Public Service Ethos
One crucial aspect of public service reform surrounds issues of motivation across the public, private and voluntary sectors.
On an ideological level, this battle has been fought between the border posts of public sector ethos and public choice. The former argues that there is an altruistic ethos unique to public sector employees imbuing public provision with intrinsic and instrumental superiority, while the latter claims that all agents are self-interested egoists and thus privatised public-service markets are necessarily the route to optimal efficiency in production.
Empirically, both of these theories have been subject to criticism with a consensus growing around the public service ethos: a commitment to duty, fairness, openness and accountability is not sector-specific but rather subject to a host of situational factors including institution design and agent-management.
Below you will find materials drawn from both the classic theoretic-ideological arguments and the subsequent empirical debate.
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How Important is Pro-Social Behaviour in the Delivery of Public Services? (PDF) Gregg, Paul; Grout, Paul; Ratcliffe, Anita; Smith, Sarah and Windmeijer, Frank, 2008 Centre for Market and Public Organisation, University of Bristol An empirical study comparing the performance of unpaid overtime by staff employed by not-for profit and for-profit public sector providers in health, education and social care. UK
To Gladden the Heart of Miss Nightingale: Contracting for Complexity (PDF)
Sturgess, Gary L., 2006
Serco Institute
In the debate surrounding public service competition, critics and proponents alike agree that contracting is a powerful driver of organisational change. Conflict arises over whether private motivation can be harnessed to serve public ends. In this, the second in the Institute's discussion paper series, Executive Director Gary Sturgess outlines how interest can be joined with duty in the provision of complex public services.
Good People, Good Systems: Survey Report (PDF)
Mathias, Megan and Reddington, Emma, 2006
Serco Institute
This document provides a summary of findings from the Serco Institute's 2006 survey on the public service ethos among front-line service-deliverers in the private sector.
Good People, Good Systems: Detailed Survey Results (PDF) Mathias, Megan and Reddington, Emma, 2006 Serco Institute This document provides a detailed breakdown of findings from the Serco Institute's 2006 survey on the public service ethos among front-line service-deliverers in the private sector. UK
Nurses in the Independent Sector 2005: Results for members working in the independent sector from the 2005 and 2001 RCN Employment Surveys (PDF) Employment Research Ltd, 2006 Royal College of Nursing A report based on the findings of the 2001 and 2005 Royal College of Nursing employment surveys which explores employment experience and the views of nurses working outside the NHS with independent sector employers. It looks at demographic profiles, pay, grading, job roles, hours, workloads, professional development and general morale. Publication Code: 003 019 UK
Behavioural Economics: Seven Principles for Policy Makers (PDF)
Dawnay, Emma and Shah, Hetan, 2005
New Economics Foundation (nef)
This report summarises findings from behavioural economics and psychology which show how empirical human behaviour differs from the 'rational man' of neoclassical economics. Informed by this multi-faceted, nuanced view of human behaviour, the authors distil their analysis to make seven key recommendations for policymakers.
The Future of Public Services in Europe (PDF)
Needham, Catherine and Murray, Alasdair, 2005
Catalyst and the Centre for European Reform for UNISON and Ver.di
This trade union discussion document how the debate surrounding public services in Europe could evolve in the future. In particular it seeks to stimulate "productive thought" on how public service trade unions ought best to respond to challenges and re-assert the credentials of public provision and the ethos that model is said to embody.
The Evolution of the British Public Service Ethos: A Historical-Institutional Approach in Explaining Change (PDF) Vandenabeele, Wouter, and Horton, Sylvia, 2005 Joint EGPA-ASPA Conference, Catholic University Leuven This paper investigates the emergence of the British Civil Service's public service ethos (PSE) throughout history before seeking to explain variations in the content of the PSE by embedding it in a historical-institutional framework. As such it provides a useful historical narrative on the evolution and reform of the Civil Service in the UK as well as prompting some interesting questions on institutional change and motivation in government, though without offering too many answers. Belgium
Law, Economic Incentives and Public Service Culture (PDF) Prosser, Tony; O'Malley, Pat; Scott, Colin; McDermont, Morag; Vincent-Jones, Peter; Feintuck, Mike and Cowan, Dave, 2005 Centre for Market and Public Organisation This document presents a series of papers concerning the role law plays in creating incentives in public services. The five reports represent the argument that law can provide incentives to allow for the contractualisation of the delivery of public services and contracts. Reports in the document include papers on police management and housing. UK
Good People, Good Systems (PDF)
Reddington, Emma, 2004
Serco Institute
In this groundbreaking study, the Serco Institute interviewed former public servants who are now managing the delivery of front-line public services in the private sector. Analysis of the findings shows that service managers retain their strong sense of public service vocation following the sector switch. In addition, three key inter-sector differences are highlighted: managerial autonomy, closer management of staff and a personal responsibility for service outcomes.
Explaining Public Service Performance: Does Management Matter? (PDF) Boyne, George A. Professor , 2004 This paper looks at the role of public management in determining public service performance. The author argues that there is a theoretical and practical importance of research on the relationship between management and service performance. The discussion in this paper is based on an overview of research activity and publications in the field of public administration, public management and public policy. UK
Still a Public Service Ethos?
Norris, Pippa, 2004
John. F Kennedy School of Government. Havard University
This study explores how far governments are succeeding in getting people in the right job, energizing them to work effectively and rewarding them for good performance. In particular it examines whether public and private sector employees in many countries differ in their motivational values, employment experiences and job satisfaction.
Motivation, Agency and Public Policy
Le Grand, Julien, 2003
Oxford University Press
This book provides a new perspective on public policy design in the context of motivation, emphasising the importance of analysing the motivation and agency of public service workers and beneficiaries. It argues that conventional assumptions on agents as either self-interested rationalists or public-spirited altruists are equally false and posits a new, differentiated theory of public service motivation.
