the Civil Service, police authorities, broadcasting and transport. It concludes that certain structural changes have been made, but that older functional lines of authority still exist and thus post-bureaucratic claims are misleading. However, a harsher working environment has arisen for managers in these public sector organizations, with longer hours and a more complex working environment. Older certainties such as job security, a safe career path and seniority-based pay have all been eroded.     

Changing Organizational Forms and the Employment Relationship

This paper draws upon new research in the UK into the relationship between changing organizational forms and the reshaping of work in order to consider the changing nature of the employment relationship. The development of more complex organizational forms – such as cross organization networking, partnerships, alliances, use of external agencies for core as well as peripheral activities, multi‐employer sites and the blurring of public/private sector divide – has implications for both the legal and the socially constituted nature of the employment relationship. The notion of a clearly defined employer–employee relationship becomes difficult to uphold under conditions where employees are working in project teams or on‐site beside employees from other organizations, where responsibilities for performance and for health and safety are not clearly defined, or involve more than one organization. This blurring of the relationship affects not only legal responsibilities, grievance and disciplinary issues and the extent of transparency and equity in employment conditions, but also the definition, constitution and implementation of the employment contract defined in psychological and social terms. Do employees perceive their responsibilities at work to lie with the direct employer or with the wider enterprise or network organization? And do these perceptions affect, for example, how work is managed and carried out and how far learning and incremental knowledge at work is integrated in the development of the production or service process? So far the investigation of both conflicts and complementarities in the workplace have focused primarily on the dynamic interactions between the single employer and that organization’s employees. The development of simultaneously more fragmented and more networked organizational forms raises new issues of how to understand potential conflicts and contradictions around the ‘employer’ dimension to the employment relationship in addition to more widely recognized conflicts located on the employer–employee axis.     

Further education and training in the french public sector

Since 1989, the French public sector has imitated the private sector's further education and training mechanisms. But today, it seems that just as in the private sector, the training policies in the public sector have severe limitations. Based on a case study of a large public research institute and on a national survey making it possible to compare the private and public sectors, the paper studies the further education and training policies and their links with the organizational needs. In the public sector, the difficult balance between individual's choices and strategic management comes on the one hand from the specificities of the administrative rules of human resource management, and on the other hand from the unions' power and strategies. Faced with new challenges (demographic evolutions, decentralisation, new demands from the users of public services), the French public sector must develop new training policies.     

Caught in an evaluatory trap: a dilemma for public services under NPFM

This paper presents a challenge to public sector managers, policy-makers and interested academics. Drawing on the findings of previous international comparative studies of new public financial management (NPFM) reforms, it concludes that public services and their providers are caught in an ‘evaluatory trap’. The continual promotion of NPFM reforms, despite their evident repeated failure to meet specified achievements, is argued to be generating a cycle of ever-decreasing public services at ever-increasing costs per service unit. As the legitimacy of public services increasingly rests on the need to be seen as efficient and effective and as definitions of efficiency frequently demand adoption of the latest set of NPFM reforms, it follows that the future for public services is in question.     

Flexible Working Practices In the Public,Not-For-Profit and Commercial Leisure Sectors In SCotland

Public sector leisure managers in the UK have been struggling, since the extension of compulsory competitive tendering to leisure management in 1989, to reconcile the conflicts between becoming more consumer led and satisfying the needs of the ‘recreationally deprived’. Rationalization has ensured that a fundamental priority for managers has been the introduction of more cost-effective working practices. This article examines the diversity in employment practices across the three sectors of the leisure industry, that is, the public, not-for-profit and private sectors. The case study evidence presented found clear differences between the sectors. Although managers in not-for-profit leisure facilities have more freedom to use greater flexibility in employment practices as compared with their public sector counterparts, they are still somewhat constrained by having to meet the social objectives set by their Board of Directors. Private sector managers were found to be providing the highest proportion of full-time jobs, although they offered lower conditions of employment. This was made possible by the funding certainties created by regular monthly/annual customer memberships.