ORGANIZATIONAL CHANGE IN A PUBLIC SECTOR ORGANIZATION: A
CASE OF COMPUTERIZED DRIVING LICENSING AUTHORITY,
KHYBER PAKHTUNKHWA
by
Muhammad Nauman Habib
A Thesis submitted to the Institute of Management Sciences, Peshawar in partial
fulfilment of the requirements for the degree of
Doctor of Philosophy in Management
Institute of Management Sciences, Peshawar
2012-2015
ORGANIZATIONAL CHANGE IN A PUBLIC SECTOR ORGANIZATION: A
CASE OF COMPUTERIZED DRIVING LICENSING AUTHORITY,
KHYBER PAKHTUNKHWA
by
Muhammad Nauman Habib
A Thesis submitted to the Institute of Management Sciences, Peshawar in partial fulfilment of the requirements for the degree of Doctor in Philosophy in Management
Institute of Management Sciences, Peshawar 2012-2015
Certificate of Approval
This is to certify that the research work presented in this thesis entitled, “Organizational Change in A Public Sector Organization: A case of Computerized Driving Licensing Authority, Khyber Pakhtunkhwa” was conducted by Muhammad Nauman Habib under the supervision of Dr Waseef Jamal, Institute of Management Sciences, Peshawar and Dr. Humera Manzoor, Kohat University of Science and Technology, Kohat.
No part of this thesis has been submitted anywhere else for any other degree. This thesis is submitted to the Institute of Management Sciences, Peshawar in partial fulfilment of the requirements for the degree of Doctor of Philosophy in the field of Management.
Student Name: Muhammad Nauman Habib Signature: ______
Examination Committee: a) External Examiner 1: Dr. Gohar Saeed Signature: ______
Additional Director, Pakistan Academy for Rural Development, Peshawar c) Internal Examiner: Dr. Aamer Taj Signature: ______
Associate Professor, Institute of Management Sciences, Peshawar
Supervisor: Dr. Waseef Jamal Institute of Management Sciences, Peshawar Signature: ______Co-Supervisor: Dr. Humera Manzoor Kohat University of Science and Technology, Kohat Signature: ______Director: Dr. Muhammad Mohsin Khan Institute of Management Sciences, Peshawar
Signature: ______
Author’s Declaration
I, Muhammad Nauman Habib, hereby state that my PhD thesis titled, “Organizational
Change in A Public Sector Organization: A case of Computerized Driving Licensing
Authority, Khyber Pakhtunkhwa” is my own research work and has not been submitted previously by me for taking any degree from the Institute of Management Sciences,
Peshawar or anywhere else in the country/world.
At any time if my statement was found to be incorrect even after my graduation, the
Institute has the right to withdraw my PhD degree.
Muhammad Nauman Habib 28 February 2019
i
Plagiarism Undertaking
I solemnly declare that research work presented in the thesis titled, “Organizational Change in A Public Sector Organization: A case of Computerized Driving Licensing Authority, Khyber Pakhtunkhwa” is solely my research work with no significant contribution from any other person. Small contribution/help wherever taken has been duly acknowledged and that complete thesis has been written by me.
I fully understand the zero-tolerance policy of the HEC and Institute of Management Sciences, Peshawar, Pakistan towards plagiarism. Therefore, as an Author of the above- titled thesis, I declare that no portion of my thesis has been plagiarized and any material used as a reference is properly referred/cited.
I undertake that if I am found guilty of any formal plagiarism in the above-titled thesis even after award of PhD degree, the University reserves the rights to withdraw/revoke my PhD degree and that HEC and the University has the right to publish my name on the HEC/University website on which names of students are placed who submitted plagiarized thesis.
Student /Author Signature: ______
Name: Muhammad Nauman Habib
ii
Dedication
To
My Parents, Wife, and Kids
iii
Acknowledgement
Undertaking a PhD program was life-changing for me in many ways and particularly writing of this doctoral dissertation was quite a challenge. I need to thank many people who have supported and guided me through this research experience.
