Managing Multiple Institutional Logics and the Use of Accounting: Insights from a German Higher Education Institution

This paper examines the use of accounting in managing the co-existence of different institutional logics in a German higher education institution (HEI), and its impact on the HEI. The study is of particular interest as the HEI analyzed pursued its own corporatization through a re-organization from a state into a foundation university. We show that this corporatization through the adoption of new public management related ideas leads to institutional complexity arising from the co-existence of extant state and emergent business logics. Our study suggests that HEIs may deploy particular accounting practices shaped by business logic only superficially, so as to satisfy stakeholders such as governmental authorities in order to enhance their legitimacy following a self-imposed reform, while the operation of the HEI remains rooted in state logic. Specifically, the findings suggest that in the case of actual changes to the budgetary process arising through the corporatization and an emergent logic, failure to replace abandoned accounting practices shaped by a previously dominant logic with equivalent practices adhering to either extant or emerging logic(s), may put the organization at risk. Overall, our study contributes to a better understanding of the dangers of an organizational response to institutional complexity, referred to as reactive decoupling, in the management of institutional complexity and points to its negative impact on organizations' hybridization capability.     

When reform comes into play: budgeting as negotiations between administrations

This article addresses not a general theory of social change but a widespread phenomenon in public administration as a field of research: the endless succession of budgetary reforms in the public sector means that institutional change is of constitutive and strategic importance. How this change takes place is examined with the aid of the metaphor of budgeting as a game. The metaphor is elaborated with a view to integrating and conceptually framing existing approaches that describe the budgeting process as a game. A typology of rules permits investigation social and institutional embeddedness of budgeting and to describe change (budgetary reform) as change in action.     

Institutionalising multiple accountability logics in public services: Insights from Australia

This paper reports on a field study of how a range of inter-institutional and inter-organisational forces shape the evolving rhetoric and practice of multiple accountabilities in public services. Drawing on the institutional logics perspective, we carried out a qualitative field study in the Australian Commonwealth Public Service involving semi-structured interviews, two focus group discussions, and the examination of internal accounting, management reports, and government archival records. The findings suggest that emphasis on conventional instrumental mechanisms and reporting tools, such as budgeting and accrual-based reporting, support managerial (instrumental) accountability through compliance logics. We conclude that an emphasis on public (relational) accountability through public dialogue is central to the public sector accountability debate, and that more attention needs to be paid to the question of how to balance the dual logics (instrumental and relational) in public services. The findings provide practical insights for public sector managers, policymakers and governments responsible for designing and implementing reforms, accounting tools, and accountability practices.     

Institutional Logics and Responses to Performance Measurement Systems

Abstract: This comparative study analyzes institutional logics and categorizes organizational responses to performance measurement systems (PMSs) in two Finnish cities. We refine the typology of organizational responses and suggest how the choice of response depends on the institutionalized logic in the public sector accounting context (cf. Oliver, 1991 ). Further, we discuss and refine the types of successful co‐operation under competing institutional logics (cf. Reay and Hinings, 2009 ). Our study also sheds light on practice variation in public sector accounting such as how and why PMS use materializes in different forms in units with different institutional logics.     

Budgetary change at a university: A narrative inquiry

This paper reports the results of a qualitative case study of an Australian University's implementation of a new budget model. To inform our research, we developed a theoretical framework by drawing from neo-institutional sociology, old institutional economics and technical-rational choice. A narrative inquiry was employed to elicit the stories of participants' experiences of the budgetary change in its socio-political and institutional contexts. Through this narrative inquiry, we depart from prior institutional management accounting change studies which have presented change steered by external pressures for conformity and/or legitimacy. Our study shows how budgeting, as a management accounting tool, can be viewed as a rational myth conferring social legitimacy upon organisational participants and their actions. Further, we demonstrate that the emergence of a new management accounting practice is attributed to the demands of technical-rational imperatives, and the existence of internal rationalised dynamics and norms. We highlight and analyse the role and ability of organisational actors to create budgetary change in an institutionalised higher education environment.     

