Moving Beyond The Clash of Interests: On stewardship theory and the relationships between central government departments and public agencies

Abstract

This paper analyses the relationships between central government departments and agencies through the lens of stewardship theory. Stewardship theory has been developed as an alternative to agency theory and focuses on shared goals and norms. The paper first shows how current regulations are strongly imbedded in agency theory and then proceed to analyse, on the basis of a survey and focus groups, how the problems experienced by public managers generally point to the relevance of stewardship. On this basis and with input from sixty public managers, a stewardship model for the relationships between agencies and central governments is developed.     

The autonomy – control balance in Flemish arm's length public agencies

Abstract

This article aims at contributing to the study of arm's length agencies by focusing on what are considered to be core concepts of agencification: autonomy and control of public agencies. The balance between autonomy and control is studied for a set of Flemish public agencies, from three angles: (1) To what extent can we observe the practitioner model of disaggregation, managerial freedom and results based control in Flanders?; (2) Which autonomy-control balances do we find empirically? Departing from two extreme cases – control loss and false autonomy – I conclude that there is a lot of variation amongst Flemish public agencies as to their autonomy-control balances; and (3) Based on a third set of empirical conclusions, I try to broaden the normative discussion on the accountability debate that surrounds arm's length agencies, by proposing a broader concept of steering and control. I conclude the article by proposing four directions for future research on this specific topic of agency research.     

Searching for managerial discretion: how public managers engage managerialism as a rationalization for increased latitude of action

ABSTRACT

This article focuses on the managerial discretion that public managers experience. More specifically, it discusses how managerialism is an embedded ideological stance that influences understandings of public sector governance. I argue that managers’ perceptions of discretion are affected by these understandings. The analysis draws on empirical data from a longitudinal study, demonstrating how public managers engage discourses emanating from managerialism in order to rationalize increased discretion. The findings suggest that customer perspectives functions as a rationalizing factor for engaging public managers’ transition towards increased discretion. As such, this article contributes to knowledge about managerial discretion as well as managerialism.     

Designing institutional platforms and arenas for interactive political leadership

ABSTRACT

In response to the urgent need for elected politicians to lead processes of collaborative policy innovation, this paper brings together political leadership theory and theories of collaborative and participatory governance in order to make way for the concept of interactive political leadership. The theoretical framework shows how interactive political leadership relies on platforms and arenas that bring politicians and citizens together in informed dialogues that may contribute to collaborative policy innovation. An empirical case study of institutional reforms in a Danish municipality adds flesh and blood to the theoretical argument about how to enhance interactive political leadership.     

Do NPM-Type Reforms Lead to a Cultural Revolution Within Public Sector Organizations?

Abstract

Agencification and granting public sector organizations managerial autonomy in particular is believed to change organizational cultures, away from traditional compliance- and detail-oriented bureaucratic cultures and towards organizational cultures which are more oriented towards external customers. There is however very little empirical information on the relationship between managerial autonomy and organizational culture. Using a unique data set on public agencies in Flanders, we not only test how managerial autonomy affects the strength of a customer-oriented culture within public sectors but also examine whether this culture becomes dominant over traditional public administration culture. Analysis shows that managerial autonomy positively affects a customer-oriented culture; however, it does not make it a dominant culture.     

Steering From Ministers and Departments

Abstract

This article aims at contributing to the study of autonomous agencies by focusing on how they cope with steering from ministers and departments. Drawing from the trust literature, we look at how agencies co-operate with ministers and departments, in order to increase autonomy. A model is built to cluster several trust-building mechanisms and to link these to autonomy. We then apply this to a limited set of Flemish agencies. We conclude that agencies develop strategies to increase trust with the trustor. These strategies may be targeted either at the minister as a trustor or at the department as a competing trustee.     

Graduate Recruitment In the Australian Public Sector

ABSTRACT

Service orientation in the HRM system is a lever for public employees to serve the public even beyond their work roles. Our research seeks to understand how work engagement links service-oriented high-performance work systems (HPWSs) to public employees’ service-oriented behaviours. Employees and their managers from public legal service agencies in the Vietnamese context were recruited as participants in our research project. The research results demonstrated the role of employee work engagement in mediating the relationships between service-oriented HPWSs and service-oriented in-role performance as well as service-oriented organizational citizenship behaviour (OCB). The interactions were also found between service-oriented HPWSs and HRM system strength, as well as between service-oriented HPWSs and public service motivation in catalysing work engagement.     

