Performing the state: the socio-political dimensions of performance measurement in policy and public services

ABSTRACT

This opening paper outlines the rise of public sector performance measurement and performance governance from New Public Management, its trajectory from an administrative tool for organisational monitoring and management, to its insertion into service performance and accountability, to a policy tool defining policy itself. Four key conceptual ways of approaching public sector performance measurement are outlined, and the significance of understanding performance measurement as a socio-technical policy instrument is argued. The paper thematically reviews the papers that follow and how they demonstrate new points of critical analysis in policy studies, including the multiple, mixed and sometimes contradictory purposes for performance measurement, the formation of performance measurement tools, the linkages of performance numbers and governance structures from macro to micro, and the reconfigured roles of professionals in public service delivery. The paper issues a clear challenge to policy researchers to take performance measurement more seriously in understanding the dynamics of policy performance, the achievement of policy objectives, the reframing of policy and the experience of citizens.     

Strategic Planning for Support Services for Children with a Parent or Close Relative in Prison

It has long been recognized that children with a parent or close relative in prison are more likely to experience educational difficulties, emotional distress, family breakdown and a substantial reduction in family income (Boswell 2002; Smith et al. 2007; Morgan et al. 2013b; Morgan and Gill 2013). Consequently, children with a parent in prison are more likely to require support from statutory services, especially education and social care. However, statutory support for this group of children is sparse, and children of prisoners tend not to be identified as a priority group. The demand on local authorities to spend their limited budgets wisely means tough decisions have to be made. These decisions are not taken in a vacuum: they are taken in a context of local need, consumer representation, central and local politics; underpinned by the values and attitudes of individual members as well as by the ethos or culture of the local authority itself. In this article we apply Axford's typology (2009) of the different cultures which underpin local authority service provision to data from a research study carried out in 2011 in one local authority which explored support provision in schools for children of prisoners. We examine the contradictions and gaps within the local authority's attempts to synergize the different modules of service delivery into a coherent pattern of provision, and we explore how changes in strategic culture might lead to improvements being made in terms of service delivery to this group of ‘vulnerable’ children.     

Non‐abusing mothers' support needs after child sexual abuse disclosure: A narrative review

The role of maternal support has been perceived as vital throughout the recovery process of sexually abused children. However, it is important to look at the concept “support” from the perspective of non‐abusing mothers' personal needs. This narrative review of the literature aimed to find out how non‐abusing mothers' need for support in their responses to disclosure of child sexual abuse has been recognized. A comprehensive search on Jyväskylä University Library interface yielded 12 academic articles based on empirical research. These articles were selected from those considered to have sufficiently investigated support for non‐abusing mothers and included a mixture of qualitative, quantitative, and mixed‐method research. The data consisted of peer‐reviewed online articles published in English between 2000 and 2017. Four themes emerged from the thematic analysis: improving the quality of the whole social support network for non‐abusing mothers; being blamed, maternal guilt, and shame; anger; and coping strategies. The findings show that the support needs of non‐abusing mothers are usually explained based on their interaction with sexually abused children. However, it is necessary to listen to women's needs independently of their mothering role. If these mothers are better understood, not only they, but also their children, could be empowered.     

Comparing long-term care systems: A multi-dimensional,actor-centred typology

Like other fields of social policy, the organization of long-term care (LTC) varies temporally and geographically. The present article aims to advance the comparison of LTC systems worldwide by proposing a conceptual framework to analyse variation, putting a special focus on analysing the role of public and private actor types. In a precluding literature review of existing LTC typologies, we find that there are various promising classification approaches, but with an overwhelming concentration on European countries and often constructed in-transparently and superficially. Building on the concept of the care/welfare mix, we develop a multi-dimensional, actor-centred typology of LTC systems. In doing so, we employ the methodological procedure of theoretically constructing a typological attribute space. We argue that three dimensions, that is service provision, financing and regulation, are crucial for differentiating types. Furthermore, we chose an actor-centred approach, asking who bears the main responsibility in each dimension. Five relevant types of corporate actors are distinguished: state, societal actors, private for-profit actors, private individual actors, and global actors. Finally, we present and discuss the resulting attribute space and further illustrated the typology's use by exemplarily classifying three countries.     

