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.     

Accruals and ‘accounting numbers management’ in UK executive agencies

Public sector reforms have implemented business techniques, including management by results, cost management and accrual accounting, to make public entities more efficient and accountable. As a consequence, ‘accounting numbers management’ has become a way for managers in the public sector to adapt accounting figures to their interests. This study focuses on ‘earnings management’ (manipulation of earnings) in government agencies. The authors provide evidence of earnings management in which agencies try to keep net operating costs to around zero. The authors' findings question the effectiveness of financial targets associated with accrual-based measures.     

Integrating Management Control and Human Resource Management in Public Health Care: Swedish Case Study Evidence

The debate on management reforms in the public health care sector has largely overlooked the role of human resource management (HRM) and its potential interaction with traditional management control (MC) mechanisms. This paper explores which factors associated with the integration between MC and HRM may foster organisational learning in a public health care setting. A case study in a public dental practice is used for examining this issue. Apart from highlighting the influence of various task characteristics, the case study suggests that the vertical as well as horizontal dimensions of integration are important to consider in this context. Implications for further research are discussed.     

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.     

New development: Integrating risk management in management control systems—lessons for public sector managers

Exploring multiple dimensions of management control systems (MCS), this article proposes a new framework to integrate risk management with strategy, MCS and performance measurement systems (PMS). Considering the public sector as a focal point, the article points to some enterprise risk management (ERM) issues and argues that ERM-enabled MCS has potential to improve PMS and strategic decision-making, leading to a more proactive risk management framework and a culture that promotes performance driven accountability. Consequently, the article calls for further research towards solving the public sector’s risk management problems, motivating its managers to adopt best practices, and stimulating suitable policy developments.     

Jurisdictional Competition Between Private and Public Sector Auditors:The Case of the Danish Certified Public Sector Auditor Qualification

Abstract: This paper explores the apparent paradox that while public sector auditors have become more powerful by claiming performance auditing expertise and linking this to New Public Management reforms, the same reforms have provided an opening for competition between private and public sector auditors. In Denmark, the competitive relation has led to a jurisdictional dispute between public and private sector auditors in which the former have developed a special qualification for public sector auditors. The paper analyses the development of this qualification using Abbott's (1988) theory of the system of professions, thus focusing on how the involved groups have attempted to build networks of support for their competing jurisdictional claims of expertise. The case contributes to knowledge about the potential for development of a distinct public sector auditor identity. The case suggests that to develop such an identity and gain professional recognition, public sector auditors need to convince parliaments, standard‐setting bodies and universities that a public sector auditing qualification serves as a solution to some of their problems, too.     

The Impact of New Zealand's Public Sector Accounting Reforms on Performance Control in Museums

Accounting by most New Zealand museums was subject to public sector reforms requiring private sector -style financial reporting, and service performance reporting. This study into the impact of the reforms on how museum managements pursue successful performance found museums adopting a more accounting-oriented approach to planning and evaluation. Service performance reporting has facilitated the periodic evaluation of non-financial targets by managements, but as currently constituted the reporting model is flawed, particularly in its implications for essential long-term resource capacity of museums. This threatens its effectiveness for promoting good performance. Non-accounting based professional practices also have a role in museum success.     

The Use and Abuse of Accounting in the Public Sector Financial Management Reform Program in Australia

Accrual accounting has been central to financial management reforms designed to promote greater efficiency, effectiveness and accountability in the Australian public sector. This is the setting for the article; however, the issues covered apply to all nations that have reformed their public sectors over recent years. The results of the reforms have been mixed. While accrual accounting has had some beneficial results for the above purposes, the benefits have been offset by aspects of accounting misuse resulting largely from adoption of the business model of accrual accounting, termination of the former cash accounting system, and adoption of some questionable marketization reforms which appear to be more driven by the objective of reducing the size of government rather than enhancing efficiency of operations. Because Treasury believed that the business model was not appropriate for budget fiscal policy purposes, it introduced a second combined accrual and cash accounting system—the Government Finance Statistics system. The use of two accrual accounting systems reporting different results caused much confusion in parliament.     

LINKING COMPREHENSIVE PERFORMANCE ASSESSMENT TO THE BALANCED SCORECARD: EVIDENCE FROM HERTFORDSHIRE COUNTY COUNCIL

Over the course of the last twenty years there has been a growing academic interest in performance management, particularly in respect of the evolution of new techniques and their resulting impact. One important theoretical development has been the emergence of multidimensional performance measurement models that are potentially applicable within the public sector. Empirically, academic researchers are increasingly supporting the use of such models as a way of improving public sector management and the effectiveness of service provision ( Mayston, 1985 ; Pollitt, 1986 ; Bates and Brignall, 1993 ; and Massey, 1999 ). This paper seeks to add to the literature by using both theoretical and empirical evidence to argue that CPA, the external inspection tool used by the Audit Commission to evaluate local authority performance management, is a version of the Balanced Scorecard which, when adapted for internal use, may have beneficial effects. After demonstrating the parallels between the CPA framework and Kaplan and Norton's public sector Balanced Scorecard (BSC), we use a case study of the BSC based performance management system in Hertfordshire County Council to demonstrate the empirical linkages between a local scorecard and CPA. We conclude that CPA is based upon the BSC and has the potential to serve as a springboard for the evolution of local authority performance management systems.     

"新公共管理"与完善我国税务机构的内部管理

"新公共管理"给西方税务机构改革带来的变化为我国加强税务机构内部管理提供了经验。借鉴发达和新兴工业化国家改善税务机构的内部管理的经验,完善我国税务机构的内部管理可从组织机构、人力资源管理机制和绩效评估机制三方面着手。     

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.     