Coping with functional collective action dilemma: functional fragmentation and administrative integration

ABSTRACT

Functional fragmentation among city departments has been a critical public administration problem in practice and theory. This paper investigates the political and administrative motivations for the reform from functionally fragmented water governance model towards an integrative agency design. Drawing on the Institutional Collective Action (ICA) framework and the literature on bureaucratic structures, we hypothesize that cities’ decisions for administrative reform are influenced by different types of transactions costs incurred in the negotiation process among local agencies. Empirical results of this study provide strong support for the transaction cost hypotheses on the roles of bargaining cost, enforcement cost, and information cost.     

Good Neighbours or Distant Friends?

Abstract

Agencification has extended and intensified the delegation problem. It has created new (administrative) principals, who are confronted with even more uncertainty as agents operate at arm's length. Trust is suggested as a new mode of governance. Based on the literature seven hypotheses are deduced on conditions that politicians can use to build trust: autonomy; contacts; policy involvement; and involvement in the design of monitoring devices. These hypotheses are tested using survey data on 219 Dutch executive agencies. Contrary to the expectations, executive agencies with low degrees of autonomy have a more trusting relationship with their parent ministry than agencies with high autonomy. Proximity and frequent interactions appear more important to trust than autonomy. Monitoring is not always perceived as a sign of distrust. These findings raise new questions on how principals can reduce the delegation problem and control executive agencies.     

Earnings Management Around Zero: A motivation to local politician signalling competence

Abstract

Literature earnings management aims to determine what causes/motivates managers to disclose earnings close to zero and to use this as an instrument to influence users' decisions. However, limited research has been carried out on this subject in the public sector. Therefore, the main purpose of this paper is to evaluate whether local politicians (in Portuguese municipalities), aiming to demonstrate their high level of competence and skills, engage in earnings management in such a way as to ensure that earnings are positive but close to zero. We examined whether political competition is a determining factor of earnings management close to zero and if managers use discretionary accruals in order to do this. Results indicate that, in order to report positive net earnings close to zero, discretionary accruals are used. This study identified the overriding tendency to avoid the reporting of losses in those municipalities where political competition is greatest.     

New Forms of Local Governance

Abstract

This article seeks to identify which factors lead local governments to use corporate public sector organizations, particularly municipal corporations, for service delivery. The authors argue that local officials trade off bureaucratic costs of in-house production with agency costs of external delegation to municipal corporations when deciding how to deliver local public services. Econometric models are employed to test this explanation for the adoption of municipal corporations by 278 Portuguese local governments. The results indicate that organizational size, financial independency and fiscal surplus, as well as ideological concerns and the activity of local interest groups, drive choices of local governance structures.     

Political Connections and Accounting Quality under High Expropriation Risk

Abstract

We examine the impact of political connections and accounting quality among Venezuelan industrial firms, which face one of the highest levels of expropriation risk worldwide. Based on prior literature, we expect a negative relationship between expropriation risk and accounting quality as firms manage earnings to avoid ‘benign’ state intervention. We find that politically connected firms have higher accounting quality than non-connected firms, which is consistent with connected firms’ lower risk of expropriation due to connections with high-level government officials or ruling party members. The relationship between accounting quality and political connections appears to be strongly moderated by institutional features like expropriation risk.     

Leadership for Collaboration

Abstract

‘Leadership’ and ‘collaboration’ are integral to twenty-first century governance and management but, despite a growing literature, understanding about leadership for collaboration is hampered by a lack of specificity and nuance in theory and empirical research. This article responds to these limitations by working within an interpretive framework and employing Q-method to uncover different interpretations of leadership for collaboration operant among public managers in Wales. The article uses the concept of situated agency to explain why public managers offer diverse interpretations of leadership for collaboration despite working within the same governance framework, and to identify challenges to public managers in determining appropriate leadership for collaboration.     

A daily diary study of work-life balance in managers: utilizing a daily process model

Abstract

We extend the literature in relation to daily diary and managers’ wellbeing by unravelling how daily work and family factors influence managers’ wellbeing the following day. Four days’ diary data were collected from 131 managers. Family–work conflict from one day positively influenced job burnout in the following day, while autonomy satisfaction from one-day reduced burnout the following day. Family–work enrichment from one day positively influenced work engagement in the following day, as did needs satisfaction (autonomy, competence, and relatedness) and perceived autonomous support. Furthermore, daily burnout reduced work–life balance and this was fully mediated by daily work–family conflict. In addition, daily engagement increased work–life balance and this was partially mediated by daily work–family enrichment.     