Committed to professionalism: Organizational responses of mid-tier accounting firms to conflicting institutional logics

We study how mid-tier accounting firms deal with changes in their institutional environment that resulted in a shift in emphasis from the trustee logic to the commercial logic. We find that these mid-tier firms selectively adopt practices related to the commercial logic, while retaining a principal commitment to the trustee logic. Interviews with high level informants in these firms show how specific strategic choice opportunities serve as independent critical events framing practice-adoption decisions. Main strategic issues for the mid-tier firms relate to the changing role of the accountant and changes in organizational structure and practices. As these issues fundamentally challenge characteristics of their professional identity, there is internal resistance against this transformation. Non-partnered accountants mainly challenge new roles that upset their extant work routines, whereas partners resist changes affecting their autonomy. These types of resistance directly impact the strategic organizational responses of the accounting firms to institutional pressures.     

Budgetary governance and accountability in public sector organisations: An institutional and critical realism approach

This paper analyses the impact of the institutionalisation of governance and budgetary policies on the accountability of organisational actors from an institutional and critical realism perspective. The study extends the framework by Burns and Scapens (2000) to critical realism. Findings from field studies conducted in two public hospital districts in Finland show two institutions of budgetary governance: the political and the technical. Accountability practices depend on how the institutionalised policies have reduced or increased the gaps between the real, the actual and the empirical domains of reality of the organisational actors involved and the governance policy that prevails at a given domain of reality. The use of budgetary information as a tool of governance and accountability in the empirical field of the study cannot be taken for granted.     

BUDGETING PRACTICES IN LOCAL GOVERNMENTS OF ENGLAND AND WALES

Results of two surveys (1983/1988) of local authorities' budgeting practices for strategic planning, budget preparation, and budgetary control are presented and contrasted. Findings show both improved practices and areas needing improvement. The budgetary process remains dominated by reporting requirements that disclose the budgetary compliance position rather than control the economy, efficiency, and effectiveness of operations. Shortcomings include limited use of mid- to long-term financial planning, inadequate profiling in control statements, general failure to distinguish between controllable and non-controllable items, and general disregard of non-financial output measures.     

Marketization and Performance Measurement in Swedish Central Government: A Comparative Institutionalist Study

Public sector organizations have increasingly been subject to varying forms of marketization, ranging from competitive contracting to a more general conception of citizens or users as customers or consumers regardless of whether such economic factors prevail. Drawing on neo-institutional sociology (NIS) and other advances in economic sociology, we examine such marketization efforts as an institutionally embedded phenomenon with particular reference to how it is implicated in the performance measurement practices (PMPs) of two state agencies in Sweden. This reveals how PMPs are embedded in only partly consistent institutional logics and under what circumstances such practices can be reconciled. Some PMPs, especially those grounded in efficiency concerns, tend to play an important constitutive role in operating-level practices, partly as a result of also being embedded in regulatory pressures. Other PMPs, imbued with symbolic meanings signifying a more customer-oriented rationale, only seem to approach such a status if they are dis-embedded from the 'global' practices in which they originate and re-embedded in evolving PMPs dominated by efficiency concerns. We discuss the implications of these findings for emerging research into practice variations embedded in competing logics in institutional fields and for policy development.     

Testing Rival Theories of Budgetary Decision–making in the US States

This article tests three common budgetary decision–making theories in the US states. Pooled time series cross–section analysis is used from 1960 to 1996 to test the garbage can theory and incrementalism, and from 1989 to 1996 to test various theories of rational budgeting. The results demonstrate that there was some support for all three theories in terms of their impact on reducing state budget outputs. Rational budgeting reduces expenditures in aggregate, incrementalism has relatively low explanatory power below the aggregates, and garbage can budgeting is more prevalent in functional areas than for government as a whole. These findings imply that the future research agenda on budgetary decision–making theories should focus more on a system–wide approach, which takes into account many of the characteristics of all three rival models of decision–making, rather than exclusively focusing on each one singly.     

