New Public Management and Citizens' Perceptions of Local Service Efficiency,Responsiveness, Equity and Effectiveness

Abstract

We examine the relationship between a range of new public management (NPM) practices and citizens' perceptions of service efficiency, responsiveness, equity and effectiveness in English local governments. We find that public–private relationships have a negative relationship with citizens' perceptions of all four dimensions of local service performance, but an entrepreneurial strategic orientation exhibits a positive association with all four. Performance management is also likely to positively influence rather than negatively influencing citizens' perceptions of local public services. Further analysis revealed that the impact of NPM practices varies according to the level of socio-economic disadvantage confronted by local governments.     

Planning and performance in public organizations An empirical analysis

The impact of planning on organizational performance in the public sector has been widely debated but has never previously been tested empirically. We develop a statistical model of planning effects that contains five explanatory variables: the extent of organizational analysis, the extent of environmental scanning, the number of precise performance targets, the existence of formal action plans for service improvement and the attitudes of staff involved in the planning process. This model is applied to data obtained from seventy services in Welsh local government. The statistical evidence shows that organizational performance is positively related to favourable attitudes towards planning processes, but negatively related to the number of targets that are set. On balance, the results are consistent with a small positive effect of planning on the performance of public organizations.     

Gendering and Gender in Public Service Organizations: Changing Professional Identities Under New Public Management

This article examines the enactment of new public management (NPM) in public service professional organizations, the nature of professional/managerial subjectivities promoted within the NPM discourse, and the implications for male and female professionals/managers. The article has two aims. First, taking a gender ing organization perspective, it explores the gendered meanings of NPM and the promotion of new professional/managerial subjectivities. Second, focusing on gender in organizations, the article then considers the implications of the enactment of NPM for male and female professionals/managers. The article illustrates the complex, manifold and fluid nature of both the meanings ascribed to NPM and individual responses. It is argued that a gender lens offers a more nuanced and sophisticated understanding of NPM enactment and the implications of this for public service professionals/managers are considered.     

Clash of public administration paradigms in delegation of education and elderly care services in a post-socialist state (Poland)*

The aim of this article is to analyse the clash of concurrent perspectives (Public Administration (PA), New Public Management (NPM) and New Public Governance (NPG)) in the area of delegating public services by local governments to non-governmental organizations (NGOs) in education and the elderly care sector in Poland. The article is based on 22 case studies of service delegation throughout Poland, carried out at the University of Warsaw in 2013 as part of an Innovative Project within the framework of the EC Human Capital Programme.     

The new public management and the UK Police Service

This article explores the impact of the introduction of the New Public Management (NPM) within the UK Police Service since the mid-1990s. A specific focus upon individual performance management (one of the central features of NPM) is examined from the perspective of the police sergeant who has primary responsibility for managing performance and ultimately the delivery of policing services within one of the UK's ‘essential’ public services. After a discussion of the literature on individual performance management within the context of the NPM, the article identifies four major research questions relating to: the job role demands of performance management; access to valid and reliable performance management information; the capacity to provide follow-up development and support; and the wider integration of performance management with organization strategy and service objectives. After reporting on interview data collected from role sets in which the sergeant is a focal member, the article concludes with a discussion of the constraints upon effective performance management within the NPM.     

Implementing the third way

This article examines the transfer of NPM strategies by comparing Service Charter initiatives in the United Kingdom, United States and Australia. These three countries, together with Canada and New Zealand,are partofwhathas beendescribedas the ‘core’ new public management (NPM) policy community (Common 1998). Service Charters are an NPM strategy intended to change the culture of public service delivery to focus on the needs of the users, identified as ‘clients’ or ‘customers’. The objectives are to make service providers more responsive to users by guaranteeing specific standards for service delivery, providing a substitute for competition and a benchmark for measuring service quality. The first section examines the historical and political context of the development of the Citizen's Charter and Service First programmes in the UK, customer service plans in the USA and Government Service Charters in Australia. The second section explores the similarities and differences between these charter initiatives based on analysis of public documents. There is evidence of convergence at the ideological level as managerial values underpin the service charter frameworks in all three jurisdictions (Walsh 1994; Pollitt 1995; Kettl 1997). Despite drawing from a similar toolkit influenced by private sector techniques, significant differences between the country contextshaveresultedindivergent strategies. Timing in the three countries examined suggests that national politics rather than global policy convergence is more significant in explaining the development of service charters. This case study provides evidence of policy transfer rather than policy convergence (Common 1998). The final section considers the limitations of the customer service model. Monitoring quality iscentral to theprogrammes in all three countries. Performance monitoring is essentially a quantitative methodology that requires criteria and indicators for measuring the quality of service delivery and programme outcomes. Two problems are considered. The first is the difficulty of specifying and measuring service quality. The second is that quality indicators derived from services marketing and management research do not take into account the characteristics of public services.     

