Notes on contributors

Abstract

Today, many public professionals feel estranged from the policy programmes they implement; that is, they experience ‘policy alienation’. This is of concern as, for satisfactory implementation, some identification with the policy is required. We conceptualize policy alienation based on the sociological concept of work alienation, and show how this can be used in policy implementation research. Studying a Dutch case of professionals implementing a new work disability decree, we observe how NPM practices increase policy alienation because of a perceived dysfunctional focus on efficiency and results. A large number of policy changes and stricter implementation rules further increased policy alienation.     

Bringing History In: Policy accumulation and general policy alienation

Research mainly looked at problems public professionals have with specific policy programmes. However, policies are not developed in a vacuum. Public professionals are often confronted with (a series of) policy changes, intended to refine, replace or complement other policies. This policy accumulation results in professionals having a certain predisposition towards policies in general. To conceptualize this predisposition, we introduce the term general policy alienation. We investigate whether the earlier developed policy alienation scale can be adapted to measure general policy alienation. Our analyses show that the scale performs satisfactorily. Theoretical relevance, as well as directions for practical applications are discussed.     

Managing Challenging Organizational Change: Introducing active labour market policies in Italian public employment agencies

Abstract

Managing organizational change in the public sector is extremely challenging when adverse conditions hamper the introduction of novel organizational practices. This study builds on the case of the implementation of active labour market policies in in Italy, in an attempt to help explain the process of managing organizational change in the public sector. The case study shows how, despite contrary conditions that originate from the political context, the interplay between designed policy interventions, initial conditions, and features of the policy process can result in effective change of employment service practices.     

Networks in Public Administration: Current scholarship in review

Abstract

Network-focused research in public administration has expanded rapidly over the past two decades. This rapid growth has created come confusion about terminology and approaches to research in the field. We organize the network literature in public administration using compact citation networks to identify coherent subdomains focused on (1) policy formation, (2) governance and (3) policy implementation. We trace how these domains differ in their approach to defining the role of networks, relationships and actors and to what extent the articles apply formal network analysis techniques. Based on a subsequent content analysis of the sample articles, we identify promising research avenues focused on the wider adoption of methods derived from social network analysis and the conditions under which networks actually deliver improved results.     

Effective HR implementation: the impact of supervisor support for policy use on employee perceptions and attitudes

Abstract

Effective implementation of human resource (HR) policies appears to depend on supervisors’ active involvement in the intervention process. Following recommendations of a recent intervention evaluation framework, we examine how perceived supervisor support during the implementation of a work-life intervention helps to change participants’ perceptions of organizational family supportiveness, and how this ultimately changes participants’ engagement and turnover intentions. A three-wave longitudinal study in a professional services firm (N = 434) that has formally involved supervisors in the process of a work-life intervention showed support for our study hypotheses. Supervisor support for policy use influenced employees’ positive work–home culture perceptions, which in turn strengthened employees’ work engagement and diminished their turnover intentions over time. We discuss practical implications and give recommendations on the future design of HR interventions and related policies.     

Policy innovation in isolation?

Abstract

Innovations in public policy are difficult to realize if decision-making arrangements are not scrutinized at the same time. Rigid institutional arrangements often hinder the realization of policy breakthroughs. Consequently, in the day-to-day practice of public administration, more and more experiments with innovative arrangements towards realizing groundbreaking policy decisions are being seen. Two rather different examples of such arrangements in the Dutch context are transition arenas and pilot projects (proeftuinen). In this article we describe these arrangements from an innovation management perspective and evaluate their functioning by focusing on their approaches to two dilemmas: the dilemma between diversity and closedness within the innovation plans and the dilemma between openness and closedness of the plan in relation to its context, the outside world. From their comparison we can learn about the context-specific application of different innovation plans and the results of different ways of handling these innovation dilemmas.     

Introducing benchmarking in the Czech Republic and Slovakia

Abstract

In many cases the introduction of performance evaluation, performance management and performance financing schemes do not produce the expected results and even create perverse effects. The risks connected with their improper implementation are much higher in developing and transition countries, where the public sector is over-politicized, policy and management capacities are inadequate and resources and experience are limited or often almost absent.