My sincere humbleness and gratitude go to the Almighty Allah who has given me the wisdom, courage, and intellect to take on this challenge, and to whom I could turn to when I felt lost in the darkness.
Expressing my gratitude to all those who in diverse ways have contributed and inspired me in completing this work does not seem less challenging. I am grateful to my dearest supervisors Dr. Waseef Jamal and Dr. Humera Manzoor, without whom I would not have made this endeavour a success. Their dedication to excellence and willingness to read through the many drafts, provide constructive criticism and guide me through the various stages of writing this thesis was invaluable.
My profound gratitude to all the participants of CDLA, KPTP and all those previous employees who spared time and participated in this research as respondents.
Without their contribution, this investigation would not have been possible.
I am grateful to my parents, siblings and family members for understanding my commitment and for motivating me from time to time. Particularly my father, who remained the real inspiration for me. His belief in me made me what I am today. My parent’s prayers and never-ending encouragement led me to achieve this milestone. I would like to mention my dearest wife Mrs Sabeena Nauman and my two adorable kids
Mr. Muhammad Affan Habib and Mr. Muhmmad Daniyal Habib for their compromises, support and sparing time for me to complete my thesis. This would not iv have been possible without their understanding and cooperation, to which I will be forever indebted.
I want to mention that my employer and the organization “City University of
Science and Information Technology” always supported me in the completion of this task. The honourable Mr. Sabur Sethi (President), Prof. Dr. Attaullah Shah (Vice
Chancellor) and Mr. Amjad Ali (Registrar) has always motivated me and allowed me to take time to complete my research. I would like to thank my colleagues and my students for their belief and support. Particularly, Dr. Aamir Nadeem for his guidance,
Ms. Uzma Khalil for her encouragement and correcting, proofreading and improving my English writing skills. Mr. Shahzad Khan, Mr. Saqib Shahzad and Mr. Zunnoorain
Khan for being the best source of encouragement and by calling me a doctor even before the completion of this degree.
v
Abstract
The purpose of this research was to understand organizational change initiative in public sector organization. To expound the understanding, planning and initiation of public sector organizational change, a comprehensive and integrated study was required. It was also essential to undertake employee’s perspective and their descriptive experiences about the change process and the magnitude of employment of New Public
Management (NPM) practices. Computerized Driving Licensing Authority (CDLA) of
Khyber Pakhtunkhwa Traffic Police (KPTP) was selected for investigation. An exploratory study was framed in compliance to nature of the current study based on employees’ experiences, therefore, this research adopted social constructionist’s perspective with the help of narratives. Semi-structured in-depth interviews were designed and conducted on the employees of an organization at the time of change initiation. In total thirty-one interviews were conducted, including one repeat interview with project team member. Interviews were transcribed and grouped into meaningful information using narratives and thematic analysis techniques. A technology driven change was detected in CDLA with a focus on process-oriented change. The employees’ resistance and negative response towards change was ascribed to the lack of HR planning and practices. It was also found that there were several causes
(including system related issues and human-related issues), components, complexities and constraints to the implementation of organizational change in CDLA. The change was brought in several phases using a stepwise approach. Moreover, gaps were identified in two successional phases of planning and implementation of change process. It was evident from the inquiry that technocrats were not welcomed in the bureaucratic system which led to hurdles at the launching phase of reform initiative for project team. In CDLA, few characteristics of NPM were objectively prevailing in
vi practice, however, the study stipulated the absence of complete use and essence of NPM by public sector of KP. This research provided a comprehensive direction for future research including multiple case studies investigation, development of change model for developing countries and further exploration of change in autocratic organizations.