On exploiting scale economies

Indivisibilities give rise to scale economies in the provision of many local public services. Exploitation of these scale economies often requires that the activities of several communities be coordinated. In this study we analyze the game analog to a simple waste collection system in order to determine the requirements for the design of a financing system that will sustain optimal participation in a regional service system plan. We find that market based pricing in the face of scale economies created by indivisibilities will generally not support an optimal partition of communities into service districts. We also find that characterization of the game structure of local public service delivery systems is feasible and provides information for designing appropriate cost-sharing arrangements.     

Tensions in local government employment relationships

Abstract

A wide variety of initiatives characterized under the umbrella term of new public management have been introduced over the past two decades to improve efficiency and cost-effectiveness in the public sector. The implications of these initiatives for public sector employment relationships have been the subject of on-going debate. This article contributes to this debate through examining how employees within local authorities are managed in a time of personal crisis with a particular focus on long-term sickness absence in the context of increased management drives for efficiency under the NPM agenda. The findings reveal that for managers in two local authorities that form the focus of this study there is a tension in struggling to achieve a workable balance between the needs of employees and wider operational requirements, resulting in role ambiguity for line managers and detrimental effects for vulnerable public service workers.     

Ethical Climate and Accountability in Nonprofit Organizations

The Best Value regime, which is being introduced in the UK from April 2000, is rooted in the ‘new public management’ paradigm but also seeks to move beyond it. Like compulsory competitive tendering (CCT) which preceded it, the Best Value framework stresses the role of markets and performance management systems in the provision of public services. However, it appears to offer more scope for local flexibility, and has therefore enjoyed a much higher level of support among local policy makers.

There is though evidence that many in local government have not yet grasped the scale of the improvements in local services that ministers are expecting, and the extent to which this will require changes in existing structures and processes. The result is likely to be an increasingly differentiated pattern of service provision and, in an era of ‘evidence policy making’, researchers are likely to be called upon to develop methodologies which allow evaluation of the alternative models of service provision that begin to emerge.     

The interaction between public and private governments: An empirical analysis

Private governments, found in planned developments and condominiums, are increasingly common methods of delivering local services to residents. This paper provides the first empirical study of their impact on local public finance. A novel data set of homeowners' associations allows construction of a panel of private governments in California. Panel methods test whether public expenditures respond to private government prevalence. Estimates indicate that local governments lower spending moderately in response to private government activity, consistent with strategic substitution. The paper then examines various mechanisms to explain this downloading and shows that the substitutability between public and private providers is key to which services are downloaded. Evidence also suggests that the economies of scale in service production in small cities temper the offloading of public services to private governments.     

Identifying barriers to the application of standardized performance indicators in local government

Abstract

Local governments in many countries are implementing administrative reforms within the framework of New Public Management (NPM) in order to improve the quality and productivity of public services. The use of performance indicators and benchmarking facilitates evaluation of efficiency regarding the provision of such services and favours the acquisition of better practices. The problems that may arise in the introduction of performance indicators in local government mainly concern the consensual design and standardization of indicators for various entities, the method to be used for calculations and the selection of analytical criteria to be applied to the values obtained. In this article, we identify obstacles that may be encountered in achieving a standardized definition of performance indicators within local government and, on the basis of learning from the practical experience of several large city councils in Spain, formulate strategies to resolve these problems, taking note of the viability and real efficacy of the solutions adopted.     

Collaborative cost-cutting: productive efficiency as an interdependency between public organizations

Collaboration between public sector organizations is typically understood as a response to complexity. Agencies collaborate in order to address complex, cross-cutting policy needs that cannot be met individually. However, when organizational size is a constraining factor in public service efficiency, collaboration can also reduce costs by capturing scale economies unavailable to organizations of sub-optimal size. Using organization theory, the article conceptualizes these two different triggers for public sector collaboration, and builds a framework for tracing their wider impact upon the formation, operation, and outcome of inter-agency partnerships. The framework is illustrated, and its implications for future research are explored.     