Institutional Pressures, Monopolistic Conditions and the Implementation of Early Cost Management Practices: The Case of the Royal Tobacco Factory of Seville (1820–1887)

In spite of our increasing understanding of the underpinnings of early cost management systems, little is still known about the reasons for the implementation of such systems in firms operating under monopolistic conditions. This article studies the enforcement by law of cost and budgeting systems in the Royal Tobacco Factory of Seville (Spain), a manufactory of the state-owned monopoly. By doing this, we seek both to enhance understanding of the state's motivation to enact institutional pressures aiming at the implementation of early cost management practices as well as to study different organizational responses to simultaneous pressures arising from a single institutional source. It is suggested that the state's motivation to legally enforce the implementation of early cost and budgeting systems may be attributed to (a) the seeking of legitimacy by the state regulatory body, (b) the active agency of senior employees of the state regulatory body to keep their jobs and compensation packages on the eve of the privatization of the industry, and (c) the interest of the regulatory agency to instil the basis of mimetic isomorphism within the monopoly. Different responses by the RTF to pressures for reporting cost and budgeting information were explained by (a) the expected diffusion of firm's non-conformity within the institutional area, (b) the expected impact of institutional rules and norms on organizational goals, and (c) the extent to which the institutional source is consistent in its demands.     

MANAGEMENT ACCOUNTING IN LOCAL GOVERNMENT

Most of the management accounting activity in local government has traditionally been thought of as being confined primarily to the requirements of budget preparation and budgetary control. The budget is generally recognised as being at the heart of planning, decision-making and control and yet there have been many examples of the limitations in conventional budgeting and budgetary control practices being pointed out. It might have been expected that the period of consistent financial stringency faced by local government from 1979 onwards would have quickly exposed any limitations and brought about changes. In reality it seems that the management accounting and budgeting practices in local government responded surprisingly slowly to the financial pressures and it is only with the relatively recent introduction of the 'private sector' philosophies of devolved management and market testing that widespread developments in management accounting have begun to occur. Many of these developments are still evolving and because of this it seemed inappropriate at this stage to attempt a cross-sectional survey of current practices. This paper therefore concentrates on the position in two specific local authorities and examines the current DSO accounting practices. In addition, the analysis undertaken by one of the authorities of the steps needed to implement internal trading accounts for financial support services is discussed and the interesting experimental attempt by one of the authorities to introduce zero base budgeting for a major service is also examined.     

Materiality in an integrated reporting setting: Insights using an institutional logics framework

Using institutional logics as a theoretical framework and interviews with 20 preparers from 14 large organisations listed on the Johannesburg Stock Exchange (JSE), this paper focuses on examining differences in integrated reporting practices. The results reveal how a finance-centric market and professional logic interact with a stakeholder logic, leading to differences in the materiality determination process. Market-dominated firms have an internally focused approach to setting materiality which emphasises value-relevance for financial capital providers. Where logics are contested, materiality becomes an amalgamation of the factors which are important for shareholders and other stakeholders and essential for demonstrating compliance with codes of best practice. Organisations with market, professional and stakeholder logics aligned have the most sophisticated materiality determination processes. The emphasis shifts from lengthy reporting and compliance to providing a comprehensive account of the value creation process and how the business ensures long-term sustainability. In this way, how logics are instantiated may explain the considerable variation being observed in integrated reports. There are also implications for the propensity of firms either to view integrated reporting as a hegemonic challenge or to internalise it as part of a process of positive organisational change.     

Budgeting and the propensity to create budgetary slack

This paper reports the results of a field study designed to investigate how managers' propensities to create budgetary slack are affected by the budgeting system and the technical context. The results show that propensities to create slack are lower where managers participate actively in budgeting, particularly when technologies are relatively predictable. But such propensities are higher if a tight budget requires frequent tactical responses to avoid overruns.     

Coping with ambiguity through the budget: the positive effects of budgetary targets on managers' budgeting behaviours

Much consideration has been given over the years to what may be described as the `negative' aspect of budgeting; that budgets may constrain innovation and learning, and that budgetary pressure may lead to unintended behavioural side effects. In contrast to this, the present study examines the extent to which budgets have a more positive, `comforting' role to play in the individual's work experiences. We argue that managers confronted with uncertainties associated with role ambiguity may respond by becoming positively committed to achieving budgetary targets as budgets offer a source of structure and certainty. We find that the use of budgets as an antidote to role ambiguity is a powerful influence on the manager's budgeting behaviour. We test the strength of this effect and we find that budgetary commitment brought on by the experience of role ambiguity may over-ride the potential for recognised explanatory variables such as leadership style, the expectations of the superior, and occupational socialisation, to inform managers' budgeting behaviours in these circumstances. Budgets, it seems, may be as useful to the individual as they are problematic.     