vii
List of Acronyms and Abbreviations
ADB Asian Development Bank
CDLA Computerized Driving Licensing Authority
CMU Change Management Unit
CSF Critical Success Factor
DIT Directorate of Information Technology
DOST Directorate of Science and Technology
ERP Enterprise Resource Planning
HC Human Capital
HR Human Resource
HRD Human Resource Development
HRM Human Resource Management
ICT Information and Communication Technology
IDU Integrated Development Unit
IMF International Monetary Fund
IT Information Technology
JIT Just in time
KP Khyber Pakhtunkhwa
viii
KPRTI Khyber Pakhtunkhwa Right to Information
KPTP Khyber Pakhtunkhwa Traffic Police
NPM New Public Management
OD Organization Development
OECD Organization of Economic Cooperation and Development
PA Public Administration
PC Planning Commission
PML-N Pakistan Muslim league Nawaz
PSR Public Sector Reforms
PTI Pakistan Tehreek-e-Insaf
RIC Reform Implementation Cell
SOP Standard Operating Procedure
TQM Total Quality Management
UK United Kingdom
UN United Nations
US United States
USA United States of America
USAID United States Agency for International Development
WGA Working Groups Approach
ix
Table of Contents
Author’s Declaration ...... i
Plagiarism Undertaking ...... ii
Dedication ...... iii
Acknowledgement ...... iv
Abstract ...... vi
List of Acronyms and Abbreviations ...... viii
Table of Figures ...... xvii
List of Tables ...... xviii
Chapter 1: Introduction ...... 1
1.1. Background of the Study ...... 1
1.2. Research Gap ...... 10
1.3. Rationale of Study ...... 14
1.4. Problem Statement ...... 16
1.5. Research Questions...... 19
1.6. Research Objectives ...... 19
1.7. Research Method ...... 20
1.8. Scheme of study...... 21
Chapter 2: Literature Review ...... 22
x
2.1. Introduction ...... 22
2.2. Background of Public Administration ...... 25
2.3. Management Theories Contributing in Public Administration ...... 27
2.3.1. Classical Management Theory ...... 27
2.3.2. Neo-Classical Theory...... 30
2.3.3. Modern Management Theory ...... 31
2.4. Issues in Traditional Public Administration ...... 34
2.5. Evolution of New Public Management ...... 37
2.5.2. Rationale of NPM ...... 51
2.5.2.1. Characteristics and Concept of NPM ...... 56
2.5.3. Criticism on NPM ...... 59
2.5.4. Evidences of NPM in Practice ...... 63
2.5.4.1. Evidence from Developed Countries ...... 65
2.5.4.2. Evidences from Developing Countries ...... 69
2.6. A Way Forward for Public Sector Organizations ...... 79
2.7. Approaches to Public Sector Reform Implementation ...... 80
2.7.1. Market Driven Reforms ...... 81
2.7.2. Managerial Reforms...... 81
2.7.3. Program Model of Reform ...... 82
2.7.4. Incremental Model of Reform ...... 83
2.8. Organizational Change in Public-Sector ...... 87
xi
2.9. Philosophy of Reforms/Organizational Change in Public Sector ...... 92
2.9.1. Problems of Organizational Change in Public Sector ...... 99
2.9.2. Employee Perception and Expectations ...... 102
2.9.3. Role of Manager ...... 109
2.9.4. Role of Government ...... 110
2.10. Evaluating Organizational Change/Public Sector Reforms ...... 110
2.11. Reassessing the Need for Research ...... 114
2.11.1. New Public Management as a tool for change ...... 116
2.11.2. Human Resource as a neglected aspect of change process ...... 118
2.11.3. Narrative: Extract meaning and experiences ...... 123
2.12. Summary ...... 125
Chapter 3: Research Methodology ...... 127
3.1. Overview ...... 127
3.2. A Qualitative Study ...... 127
3.3. Research Philosophy: A Case for Social Constructionism ...... 134
3.3.1. Research Ontology ...... 135
3.3.2. Epistemological Stance of Research ...... 136
3.3.3. Human Nature ...... 139
3.3.4. Research Methodology ...... 139
3.4. Rationale of selecting CDLA: the research context ...... 140
3.5. Data Collection ...... 143
xii
