post-NPM Reforms Research Articles

Private Contractors as a Source for Organizational Learning: Evidence from Scandinavian Municipalities

The widespread use of government contracting opens up learning opportunities in public organizations’ engagements with private contractors. However, whether public organizations utilize these opportunities to improve their practices has scant coverage in the government contracting literature. We adapt insights from the organizational learning literature, develop an argument on the learning logic in government contracting, and examine manager perceptions of learning outcomes and whether intra- and inter-organizational and contextual conditions shape the learning outcomes. The argument is assessed against survey data reporting on the municipal park and road managers’ contracting experiences in Scandinavia. The findings show that government contracting in the context of the study is associated with positive learning outcomes and indicates possible tradeoffs between conventional cost-driven and learning strategies. The implications contribute to discussions about the role and benefits of government contracting beyond cost savings in the post-NPM reform era.

Being bound and tied by the ropes of frugality: a case study on public management values and service integration

New Public Management (NPM) has increased fragmentation in municipal health and social care organizations. In response, post-NPM reforms aim to enhance integration through service integration. Integration of municipal services is important for people with complex health and social challenges, such as concurrent substance abuse and mental health problems. This article explores the conditions for service integration in municipal health and social services by studying how public management values influence organizational and financial structures and professional practices. This is a case study with three Norwegian municipalities as case organizations. The study draws on observations of interprofessional and interagency meetings and in-depth interviews with professionals and managers. The empirical field is municipal services for people with concurrent substance abuse and mental health challenges. The data were analyzed both inductively and deductively. The study reveals that opportunities to assess, allocate and deliver integrated services were limited due to organizational and financial structures as the most important aim was to meet the financial goals. The authors also find that economic and frugal values in NPM doctrines impede service integration. Municipalities with integrative values in organizational and financial structures and in professional approaches have greater opportunities to succeed in integrating services. Applying a public management value perspective, this study finds that the values on which organizational and financial structures and professional practices are based are decisive in enabling and constraining service integration.

Responsive professionalism in post-NPM reforms: the case of the Swedish police

ABSTRACT This article investigates responsive professionalism in local collaboration across organizational boundaries, introduced by public reforms as a means to address the downsides of new public management (NPM) and to foster professionalism ‘closer to the citizens’. The case in point is the Swedish police reform, and the empirical material comprises 39 semi-structured interviews with police officers. Drawing on the work of Noordegraaf (2020. “Protective or Connective Professionalism? How Connected Professionals Can (Still) Act as Autonomous and Authoritative Experts.” Journal of Professions and Organization 7: 205–223. doi:10.1093/jpo/joaa011) and Anteby et al. (2016. “Three Lenses on Occupations and Professions in Organizations: Becoming, Doing, and Relating.” Academy of Management Annals 10 (1): 183–244), indicating that occupations today earn recognition for their professionalism within wider networks of other occupations, this study examines police officers’ occupational awareness of how to maintain responsive professionalism during local collaboration. Findings illustrate how police officers conceive of themselves as moderators, orchestrators, and mediators guided by occupational awareness of different organizational strains and of demands for responsive professionalism. The Swedish police reform was found to promote officers’ independent engagement in formalized or ‘abstract’ modes of professionalism that, nevertheless, continue to be responsive to local demands.

When the organization is a problem: an empirical study of social work with substance use problems in more or less NPM-influenced Swedish municipalities

ABSTRACT New Public Management (NPM) has added new aspects to the conflict between political-bureaucratic steering and professional autonomy in the search for a substance use treatment system (SUT) that is economic and characterized by high quality, accessibility, and professional discretion. This article analyses if and how organizational aspects of NPM imply additional challenges for professionals and SUT. The experiences of 29 social workers, in different positions in the services and administration of SUT, in six municipalities with different degrees of NPM and post-NPM, form the empirical data. Many quality problems were common across municipalities: frequent unevaluated reforms, lack of resources for SUT, and cooperation issues. Several problems were especially pronounced in statutory social work. NPM added challenges. Competition with private providers was viewed as initially (in the 1990s) having improved treatment, but the present market was regarded as creating quality problems without savings. Cooperation between providers was a special quality challenge in NPM municipalities, and NPM added to treatment continuity challenges. While accessibility for resourceful clients was linked to NPM models, treatment for less resourced users was obstructed by NPM. Workplace climate and trust issues were more problematic in the most NPM-permeated municipalities. Professional discretion was difficult to link to local NPM degree. Increased standardization and documentation were often accepted as improving quality. While a system based on competition ideology appeared destructive for treatment quality, post-NPM reforms with cooperation between needs-assessment, treatment, and economic support, conformed better with professionals’ perceptions of good treatment.