Factors Related to Social Competence in Elementary School Among Children of Adolescent Mothers

This study examined factors related to social competence in first grade among children of low‐income, adolescent mothers. The sample included 83 mother–child dyads who had participated in a family support program for adolescent mothers. Characteristics of the child, mother, and the child's living context were examined for their relationship to children's social skills and problem behaviors. Several factors had significant bivariate relationships with social competence. Children with higher social skills and lower levels of problem behaviors were more likely to have received higher quality parenting, to have higher academic skills, and to live in neighborhoods with lower poverty rates. Children with higher social skills were less likely to have changed schools. In a path analysis, only academic skills were significantly related to either measure of social competence when other factors were controlled. Quality of parenting was indirectly related to social competence, and the effect was mediated by academic skills. School transience was also related to academic skills in the path analysis.     

The Domain and Interpretation of Utility Functions: An Exploration

This paper proposes an exploration of the methodology of utility functions that distinguishes interpretation from representation. While representation univocally assigns numbers to the entities of the domain of utility functions, interpretation relates these entities with empirically observable objects of choice. This allows us to make explicit the standard interpretation of utility functions which assumes that two objects have the same utility if and only if the individual is indifferent among them. We explore the underlying assumptions of such an hypothesis and propose a non-standard interpretation according to which objects of choice have a well-defined utility although individuals may vary in the way they treat these objects in a specific context. We provide examples of such a methodological approach that may explain some reversal of preferences and suggest possible mathematical formulations for further research. This revised version was published online in June 2006 with corrections to the Cover Date.     

Techniques and paradoxes in performing performance measurements: concluding reflections

ABSTRACT

Performance measurement has an implicit performance theory embedded within its practice; performance measurement perforce performs. Performance measurement has a performative effect on performance. Drawing together and building on the various empirical observations from the preceding papers in this collection, this concluding paper firstly examines the circumstances in which performance measurement performs, that is, when it produces ‘authentic’ performance improvements, compared to when performance measurements misfire. The paper secondly explores several paradoxes of performance measurement – such that performance measurement measures only part of the performance it seeks to be performative on, incentives to perform incentivise poor performance and so on. These paradoxes, contradictions and ironies must be apprehended and appreciated in discovering, discerning and deciphering the diverse dynamics of measuring performance. They also demonstrate that analysing and working with performance measurement requires a perspective that eschews absolutes and clear directions, and embraces the uneasy and potentially destabilising tension of Escher’s performative art.     

Industrial Relations as a Source of Social Policy: A Typology of the Institutional Conditions for Industrial Agreements on Social Benefits

The article's starting point is that the now‐conventional conceptualization of welfare state retrenchment as a shift from state provision of income support to market processes is misleading. Rather, state provision may be replaced by benefits negotiated collectively by trade unions and employers. As a first step to further investigate this development the article suggests a typology of institutional contexts within which industrial agreements on social benefits emerge. This typology is based on Thomas H. Marshall's distinction between political and industrial citizenship. Following the comparative method of the ‘parallel demonstration of theory’, the typology is applied to four countries where collective agreements on social benefits have recently been concluded, namely Denmark, France, the Netherlands and Germany. It is argued that, on the one hand, the state's activity or passivity in labour relations and, on the other hand, the timing of the institutionalization of political and industrial citizenship is decisive for the development of collectively negotiated benefits. The conclusion for comparative welfare state research is that, when viewing policies of welfare state retrenchment, the research should systematically include industrial relations and their historical trajectories in its frame of reference.     

Fight or Flight? Factors Influencing Child Welfare Workers' Propensity to Seek Positive Change or Disengage from Their Jobs

ABSTRACT

This cross-sectional study tests a theory-driven, conceptual model examining factors supporting or hindering child welfare workers' (n = 359) efforts to speak up (voice) or disengage psychologically (neglect) or physically (exit) from their jobs. Based on path analysis results, key findings indicate that workers who feel included in decision-making are more likely to exercise voice and less likely to engage in neglect. In contrast, workers who experienced supervisory and organizational support are less inclined to exit. The findings should be instructive to scholars and practitioners interested in capturing how employees' responses to stressful and complex work environments are expressed.     