Our study provides basic selected data on the use of benchmarking in public administration bodies in the Czech Republic and Slovakia. The findings are clear. In spite of its high potential, benchmarking is not used regularly and properly either in Slovakia or in Czechia. Subjective barriers of its implementation, for example lack of accountability, the rent seeking attitudes of elected politicians and ineffective public services schemes might be most important limits. The situation is slowly improving, but the progress will be naturally limited by territorial fragmentation.     

Managing Change,or Changing Managers? The role of middle managers in UK public service reform

Abstract

Drawing upon interview data from three case study organizations, we examine the role of middle managers in UK public service reform. Using theory fragments from organizational ecology and role theory, we develop three role archetypes that middle managers might be enacting. We find that rather than wholesale enactment of a ‘change agent’ role, middle managers are balancing three predominant, but often conflicting, change-related roles: as ‘government agent’, ‘diplomat administrator’ and, less convincingly, ‘entrepreneurial leader’. Central government targets are becoming the main preoccupation for middle managers across many public services and they represent a dominant constraint on allowing ‘managers to manage’.     

Assessing the implementation of sustainable public procurement using quantitative text-analysis tools: A large-scale analysis of Belgian public procurement notices

Public organizations are using sustainable public procurement (SPP) as a policy tool to address societal and environmental issues. Having a policy on SPP however does not guarantee implementation. Several barriers have for example been identified that prevent public procurers from implementing SPP in their procurement projects, such as financial constraints, lack of knowledge or motivation. The question therefore arises how much SPP public organizations actually implement in their procurement projects. However, existing studies often focus on the environmental part of SPP and often rely on using interviews or surveys to assess the perceived degree of SPP (which have been accused of being subject to social desirability bias and low response rates). Little is therefore known about what SPP is in practice, and how frequently it is implemented. In this study, we therefore provide a detailed operationalization of SPP that encompasses the full concept. We subsequently assess the implementation of SPP in practice using text mining techniques to analyse over 140.000 Belgian public procurement notices that were published between 2011 and 2016. The research shows that in more than 70% of the notices (with an annex) SPP is implemented, but there appears to be a downward trend. It seems that SPP is implemented less over time, rather than more. Environmentally friendly procurement was, relative to other types of SPP, prevalent over time and across regions. For SPP to live up to its potential there are thus still barriers to be overcome.     

Protective faith? The role of religiosity in the stressor-strain relationship in helping professions

Abstract

Working conditions in western economies keep fueling work stress and psychological ill-health among employees. Job resources as well as personal resources play important roles in alleviating the adverse outcomes. In this article, we analyze religiosity as a rather neglected personal resource and its role in the stressor–strain relationship. Five dimensions of religiosity (intellect, ideology, public practice, private practice, and experience) are tested for their buffering effect on the relationship between work stress, measured as effort-reward imbalance, and psychological strain as well as for their direct relationship with psychological strain. The sample consists of 792 helping professionals and a comparison group of 172 non-helping professionals. The results show that public practice is negatively related to psychological strain for helping professionals while none of the religiosity dimensions has an effect among non-helping professionals. A buffering effect of religiosity on the relationship between work stress and psychological strain is not observed. The results contribute to the literature on the model of effort-reward imbalance as well as religiosity in the workplace and the role of personal resources in the stress process.     

Public cluster policy and firm performance: evaluating spillover effects across industries

ABSTRACT

While the direct positive effects of public cluster policy on subsidized industries are beyond controversy, the impact of such policy interventions on non-subsidized industries within the same region, that is, the indirect effect of public cluster policy, remains vague and unexplored. This study examines the impact of a prominent public cluster policy in Germany, the so-called Leading-Edge Cluster Competition. Based on a unique dataset, we analyse the spillover effects of this cluster policy initiative on those firms and industries, which have not been the primary target of the cluster policy. Our results suggest that public cluster policy seems to have an indirect negative effect on firms that have not primarily been related to the targeted industries; therefore, the concept of ‘agglomeration shadows’ might also apply to industries and related firms. Despite the existence of knowledge flows induced by additional governmental funding within a region, non-subsidized industries, that is, non-targeted firms, seem to be unable to compete against targeted industries and, therefore, suffer from a lack of human, financial and social capital. Based on our findings, we propose policy recommendations on how to best identify policy instruments aimed at augmenting innovation-driven growth across a broad spectrum of industries and regions.     

