The Implementation of Learning-Based Performance Regimes

Today performance goals, performance measures, and the use of performance information for management has become such an ingrained part of public sector governance that we can speak of performance regimes (Moynihan et al.,... [ view full abstract ]

Today performance goals, performance measures, and the use of performance information for management has become such an ingrained part of public sector governance that we can speak of performance regimes (Moynihan et al., 2011). The typical performance regime uses performance management as a system for external accountability in which performance goals and information are used to establish incentive structures to enhance performance. This type of external performance regime has, however, received widespread criticism; it is misaligned with the complexity of public services leading to goal-displacement and crowding out of autonomous motivation. As an alternative, learning-based performance regimes with greater autonomy and focused on internal learning are propagated by public sector reformers.

This paper examines the implementation of a reform seeking to move from an external accountability to an internal learning-based performance regime. Key issues are whether such reforms can move beyond mere formal adoption and actually influence the practices of street-level employees and managers that are used to navigate within an external incentive-based regime. By combining literature on implementation and performance management the paper more specifically sheds light on the role of leadership, credible commitment to reform, and performance information use. The paper thereby contributes to the performance management literature by examining in depth the organizational processes through which governance changes result in performance management and learning in practice.

The paper uses a field trial where the governance of 9 wards in a Danish hospital region has been changed from an external-accountability to a learning-based performance regime. The analysis is based on pre- and post-surveys of the 9 wards and 6 control wards as well as interviews with managers of these wards. This allows us to assess the degree of change over time as well as to separate this from more general reform trends.

References
Moynihan, D. P., Fernandez, S., Kim, S., LeRoux, K. M., Piotrowski, S. J., Wright, B. E., & Yang, K. (2011). Performance regimes amidst governance complexity. Journal of Public Administration Research and Theory, 21(suppl 1), i141–i155.