Budgeting in Catholic Parishes: An Exploratory Study

In this paper an aspect of accounting, namely budgeting, has been studied in an organizational context. According to Booth (1993) churches represent 'extreme cases' in which to study the impact of accounting. Following on from Laughlin (1988) Booth considered the sacred and secular divide to be a significant element in the use of accounting by church organizations. The parishes of the Catholic Archdiocese of Melbourne form the context of this study in which evidence is sought for the sacred and secular divide by studying the role of budgeting in the parish. Questions were asked regarding participation in the budgetary process and the development and use of the budget. It was found that there was little consultation or participation in the budgetary process and that the use of the budget was restricted. These findings suggest that the sacred and secular divide operates at the parish level.     

Budgeting for legitimacy: The case of an Australian university

This paper reports a case study of budgeting at an Australian university to understand how accounting is involved in processes of legitimation. The university had been much enlarged and diversified in its educational offerings through a series of mergers. A response to the changes on the part of the vice-chancellor was to introduce a new budget system borrowed from the institutional environment. The intent was to convey to a key funding agency and to staff that the newly merged entity would be governed appropriately. We analyze a set of sequential and interlinked processes in which these aspirations were challenged repeatedly by senior academic and administrative staff. Finding the budget system to be inconsistent with their values and expectations for the university, staff undermined it through patterns of under- and over-spending. We show how these behaviors jeopardized the vice-chancellor’s efforts to legitimate the organization’s financial management practices for a key funding agency. A core contribution of our paper is to analyze empirically the importance of the institutional demands that an organization’s internal constituents may make of its accounting practices. We argue that managers, staff and other internal constituents should be seen as significant legitimating agents. We show how attention to their demands becomes all the more relevant when budget and accounting systems for internal use are loosely coupled from those used for external reporting. In such circumstances, conflicting demands by internal and external constituents may not be dealt with through the development of separate and compartmentalized systems. This makes it problematic to assume that adoption of accounting systems from an institutional field will result in a steady-state of organizational legitimacy.     

Assessing international accounting harmonization in Latin America

We draw on institutional theory and interviews with key informants to assess international accounting harmonization in the 13 countries of the Group of Latin American Accounting Standards Setters (GLASS). Some GLASS countries have effected full formal adoption of International Financial Reporting Standards (IFRS), but in others, IFRS are not permitted. In several GLASS countries, IFRS are supplemented by national standards for micro-entities and cooperatives. We conclude that it will be difficult to achieve material harmonization in GLASS countries due to a lack of trained accountants, unreliable enforcement systems, and competing institutional logics of taxation systems, banks and insurance companies.     

Do organizations adopt sophisticated capital budgeting practices to deal with uncertainty in the investment decision?: A research note

This study examines the impact of uncertainty on the sophistication of capital budgeting practices. While the theoretical applications of sophisticated capital budgeting practices (defined as the use of real option reasoning and/or game theory decision rules) have been well documented, empirical evidence on the factors that affect the importance and use of these sophisticated capital budgeting practices is scarce. I investigate the relation between specific uncertainties and sophisticated capital budgeting practices in 189 Dutch organizations. The empirical results show that sophisticated capital budgeting involves the use of multiple tools and procedures (such as Monte Carlo simulations, certainty equivalents, Game Theory decision rules and Real Option Reasoning). An increase in financial uncertainty is associated with the use and importance of sophisticated capital budgeting practices. Finally, size and industry are also related to the use and importance of sophisticated capital budgeting practices.     

Budget Rules and Flexibility in the Public Sector: Towards a Taxonomy

The practices and norms of public budgeting have often been seen as a brake on the flexibility needed of government organisations. This remains true despite historically significant financial management reforms designed around budgetary devolution. Seeing flexibility as operating along two dimensions – devolution and discretion – this paper revisits the underlying features of traditional public budgeting to develop a taxonomy of six generic ‘budget rules’. By isolating key properties of budget control, the paper uses two of the more prominent rules – annuality and purpose – to illustrate how the rules interact to generate control capacity, as well as the scope for rule variability in promoting increased flexibility.