Coping with austerity: innovation via collaboration or retreat to the known?

This paper explores new approaches to the management of public sector austerity through collaborative innovation. Practitioner-based insider research offers an insight into how collaborative innovation can work in the public sector, what undermines it and what impact the active management of a turbulent environment can make to outcomes. A flexible action framework—modelling collaborative innovation—offers a practical means of understanding and supporting effective innovation through collaboration.     

Accounting for the Public Sector at a Time of Crisis

This Special Issue is based on papers initially presented at the ‘Accounting for the Public Sector at a Time of Crisis’ Conference at the Centre for Not-for-profit and Public-sector Research, Queen's University Belfast, UK in 2018. The public sector consists of organizations that are owned and operated by government; organizations that exist to provide goods and services for a country's citizens. What is particularly distinctive about such organizations, and what makes them different from businesses, is that they are (or, at least perhaps, should be) not-for-profit. In addition, they frequently have wide social and cultural goals that are central to what they do. They are pervasive in most societies. Yet, it is argued, they face crisis on a number of fronts: in terms of the influence of potentially inappropriate, business-like new public management ideas related to performance management and the embracing of related accounting and budgeting approaches; and in terms of the impact of austerity, following the Great Recession in 2008. In such a context it is suggested that public sector governance, accounting, and accountability systems are heavily involved. The papers included in this Special Issue present an opportunity to reflect on aspects of this crisis in terms of how it connects with accounting systems and accounting changes. Key arguments of these papers, and overarching themes of this Special Issue, are explored in this editorial.     

Management across boundaries: A municipal dilemma

Public sector mergers have the potential of being viable alternative to other public sector reforms in the striving toward making public service provision more equipped to confront some of the challenges faced today. Mergers however often fail to deliver promised results. Previous research point to the importance of post‐merger integrating processes for realizing the synergies expected from mergers. However, so far these studies have focused on what occurs inside organizations and less on the interplay between different levels. By adopting a governance and top management perspective, this study increases our understanding of the importance of political decisions on the outcome of a merger in the public sector context. Further, this study increases our understanding of how organizational boundaries on different levels of merging organizations influence post‐merger integrating processes and the role of different actors as boundary spanners. The results of this study are based on five case studies of public sector mergers at the local level in Sweden.     

Has the Public Sector Retained its 'Model Employer' Status?

The authors investigate whether public sector organizations can still be considered 'model employers' as they were before the late 1970s. Comparisons are made with private sector human resource management (HRM) practices to determine how closely the 'model employer' rhetoric approximates the public sector reality. The article focuses on recent changes in the core and traditional non-traded areas of public sector employment funded directly through either central or local taxation—the National Health Service, central and local government and higher education. Objective quantitative data on public sector HRM practices and flexible work patterns are examined from both primary and secondary sources. Central to the discussion is the question of which sector offers the greater job security to employees.     

Performance, Productivity and Innovation in Health Care Organisations: Comparing England and Scotland

The political reforms of the public sector, termed "new public management" (NPM), now have a 20-year history. This paper looks at local differences between England and Scotland over a particular dimension of NPM — performance management in health care. In the context of the dynamic reform agenda in the UK, it is expected that these "local" lessons will have some global relevance. This paper elaborates on these inter-country differences and proposes how the approaches in England and Scotland may affect productivity and innovation in health care delivery. It does this by exploring research into the behaviour of the most powerful of health care providers, the senior clinicians in hospitals.     