3.5.1. Initial Approach to Gain Access to CDLA ...... 143
3.5.2. Sources of Data ...... 145
3.6. Sample and Sampling Technique ...... 145
3.6.1. Participants ...... 147
3.6.2. Sample Size and Saturation ...... 148
3.7. Data Collection Tool and Data Triangulation ...... 150
3.8. Data Analysis, Processing and Coding ...... 155
3.8.1. Narrative Analysis and Thematic Networking ...... 155
3.8.2. Transcription Process ...... 157
3.8.3. Thematic- Narrative Analysis ...... 158
3.8.4. Coding Process...... 158
3.9. Implementation of Research Ethics ...... 161
3.10. Data Collection Timeframe ...... 164
3.11. Summary ...... 165
Chapter 4: Public Sector Reforms in Pakistan: An Overview and Case of
Computerized Driving Licensing Authority (CDLA) ...... 166
4.1. Introduction ...... 166
4.2. Public Sector Reforms in Pakistan ...... 166
4.3. Police Reforms ...... 179
4.4. Case of Computerized Driving Licensing Authority ...... 182
4.5. Conclusion ...... 196
xiii
Chapter 5: Findings and Analysis ...... 197
5.1. Introduction ...... 197
5.2. Organizational Change in CDLA ...... 198
5.2.1. Process of Organizational change ...... 199
5.2.2. Initial Approach to Organizational Change ...... 201
5.2.3. Pilot Phase ...... 203
5.2.4. The Launching Stage ...... 205
5.2.5. Interdepartmental conflict over authority ...... 209
5.3. The Causes, Components, Complexities and Constraints of Organizational
Change 212
5.3.1. Causes of organizational change in the public sector of KP ...... 213
5.3.1.1. System and Process; A cause of change...... 214
5.3.1.2. Public sector employees: a cause of change...... 219
5.3.2. Components of Successful Organizational Change ...... 225
5.3.3. Complexities of Organizational Change in Public Sector ...... 230
5.3.4. Constraints During Change implementation ...... 234
5.4. Employee’s Perspective and Experiences of Organizational Change ..... 242
5.4.1. Initial Response: Resistance to Change ...... 243
5.4.2. Confrontation and overcoming resistance to change ...... 248
5.4.3. Lack of Human Resource Practices ...... 251
5.5. Characteristics of NPM in CDLA ...... 253
xiv
5.5.1. Shortcomings in the New System ...... 254
5.6. Concluding Findings Using Thematic Network Model ...... 255
5.6.1. Basic, organizing and global themes ...... 255
5.6.2. Reasons for Change ...... 256
5.6.3. Types of change ...... 256
5.6.4. Approach to change ...... 256
5.6.5. Stakeholders involved in change process ...... 257
5.6.6. Change outcomes ...... 257
5.6.7. Response to change ...... 257
5.6.8. Constraints in implementation ...... 258
5.6.9. Causes of resistance ...... 258
5.6.10. Overcoming resistance to change ...... 258
5.6.11. Success factors ...... 259
5.6.12. New Public Management Characteristics ...... 259
Chapter 6: Discussion and Conclusion ...... 262
6.1. Introduction ...... 262
6.2. Change Initiative in CDLA ...... 263
6.3. Change Implementation in CDLA ...... 267
6.4. Critical Success Factors ...... 273
6.5. Types of Organizational Change ...... 275
6.6. Employee’s Experiences of Organizational Change in CDLA ...... 277
xv
6.7. New Public Management ...... 281
6.8. Conclusion ...... 282
6.9. Limitations of Research ...... 285
6.10. Theoretical Research Contributions and Implications...... 287
6.11. Research Implications and Contributions for Practitioners ...... 292
6.12. Directions for Future Research ...... 305
References ...... 308
Annexure-I: Demographics of Participants ...... 364
Annexure-II: NPM Characteristics in CDLA ...... 368
Annexure-III: PARTICIPANT INFORMATION SHEET ...... 370
Annexure-IV: Consent Form for Participants Taking Part in Doctoral Research
Project ...... 373
Annexure-V: Interview Guide and Questions ...... 375
Annexure VI: Interview Script Sample ...... 376
xvi
Table of Figures
Figure 1: Four Distinctive Approaches to Reforms ...... 87