Interactive identity work of professionals in management: a hospital case study

ABSTRACT

Hybrid professional managers appear less effective in introducing management into public professional settings than policymakers hope. To date, research has offered little understanding of professionals’ identity transition challenge and the role of social interactions underpinning this process. We studied the identity work of hybrid doctors inside a large public health-care organization, finding that it takes place through processes of familiarizing with management, rationalizing being a hybrid, and legitimizing the new role-identity. We contribute to the literature by showing that identity work is distributed and enabled by social interactions beyond the professional group. Implications for policymakers and executives are discussed.     

Environmental regulation and the industrial sector in China: the role of informal relationships in policy implementation

This paper focuses on the relationship between environmental regulators and industrial enterprises in China. There are widely recognized ‘implementation gaps’ in the Chinese environmental protection system. Previous studies have attributed such gaps to a combination of factors including legislative shortcomings, poorly designed policy instruments, an unsupportive work environment for environmental regulators, and a pro-growth political and social environment. The present paper seeks to extend the analysis by examining the role of informal relationships between individuals and organizations, and their mediating influence on the implementation of environmental policy measures. We argue that such relationships, which reflect a cultural predisposition to harmony and consensus-building among key actors, play an important role in determining how environmental policies are implemented, and how stringently regulations are enforced at the local level. Given the importance of decentralized implementation responsibilities in China, weaknesses in the system at the local level can constrain the achievement of national environmental policy objectives. A model of the implementation process is presented, and case studies from the industrial city of Foshan in Guangdong Province are used to illustrate the role played by personal and organizational relationships (guanxi) among environmental regulators and industrial polluters. © 1998 John Wiley & Sons, Ltd and ERP Environment.     

HRM implementation by multiple HRM actors: a social exchange perspective

Abstract

In this study, we understand HRM implementation as a social process that depends on the social exchange relationships between line managers and both HRM professionals and employees. As such, we offer a fresh approach to understanding HRM implementation by concentrating on the social exchange among HRM actors. We do so by investigating to what extent these exchange relationships influence HRM implementation, as reflected in employees’ perceptions of the presence of HRM practices and their affective commitment. We collected multilevel data from two sources (line managers and employees) and in two phases in a Dutch engineering firm, and obtained fully matched manager – employee information from 75 employees and 20 line managers. Our results show that employees perceive a larger number of HRM practices when they have a good relationship with their line managers and when their line managers are motivated to implement HRM practices. Line managers, in turn, reciprocate perceived support from the HRM department with greater motivation to implement these practices. We conclude that because HRM actors engage in social interactions, HRM practices will be implemented at the organizational level because employees perceive the presence of HRM practices and then reciprocate this with affective commitment.     

EQUALITY OF OPPORTUNITY: POLICY AND MEASUREMENT PARADIGMS

Abstract Equality of opportunity is a widely accepted principle of distributive justice and it is the leading idea of most political platforms in several countries. According to this principle, a society might institute policies that secure an equal distribution of the means to reach a valuable outcome among its members. Once the set of opportunities have been equalized, which particular opportunity, the individual chooses from those open to her, is outside the scope of justice. Ex ante inequalities, and only those inequalities, should be eliminated or compensated for by public intervention. The recent literature on the opportunity egalitarianism often merges these questions introducing two different economic issues. On one side the design of a public policy intended to implement the equality of opportunity view and on the other side the problem of measuring the degree of opportunity inequality in a society. We describe the basic setting and assumptions of some different approaches derived by Roemer’s algorithm for public policy and then we discuss some theoretical and empirical studies to separate and test alternative paradigms on the measurement of inequality of opportunity. Accordingly, an extended critique on the causality issue on policies and measurements is taken into account.     