'Sifting the Wheat from the Chaff': A Two-dimensional Discriminant Analysis of Welfare State Regime Theory

Welfare state modelling has long been an important strand within comparative social policy. However, since the publication of Esping‐Andersen's ‘Worlds of Welfare’ typology, welfare state classification has become particularly prominent and a multitude of competing typologies and taxonomies have emerged. Each of these is based on different classification criteria, and each is trying to capture what a welfare state actually does. The result is that the literature is in a state of confusion and inertia as it is unclear which of these rival systems is currently the most accurate and should be taken forward, and which are not and should perhaps be left behind. This article extends Bonoli's two‐dimensional analysis of welfare state regimes by using multivariate analysis of variance and discriminant analysis to compare and contrast the various classifications on universal criteria. It also examines the usefulness of the two‐dimensional approach itself and suggests how it can be enhanced to benefit future attempts at holistic welfare state modelling. The article concludes that there are some welfare state classifications that are more useful than others, especially in terms of reflecting a two‐dimensional analysis: it thereby ‘sifts the wheat from the chaff’ in terms of welfare state regime theory.     

Indicators for Placement in Foster Care

Summary In order to develop a typology of indicators for long-term treatmentin foster care, a cluster analysis has been carried out on theitems of a standardized questionnaire which is used by fostercare centres in the province of Zuid-Holland. Two types of indicationfor placement have emerged from the present study. In combinationwith the foster child's age, these two types discriminate effectivelybetween unsuccessful, prematurely terminated placements aftereighteen months and continued placements. It is claimed thatthe employment of this procedure can effect a reduction in thenumber of unsuccessful, prematurely terminated placements.     

Social investment,social service and the economic performance of welfare states

This article begins with an examination of the role of social services as the key instrument of social investment strategy, presenting an empirical analysis of its impact on economic performance. A pooled time series, cross‐section analysis was conducted with the data of 15 welfare states from 1990 to 2007 under the ‘social investment hypothesis’ that more social service orientedness brings about a greater positive effect on the economy. The results show that a larger share of social service spending in the total social expenditure – more social service orientedness – contributes to economic growth and labour market performance, whereas a larger aggregate size of the welfare state may have a negative effect on employment. In conclusion, this study suggests that the relatively ambiguous welfare strategy of social investment could be clarified as a ‘transition from income security to livelihood security’ in which emphasis is placed on social service. Key Practitioner Message: ● This study suggests that the key instrument of social investment strategy is social service; ● The results show that more social service orientedness contributes to economic growth and labour market performance.     

与祖辈同住:当前中国家庭的三代居住安排与青少年的学业表现

通过分析具有全国代表性的初中学生样本数据，本研究考察了影响当前中国家庭三代共同居住的决定因素、三代居住安排与青少年学业表现之间的关系及其中间机制。首先，家庭社会经济地位较低、母亲在职或单亲家庭的青少年更可能与祖辈同住。其次，代际居住安排会显著影响青少年的学业表现，控制了其他因素之后，三代共同居住（与祖辈同住）家庭的学生的学业表现要优于两代核心家庭的学生。第三，与祖辈同住的效应受到家庭社会经济地位和家庭结构的调节，来自较低阶层或非双亲家庭的学生从与祖辈同住中获益更多。最后，与祖辈同住在一定程度上通过加强亲子间的家庭社会资本这一机制作用于学生的学业表现。本文表明，在现代社会，家庭亲属网络仍然对个体的地位获得或社会流动具有十分重要的作用。     

Network centrality and performance of social enterprises: Government certified social enterprises in Seoul,South Korea

Social enterprises, which have been dramatically increasing all over the world for several decades, are facing the challenge of how best to develop strategies to improve performance and achieve sustainable growth. In South Korea, the government has supported active networking among social enterprises as a tactic for overcoming insufficient material and human resources. However, it is unclear whether active networking activities among social enterprises are associated with higher performance. In this study, a network survey of certified social enterprises (n = 78) in Seoul, South Korea was conducted. Multivariate regression models examined whether degree centrality, closeness centrality, and betweenness centrality were associated with the economic and social performance of social enterprises after controlling for organizational factors. The results revealed that a social enterprise with higher degree centrality in the network of regular meetings achieved higher social and economic performance.     