Figure 2: Coding Process and Cycle ...... 161
Figure 3: Learner Permit Process ...... 187
Figure 4: Driving Test Process ...... 189
Figure 5: Medical Test Process and Driving License Issuance process ...... 190
Figure 6: License Printing Process ...... 191
Figure 7: Card Counting Process ...... 192
Figure 8: Old Vs New Process ...... 194
Figure 9: Organogram Traffic Police ...... 195
Figure 10: Organogram CDLA ...... 195
Figure 11: Phases of Organizational Change in Computerization of Driving Licensing
...... 208
Figure 12: Involvement of stakeholders at various stages ...... 209
Figure 13: Thematic Network ...... 261
xvii
List of Tables
Table 1: NPM Concept by Pioneers ...... 53
Table 2: Characteristics of NPM...... 57
Table 3: Reforms in Developed World ...... 67
Table 4: Reforms in Developing World ...... 75
Table 5: Reform Models and NPM Characteristics ...... 85
Table 6: Conditions for Successful Organizational Change ...... 97
Table 8: Characteristics of Qualitative Research ...... 131
Table 7: Phases of Reforms in Pakistan ...... 171
Table 9: Causes of Organizational Change ...... 223
Table 10: Components of Organizational Change ...... 229
Table 11: Complexities of Organizational Change ...... 232
Table 12: Constraints of Organizational Change ...... 239
Table 13: Demographics of Participants ...... 364
xviii
Chapter 1: Introduction
1.1. Background of the Study
Over the past two decades, public sector organizations have been facing problems that are rooted with changes in the economic system, ideological perspective, and institutional changes. This flow of radical transformation forces further changes in order to tackle the challenges created by overall change and to adapt to the changing environment. Based on the advancement, private sector has always been expeditious in their processing towards adaptation. Private sector remained dynamic and adaptive to change, whereas, public sector remained idle and in status-quo for decades. Citizens face problems due to this procrastination in reform initiatives. Governments are blamed for inefficient and costly processes. They are also accused of non-reliability and accountability issues that are equally shared by both developed and under developing countries and, hence, has become a global issue (Alonso, Clifton, & Diaz-Fuentes,
2015). With the objective to adopt the best practices, public sector reform movement started on a global level. Since then, Public Sector Reforms (PSR) has become a buzzword and point of concern for the governments across the globe (Hope, 2001).
Thus, it can be inferred that the future of Public Administration (PA) lies in reforming and adopting the changes. At large, the reasons which became the drive for reforms in public sector were bureaucratic and public administrative issues, however, multiple reasons are reported by the researchers to be the drive for change.
For instance, Liou (2007) indicated the issues responsible for reform initiatives such as poor management, improving decision making process, managing the HR properly, and an attempt to improve the quality of services for the benefits of citizens to facilitate, support and improve standards of living of public. These reforms are government’s
1 initiatives to tackle these issues. These efforts are mainly directed towards improving efficiency, cost effectiveness, improved quality of services, providing customer- oriented services, transparency, accountability, and good governance (Heeks, 2002).
However, keeping in view the above-mentioned constraints, public sector has not been very open to change as compared to private sector. The adaptive nature of private sector has been attributed to the managerial practices making it easy to implement changes in contrast to public sector.