Supply and demand of policy indicators

The aim of this article is to question the idea that all professional service organizations are undergoing a process of inter-archetype transformation. This idea, originating in organizational archetype theory, is now being used to interpret contemporary processes of change in British and other public sector services. Drawing on an example of management UK restructuring in social services during the 1990s – that of local authority social services in the UK – two main problems with this thesis are identified. First, this service demonstrates that ‘radical’ change has not occurred and that older professional values and working practices persist. Second, it reveals how, in at least one part of the public sector in the UK, management reforms have been partly undermined by a specific constellation of institutions and practices. These observations call for questioning the proposition that inter-archetype change is what has occurred and that current reforms will inevitably have this sort of transformational effect.     

文化馆体系公共文化服务新探索

文化馆是公共文化服务的核心部分,在公共文化服务体系中起着主导的作用。公共文化服务体系是目前社会主义市场经济所需要的一个体系,这个体系为了能够适应目前社会主义市场经济需要建立一个现代的、科学的公共文化服务体系。建立这样一个体系能够从基本设施与运营上构建起一个结构合理、发展平衡、资源共享、网络健全、运行高效、服务优质的公共文化服务体系。     

Efficiency in Third Sector Partnerships for Delivering Local Government Services: The role of economies of scale,scope and learning

Abstract

Third sector partnerships are under pressure to change in the light of the increasing cost pressures on local public services. The literature throws doubt on the level of economies of scale and suggests that more attention should be given to economies of scope and learning. The common conflation of economies of size with economies of scale has led policymakers to overemphasize larger scale providers and has distorted the strategies which third sector organizations have adopted, pushing them towards mergers and consortia based on scale.     

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.     

Public and Private Management: What’s the Difference?

Critics of New Public Management argue that differences between public and private organizations are so great that business practices should not be transferred to the public sector. In this paper the theoretical arguments on the differences between private firms and public agencies are reviewed, and 13 hypotheses are identified on the impact of publicness on organizational environments, goals, structures and managerial values. Evidence from 34 empirical studies of differences between public agencies and private firms is critically evaluated. Only three of the publicness hypotheses are supported by a majority of the empirical studies: public organizations are more bureaucratic, and public managers are less materialistic and have weaker organizational commitment than their private sector counterparts. However, most of the statistical evidence is derived from studies that use narrow measures of publicness and fail to control for other relevant explanatory variables. Whether the existing evidence understates or overstates the distinctiveness of public agencies is therefore unclear. A research agenda and methods are identified for better comparisons of management in public and private organizations.     

The relational structure of human services planning: an input-output analysis.

The relationship between human needs and human services can be quantified in terms of service standards and service units. A service standard is defined as the adopted norm for the minimum number of service units per person. The relationship between need, service (or care) and service standard is similar to the relationship between demand, supply and price in economics. Of particular interest in planning is the case where service units are given in terms of service providers per person. In a population where each person is considered to be a receiver of n categories of service and a provider of one category of service, the relationship between needs and services can further be presented in a service standard matrix. Examination of such a matrix shows that it fulfills a function analogous to the input-output matrix in economics. The principal eigen-vector of the ser-vice standard matrix expresses ratios of activity levels for a human service system in an equilibrium. Another, related equilibrium is identified for a human service system in which there are providers as well as nonproviders. Application of the two equilibria identifies optimum planning conditions for the provision of human services when service standards and population are known.     

Innovation-Oriented Culture in the Public Sector: Do managerial autonomy and result control lead to innovation?

This article examines the effect of specific new public management (NPM)-related characteristics to explain innovation-oriented culture within public sector organizations. According to NPM doctrines, an enhanced managerial autonomy combined with result control will stimulate a more innovation-oriented culture in such organizations. Using multi-country survey data of over 200 public sector agencies, we test for the influence of organizational autonomy, result control and their interactions, on innovation-oriented culture. High levels of managerial autonomy and result control have independent and positive effects. However, the interaction between high personnel management autonomy and high result control has a negative effect.     

Robbing Peter to pay Paul: Feedback environments and enacted priorities in response to competing task demands

In this article, we present a model of how the feedback that surrounds performers as they do their work affects their attention and effort allocation in multiple goal situations. Differences in the frequency, specificity, and source of feedback for the multiple goals that performers hold are posited to affect attention and effort allocations. By differentially allocating their efforts in response to the feedback environment, performers often enact priorities that may or may not match the assigned priorities of the organization. These attention and effort allocations are posited to affect relative performance on the goals performers hold (or are assigned). Practical implications for performance management in organizations are addressed.