Developmental Influences and Gang Awareness among African-American Inner City Youth

This research aimed to clarify the correlates of gang awareness in inner city youth as a function of age, gender and peer group affiliation. It is proposed that the influence and hegemony of street gangs is a distinguishing feature of inner city neighborhoods, and that this influence is mediated by development. Participants (N = 489) were African American boys and girls from the 1st, 4th, and 7th grades in four inner city public schools. Students’ knowledge of gangs in the local community was determined. Social networks for 4th and 7th grade students were identified. Girls’ and boys’ familiarity with local gangs increased with age and differed by peer group affiliation. The relationship of gang familiarity to teacher and self‐ratings of aggression, popularity, and academic competence changed with age. These findings support the proposition that neighborhoods have nontrivial effects on social development, and these effects are likely to interact with developmental status and social affiliations.     

A Multi-Dimensional Conceptual Framework for Trauma-Informed Practice in Addictions Programming

Previous research has conceptualized trauma-informed practice in relation to five key values: safety, trust, choice, collaboration, and empowerment. This research identifies key organizational, programmatic, and interpersonal characteristics in community-based residential addictions treatment programming that exemplify each of these principles. Utilizing qualitative research methods, involving open-ended, one to one interviews with clients in residential substance misuse treatment (n = 41), respondents identified the importance of experiencing “safety” in relation to physical safety, confidentiality, reassurance, rule enforcement, and peer relationships. “Trust” was manifested in sharing, staff availability, nonjudgmental interactions, positive relationship dynamics, and caring. “Choice” was articulated in relation to individual needs, participation, opportunities, and focus of efforts. “Collaboration” was characterized in relation to opportunities for feedback, planning, goal setting, specificity, and support. Finally, “empowerment” was characterized by comfort in sharing, trigger management, trauma awareness, and understanding. The findings provide a conceptual framework for a trauma-informed social services organizational practice environment. Findings can inform adaptations to social service delivery processes and programs to become aligned with the values of trauma-informed practice. Future research can build on this framework by testing the study findings with quantitative methods along with replicating current methods in other social service delivery sectors.     

Slippery Concepts, Shifting Context: (National) States and Welfare in the Veit-Wilson/Atherton Debate

The debate between Veit‐Wilson and Atherton raises key conceptual questions for the analysis of welfare states. Veit‐Wilson, in particular, focuses on the important, but strangely neglected question of when and why a state qualifies as a welfare state. Atherton usefully draws attention to historical debates about the legitimate purposes of state welfare policies and worthy recipients of state benefits, particularly in the Anglo‐Saxon countries. His contribution may draw our attention to the shifting meaning of concepts (such as poverty) over time. In this contribution I seek to broaden the debate. First, without underestimating the importance of such criteria, rather than presenting one single (normatively based) “discriminating criterion” defining welfare statehood, I argue that other conceptions of “the welfare state” may be useful as well—so long as analysts are clear and explicit about how they are using the phrase. Second, in the current conjuncture of the perceived “transformation” perhaps even “destruction” of the welfare state, historical and comparative research grounded on clear and explicit concepts is crucial.     

家庭背景、学业表现与研究生教育机会获得

随着高校毕业生数量的逐年攀升和经济发展对高端人才需求的增长,越来越多的本科毕业生选择继续接受研究生教育以提高自己在劳动力市场中的竞争优势。本文对首都大学生成长追踪调查数据进行了实证分析,研究发现,2010年和2012年毕业于北京高校的本科生中,约有三分之一的学生选择了继续接受研究生教育,而且读研学生的家庭背景和学业表现都要显著地优于毕业后直接就业的学生。进一步的分析表明,在国内研究生教育机会获得中,家庭背景变量基本上是通过影响本科就读高校的类型和学业表现来发挥作用的,而比较海外留学与国内读研这两种选择,本科就读学校类型和学业表现对此并没有显著的影响,主要是家庭社会经济地位在起作用。上述研究发现对于当前中国的研究生教育招生和培养工作具有重要的政策意涵。     

Assessing the impact of an asset-based intervention on educational outcomes of orphaned children and adolescents: findings from a randomised experiment in Uganda

ABSTRACT

This paper examines the effect of an asset-based intervention on academic performance and school transition among orphaned and vulnerable children in Uganda. Participants were randomly assigned to either the control arm or two treatment arms receiving an asset-based intervention. Participants in the treatment arms scored better grades; and had higher odds of transitioning to post-primary education relative to the control arm. Programmes which target financial insecurity may have a positive impact on the educational achievement and progression of orphaned children. There is a need to consider incorporating asset-based interventions within the development of educational policy, especially in low-income countries.