IPSAS in Latin America: innovation,isomorphism or rhetoric?

ABSTRACT

Over the past 30 years, many initiatives have been undertaken to reform public administration in Latin American countries. Among other aspects, the reforms seek to improve the transparency and accountability of the public sector by modernizing public accounting and budgeting systems. The adoption of accrual accounting in the public sector has been seen as an innovation and it is driven by the implementation of IPSAS. This paper sheds light on the process of reform of public financial management in Latin America and the state of implementation of IPSAS. The paper analyses the driving forces for adopting or adapting IPSAS, as well as the obstacles and challenges in doing so.     

Accountability for performance in English and Scottish fire and rescue services from 2010 to 2016

ABSTRACT

Using evidence from English and Scottish fire and rescue services from 2010 to 2016, this paper shows how divergent performance management regimes can affect public accountability. Performance management regimes enable agencies and the public to hold public sector organizations accountable by facilitating evaluation of their accomplishments. However, local as opposed to central, control over performance management can have quite different implications for public accountability.     

Intended or Unintended Consequences? Resource Erosion in New Zealand's Government Departments

Internationally, a feature of public sector reforms over the last twenty years is the characterisation of negative effects as unintended consequences, yet the reform programme continues as before (Humphrey et al., 1993 and 1998). This article reports the findings from an investigation of ostensibly unintended consequences of New Zealand's public sector financial management system: resource erosion in government departments which both escapes parliamentary scrutiny and damages departments' capability to perform even core functions (State Services Commission, 1998a; and Controller and Auditor–General, 1999). The findings suggest that these effects might not be unintended. The system's structures and processes, including designed–in resource erosion processes and a surreptitious approach, are highly consistent with those advocated to facilitate privatisation.     

Talent management in government in times of economic instability: selected cases from the BRICS countries

This paper explores the policies that three BRICS countries used to tackle the growing problem of attracting and retaining talent in public sector institutions. The authors trace the changes in these countries’ strategies and approaches resulting from growing budgetary constraints; labour market shifts; new demographic trends; increasing demands for higher performance by public servants; and complex challenges faced by governments worldwide. Although talent management in public sector institutions was a government priority for the three countries—Brazil, China, and Russia—the results achieved have been modest. The authors draw lessons for other governments from their analysis.     

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.     

Audit Adjustments and Public Sector Audit Quality

In the context of austerity-inspired reforms to public audit in England we investigate the extent to which audit firms mitigate management bias in public sector financial reports. A substantial body of literature finds that both public and not-for-profit managers manage ‘earnings’ to report small surpluses close to zero by managing deficits upwards and surpluses downwards. Under agency theory, auditors acting in the interests of their principal(s) would tend to reverse this bias. We exploit privileged access to pre-audit financial statements in the setting of the English National Health Service (NHS) to investigate the impact of audit adjustments on the pre-audit financial statements of English NHS Foundation Trusts over the period 2010–2011 to 2014–2015. We find evidence that auditors act to reverse management bias in the case of Trusts with a pre-audit deficit, but find no evidence that this is the case for Trusts with a pre-audit surplus. In the case of Trusts in surplus, these findings are consistent with auditors’ interests being aligned with management, rather than principals.     

A Consulting Giant; a Disgruntled Client: A ‘Failed’ Attempt to Change Management Controls in a Public Sector Organisation

There has been very little research into management consulting interventions in public sector organisations, especially in emerging economies. This paper aims to fill this void by narrating the empirics of a consulting assignment carried out by a large international consulting firm in a Pakistani public sector organisation. The study found that consultants’ recommendations of ‘businesslike’ management controls, such as a modern performance measurement system and a ‘state‐of‐the‐art’ information system, were rejected outright by the client management. Employing a critical realist perspective that focuses on the structural conditions facing both the client and the consultants, and on the strategies adopted by both parties, the study aims to explain the empirics of the case. Through structural and strategic analysis, this paper aims to enhance our understanding of the dynamics of management consulting in public sector organisations, especially in emerging economies.     

Performance information use by politicians and public managers for internal control and external accountability purposes

Governance structures have changed fundamentally since the beginning of New Public Management inspired reforms. Particularly local public service delivery nowadays can be characterized as diversified and fragmented, leading to internal management and external accountability challenges for politicians as well as public managers. In this context the use of performance information is seen as a crucial element for effectively dealing with both issues. Nevertheless, empirical research considering different actors and contexts within one study is rare. The present paper fills this gap by applying a multi-theoretical perspective and testing hypotheses on the antecedents of performance information use by politicians and public managers for internal management as well as external accountability purposes in small- and medium sized local governments in Austria. The study results show that both groups use performance information to a greater extent within external accountability relationships than for internal management purposes. Results further illustrate that driving factors show similarities for both groups with reference to the latter mentioned purpose, while a more diverse picture is shown regarding factors impacting their use behavior toward citizens and supervisory authorities.     

Infrastructure assets disclosure in Australian public sector annual reports

Recent Australian public sector reforms have raised concerns about the disclosure of infrastructure asset information as a basis for improved accountability. This paper examines whether specific infrastructure asset information identified in relevant literature is disclosed in practice. A cross-sectional, content analysis of 1999 annual report disclosures made by 73 Australian public sector entities operating in economic infrastructure industries revealed a low level of, and considerable diversity in, disclosures, particularly relating to the physical condition of infrastructure assets, their maintenance and performance measurement. Such disclosure was found to be driven by government reporting guidelines rather than the use of corporate form.