Science policy meets post-New Public Management: Estonian and Finnish reforms 2012–2015

ABSTRACT The study compares recent Estonian and Finnish research steering reforms. Both cases exhibit post- New Public Management (post-NPM)-style policy ideas that seek to enhance coordination over institutional boundaries but diverge in their horizontal and vertical configurations for coordination. This study combines perspectives on coordination from science policy and public administration with a historical institutionalist approach for understanding case divergence. This article argues that post-NPM reforms can involve rather diverse forms of coordination, which are affected by institutional legacies. We also argue that coordination efforts in science policy can involve a strengthened instrumentalization of research for policy-making, and, in such cases, they should be studied in close conjunction with public administration and its policy trends.

Ambiguous hybridity? Main features of China's service-oriented government reform

PurposeCompared with the worldwide reform trend of transcending new public management (NPM) during the past two decades, China's service-oriented government (SOG) reforms are a relatively different reform approach. After building an SOG was politically identified in 2004, China launched three rounds of SOG reforms in 2008, 2013 and 2018. The purpose of this article is to examine what is meant by China's SOG approach and analyze the reasons behind its emergence. In particular, it explores how this approach might be interpreted in NPM, and particularly post-NPM terms.Design/methodology/approachThe main theoretical basis of the paper is three theoretical perspectives from organizational theory – the instrumental, cultural and myth perspectives, but more specifically, the concepts complexity and hybridity. The empirical examples are selected from the SOG reforms of 2008, 2013 and 2018. The data used are a combination of public documents and scholarly secondary literature.FindingsThis paper discusses the SOG approach in China as a response to the negative effects of NPM-related reforms and informed by the western post-NPM reforms. It contends that China's SOG is a complex and hybrid approach in which NPM and post-NPM elements coexist and their balance is different from the west.Originality/valueFew authors have considered China's SOG approach in NPM and post-NPM terms. This paper contributes not only to a wider understanding of the ongoing SOG reform process in China, but also to the understanding of the relevance of public administration theories in a comparative perspective.

All roads lead to Rome? The contingency factors of institutional integration: a comparative case study on environmental institutional reform in Guangdong, China

As a reaction to structural fragmentation under New Public Management, many countries embarked on post-NPM reforms, such as merging public organizations. In China one such reform is the Super-Department Reform (SDR), launched in 2008. There are different ways to integrate public organizations following structural changes. In this study of two mergers of environmental agencies in the Chinese province of Guangdong, the focus is on the structural, cultural and symbolic features that affected the integration process. Our qualitative analyses reveal that Shunde Bureau of Environmental Transport and City Administration (SBETCA) is considered to have been more successful in integrating agencies and functions than Shenzhen Habitat Environment Committee (SHEC). Contingency factors, such as formal functional integration, leaders’ attention and participation, and leaders’ ability to influence cultural congruency, greatly influenced the success of the integration process. Symbols and media coverage also played a role.

Exploiting conditionality: EU and international actors and post-NPM reform in Ireland

Between 2008 and 2015, Ireland undertook unprecedented and systemic public sector reforms in a polity not traditionally considered a prominent reformer. While some of these reforms comprised part of the loan programme agreement with EU and international actors, many others did not. This article argues that the crisis in Ireland provided a window of opportunity to introduce reforms that political and administrative elites had previously found difficult to implement. The authority of the Troika was invoked to provide legitimacy for controversial initiatives, yet some of the reforms went further than the loan programme strictly required. A number of these concerning organisational rationalisation, the public service ‘bargain’ and transversal policy coordination are considered here. Agreements were negotiated with public sector unions that facilitated sharp cuts in pay and conditions, reducing the potential for opposition to change. The reform effort was further legitimated by the reformers’ post-New Public Management, whole-of-government discourse, which situated considerations of effectiveness and efficiency in a broader framework of public service quality and delivery.