A Public Service Ethic and Political Accountability
Plant, Raymond, 2003
Parliamentary Affairs 56:560-579
This article examines the nature of the public service ethos and the extent to which such an ethos is compatible with either private sector or voluntary sector delivery. It looks at the critique of the public service ethos mounted by the Right and Left, respectively public choice theorists and those who believe that public services should be made more democratically accountable. It concludes with some suggestions about forms of accountability to meet the demands of a much more hybrid welfare and public service delivery system.
Can Market Forces Be Used For Good? (PDF) Dixon, Jennifer; Le Grand, Julian; Smith, Peter, 2003 King's Fund This paper asks whether a highly centralised healthcare system can sit comfortably alongside a market-led approach, and whether market forces can respond effectively to meet the demands of the UK's ageing population. It is comprised of the views of three experts: Le Grand writes on stronger market incentives for secondary care providers; Smith argues against even modest experimentation with stronger market incentives; and Dixon looks at the plausibility of combining the best aspects of market disciplines with planned provision. ISBN 1 85717 477 1 UK
Public Choice III
Mueller, Dennis, 2003
Cambridge University Press
This is an authorative publication on public choice, the influential academic school which argues for liberalisation of public service markets on the basis that there is little difference in motivation between public and private sector workers, and therefore competition and the profit motive is the route to harness political efficiency.
Counting the Smiles: Morale and Motivation in the NHS (PDF)
Finlayson, Belinda, 2002
King's Fund
This research summary, based on a literature review and focus groups with NHS staff, identifies three key factors that affect morale and motivation: whether staff feel valued, the working environment, and resources and pay. It argues that staff morale is vital to improving NHS effectiveness and concludes with a series of recommendations to this end.
House of Commons Public Administration Committee inquiry into Public Service Ethos. Government Response to the Committees Seventh Report of Session 2001-2002
House of Commons Public Administration Select Committee, 2002
The Stationery Office
House of Commons Public Administration Select Committee: The Public Service Ethos (PDF) House of Commons Public Administration Select Committee, 2002 The Stationery Office Limited This report examines the principles which underpin the Government's programme of public service reform, and in particular the idea of the public service ethos. It rejects two "rival myths" about public service, one suggesting that only the public sector can properly deliver public services, the other implying that there is nothing special that distinguishes public services from private services. UK
Advancing A New Public Service Ethos (PDF) Aldridge, Rod; Stoker, Gerry, 2002 New Local Government Network (NLGN) This pamphlet argues that a diverse supply of public service market providers demands a new public service ethos that all deliverers across all three sectors can commit to. There are five elements of this new ethos: a performance culture, a commitment to accountability, a capacity to support universal access, responsible employment practices and a contribution to community well-being. Five steps for implementation of these new goals are also listed. ISBN 1 903 447 216 UK
The Provision of Health Care: Is the Public Sector Ethically Superior to the Private Sector? (PDF)
Le Grand, Julian, 2001
London School of Economics Health and Social Care Discussion Paper Series: No. 1
This discussion paper examines the comparative ethical merits of health service provision by the public and private sectors within the context of worker motivation. The author argues that even if one accepts the idea of a sector-specific ethos, private-sector health provision may be morally superior to public-sector provision. This is because questions over volume of provision and public-sector employee-exploitation generate a clash of moral principles with no lexicographically dominant value.
Public Sector Work Motivation: A Review of the Current Literature and a Revised Conceptual Model
Wright, Bradley, 2001
Journal of Public Administration Research and Theory 11 (4): 559-586
This article reviews the literature on work motivation in the public sector, with careful attention to both underlying theoretical assumptions and empirical evidence. The author draws on psychological research on work motivation, as well as the theory and empirical evidence regarding the unique characteristics of public organizations and employees. He also develops a revised public-sector model of work motivation.
House of Commons Public Administration Committee inquiry into Public Service Reform and Public Service Ethos: CBI Evidence Confederation of British Industry (CBI), 2001 This paper calls for a distinction between a public sector ethos and a public service ethos, arguing that profit does not act as a barrier to effective public services. Rather, it can motivate better delivery while PPPs can strengthen accountability to citizens and end-users. UK
Professionalism and Trust - The Future of Teachers and Teaching (Web Page)
Morris, Estelle, 2001
Social Market Foundation (SMF)
This pamphlet outlines a Department for Education and Skills strategy to put education professionals at the heart of reform in this sector. Given the importance of teachers and support staff not only to school standards but wider society, this strategy attempts to establish their organisation, management, support and reward at the centre of future policy. In doing so, it stresses the importance of agent freedom, innovation and ethos. The full report can be downloaded via this web page link.
The Gift Relationship: From Human Blood to Social Policy Titmuss, Richard, 1997 LSE Books/New Press This book is a key publication in the ideological debate surrounding the public service ethos. It articulates the author's belief in altruism and public service as essential to the moral basis for government. The author argues that public-sector provision of public services is both inherently and instrumentally superior to private-sector provision on account of the altruistic motivations under-pinning government workers' output. Originally published in 1970, it was re-released with new chapters in 1997 (Eds: Ashton, John and Oakley, Ann). ISBN 1-56584-403-3 UK
Report on the Organisation of the Permanent Civil Service (PDF) Northcote, Stafford H. and Trevelyan, Charles E., 1854 Her Majesty's Stationery Office This report recommended an end to the system of patronage and privilege for appointments to civil service positions so as to reduce inefficiency and corruption and its replacement with a system of promotion based on merit and competition. It led to the creation of the Civil Service Commissioners and recrutiment through examination and interview. UK