Table Of Content

The Dynamics of Performance Management Public Management and Change Series Beryl A. Radin, Series Editor Editorial Board Robert Agranoff William Gormley Michael Barzelay Rosemary O’Leary Ann O’M. Bowman Norma M. Riccucci H. George Frederickson David H. Rosenbloom Titles in the Series Challenging the Performance Movement: Accountability, Complexity, and Democratic Values beryl a. radin Charitable Choice at Work: Evaluating Faith-Based Job Programs in the States sheila suess kennedy and wolfgang bielefeld The Dynamics of Performance Management: Constructing Information and Reform donald p. moynihan The Greening of the U.S. Military: Environmental Policy, National Security, and Organizational Change robert f. durant How Management Matters: Street-Level Bureaucrats and Welfare Reform norma m. riccucci Managing within Networks: Adding Value to Public Organizations robert agranoff Measuring the Performance of the Hollow State david g. frederickson and h. george frederickson Public Values and Public Interest: Counterbalancing Economic Individualism barry bozeman Revisiting Waldo’s Administrative State: Constancy and Change in Public Administration david h. rosenbloom and howard e. mccurdy The Dynamics of Performance Management Constructing Information and Reform DONALD P. MOYNIHAN Georgetown University Press / Washington, D.C. Georgetown University Press, Washington, D.C. www.press.georgetown.edu ©2008by Georgetown University Press. All rights reserved. No part of this book may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying and recording, or by any information storage and retrieval system, without permission in writing from the publisher. Library of Congress Cataloging-in-Publication Data Moynihan, Donald P. The dynamics of performance management : constructing information and reform / Donald P. Moynihan. p. cm. — (Public management and change series) Includes bibliographical references and index. isbn 978-1-58901-194-6(alk. paper) 1. Performance—Management. 2. Organizational effectiveness. 3. Administrative agencies—United States—Management. I. Title. hf5549.m69 2008 352.6'6—dc22 2007020696 This book is printed on acid-free paper meeting the requirements of the American National Standard for Permanence in Paper for Printed Library Materials. 15 14 13 12 11 10 09 08 9 8 7 6 5 4 3 2 First printing Printed in the United States of America Dedicated to my parents, Donie and Joan Moynihan This page intentionally left blank Contents List of Illustrations ix Acknowledgments xi Acronyms xiii Introduction 1 1 An Era of Governance by Performance Management 3 2 Performance Management as Doctrine 26 3 The Partial Adoption of Performance Management Reforms in State Government 39 4 Explaining the Partial Adoption of Performance Management Reforms 58 5 Explaining the Implementation of Performance Management Reforms 75 6 The Interactive Dialogue Model of Performance Information Use 95 7 Performance Management under George W. Bush 118 8 PART and the Interactive Dialogue Model 139 9 Dialogue Routines and Learning Forums 163 10 Rethinking Performance Management 189 Appendix A: Interview Protocol for State Interviews 211 Appendix B: State Backgrounds—Political Culture, Budgeting Practices, Performance Management History, and Corrections Policies 215 Appendix C: Program Assessment Rating Tool 221 Bibliography 225 Index 241 vii This page intentionally left blank Illustrations Tables 1.1 Government Performance Grades for Managing for Results and Information Category 13 1.2 Data Sources 21 2.1 The Doctrinal Benefits Claimed by Performance Management 36 3.1 Performance Management Legislation in the States 40 3.2 Focus on Performance Information: Range of Documented Performance Data 41 3.3 Degree of Managerial Control of Specific HR Functions 44 3.4 Promised Benefits of Performance Management Compared with Case Findings 53 5.1 Unexpected Instrumental Benefits of Performance Management 81 7.1 Aligning Strategic Goals with Resources — NASA’s FY06 Budget Request 121 9.1 Case Characteristics and Outcomes 169 Boxes 2.1 Government Performance and Results Act, Section 2 28 3.1 Agency Discretion in Procurement/Contracting in Fifty States 43 7.1 Congressional Reactions to OMB’s Budget and Performance Integration Efforts 123 8.1 Arguing about Performance Information: Rationales Used in Disagreeing with PART 153 9.1 Elements of Learning Forums 179 10.1 Ten Ways to Rethink Performance Management 190 10.2 Characteristics More Important Than Performance Management 202 Figures 1.1 Integrating Planning, Measurement, and Decision Venues 6 2.1 How Managerial Authority and Focus on Results Create Different Management Systems 33 ix