INSTITUTIONAL RESEARCH ON PERFORMANCE MEASUREMENT AND MANAGEMENT IN THE PUBLIC SECTOR ACCOUNTING LITERATURE: A REVIEW AND ASSESSMENT

This paper reviews the evolution of institutional research on performance measurement and management (PMM) in the public sector accounting literature. An assessment of the progress of this research programme is offered in light of some key developments in the broader neo-institutional sociology (NIS) literature, such as the growing recognition of the role of embedded agency, the need to bridge institutional and rational choice explanations of action and the extension of empirical research across different levels of institutional fields. Some progress has been made in this respect and has contributed to shift the emphasis from a one-sided focus on institutional effects  on  PMM, treating institutional pressures as largely exogenous, to recognize its more intricate roles as an outcome of, as well as a medium for, change. However, further research is required into the micro dynamics involved in transforming and reproducing PMM practices at different levels of analysis and how such practices become infused with meanings conditioned by higher-order institutional logics across various levels of institutional fields. Some research strategies for addressing these issues are outlined.     

Examining Management Accounting Change as Rules and Routines: The Effect of Rule Precision

This study examines change in management accounting practices as change in rules and routines. Informed by the institutional theory‐inspired framework of Burns and Scapens (2000) , the rules and routines relating to capital expenditure controls in a capital‐intensive organisation are analysed. We explain how preciseness of rules affects not only the coupling of rules to routines, but also the emergence of multiple routines, enhancing the understanding of how management accounting practices remain stable and/or change over time. These results extend and refine recent research relating to management accounting change and offer new empirical insights into practice.     

A strategy framework for performance measurement in the public sector

This paper looks at a little-studied question: what are the strategic choices behind the selection and implementation of performance measurement practices in public sector entities? The paper presents a new strategy framework which provides a structured approach to the many options available for measuring performance effectively. The framework is primarily intended for large public sector organizations, such as municipalities, but will also be useful in smaller entities.     

The societal relevance of management accounting: An introduction to the special issue

This essay introduces the special issue of Accounting and Business Research exploring the societal relevance of management accounting and locates the individual contributions within this research agenda. In contrast to prevailing, managerialist conceptions of relevance, the discussion is guided by an over-riding ambition to turn management accounting research “inside out” to examine the effects of management accounting practices on a broader range of constituencies and interests in society and the formation of such practices beyond individual organisations. I start by charting the development of extant and emerging debates on the relevance of management accounting research and practice and then outline some pertinent research themes worthy of further exploration. In doing so, I pay particular attention to emerging research illustrating how management accounting becomes implicated in the external regulation and governance of organisations, the shaping of markets and the wider, societal consequences of such processes. I also discuss some theoretical and methodological implications of exploring such topics.     

Testing the limits of structuration theory in accounting research

In 1985 I published a paper in Accounting Organizations and Society with Bob Scapens titled Accounting Systems and Systems of Accountability; understanding accounting practices in their organisational contexts. The paper suggested the potential usefulness of Anthony Giddens’ structuration theory for efforts to understand accounting in its organisational contexts. Rather than engage in a further review of the use of structuration theory in accounting, this paper sets out to test our original proposition as to the usefulness of Giddens ideas for accounting research. I explore three points of possible criticism in the paper. That structuration theory does not take the ‘agency’ of accounting sufficiently seriously; that Foucault and Lacan allow us to get much closer to the ways in which accounting information works back upon human subjects; and that Giddens and accounting share a lack of ethics.     

Transformative change towards sustainability: the interaction between organisational discourses and organisational practices

This paper adopts a case study approach to explore the complex process of organisational change towards greater social and environmental sustainability. The case study of a major global financial services organisation involved interviews and examination of company documents, and their website over the period 2000–2014. The rare longitudinal empirical evidence from different sources provides important insights to how companies are responding to increasing demands for sustainable development. Using Laughlin’s [1991. Environmental disturbances and organizational transitions and transformations: some alternative models. Organization Studies, 12 (2), 209–232] pathways of change model, the study investigates the interaction between organisational discourses (i.e. its interpretive schemes) and organisational practices (i.e. design archetypes). The findings demonstrate the centrality of organisational discourses, especially those relating to accounting calculative practices, to radical change towards sustainable development. The paper also contributes to the literature on institutional logics, particularly multiple institutional logics, and how these are implicated in change processes.     

