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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.
This study was inspired by the desire to contribute to literature on performance management from the context of a developing country. The guiding research questions were: How do managers use performance information in decision making? Why do managers use performance information the way they do? The study was based on theoretical strands of neo-patrimonialism and new institutionalism. The nature of the inquiry informed the choice of a qualitative case study research design. Data was assembled through face-to-face interviews, some observations, and collection of documents from managers at the levels of the directorate, division, and section/units. The managers who were the focus of this study are current or former staff members of the state departments in Kenya’s national Ministry of Agriculture, Livestock, and Fisheries as well as from departments responsible for coordination of performance related reforms.
The findings of this study show that performance information is regularly produced but its use by managers varies. Examples of use include preparing reports to external bodies, making decisions for resource re-allocation, making recommendations for rewards and sanctions, and policy advisory. On categorizing the forms of use as passive, purposeful, political or perverse, evidence shows that they overlap and that some of the forms are so closely related that it is difficult to separate them empirically.
On what can explain the forms of use established, four factors namely; political will and leadership; organizational capacity; administrative culture; and managers’ interests and attitudes, were investigated. While acknowledging the interrelatedness and even overlapping of the factors, the study demonstrates that there is explanatory power to each though with varying depth and scope. The study thus concludes that: Inconsistent political will and leadership for performance management reforms explain forms of use that are passive, political and perverse. Low organizational capacity could best explain passive and some limited aspects of purposeful use. Informal, personal and competitive administrative culture is associated with purposeful use and mostly with political and perverse use. Limited interest and apprehensive attitude are best associated with passive use.
The study contributes to the literature particularly in how institutions in a context of neo-patrimonialism shape performance information use. It recommends that further research is necessary to establish how neo-patrimonialism positively affects performance oriented reforms. This is interesting in particular given the emerging thinking on pockets of effectiveness and developmental patrimonialism. This is important since it is expected that performance related reforms will continue to be advocated in developing countries in the foreseeable future.
This article contributes to the debate on the use of performance information in the context of public sector performance management. Based on case studies, the authors analyze the appropriateness of the performance information provided in the newly established performance budgets of municipalities in Germany and Italy. They also examine the interest of politicians and senior managers in using such information for decision-making and monitoring within the municipal budget cycle. They find that the use of performance information is generally quite modest, and that the interest of different local actors varies to a great extent. Politicians are generally less interested in such information than top managers, particularly chief financial officers. The results are discussed by applying a theoretical framework based on institutional and legitimacy theories, and are compared with the literature on performance information use.