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IMPACT German municipalities have prepared performance budgets for over 10 years. The incorporation of performance information into the budget is, however, still work in progress. Local politicians perceive the usability of non-financial information in the budget as low and do not use such information intensively for budget composition or other purposes. German municipal budgets are usually voluminous because of their highly detailed structure and the large amount of displayed performance data which rarely informs about outcomes. Such information does not meet the needs of councillors, for example in their struggles with political opponents. Some options for improving the usability of budgetary information are presented.
This article contributes to the debate on the incorporation of performance information in European local government budgets. At the core is the development of an analytical model for comparing efforts of performance budgeting (PB). Evidence in ten cases indicates that performance structures and the span of performance differ, that performance indicators are far from always measuring outcomes or outputs, and that future and past performance figures are often absent. Nevertheless similar learning trajectories do exist. Possible explanations for the variation involve the varying degrees of reform implementation, experience with PB and prevailing institutional arrangements.
The dissertation examines the use of performance information by public managers. “Use” is conceptualized as purposeful utilization in order to steer, learn, and improve public services. The main research question is: Why do public managers use performance information? To answer this question, I systematically review the existing literature, identify research gaps and introduce the approach of my dissertation. The first part deals with manager-related variables that might affect performance information use but which have thus far been disregarded. The second part models performance data use by applying a theory from social psychology which is based on the assumption that this management behavior is conscious and reasoned. The third part examines the extent to which explanations of performance information use vary if we include others sources of “unsystematic” feedback in our analysis. The empirical results are based on survey data from 2011. I surveyed middle managers from eight selected divisions of all German cities with county status (n=954). To analyze the data, I used factor analysis, multiple regression analysis, and structural equation modeling. My research resulted in four major findings: 1) The use of performance information can be modeled as a reasoned behavior which is determined by the attitude of the managers and of their immediate peers. 2) Regular users of performance data surprisingly are not generally inclined to analyze abstract data but rather prefer gathering information through personal interaction. 3) Managers who take on ownership of performance information at an early stage in the measurement process are also more likely to use this data when it is reported to them. 4) Performance reports are only one source of information among many. Public managers prefer verbal feedback from insiders and feedback from external stakeholders over systematic performance reports. The dissertation explains these findings using a deductive approach and discusses their implications for theory and practice.