Strategy,political regulation and management control in the public sector: Institutional and critical perspectives

This paper mobilizes institutional and critical theories in examining how evolving management control practices, inspired by the balanced scorecard, mediated the process of strategy formation in a Swedish central government agency. Particular attention is paid to how this process was conditioned by external, political regulation of the organization. Contrary to popular conceptions of strategy and strategic management as emerging alternatives to political regulation in the public sector, the study shows how the meaning of the notion of strategy became intricately intertwined with government regulation. Whilst this affirms the tendency of organizations to comply with institutional pressures exerted by dominant constituencies, the analysis also shows how the unfolding strategy discourse gradually narrowed the meaning of the notion of strategy permeating the organization. The extension of an institutional perspective to incorporate more critical insights highlights how this process fostered some “unintended” consequences with a detrimental impact on organizational practices aimed at achieving broader social objectives. In so doing, I draw attention to how the unobtrusive power of evolving strategy discourses conditions conceptions of organizational performance and relevant constituent interests. The implications for future management accounting research combining institutional and critical theories are discussed.     

Strategic Enterprise Management Systems: new directions for research

In a world obsessed with performance, many organisations welcome systems that claim to offer a structured solution to improving performance, such as Strategic Enterprise Management (SEM). But while much has been written about how to measure performance, little is known about the interaction between performance measurement and management (PMM) and the many ways in which organizations strive to improve their performance. This paper studies the interrelationships among SEM systems, PMM and organisational change programmes within Pettigrew’s “context, content, process” model. The problems of SEM design, implementation and use are explored using the insights of several theories, following the arguments of Hammersley [Handbook of Qualitative Research Methods, The British Psychological Society, 1996] that such an approach permits a richer understanding of management practice. Having also identified potential solutions for the design, implementation and use of SEM systems, we develop a number of research questions to be explored in future research.     

Goals versus institutions: the development of performance measurement in the Swedish university sector

This paper contrasts goal-directed and institutional approaches to the development of performance measurement (PM) in the Swedish university sector, which has been subject to increasing emphasis on management by objectives since the early 1990s. We adopt a macro perspective, focusing on recent changes in PM related to governmental control of universities and colleges and combine an extensive review of archival data with interviews in our empirical analysis. It is concluded that although the goal-directed model cannot be completely rejected as a heuristic informing recent changes in PM, a process-orientated institutional perspective considerably enriches the analysis by making it less static and more contextually informed. In particular, the latter perspective better explains the evolution of loose couplings between formally stated goals and performance indicators and between different systems for PM by directing attention to the complex interplay between conflicting constituent interests in the evolution of resource and cost allocation practices and quality control procedures. However, our empirical analysis also leads us to reconsider the conceptions of loose coupling as either a “given” feature of institutionalised organizations or an outcome of more pro-active resistance at the micro level prevailing in much earlier work in institutional theory.     

Perceived performance,equity sensitivity and organisational commitment among bank managers

This study looks at equity sensitivity and organisational commitment and considers the possible moderation role that managers’ perception of organisational performance may have. Using an equity theory perspective, the constructs of equity sensitivity and organisational commitment, as well as the effect of perceived firm performance, are considered. A research model linking their interaction is proposed. Data are collected from managers of a commercial bank and moderated regression is used to test the hypotheses. Results support a positive effect of equity sensitivity on organisational commitment whereas high or low perceived firm performance is found to have a determining effect on this relationship.     

Management Controls in Public–Private Partnerships: An Analytical Framework

Drawing on transaction cost economics and organisational theory, this paper proposes a framework to analyse management controls in Public–Private Partnerships (PPPs). The paper contributes to the related literature at a conceptual level by showing how three control archetypes, namely market, bureaucratic and clan, in conjunction with two control strategies, namely performance evaluation and trust‐based strategies, could be used by public partners to minimise relational and performance risk, thereby achieving value for money. Practitioners could also use the linkages identified in this paper to develop management control systems for PPPs.     