Technologies of government in public sector's networks: In search of cooperation through management control innovations

In recent years, the public sector has been the subject of a thorough reassessment in a significant number of countries. During this process of modernization, issues such as inter-organizational collaboration and managerial innovation have been progressively placed at the forefront of practice and research. In particular, a number of countries have recently re-organized their public sectors around more or less formalized networks or hybrid inter-organizational forms, which are often led by a regulatory body and governed by a cooperation agreement. The literature on inter-organizational relationships in the public sector has evolved alongside the development of such cooperation agreements and innovative forms of organizing. Nevertheless, despite the fact that networks formed by public organizations, not-for-profit organizations, and private firms provide important services to their relevant communities, limited attention has been dedicated to studying the role of management control practices within inter-organizational relationships in public organizations. This is an important gap in the existing literature that this Special Issue intends to address. For this reason, and most importantly because public sector forms of inter-organizational collaborations are likely to differ significantly from those observed in the private sector, in the first part of this Editorial we draw attention to some of the themes that characterize the management and control of inter-organizational relations in the domain of public administration. Next, we introduce the six papers which comprise this Special Issue, and we briefly illustrate how each of them enhances our understanding of the role of control systems within public sector networks. Building on the empirical evidence and theoretical arguments offered by these studies, and after a brief review on the possible alternative ways of conceptualizing the process of adopting new management practices, we point to the further research that needs to be done if we are to understand the role that management control practices play in public sector networks. In particular, we suggest that there is a need to look inside management control practices, to explore what these practices are and, how and why they enable the cooperative “ideal” to become real, as well as to stimulate or hinder opportunities for public sector managerial innovation. It is concluded that there are a number of issues yet to be explored if we are to deepen our understanding of the formal and informal mechanisms of control which are the active elements of the so-called “regulatory hybrids” in the public sector.     

Keeping secrets? Or what government performance auditors might not need to know

This paper examines the claims made in a recent paper in Critical Perspectives on Accounting by Vaughan Radcliffe about the way in which public sector auditors report their findings. Drawing upon the work of Taussig, he argues that while public sector auditors may know the truth, as may others, they choose not always to tell the truth in their reports and instead to treat what may be publicly unpalatable as a public secret. They modify their findings to ensure that these will be more acceptable to governments and, thereby, enhance their opportunity to influence government. These claims are shown in this paper to overstate the public sector auditor's response to difficult issues. Rather than keeping secrets, the contents of the auditor's reports may instead reflect the constitutional and institutional limitations in which they must work. Most importantly in most jurisdictions they are not to comment on matters of policy which are the domain of the government.     

New Approaches in Reward: Their Relevance to the Public Sector

This article explains the concept of 'new' reward (for example variable pay, market-based pay, performance-related pay and team-based pay) and why recent UK governments have encouraged it. The extent and effectiveness of new pay practices in the public sector is investigated. The author concludes that the Government should not be pushing the public services to mimic what they perceive to be private sector reward practice.     

Book Reviews

References to ‘customers’ have become commonplace in the policy discourses within UK government and other public sector bodies. It is a working assumption of UK public sector management that the concept of the ‘customer’ can be applied to any public sector service agency or department; and this paper analyses how the UK government's revenue department, formerly titled the Inland Revenue (IR), re-characterised firstly taxpayers and latterly tax claimants as ‘customers’, rather than ‘users’, of IR services. This paper identifies some problems, dilemmas and ambiguities associated with this reconceptualisation in the context of an organisation that is predominantly a regulating department. Far from being merely a reclassification of the taxpayer as customer, the emerging discourse and associated practices of the IR were in part embedded in organisational change, including the merger with HM Customs and Excise to form the present-day HMRC. Thus this case analysis illustrates the limits of consumerism as a strategic tool of a government revenue department and raises wider questions for public management.     

Manageralist Thinking on Marketing for Public Services

The authors examine the nature of marketing in the public sector as a response to government-led reforms during the past 15 years. They conclude that the public sector is a context in which marketing management differs in both theory and application from the approaches found in profit-oriented, privately-owned organizations. There are elements of commercial marketing theory and practice that are useful at an operational level in public bodies, but the democratic process is a major complication. The development of a new framework for marketing in the special context of public services is urged and a tentative start is attempted.     