Educational reforms and marketization in Norway – A challenge to the tradition of the social democratic, inclusive school?

A social democratic, egalitarian public sector and a corporatist political economy have been strong, distinctive and enduring characteristics of Norwegian education. However, this article demonstrates that the education sector has experienced a period of rapid and extensive implementation of New Public Management (NPM) reforms and post-NPM reforms the past 15 years. In contrast to other scholars, who claim that NPM is not contested but rather consistently promoted and maintained by centre-left governments, we argue that from 2005 such governments have added new ideas of government and implemented new methods of steering education in line with post-NPM reforms. To regain central capacity and control and to compensate for the negative effects of NPM on social inclusion and equality, new measures for input control were adopted, and the negative effects of marketization were to some degree moderated by later educational reforms.

Post-NPM Reforms or Administrative Hybridization in the French Health Care System?

New public management (NPM) provides an opportunity to analyze a reform trajectory that is influenced by country-specific institutional and social traditions. France adopted its own version of NPM, embracing some of its “traditional” elements such as quasi-markets and performance evaluation and rejecting others. NPM reforms in France pursued a re-centralization agenda rather than a disaggregation of public agencies. Outcomes were below expectations in core areas such as citizen participation and physician professional satisfaction. Subsequent health reforms indicate convergence toward a hybrid system rather than toward a post-NPM paradigm.

The challenges of coordination in national security management – the case of the terrorist attack in Norway

The article addresses a ‘wicked problem’: Organizing for internal security and societal safety. It examines the central emergency and crisis management under the terrorist attack in Norway in July 2011, with a special focus on the coordinating role of the Ministry of Justice (MJ). Our analysis is based on an in-depth qualitative analysis of relevant official documents and interviews with government officials, using a structural-instrumental and a cultural-institutional perspective to understand outcomes. There is a consensus when it comes to diagnosing the problems, identified as fragmentation, pulverization of accountability and weak coordination arrangements. The organizational changes have been cautious and incremental, however. A gradual upgrading of the MJ as an overarching coordinating ministry does not challenge the existing principles of ministerial responsibility. Suggested solutions are beset with ambiguity and conflicts, and there is a mismatch between problems and available solutions. Points for practitioners Challenges of coordination are evident in modern public administration, related to both vertical and horizontal coordination, and particularly so within the field of internal security and crisis management. New Public Management (NPM)-related reforms have created further coordination problems, especially in policy areas and public services that cross sector boundaries. New arrangements, labeled post-NPM reforms, have tried to counter the alleged increasing fragmentation. The challenges are quite evident when it comes to crisis management, where a combination of organizing for coordination and flexibility is necessary. Major crises do not always lead to radical changes, however. Instrumental and formal changes are often mediated by the existing culture. The result is a rather hybrid and multi-layered modern public administration.

Intermediacy between political control and institutional autonomy: A transformative approach

The public sector is about providing services, managing resources efficiently and securing a return on investment. Producing results and managing performance depends on adaptation, flexibility and creativity. While one may argue for greater control to achieve performance indicators, this has to be underpinned by managerial control systems both internally and externally. Post NPM reforms have tried to respond to the problem of single purpose organisations that have distanced political control. While post NPM reforms tipped the scale toward more political control, it did not restore the balance between control and autonomy. In view of the NPM and post NPM reforms and the accompanying challenges, the paper argues that it is not possible to device a “one size fits all” response to these challenges. In trying to analyse the dilemma of balancing political control and institutional autonomy an institutional theoretical perspective is used by analysing structural and instrumental features (national political environment), cultural features (historical administrative traditions) and external constraints (technical and institutional environments). It needs to be recognised that the aforementioned features have constraints. The structural and instrumental features specify the formal constraints on leaderships decisions. These constraints may give political leaders strong hierarchical control or may not give them much direction, but a lot of potential discretionary influence. The cultural features specify that public organisations develop informal norms and values which lead to a distinct institutional culture. While these informal norms and values are infused in formal structures and decision making, it may be inconsistent with the sub-culture, thereby giving it less systemic influence. The technical and institutional environment which focuses on efficiency production and internal culture may develop beliefs over time that cannot be ignored. Christensen (2008:13) refers to this as the There Is No Alternative principle which has a deterministic potential. While recognising these constraints, the adoption of an institutional perspective provides a more holistic approach to creating synergy between the political and bureaucratic environments.