Beyond Self‐Evident: Recognising the Problematic Political Context of Accrual Accounting Adoption in South Korea

This paper responds to a recent call by researchers that we need to move beyond both advocacy of and technical arguments about the value of accrual accounting to more fully recognise the institutional forces, key change agents and the local political fields. We draw on elements of institutional theory and the practice theory of Pierre Bourdieu to explore the ‘problematic’ aspects of institutional forces, key organisational change agents and the local political field associated with the adoption of accrual accounting in the South Korean public sector. We found that accrual accounting was driven by many factors including a local financial scandal, the advocacy of a civil society group and the ambitions and the ideology of key actors. The contribution of this paper is that it shows how the practices of accounting cannot be separated from their political and personal context.     

Accountability and Transparency in English Local Government: Moving from ‘Matching Parts’ to ‘Awkward Couple’?

Although excessive transparency and accountability demands can have a counterproductive effect on organisational performance (Bovens, 2005), longstanding hierarchical accountability structures to ensure financial conformance in English local government continue to endure. Interestingly however, the previously top‐down regime for performance accountability in English local government has been replaced by bottom‐up mechanisms such as greater transparency and a more open market for public services. Using the framework developed by Hood (2010), this paper will show how such reforms mean that transparency and accountability are moving from being ‘matching parts’ to an ‘awkward couple’, and how this has significant implications for public services.     

Understanding management accounting practices: A personal journey

This paper reviews the changes which have taken place in management accounting research over the last 35 years. It traces the author's personal journey as a management accounting researcher and emphasises the shift which has taken place in what it means to understand management accounting practices. It argues that to make sense of diversity in management accounting practices we need to understand the complex mish-mash of inter-related influences which shape practices in individual organisations. It outlines the contribution which institutional theories can make to understanding this mish-mash of complexity. In particular, it reviews the achievements of the Burns and Scapens framework (2000) for studying management accounting change and describes some of its limitations and extensions; viz., the interplay of internal and external institutions; the importance of trust in accountants; the impact of circuits of power; and the need to study the role of agency in institutional change. It concludes that research in recent years has provided a much clearer understanding of the processes which shape management accounting practices; but the challenge for the future is to use this theoretically informed understanding to provide relevant and useful insights for management accounting practitioners.     

The association of identifiable intangible assets acquired and recognised in business acquisitions with postacquisition firm performance

This paper extends the literature evaluating accounting practices for identifiable intangible assets and considers whether the application of these accounting practices changed on transition to IFRS. It finds no evidence of identifiable intangible assets acquired and recognised in business acquisitions being associated with postacquisition firm performance or changes in postacquisition firm performance, either before or after transition to IFRS. This is inconsistent with the requirements of regulations such as IFRS 3 Business Combinations and IAS 38 Intangible Assets, and there is no empirical evidence supporting the present regulatory distinction between acquired and internally generated and revalued identifiable intangible assets.     

Making Sense of Social Practice: Theoretical Pluralism in Public Sector Accounting Research

Abstract: This paper explores the use of theory in public sector accounting research. The aim of this paper is to offer a critical review of the various approaches adopted and a way forward for researchers in this area. The paper also explores the debate between theoretical purity and theoretical pluralism. It presents an analysis of the different theoretical approaches used over the last sixteen years in public sector accounting research. While around a third of the papers did not adopt an explicit theoretical framework, nearly half of the papers did. The two most popular theoretical approaches were neo‐institutional and economic theory. Theoretical insights have been drawn from organisational and political theory while sociological approaches from Habermas, Foucault, Latour, Giddens and Bourdieu are all evident. In conclusion many of the papers blend theoretical insights from different authors in an attempt to better make sense of the complexity of public sector activity and support an argument for theoretical pluralism.     