THE RELUCTANT MANAGERS: CLINICIANS AND BUDGETS IN THE NHS

A review of the literature on management budgeting, combined with recent fieldwork in a number of health authorities, points to major weaknesses in both the theory and practices of management budgeting. The lack of major incentives to clinician participation and of significant penalties for non-participation are seen as central to the failure of management budgeting to achieve either rapid or widespread adoption. In addition, it has been insufficiently appreciated that many managers themselves are less than enthusiastic about the prospects for workload-related budgeting. Finally, it is suggested that, though novel in some important aspects, resource management may often suffer similar difficulties.     

Examining the process of performance measurement system design and implementation in two Italian public service organizations

In the last two decades, the adoption of new public management (NPM) practices in the public sector has increased as public sector organizations seek to improve efficiency, effectiveness and public accountability. We present case study findings of a NPM initiative to implement balanced scorecard (BSC) performance measurement systems in two Italian public sector organizations. This study considers the question of whether the BSC development process can be effectively translated into the public sector context. Our findings highlight the importance of aligning the development of performance management systems with a greater understanding of the internal and external environment of public sector organizations. Our results further emphasize the significant role of emergent stakeholders and management culture for the success of NPM performance management initiatives.     

THE ROLE OF ACCOUNTING IN ORGANISATIONAL CHANGE: PROMOTING PERFORMANCE IMPROVEMENTS IN THE PRIVATISED UK WATER INDUSTRY

Privatisation has been one of the most important and controversial policy initiatives to emerge in the U.K. over the last decade. Yet despite its prominence, little so far is known about its impact on those centrally involved in its implementations: senior management. This paper will investigate the ways in which senior management within one of the major privatised industries, the Water Industry, have sought to give effect to the strategic change involved in the transformation of a public sector Water Authority into a private sector Water plc. Although the monopoly character of the supply of Water services has remained intact, managers in the new Water plcs have had to respond to new expectations and assessments of corporate performance from shareholders, investors and financial analysts; from customers; and from a new economic regulatory regime operated by the Director General of the Office of Water Services. The Director General, in addition to operating price controls, is committed to developing “yardstick” competition which will provide the opportunity to make comparative judgements about performance levels achieved by each of the new Water plcs. In pursuit of improvements in efficiency and profitability, senior managers have engineered a variety of restructurings of corporate organisation to give more focus to achieving new business objectives, and to move away from a public sector bureaucratic management style with its traditional tall-pyramid structure to flatter and less hierarchical management structures. Although many of the changes have been justified in terms of empowerment and providing more autonomy for local managers, the paper argues that the experience of change for these managers has largely consisted of being subjected to much greater accountability for their performance through greater emphasis on the achievement of financial targets, more systematic monitoring of performance, the introduction of individual performance appraisal, and performance-related pay. Central to this intensification of the scrutiny of performance have been changes in accounting information systems and how they are used. In examining how these changes have functioned in their organisational context, the paper seeks to contribute to an understanding of the role of accounting in processes of organisational change     

Observing Chief Executives: Analysing Behaviour to Explore Cross-Sectoral Differences

This article is an exploration of the role of the chief executive and its relation to the political and environmental context. It draws on case studies of chief executives from the public, private and voluntary sectors, which looked at what chief executives do and how their role relates to the context in which they work. The author uses a comparative theoretical framework, which includes position, organization, environment and decision-making to highlight cross-sectoral differences. Comparative concepts are used to explain difference and variability in the chief executives' work. The article develops propositions about the nature of chief executives' work that could be tested in further studies.     

Financial Systems, Corporate Finance and Corporate Governance

Financial systems of industrialised countries are usually classified as being either capital market- or bank-dominated. This paper tries to shed some light on the validity of this distinction. In order to do this, it analyses two specific roles of the financial sector vis-à-vis the enterprise sector: the role of financing or funding business and the role of capital markets and banks, respectively, in the context of corporate governance. Our analysis of the relevant findings in the literature shows that financing patterns are quite similar between countries, while corporate governance systems are quite dissimilar. The paper discusses how these divergent findings could be made compatible with existing theories and what implications they may have for the question of whether there is a tendency for corporate governance systems in different countries to become as similar as corporate financing patterns seem to be.     