Hence, inspired by the private sector reforms, academician and practitioners initiated a drive which gave way to a major shift from public administration to public management. However, in public management, a major role in developed countries has been played by New Public Management (NPM). According to Pollitt (2001), NPM is the only framework that covers all components of administrative reforms of the public sector. Furthermore, the key dimension of NPM is to minimize the political influence in public sector organizations and to improve the performance of public sector organizations (Chen, Woods, & Singh, 2013). Researchers argue that NPM can be effective to cut cost and improve efficiency, incorporate the latest technology by upgrading databases, compete globally, to overcome corruption and reduce loopholes in the bureaucratic system, and most importantly to improve quality of services (Ehsan
& Naz, 2003; Hughes, 2016). This demonstrates that NPM caters for almost all the needs and solutions of public sector problems. Therefore, a wave of reforms was initiated in public sector inspired by the success of private sector reforms.
In developed countries, governments have realized this need and are adopting management tools and concepts from the private sector and have proved to be very useful in achieving PSR’s objectives (Dunleavy & Hood, 1994). However, public sector
2 organizations of developed countries are more stable due to the stable political system, less corruption and poverty, therefore, their focus is on making this sector more competitive, efficient and effective. On the other hand, developing countries are facing many problems such as status-quo, corruption, lack of innovation, political instability, tall and rigid structure and so on, thus, the goals in developing countries strive to bring governance, political as well as legal reforms (Kim, 2009). Therefore, change initiatives and the implementation of reforms in public sector of developed countries is less troublesome as compared to developing countries.
Pressure is mounting on the public sector in developing countries to transform and reform to improve customer services, relationship with citizens, good governance, quality of services by utilizing latest technology (IT, E-Governance, ERP etc.), and to improve their processes and performances (Bevir, Rhodes, & Weller, 2003).
Researchers across the globe consider change as an integral component within public sector organization and every year companies are spending millions on bringing change in an organization, yet those efforts do not yield the desired outcomes and eventually fail. Several tools have been developed and utilized for bringing change (for example, just in time (JIT), total quality management (TQM), business process reengineering
(BPR), total process management (TPM), new public management (NPM), organizational development (OD), benchmarking, business Innovation, etc.) however, they may not be able to bring desirable results (Dawson, 2003; Habib & Jamal, 2013).
This suggests that there have been various attempts in identifying a tool appropriate for successful reforms. Even then, the failure rate is as high as 70% hence, it proves that change is riskier and a major challenge for the top and middle management (Beer &
Nohira, 2000; Burnes, 2004; Jacobs, Witterloostuijn, & Christe-Zeyse, 2013).
3
However, the failure rate of reforms may be influenced by many factors, which if identified and overcome, may increase the success rate overall.
Failure of organizational change may be due to micro or macro level which refers to individual, and environment/ population of organization-level respectively.
According to Leavitt (1965), the failure of organizational change efforts can be due to external or internal factors. External factors pertain to government laws and regulations, globalization, major political and social events, advances in technology, organizational growth and expansion, and fluctuation in the business cycle, whereas internal factors pertain to technology, primary task, people, development of new HRM initiatives, and administrative structures. The failure of a change may also depend on the type of reforms as well. One of the major changes brought into the public sector is technological change (Bevir, Rhodes, & Weller, 2003). Automation of manual systems and processes, the concept of E-Governance, development of ERP and MIS etc. has been witnessed across the globe (Ndou, 2004). Despite the hype of e-government and information systems in developing countries, it has resulted in a major failure (Dada,
2006). There are numerous studies which reported the failure of use of IT solutions for modernizing the public sector in developing countries (Avgerou, 2008; Heek,
2002:2010; Walshman & Sahay, 2006). 35% of the reform initiatives were immediately closed after implementation while as much as 50% of the reform initiatives were reported to be unable to achieve desirable outcomes (Heek, 2002). According to Dada
(2006), there is a gap between reality (implementation) and design (planning) of IT- driven projects in the public sector of developing countries which results in failure of the automation projects. Moreover, the lack of IT skills, experts and lack of innovation led to catastrophic results in the public sector during organizational change initiatives
(Verbeeten, 2008). Even though, change is integral for public sector organizations yet 4 the ratio of failure in developing countries is alarming. To overcome these challenges, the public sector of developing countries needs to (re)consider the reasons of failure which may vary from country to country.
