Over the last few years, the theme of public performance (PP) has been increasingly invoked in political, administrative and academic circles. Particularly for local authorities, the use of performance approaches is on the rise, contributing to the management of local government initiatives and structures (Folz and al., 2009; Fryer and al., 2009; Newcomer, 2007; Wechlsler and Clary, 2000). The concept of public performance, however, is not precisely defined, nor does it cover a set of common practices based on an explicit, recognized framework. It has a multiplicity of overlapping definitions that are often inadequate, either because they are too general or because they have been uncritically adopted from other disciplines. Moreover, the notion is also a vague one, since it means different things to different actors. A number of studies reinforce this analysis, pointing out that public practices suffer from a lack of abstraction or from oversimplification, due to an uncritical transfer of practices and tools from the private sector (Halachmi and Bouckaert, 1996; Moynihan, 2005). It is thus essential, in a professional and academic context that demands it, that technical and instrumental developments be preceded by a process of abstraction that enables an analysis of the concept of public performance. Indeed, the models of the representation and measurement of public performance have gained in richness by broadening the concept of performance, but the hypotheses underlying the models-especially the multidimensionality of public performance-have never been never tested. To meet this need, we have developed both a holistic characterization and a definition of the public performance. On the basis of the literature on public performance values, performance management models, and the definition of organizational performance, we derive the specific characteristics of public performance. We then test the hypotheses underlying the model, applying a quantitative methodology to the results of a questionnaire-based survey conducted with 350 French local authorities. Finally, using statistical analysis, we put forward a definition of public performance. 1. A framework for studying the characteristics of local public performance We first present and analyze the characteristics and dimensions of the main public performance management models found internationally (§1.1) based on a synthesis produced by Guenoun (2009) and then, given the partial nature of these models, we develop a more complete public performance model (§1.2). 1.1. Public performance management models Over the last two decades or so in the developed countries, performance management systems (PMS) have developed greatly, thanks to a transfer of know-how from the private to the public sector. These systemsare based on New Public Management (NPM), which aims to make public and governmental organisations more businesslike (Jansen, 2008).The first performance management approaches were based on classical economic theory (public choice theory), with a focus on the tra...
Résumé de l'articleBien que depuis plus d'une vingtaine d'années le management par la performance se soit très largement diffusé au sein des organisations publiques des pays occidentaux, force est de constater les difficultés d'implantation et d'institutionnalisation de ces pratiques. Cet article vise à étudier, sous l'angle théorique de la déviance et du changement organisationnel, les différentes difficultés et résistances rencontrées lors de la mise en oeuvre d'une démarche de changement, ainsi que les facteurs et processus permettant de limiter les blocages internes et organisationnels. Une étude de cas, conduite au sein d'un établissement public français, permet de caractériser et d'approfondir la dynamique des déviances organisationnelles publiques ainsi que les facteurs influençant celle-ci. L'innovation managériale, le changement (Perrott, 2009) et le management par la performance, se sont ainsi progressivement imposés comme des impératifs incontournables et des enjeux de survie au sein du secteur public. Dès lors, les démarches de performance, et plus généralement le management de la performance, se sont très largement diffusées au sein des organisations publiques des pays occidentaux, qu'elles soient locales ou nationales, traduisant pour certains un mouvement de fonds (OCDE, 2005, Bouckaert et Halligan, 2008, Walker et al., 2010. Si la transformation de l'environnement des organisations publiques a légitimé ce nouveau mode de gestion des affaires publiques, force est de constater les difficultés d'implantation et d'institutionnalisation de ces pratiques au sein du secteur public. Les expériences entreprises en Europe et en Amérique du nord en matière de gestion par la performance démontrent à la fois des taux d'échec ou d'insatisfaction importants mais aussi des différentiels relativement élevés -entre pays mais aussi au sein d'un même pays -en ce qui concerne le degré d'implantation et de maitrise de ces systèmes de management (Bouckaert et Halligan, 2008, Moynihan, 2006. Bien qu'expérimenté depuis près de deux décennies dans les pays anglo-saxons et nordiques, et malgré les bénéfices potentiels mis en avant par une partie de la littérature, force est de constater les difficultés d'institutionnalisation et de couplage du management par la performance avec les processus décisionnels publics 1 (Melkers et Willoughby, 2005 ABSTRACTDespite the fact that performance management has been widely adopted in public organizations across the western world, the implementation and institutionalization of this practice remain problematic. The aim of this study is to analyze, using the theoretical approaches of deviance and organizational change, the main difficulties and resistances that emerge during the change process and the factors that limit or reduce internal and organizational resistances. A case study, conducted in a French public organization, enabled a deeper understanding of the dynamic of organizational deviances and the factors that influence it.
Si les innovations managériales et les démarches de modernisation se multiplient au sein des collectivités territoriales, rares sont les études qui, non seulement, analysent de manière spécifique les facteurs favorisant l'appropriation de ces démarches aux différentes étapes de leur introduction et de leur implantation (décision d'adoption, adoption et mise en oeuvre, institutionnalisation, abandon ou remplacement), mais aussi qui, plus généralement, étudient les dynamiques de changement des organisations publiques. L'objet de cet article est ainsi de formuler et de tester un certain nombre d'hypothèses et de propositions quant aux facteurs favorisant l'implantation et la mise en oeuvre d'une gestion par la performance au sein des collectivités territoriales françaises. Des propositions relatives à l'influence respective de trois catégories génériques de facteurs (1. des facteurs contextuels et environnementaux, 2. des facteurs humains et 3. des facteurs organisationnels et managériaux) sur la décision d'adoption, puis d'utilisation effective, des démarches de performance par les collectivités locales sont formulées, testées et discutées. Nos résultats soulignent le rôle déterminant des leaders et des responsables internes dans la conduite du changement, ainsi que la faible influence des 2 facteurs contextuels et environnementaux pour les collectivités françaises.
The purpose of this research is to analyse and characterise the practices of French local authorities in the field of performance management. It sets out to do so, as a first step, by putting forward a theoretical analytical framework of the different models of local performance management. It then goes on to draw on this framework and test it empirically in order to understand the nature of the French model of local performance management. The results of our research demonstrate the existence of a French, "performance administration" type model evident in the trends common to French local authorities with regard to the instrumental and methodological content and the methods of steering public performance. Notes for practitioners The managerial and practical contributions of this research on local performance initiatives are twofold. First of all, it will provide an analytical and evaluative framework for this type of initiative, not only structured around planning, accountability and evaluation tools but also around steering methods. Secondly, this study makes it possible to take stock of and characterise French practices in the field and their limitations compared to more mature international practices. Thus, a local authority adopting this path can therefore draw on this study to determine the scope and structure of the tools to be rolled out, depending on the purpose followed, be it administrative and/or political.
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