Financial Management and Effectiveness in Public Service Organizations: The CIPFA FM Model

Improving services in the public sector is not just about front-line delivery—effective governance and financial management are key drivers for public bodies on the improvement path. Regulatory frameworks are putting these elements in the spotlight as they seek to track additional investment and its impact on services. No longer just about accounting for the money and demonstrating stewardship, financial management in the public services is about giving the right decision support and enabling the right choices. Modern public bodies need to make sure they are financially literate throughout their operations to meet their organizational goals effectively. Self-assessment and improvement planning can work for financial management and a framework developed by public finance professionals in the UK's public sector is described in this article. The article draws upon the CIPFA FM Model that is to be launched in Summer 2004.     

From New Public Management to New Public Governance? Hybridization and Implications for Public Sector Consumerism

This paper examines how variations in the notion of public sector consumerism become embedded in diverse governance practices. To this end, we extend the literature on public governance logics with insights from research on public sector consumerism and hybridization in public sector management reforms. Through a comparative, multi‐level analysis we trace the development of two governance logics largely corresponding to the distinction between New Public Management (NPM) and New Public Governance (NPG) in Swedish transport infrastructure policy. In contrast to research predicting or prescribing a relatively radical shift between such governance logics we show how they partly co‐evolved along two reform paths entailing notable variations in the degree of hybridization and the embedding of consumerist notions in emerging governance practices. In doing so, we draw attention to how the hybridization of governance logics is contingent on the alignment of diverse interests and differences in the process through which such logics are brought together. We discuss the implications of these findings for future research into public sector consumerism and hybridization in public sector management reforms.     

Transforming social sector auditing – they audited more,but scrutinized less

The legitimacy of audit technologies is inevitably linked to a knowledge base. Even though it has been pointed out that the agreements on how to measure and verify certain operations are only temporal, empirical studies on change in audit are rare. This paper reports a detailed empirical study of change in performance audit within social services in Sweden. The paper complements previous research since this paper is not about making new things auditable but about challenging existing technologies within a field. We observe how the new ‘sharp’ control‐based model – realized through measures of prioritizing, focusing and standardizing – was related to new demands on ‘facts’ about the audit object. The effect was that many things in this new situation became unauditable; they audited more, but actually scrutinized less. The paper also contributes to existing literature on the role of ‘sharp’ control‐based audit in the social sector. With a ‘soft’ and ‘fuzzy’ object, as is often the case in many parts of the public sector, it is difficult to produce hard, convincing evidence that holds true in different settings.     

Irish voluntary hospitals: an examination of a theory of voluntary failure

This paper examines the success and failure of voluntary hospital organisations in Ireland during the twentieth and twenty-first centuries. The study draws on (and extends) Salamon's theory of voluntary failure by examining the activities of religious organisations responsible for the ownership, management and delivery of acute hospital care. This theoretical perspective identifies a number of dimensions of organisational life for voluntary organisations, which precipitated the demise of organisations as voluntary sector entities, particularly issues of resource-dependency. This study shows that in the Irish hospital context many religiously owned voluntary hospitals have followed the predictable route to failure - culminating either in closure or transfer to public sector ownership, although some others have withstood the difficulties commonly encountered by voluntary organisations (VOs) as outlined by Salamon.     

Best Value and the Control of Local Government: Challenges and Contradictions

This article offers some understanding of the early experience of implementing Best Value in the local authority sector. Implementation is dependent on how local government understands the concept; what local government is able to deliver; and what central government is prepared to accept. For the case study authority described in this article, Best Value is understood to depend on three deliverable 'cornerstones', embedded in a context that emphasises accountability, seeks to develop 'learning' and pursues change in organizational culture, emphasising the tenets of 'business excellence'. The authors conclude that Best Value represents an unusual cocktail of top-down concept and bottom-up realization, providing a new twist in the control of the local government sector.