Post-New Public Management (NPM) and the Reconfiguration of Health Services in England

The introduction of New Public Management (NPM) in the UK transformed the public sector in the 1980s, blurring the boundaries between the public and private spheres. However, from the late 1990s, it was clear that NPM techniques were showing some limits. Without retreating from governance back to government, some efforts were made to solve the problems that had arisen from greater vertical and horizontal specialization. The restructuring of the National Health Service (NHS) is the perfect illustration of how the role of the state in the world’s largest publicly-funded health service has been redefined by post-NPM reforms. The focus will be specifically on reforms in England because Scotland and Wales took quite different reform paths after devolution. This paper thus explores how modernist governance has transformed the organization and delivery of public health services in England. It will consider the limitations of reconfiguring the NHS to comply with a business-like and consumer-oriented model, with particular attention given to the post-New Public Management reform wave which began in the late 1990s.

Performance and Accountability—A Theoretical Discussion and an Empirical Assessment

This paper starts with a theoretical discussion on the relationship between performance and accountability in public organizations with a special focus on administrative reforms. Accountability theory, based in the work of Dubnick/Romzek, Bovens, Behn, Bouckaert, Halligan and Pollitt, is discussed and related to different aspects of performance. How ambiguous is the relationship between accountability and performance? Do different types of accountability relate to different aspects of performance or pose certain challenges in NPM reforms, post-NPM reforms and hybrid reforms? The second part of the paper illustrates performance and accountability relations in a large welfare administration reform in Norway by addressing the experiences different actor have had of performance and accountability dynamics. We focus on how the reform has affected different kinds of accountability relations and the relationship between accountability and performance. The data used are document studies, interviews and survey data from a large evaluation project. A main finding is that the relationship between administrative reform and accountability is ambiguous and contested.

Agencification and Corporatization in Norway 1947–2011

We explore agencification and corporatization in the Norwegian central government. While these types of organizational change have often been linked to the NPM and post-NPM doctrines of recent decades, we will extend our analysis back to the post-World War II period. The empirical data are drawn from the Norwegian State Administration Database. The main focus will be on changes along the vertical dimension, i.e., conversions of ministerial units into state agencies and from state agencies to state-owned companies, or in the other direction. A main question is the organizational dynamics of agencification and corporatization. Why have the structure and organization of government changed, how and to what degree do the pattern of change reflect global trends in NPM and post-NPM reforms, and is the central government subject to the politics of structural choice. Moreover, what is the importance of national administrative doctrines, party constellations in government, and deliberate actions of administrative policy-makers?

Working in the Public Sector Introduction to the Thematic Issue

Work in the public sector has been changing dramatically in recent decades. Reforms aimed at increasing the efficiency of public services have been extensive in the Nordic countries and elsewhere since the 1980s. The reforms and changes have to a large extent been associated with so-called New Public Management (NPM) principles, emphasizing the market as a central coordination mechanism. Consequently, public institutions have been restructured, their services are standardized and commodified, and market-like relationships between them have been created. In order to create markets and transform citizens into customers on a market, outsourcing and privatization have been stimulated (Blomqvist & Rothstein 2000, Busch et al 2005, Christensen & Lægreid 2007, Greve 2003). At the same time, traditional Weberian bureaucratic principles are still viable and even enhanced within the sector, for instance, as a consequence of the use of contracts as a means of managing public organizations (Greve 2008). Lately, large reforms aimed at centralized coordination of different service providers, such as the integration of the Norwegian welfare administration, have been labeled post-NPM reforms by some researchers. The implication of all these parallel tendencies is that the institutional and organizational landscape surrounding the work situations of employees in the public sector have become increasingly complex, some call them hybrid, putting a variety of conflicting pressures on the performance of work within the sector (Christensen & Lægreid 2011, Hasselbladh et al. 2008).In this special issue, we explore some of the consequences of these structural and normative changes on the work of public sector employees in different sectors and contexts (...)

