Characterization and definition of public performance: an application to local government authorities

Abstract

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...

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