Distinctive research patterns on public sector performance measurement of public administration and accounting disciplines

Abstract

This article explores distinctive research patterns of public administration and accounting disciplines concerning public sector performance measurement (PSPM). Our review shows that accounting researchers from Europe investigate reasons for limited PM use and factors explaining a rational or symbolic PM use, inspired by organization theory and institutional theory and conducting case/field studies. Public administration researchers from Europe and the USA prefer to study PM design and PM impact respectively, mainly using surveys in combination with various theories, like political theory. Public administration research from the USA examines the types of performance indicators in PM systems and contingent factors for PM design. Public administration research from Europe shows an interest in evaluating public sector reforms like Best Value and explaining learning processes for improvement. We argue that PSPM research could benefit from interdisciplinary efforts and intensified mutual communication between public administration and accounting.     

Explaining the Reactions of Swiss Municipalities to The ‘Amalgamation Wave’: At the crossroad of institutional,economic and political pressures

Abstract

Public sector organizations are simultaneously subject to three types of environmental pressure: institutional, economic and political. How do these pressures influence the strategic behaviour of public organizations when confronted with efficiency-oriented reforms? We focus on the strategic behaviour of Swiss municipalities facing the amalgamation wave: a reform characterized by a strong economic rationale. Results confirm that the success of reforms depends not only on its matching with economic underpinnings. It is also necessary to take the political leadership and the responsibility of reform implementation.     

Institutional and negotiated order perspectives on cost allocations: The case of the Swedish university sector

Abstract

A growing number of studies of the issue of cost allocations based on different institutional theories have recently emerged in the management accounting literature. These provide an alternative to efficiency-centred explanations of the evolution of cost allocation practices and have increasingly drawn attention to the roles of competing interests, power, agency and politics in the more or less continuous (re-)construction of cost allocation rules. This paper extends this literature by combining an institutional perspective with insights gleaned from the negotiated order (NO) literature, using recent developments in the Swedish university sector as an empirical illustration. This draws attention to the role of negotiations in the political regulation of costing in a highly institutionalised environment. Adopting a comparative, embedded case study design we contrast three recent attempts to re-negotiate cost allocation rules with varying outcomes. It is concluded that the role of institutional factors as well as socio-political negotiations in framing the ambiguity associated with cost allocations is important in explaining why and how change in cost allocation rules is mobilised or diverted. Especially, the NO perspective enriches institutional explanations of the stabilising role of power in this respect by drawing attention to how power relationships and coalitions of interests are formed around the specific issues at stake. This leads to a more dynamic and less atomistic conceptualisation of power and agency than in much prior research on the institutionalisation of accounting.     

NOTES ON CONTRIBUTORS

Abstract

Within public administration and policy sciences the concept of policy networks nowadays is well accepted. Not much attention has been paid so far to strategies aimed at institutional design. Therefore, in this article, we develop a conceptual framework to study institutional design more thoroughly. We do this by specifying the nature and variety of institutional rules that guide the behaviour of actors within networks. Given this categorization of rules, we identify possible strategies to change network rules. Next, we focus on the strategic context of attempts to influence the nature of institutional rules: the process of institutional design. We conclude with suggestions to apply the conceptual framework to empirical research into the forms, impacts and implications of attempts to change the institutional features of policy networks.     

Protecting expatriates in hostile environments: institutional forces influencing the safety and security practices of internationally active organisations

Abstract

The operations of internationally active organisations continue to encroach on hostile locations that are vulnerable to the negative consequences of crises such as political upheaval, terrorist attacks or natural disasters. Yet research into how firms ensure the physical and psychological safety and security of international staff in these locations is limited. This article reports an empirical study exploring the expatriate safety and security practices of 28 internationally active organisations from three industries that commonly operate in hostile environments. We unveil starkly different approaches across the three industries, and label these approaches ‘regulatory’ (mining and resources), ‘informal mentoring’ (news media) and ‘empowering’ (international aid and development). We use institutional theory to propose that these configurations reflect legitimacy-seeking choices that these organisations make in response to the various institutional environments that affect each sector. Our results provide a platform for initial theory building into the interrelated elements of organisations’ safety and security practices, and the institutional factors that shape the design of these.     

The Role of Institutional and Economic Factors in the Strategic Use of Non-GAAP Disclosures to Beat Earnings Benchmarks

Abstract

We use hand-collected data for a sample of large European firms to investigate the influence of countries’ institutional and economic factors on managers’ non-generally accepted accounting principles (GAAP) disclosures. We find that managers are more likely to use non-GAAP measures to meet or beat earnings benchmarks that GAAP earnings would miss in countries with efficient law and enforcement, strong investor protection, developed financial markets, and good communication and dissemination of information. We also find that managers in countries with developed institutional and economic conditions are more likely to adjust non-GAAP earnings for recurring expenses such as R&D, depreciation, and stock-based compensation expenses. Our findings suggest that in environments in which there is more pressure to achieve earnings benchmarks and less opportunity to manipulate GAAP earnings, managers use more non-GAAP earnings disclosures to meet the benchmarks.