Of alternating waves and shifting shores: the configuration of reform values in the US federal bureaucracy

Scholars have noted that United States federal government reforms come in waves ( Barley and Kunda, 1992 ; Kettl, 2002 ; Light, 1998 ), often accompanied by values that alternate between rational and normative conceptions of public administration and service. The idea of alternation also suggests the importance of time in gauging the effect of new reforms when previous reforms have accumulated from the past (see Pollitt, 2008 ). Time is a necessary variable in implementing reforms; time is crucial to know if reform values have taken hold. Extending Paul Light’s (1998) reform waves metaphor, we investigate here whether two predominant management philosophies have influenced and reconfigured the shoreline of values found among federal agencies over a particular period of time. Using empirical methods, we examine how the values of New Public Management and its humanist (post-NPM) counterpart have settled and taken hold among US federal agencies. We followed three lines of inquiry: determining the existence of reform values in the bureaucracy, examining the prevalence of different sets of values, and investigating whether ‘crowding out’ of values occurred, that is, whether there was a detectable shift in the distribution of values as a new wave came on top of others. Our analysis yields evidence for the predominance of certain NPM and post-NPM values and indicates that bureaucracy concurrently holds what may be regarded as competing values side-by-side. Implications for research and future reforms are suggested in the final section of the article. Points for practitioners Practicing public administration requires constantly navigating reform pressures that espouse different, sometimes opposing, value sets. NPM and post-NPM reforms differed in their emphasis on applying rationalistic and humanistic values to the work of government. Based on federal workforce surveys, NPM values appeared ascendant from the reinvention period till the end of the Bush administration, when a more humanist outlook began to emerge. Bureaucratic values are dynamic and change could go faster with network structures. Following previous research, this study suggests that a ‘layering’ of reform occurs; the strongest values are held intact even as newer philosophies of organization and management are introduced. Results suggest that government professionals can adhere to differing values, but further study is required to see how those values actually influence their work.

Contrasting New Public Management (NPM) Versus Post-NPM Through Financial Performance

Financial reports under New Public Management (NPM) programs can provide an incomplete picture of government finances. Post-NPM reforms could help overcome this weakness through the use of aggregate financial measures. This article focuses on the effects of the agencification process analyzing the differences between individual and aggregate measures of government financial performance in the Spanish local government. In general, the results show there is greater compliance with post-NPM postulates, although this does not mean that NPM and post-NPM management models cannot coexist. The use of aggregate performance measures could help bring about this improvement in controlling public agencies and, therefore, make public sector entities more efficient.

Networks and Interactivity

The systemic reform of employment services in OECD countries was driven by New Public Management (NPM) and then post-NPM reforms, when first-phase changes such as privatization were amended with ‘joined up’ processes to help manage fragmentation. This article examines the networking strategies of ‘street-level’ employment services staff for the impacts of this. Contrary to expectations, networking has generally declined over the last decade. There are signs of path dependence in networking patterns within each country, but also a convergence of patterns for the UK and Australia, but not The Netherlands. Networking appears to be mediated by policy and regulatory imperatives.

Multiprofessional Cooperation and Accountability Pressures

This article examines how multiprofessional healthcare teams, working as a post-New Public Management (post-NPM) reform, respond to accountability pressure resulting from the implementation of NPM reforms. The team members use three strategies to respond to this pressure: responsibility avoiding that results in conflict; responsibility ignoring that results in parallel work and responsibility sharing that results in cooperation. Depending on how the professionals respond to different contextual factors, the choice of strategies can either foster or inhibit cooperation in multiprofessional teams. Achieving holistic patient care is threatened when accountability pressure increases for teams that have not yet developed their internal routines of cooperation.