Various researches have also highlighted additional constraints in the Asian developing countries (South, South-East and Asian Pacific region). The out-dated system is causing issues of scarcity of resources (HR, financial and infrastructure), lack of customer approach, use of conventional management practices, tall and centralized bureaucratic system are often reported for wastage of billions of rupees and delay in delivering services to the residents. Corruption is at its peak, public sector organizations are overcrowded with HR and political appointments in bureaucracy, lack of technical expertise, lack of interest of top management in reforms etc. are the reasons for failure of reforms efforts (Sarker, 2005; Siddiquee, 2006;2007; Zaheer, Mushtaq, & Ishaq,
2008). To overcome these problems, organizational changes are focused on several fronts and in various forms, such as, change in an internal environment of an organization: Structural Changes, Strategic Changes, Process Changes, and People- centred change. These changes are interlinked and therefore, change in one can lead to force an organization to bring change in the other area as well. Process-oriented changes are commonly an attempt to develop overall workflow efficiency and productivity. That may include implementing technological changes, such as robotics in manufacturing or requiring sales teams to begin documenting and reporting activities in a new way. Thus, among all the types of changes, process change has a central value and importance in an organization and is considered as the most difficult of all types of changes as well
(Noblet, Rodwell, & McWilliams, 2006). In public sector organizations, change has been mostly associated with change in organizational process and systems. As these processes are run and operated by people, therefore, changes in processes will affect 5 people (employees) working in an organization which is one of the major components of change mostly ignored by management (Amis & Aissaoui, 2013). Solution to the existing issues faced in developing countries is the automation of processes and systems
(Heek, 2010). While doing so, after several attempts, the technocrats are involved in planning such reform initiatives (Esmark, 2016). These reforms are generally known as administrative and policy reforms (Pollitt & Bouckaert, 2004). NPM being one of the key phenomena adopted by governments across the globe to bring efficiency and effectiveness in the public sector of developed and developing countries (Osborne,
2010). Yet, in the presence of bureaucracy and autocracy, the technocratic project is not welcomed by the employees nor by the management (Esmark, 2016). Hence, it is important to overcome the concerns and issues of employees and as a result, change can be incorporated smoothly. While asserting the importance of employees, Fernandez
& Rainey, (2006) stated that the success of organizational change effort highly depends on the acceptance and level of support from employees, which, according to Robbins
(2001) and Susanto (2008), can be achieved by working on readiness for change. This suggests that the resistance from the employees and management has to be dealt with intricacy to achieve successful results.
Among the developing countries, Pakistan is relying on the financial assistance from developed countries in general and particularly on donors i.e. IMF, World Bank,
Asian Developing Bank, and USAID for restructuring the public sector. These grants and financial aids are provided for the purpose to improve governmental institutions that are causing heavy loses (Baraldia, Kalyalb, Berntsona, Nawalla, & Sverkeac,
2010). Transformation and changes are taking place in public sector of Pakistan both at federal and provincial level e.g. study of Kronstadt (2004) highlighted reform in education sector, Wambia (2000) discussed water resource reforms, Zaheer et al. 6
(2008) studied public sector bank’s reforms, Wilder (2009) studied CSR, Abbas (2009) highlighted police and law enforcement reforms, Gazdar (2009), in his paper, discussed the reforms in Land records, Osama, Najam, Kassim-Lakha, Gilani, and King (2009) pointed reforms in Higher Education in Pakistan, Ahmad (2010) studied the tax reforms in Pakistan, Habib and Wazir (2012) studied reforms in public sector from employees perspective, Ahmad, Majeed, Wahid, and Khan (2010) studied reforms in tax collection i.e. (Federal Board of Revenue), Khan (1980) highlighted issues of PSR due to bureaucracy. These studies, however; are limited in terms of investigating change as a one-time event and have ignored its processual and dynamic nature. Further, these studies are also limited in terms of understanding employee perspective regarding the change in bureaucratic environment and where change is imposed. Moreover, these studies also highlight the change initiatives taken by the government of Pakistan which required high financial aiding.
