The Balanced Scorecard Beyond Reports and Rankings
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The Balanced Scorecard Beyond Reports and Rankings More commonly used in the commercial sector, this approach to strategic assessment can be adapted to higher education. by Alice C. Stewart and Julie Carpenter-Hubin ince the 1990s, accountability in higher education has become a challenging issue for higher education. SIncreasingly, institutions of higher learning have been required to provide performance indicators—empirical evi- dence of their value—to state, alumni, prospective student, and other external stakeholders. State commissions of higher education and boards of regents have, in numerous states, developed “report cards” that grade colleges and universities according to their level of performance in a variety of cate- Alice C. Stewart is director of strategic gories. Surveys in the popular press and on the Internet rank analysis and planning and assistant pro- institutions according to their retention and graduation rates, fessor of strategic management at The resources, academic reputation, and more. Ohio State University. Her work has been Though substantial energy and effort have been expend- presented at the National Academy of ed to collect, organize, and present performance information, Management and the Strategic Manage- few would argue that the emphasis on the various report ment Society and has been published in cards and surveys has dramatically changed the operational such outlets as the Journal of Business performance of most major universities. Commenting on the Venturing and Advances in International Comparative Management. inadequacy of performance indicators for higher education, H.R. Kells (1990) warns of the following: Julie Carpenter-Hubin is strategic initia- tives project manager at The Ohio State [This] notion to reduce complexity is acceptable if University, where she received her bach- such reduction does not remove or reduce our ability elor’s. She is currently pursuing a mas- to judge true worth. The lists of performance ter’s in public administration. Her research indicators presented in study after study make little interests include strategic decision mak- ing and university organization. or no reference to the intentions (goals) of the organ- ization to be described and virtually no reference to Planning for Higher Education 37 Alice C. Stewart and Julie Carpenter-Hubin programme quality with respect to the specific formance. A quick review of higher education report cards results of instruction and research. (p. 261–62) used to assess public colleges and universities in various states shows a principal focus on undergraduate education. With important stakes such as increasing financial This focus is consistent with the interest of many consumer resources, encouraging high-quality student applicants, and groups and governing bodies associated with higher educa- attracting faculty dependent upon how they “measure up,” tion. To present complex information in an easy-to-read and universities are rightly concerned with how best to present attractive format, external indicators are often presented in themselves. Institutions attempt to improve accountability the form of rankings or report cards. Furthermore, it is com- while dealing with the more difficult and complex issue of mon for external bodies to use a single set of indicators to how to improve university effectiveness. The assumption of measure many institutions across a wide range of missions. many externally derived accountability programs is that For colleges and universities affected by external assess- emphasis on one will result in the other. However, until per- ment, the management task is to learn the art of image man- formance indicators are linked to the drivers of institutional effec- Performance indicators can provide tiveness in a meaningful way, the desired improvements in service, substantive information for strategic productivity, and impact are unlikely to occur. The real test for decision making. institutions is to create meaning- ful systems for strategic organizational assessment and then agement (Wu and Petrshiuses 1987). Since many external use that information in internal policy and resource allocation stakeholders have resources (financial, student, and accredita- decisions. tion) that are of interest to the institution, understanding the Performance indicators can be powerful tools, at both the formulaic relationships between the performance numbers university and the college/department levels, for internal eval- and how they influence perception of success or failure is key. uation and strategic assessment. Though similarities exist Thus, the emphasis of the university is primarily on external between the indicators used for external reporting and inter- perception of success and manipulation of image and only nal assessment—indeed, many of the same data can be used secondarily on improved institutional effectiveness. This con- for both—the development of internal indicators requires clusion is based not on cynicism, but on the reality that the more attention to the contextual characteristics and opera- former is easier and more quickly influenced and changed tional goals of the university. Under these circumstances, per- than the latter. formance indicators can provide substantive information for To be useful internally, performance indicators must be strategic decision making. tied to the values and goals of the particular university and should emanate from the institution’s performance objectives. External Accountability Versus These objectives translate the broad goals of the institution Internal Assessment into specific research problems that can be studied and around which strategies for improvement can be developed. The differences between the use of performance indicators A different type of institutional stakeholder—university deci- for external accountability and internal assessment are clear sion makers (i.e., faculty, academic administrators, and (see table 1). Performance indicators developed for external nonacademic administrators)—uses performance indicators audiences are generally aimed at informing three types of developed for internal audiences. The internal audience repre- stakeholders: consumers (i.e., students and parents), govern- sents a very broad spectrum of perspectives and interests ing bodies (i.e., legislators and accrediting agencies), and with a wide range of opinions regarding what might be potential revenue providers (i.e., alumni, donors, and funding acceptable institutional outcomes. These internal audiences agencies). The external audiences are often limited in their tend to adopt multidimensional views of performance. Often, area of interest and have specific ideas of what might be issues are studied in great depth with information presented acceptable institutional outcomes. These external audiences in the form of long, complex faculty reports. At times, the tend to adopt incomplete and one-dimensional views of per- focus on the higher goals and values precludes specific action 38 Winter 2000–2001 The Balanced Scorecard: Beyond Reports and Rankings appropriate linkage between the values Table 1 and goals of the internal audience, the strategic tasks required, and the data Comparison of Externally and Internally Driven collection and analysis necessary is Assessment important for useful internal perform- Externally Driven Internally Driven ance assessment. Audience Consumers Faculty – Students The Balanced Scorecard – Parents Academic administrators In 1992, Robert S. Kaplan and David P. Governing bodies Norton introduced the balanced score- – Legislators Nonacademic card, a set of measures that allow for a – Accrediting administrators holistic, integrated view of business per- agencies formance. The scorecard was originally Revenue generators created to supplement “traditional finan- – Alumni cial measures with criteria that meas- – Foundations ured performance from three additional – Donors perspectives—those of customers, Concerns Undergraduate education Organizational agenda internal business processes, and learn- Image management Resource allocation ing and growth” (Kaplan and Norton priorities 1996, p. 75). By 1996, user companies had further developed it as a strategic Focus Influence choices of Influence political management system linking long-term relevant audience coalitions strategy to short-term targets. The Format Report cards Faculty committee development of the balanced scorecard Rankings or institutional method occurred because many busi- Indices reports ness organizations realized that focus on a one-dimensional measure of per- due to a lack of a supporting political coalition and/or criteria formance (such as return on investment by which to evaluate the plan. Though institutional effective- or increased profit) was inadequate. Too often, bad strategic ness and enhanced academic reputation are common goals, decisions were made in an effort to increase the bottom line there is often lack of consensus about how institutional at the expense of other organizational goals. The theory of the processes may actually have an impact on those goals. balanced scorecard suggested that rather than the focus, For college and university decision makers engaged in financial performance is the natural outcome of balancing internal assessment, the management task is to learn the art other important goals. These other organizational goals inter- and science of institutional strategic assessment. Since con- act to support excellent overall organizational performance. If sensus and