Accountability as a mechanism and a virtue in Irish public sector recordkeeping

Abstract

Purpose Although legislation and regulations form an important foundation for recordkeeping and for accountability, questions of transparency and openness must be addressed in a wider context. Oliver and Foscarini have argued for the importance of recognising differing cultures and the ways in which they value records and recordkeeping. In addition to reporting mechanisms and relationships, accountability must encompass a culture and a mindset which is transparent, responsive and focused on self-improvement. This paper aims to apply a dual interpretation of accountability in the context of Irish public sector recordkeeping to identify shortcomings and suggest potential remedies with a view to improving the accountability of Irish recordkeeping itself, and the extent to which it contributes to wider accountability in society. Design/methodology/approach This paper assesses accountability in Irish public sector recordkeeping using a model suggested by Mark Bovens, which views accountability as both a mechanism and a virtue. The model emphasises that both interpretations are necessary but that mechanisms (laws, regulations and checklists) on their own cannot be sufficient to satisfy accountability requirements. As noted by Onora O’Neill, the aim of accountability should not be checklists or artificial metrics, but the nurturing of behaviours and cultures which make public institutions more deserving of our trust. Reference will be made to Irish legislation, to records management policies in government departments, to relevant annual reports and to current practice with regard to appraisal and other recordkeeping functions to measure Irish public sector recordkeeping against Bovens' model. Findings This paper suggests that Irish public sector recordkeeping has a range of shortcomings under both the narrow (mechanism) and broad (virtue) interpretations of accountability. Lack of reporting requirements and oversight mechanisms in existing legislation allows for major gaps in public sector recordkeeping, facilitating a lack of accountability in the citizen–state relationship. Meanwhile, an absence of records management policies and an overall lack of appreciation of the value of records leads to opaque practices and a lack of transparency. The recordkeeping profession itself adopts processes and practices, which are not aligned with the concept of accountability as a virtue, and which do not reflect a commitment to transparency and meeting the legitimate interests of stakeholders. This paper suggests changes in relevant legislation but also suggests that these must be accompanied by a more open and responsive working culture within the recordkeeping profession. Originality/value By applying Bovens’ dual concept of accountability, this paper provides a new and more comprehensive assessment of public sector recordkeeping in Ireland, which can equally be applied in other contexts. It identifies ways in which revised legislation can contribute to greater accountability, but emphasises that regulations must be accompanied by a culture of transparency and responsiveness, and that recordkeepers have a crucial role to play in terms of their own commitment to transparency and professional accountability.