Organisational control as cultural practice—A shop floor ethnography of a Sheffield steel mill

Field studies of management control and accounting have tended to study organisational meaning through practices. We identify three strands of practice research on organisational control (viz., governmentality, actor network theory, and accountability) and propose a forth: cultural practice. The study of control as cultural practice is grounded in observation because it conceives of cultural knowledge as practical and largely extra-linguistic. It conceptualises organisational control as an effect of the actions and ideas of organisational members beyond the ranks of management, thus widening the field of empirical inquiry. It also makes studies of steady state organisations more attractive thereby opening the possibility that the assemblages of people, purposes, and technologies, which give rise to specific forms of organisational control, may be understood as less ephemeral than, particularly, studies of governmentality and actor network theory have suggested. Our ethnography of a steel mill in Sheffield is based on 11 months of participant observation on the shop floors of the hot and cold departments. We argue that the subcultures of different shop floors were constituted in practices of control which enabled organisational members to pursue diverse objectives that were related to their various wider cultural aspirations. Organisational control practices relied on diverse accountings and accounts of organisational actions and purposes. Whilst we found considerable diversity between subcultures, we also found that individual subcultures, and the tensions and contradictions within them, exhibited much continuity. The ability of studies of organisational subcultures to bring out the diversity as well as continuity of practices holds considerable potential for our understanding of organisational control.     

The validity of management accounting language games – A pragmatic constructive perspective

To support the development of a pragmatic practice-based theory for management accounting, practice theory offers valuable avenues for understanding the development, role, and effects of tools and techniques used by practitioners. Scholars have identified communication as a critical dimension for analysis, as discourse can govern the production of knowledge and power structures. However, previous research has mainly focused on the role of actors within static environments; how actors justify their actions and goals, compared with other actors; and how they are aligned with or justify new practices relative to existing practices. The pragmatic constructivist framework that underpins this special issue builds on this research but recognises that previous research has paid little attention to how people—when interacting within a dynamic environment—develop and create new types of constructive causality. Importantly, the necessary conditions for people's actions to construct what they intend to remain largely unexplored. Pragmatic constructivism is founded on the recognition that any theory of management accounting must include conceptual devices representing the notion of success, as well as techniques for evaluating the truth aptness of local practices of reality construction, such as those represented by managemen accounting. This special issue aims to theoretically and empirically explore the potential in management accounting for the measurement and governance of constructed causality. The central topic is the role of management accounting in supporting individual and collective actors to effectively construct causal chains that make organisations work. The three articles in this special issue adopt different approaches to combining the pragmatic constructivist framework with additional theoretical frameworks, as well as using different research methodologies. The papers' findings point to the importance of co-authorship in the creation of functioning organisational practices, and suggest that this might be threatened by information technology. Co-authorship involves language games in the form of dialogical interaction between the accountants and other involved actors. This process develops a shared understanding anchored in a fusion of conceptual models that is tied to individual collaborators' local practice.     

Choice and change of measures in performance measurement models

This paper uses management control, resource-based, systems-based and contingency-based strategy theories to describe a large U.S. manufacturing company's efforts to improve profitability by designing and using a performance measurement model (PMM). This PMM includes multiple performance measures relevant to its distribution channel for products, repair parts and maintenance services. The PMM is intended to reflect the company's understanding of performance relations among strategic resources, operational capabilities, and desired financial outcomes. The PMM also reflects its intended distribution strategy, the types of performance necessary to achieve that strategy by its distributors, and its desired financial outcomes. Furthermore, the company uses the model to evaluate its North American distributors and intends to use these evaluations as a partial basis for annual and long-term rewards. Thus, the PMM embodies the measurable portion of the firm's management control system of its distribution channel.The study addresses four research questions: (1) Are measure attributes important considerations for performance measure choice? (2) Does the importance of attributes differ according to firm strategy? (3) Does the importance of attributes for design and use differ according to firm strategy? (4) Does a company trade-off some individual attributes for others? The questions are investigated using qualitative and quantitative analyses of archival documents and interviews with top managers and distributors. Principal findings are that measure attributes are important considerations for choice and change of performance measures, design attributes are more important than use attributes, the importance of attributes does not appear to differ according to strategy, and some individual attributes are traded-off for other attributes.     

New development: Managing and accounting for sustainable development across generations in public services—and call for papers

Social and environmental justice across generations is a fundamental attribute of sustainable development. In this article, which is also a call for papers for a future theme in Public Money & Management (PMM), we develop our case for further research on how governments and public service organizations seek to address sustainable development in their decision-making processes. We believe that accounting for social and environmental aspects is an underdeveloped area of research and practice that is worthy of further critical enquiry. We therefore call on researchers and practitioners to submit their research to a themed issue of PMM on managing and accounting for sustainable development in public services.