Actions speak louder than words: how employees mind the implementation gap

Abstract

Integral to employees’ working lives are the HR policies and more importantly, the practices that follow those and their implementation, which employees experience directly. To date, research on HR implementation considers how HRM is ‘done to’ employees by management and therefore ignores the agency of individuals to shape how HRM is ‘done to them’. Taking the perspective of employees, in a qualitative study of female lawyers, this paper examines employees’ roles in shaping HR implementation, addressing a lack of understanding about the role of ‘others’ in the process. Drawing on the concept of social power, the article focuses on the implementation of agile working practices within UK-based law firms. It finds that despite lacking legitimate position power to influence processes, employees draw on a variety of other power sources (e.g. referent, information, coercive) and tactics (e.g. leveraging membership of professional networks) in order to influence their working environment with respect to HR policy and practice, particularly in response to perceived implementation gaps. The current study underlines that employees may be integral to bridging the gap between policy and practice and therefore to ensuring the link between HRM and organisational performance. It also proposes that behavioural responses to HR practices should be considered in future theorising of the HRM-performance relationship.     

Self-employment policies and migrants' entrepreneurship in Germany

This paper presents results from a European project on policy and migrants' entrepreneurship in Germany. It develops a concept of biographical policy evaluation by analysing the extent to which the biographical processes that have led to self-employment among migrants in individual cases correspond to those anticipated by policy. The study identifies a biographical structure composed of two phases that shape the status passage to self-employment. During these phases, personal resources are mobilized and/or attempts are made to access policy support. Self-employment policies are fragmented in that they are designed to address specific stages of the process. Migrants are often excluded from policy participation, either as a result of policy failures or through a manner of implementation that is frequently influenced by prejudices and stereotypes. Deprived of class resources and sometimes unable to utilize ethnic resources, migrant would-be entrepreneurs require public support. The ‘bridging allowance’ scheme to encourage self-employment among the unemployed currently in place in Germany (Überbrückungsgeld) could serve as a model for a more adequate support policy for non-privileged business starters that would better allow for the participation of migrants.     

Managing implementation processes

Abstract

In order to improve financial decision making in local governments in Germany, accrual output-based budgeting is being introduced. As the dynamics of implementation processes are often neglected, we research the shift from established rules and procedures to the application of accrual accounting, especially how public managers deal with new financial management systems and how their expectations are fulfilled. Based on a dynamic capability approach, six case studies in German municipalities are conducted. In a comparative analysis we focus on the dynamics of implementation processes. The findings emphasize that the application of accrual accounting is dependent on strategic orientations of top managers, involvement of middle managers and the capability to develop new structural routines in managing change.     

The impact of public service values on services of general interest reform debates

Abstract

Competing values complicate debates on the reform of public services. Attention for competition and efficiency is balanced by concerns for equity and universality in service delivery. These potential value conflicts are best visible in the reform of services of general interest. Despite debates at the European and the national level, current research on services of general interest has been limited to scholars in law and economics. Citizens' opinion on the guiding principles of service delivery is generally disregarded. In this article, we analyse a number of Eurobarometer surveys dealing with services of general interest, as well as a general survey of citizens' perceptions of the public sector in Belgium. We delineate clusters of citizens' public service delivery value orientations, and show that one-sided or ideology-based reform strategies probably negate many of the continuing dilemmas in public service delivery.     

Strategic partnerships and relationship marketing in healthcare

Despite repeated government policies to introduce market-orientation and customer-focus into the UK National Health Service, there is still much anecdotal evidence of unsuccessful policy implementation. In this article we investigate the attitudes of healthcare managers to one recent policy initiative based on partnership working that is intended to provide integrated and customer-focused service to patients. While acknowledging the tensions and dilemmas inherent in private sector marketing concepts, we argue that relationship marketing has considerable potential in public healthcare contexts, based on its advocacy of building relationships between providers and customers and between providers and their suppliers. Using the framework of relationship marketing we identify healthcare managers' concerns about the motives, effects and benefits of implementing partnership arrangements in two regions of the NHS. Through a longitudinal research design our findings suggest that while respondents' attitudes to partnership working and customer focus had become more positive after two years of policy implementation, they remain centred on the service process rather than the customers it serves. We discuss what still needs to be done to transform public healthcare from what is still a predominantly supplier and product-driven service to one that is truly relationship orientated.