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John Mayne - Monitoring Performance in the Public Sector: Future Directions From International Experience

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John Mayne Monitoring Performance in the Public Sector: Future Directions From International Experience
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Monitoring Performance
in the Public Sector
Comparative Policy Evaluation Series
Ray C. Rist, series editor
Program Evaluation and the Management of Government
edited by Ray C. Rist
Budgeting, Auditing, and Evaluation
edited by Andrew Gray, Bill Jenkins, and Bob Segsworth
Can Governments Learn?
edited by Frans L. Leeuw, Ray C. Rist, and Richard C. Sonnichsen
Politics and Practices of Intergovernmental Evaluation
edited by Olaf Rieper and Jacques Toulemonde
Monitoring Performance in the Public Sector
edited by John Mayne and Eduardo Zapico-Goi
Public Policy and Program Evaluation
by Evert Vedung
Carrots, Sticks, and Sermons: Policy Instruments and Their Evaluation
edited by Marie-Louise Bemelmans-Videc,
Ray C. Rist, and Evert Vedung
Building Effective Evaluation Capacity
edited by Richard Boyle and Donald Lemaire
International Atlas of Evaluation
edited by Jan-Eric Furubo, Ray C. Rist, and Rolf Sandahl
Collaboration in Public Services: The Challenge for Evaluation
edited by Andrew Gray, Bill Jenkins, Frans Leeuw, and John Mayne
Quality Matters: Seeking Confidence in Evaluation, Auditing, and Performance Reporting
edited by Robert Schwartz and John Mayne
From Studies to Streams: Managing Evaluation Services
edited by Ray C. Rist and Nicoletts Stame
First published 1997 by Transaction Publishers
Published 2017 by Routledge
2 Park Square, Milton Park, Abingdon, Oxon 0X14 4RN
711 Third Avenue, New York, NY 10017, USA
Routledge is an imprint of the Taylor & Francis Group, an informa business
Copyright 1997 by Taylor & Francis.
All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers.
Notice:
Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe.
Library of Congress Catalog Number: 96-43358
Library of Congress Cataloging-in-Publication Data
Monitoring performance in the public sector : future directions from interna
tional experience / John Mayne and Eduardo Zapico-Goi ; with a foreword
by Joseph S. Wholey.
p. cm(Comparative policy analysis series)
Includes bibliographical references and index.
ISBN 1-56000-292-1 (alk. paper)
1. Administrative agenciesEvaluation. 2. Executive departments
Evaluation. I. Mayne, J. (John). II. Zapico-Goi, Eduardo. III. Series.
JF1351.M575 1996
351.009Tdc20
96-43358
CIP
ISBN 13: 978-1-4128-0632-9 (pbk)
Contents
Joseph S. Wholey
1. Effective Performance Monitoring: A Necessary
Condition for Public Sector Reform
John Mayne and Eduardo Zapico-Goi
Part II: Designing and Implementing
Effective Performance Monitoring
2. Establishing Performance Monitoring:
The Role of the Central Unit
Terje Haugli Nilsen
3. Performance Monitoring for Budget Management:
A New Role of the Budget Center
Eduardo Zapico-Goi
4. Public Sector Reform Strategy: A Giant
Leap or a Small Step?
Sylvie Trosa
5. Performance-Monitoring Systems:
A Basis for Decisions?
RolfSandahl
6. Accountability for Program Performance: A Key to
Effective Performance Monitoring and Reporting
John Mayne
Part III: Comparing Performance Monitoring
in Policy Areas
7. The Performance-Monitoring System in the
Korean Government, With Special Reference to Health Care
Myoung-soo Kim
8. A System for Monitoring and Control of Health Services:
The Case of Mexico
Francisco Javier Casas Guzman
Richard C. Sonnichsen
10. Monitoring the Efficiency, Quality, and Effectiveness
of Policy Advice to Government
John Nicholson
Eduardo Zapico-Goi and John Mayne
Joseph S. Wholey
A host of promising public sector reform efforts are under way throughout the world. In governments challenged by budget deficits and declining public trust, these reform efforts seek to improve resource allocation and other policy decision making, to improve public management, to improve program efficiency and effectiveness, and to help rebuild public confidence in government.
Whether through regular measurement of program inputs, activities, and outcomes, or through episodic one-shot program evaluation studies, performance monitoring plays a central role, as this book argues, in the most interesting of the current reform efforts. Performance monitoring helps clarify the purposes and goals of public sector activities and helps communicate the costs, results, and value of public programs. A large number of countries are identified in the book where performance monitoring is seen as a critical element in public sector reform efforts.
As performance monitoring and public sector reform efforts evolve, it is important that we discover how performance monitoring can help improve policy decision making, public management, program efficiency and effectiveness, and public trust. In the pages that follow, case studies and cross-case analyses describe and evaluate a number of performance monitoring efforts as they have evolved over the past twenty years.
Critical initial steps in effective performance monitoring are the identification and clarification of the goals and objectives in terms of which performance will be assessed (as well as the identification of key external factors that could influence the extent to which goals and objectives are achieved). Performance is not an objective reality out there waiting to be measured and evaluated. Instead, performance is socially constructed reality that exists in peoples minds.
The performance of a program will be found in the network of inputs, activities, outputs, and outcomes (intended and unintended outcomes, intermediate and end outcomes) that are most important from the perspectives of the programs key stakeholders. Often performance will be found in comparisons between actual levels and projected target levels of inputs, activities, outputs, or outcomes. We have to work with customers and other important stakeholders to define the performance of important programs in terms that capture important competing and often conflicting goals of parliament, interest groups, grantees and other partners, and customers served by the program, as well as agency and program executives, managers, budget officials, and other staff. In any specific case, the key dimensions of performance may be a programs direct or indirect costs, the services that the program delivers, intermediate outcomes such as customer satisfaction or actions taken by partners including other levels of government, or end outcomes such as environmental quality or health status.
Performance should be defined broadly enough to capture the key dimensions of performance that are of interest to important stakeholders. Only after this step is it possible to assess the relevance and utility of potential performance measures. One of the new challenges offered in this book is the need to consider dimensions of performance beyond the traditional ones of economy, efficiency, and effectiveness. With an increasingly complex, interdependent, and uncertain public sector environment, for some stakeholders, meeting objectives fixed some time ago may not be as an important dimension of performance as is the capacity of the program or organization to adapt to current and future change.
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