ADB’s support, in this regard, is the most prominent. In Pakistan, efforts to balance economy started from 1998, focusing on; developing 360-degree feedback system, economic growth, reducing poverty, trade, energy sector, micro-financing, governance and decentralization, infrastructure, service delivery mechanism, fiscal management, the creation of competitiveness, efficiency and effectiveness. The initial efforts did not produce any positive results. Plans and policies were devised, however, due to nondisclosure practices and lack of communication, these plans and policies remained isolated. Change initiatives were solely limited to records and were not visible in practices (ADB, 2017). A study conducted by Naveed and Jadoon (2012) also indicates the inconsistencies in the intended and implemented reforms in Pakistani public-sector organization (Sui Gas Pipelines Limited).
7
Within the public organisations, Police department has always been prominent and crucial in all over the world since it as a law enforcing agency. However, it is facing numerous challenges, such as, insufficient numbers and resources, institutional disconnect, political challenges, lack of modernization and corruption, lack of counterterrorism capacity and interinstitutional complexities, poor analytical capacity, ineffective strategy, ineffective criminal justice system, and lack of professionalism
(Abbas, 2009). Lack of efficiency, legitimacy, and integrity are also reported by researchers as challenges faced by police in Pakistan (Jackson, Asif, Bradford, &
Zakria-Zakar, 2014). Thus, Kemal (2003) stressed that police being a service delivery organization require reforms with a focus on institutionalization, functional autonomy, control and accountability. While doing so, Dutch police were introduced with the concept of having a board of governors where all key stakeholders were part of the board (Wagenaar & Soeparman, 2004). Moreover, reliance on the latest technology has been an ideal solution to the issues faced by the police departments (Sanders &
Sheptycki, 2017). An interesting development has been the involvement of technocrats in the law enforcing agencies and that too in the presence of bureaucracy.
Modernization of police services has been evolving for years and has gained importance in developed as well as developing world (Brown & Brudney, 2003; Garicano &
Heaton, 2010; Nunn, 2001). Technological advancement, use of IT, modernization, citizen orientation etc. are all intended to improve police services, bring accountability, efficiency and effectiveness (Sanders, Weston, & Schott, 2015; Tong, 2017).
Until recent general elections 2013, In Pakistan on May 11th, Pakistan Muslim
League Nawaz (PML-N) became a ruling party in Federal and Punjab assemblies,
Pakistan Tehreek-e-Insaf (PTI) formed a collation government in Khyber Pakhtunkhwa
(KP), Pakistan People’s Party (PPP) in Sindh whereas, PML-N and collation parties 8 formed government at provincial level in Baluchistan. During this election, PML-N and PTI’s manifesto was based on bringing reforms in Pakistan. PML-N focused their campaign on energy, national security, economic development, higher education, immigration and tax reforms, however, PTI’s agenda was based on social reforms, telecommunication, e-government, education, health reforms, eradication of corruption from the public sector and bringing transparency.
PTI being a third most prominent party in the country had won most of the provincial seats in KP, and therefore started governing with collation partners. Working on their ‘Agenda of Change’, took aggressive measures in bringing massive reforms by good governance, economic prosperity and peace, and responsive social service delivery structure in public sector of KP. With the slogan of ‘Change’, the KP government started working on institutional reforms, human development, economic revival and security. Their focus was on the eradication of corruption, mismanagement, weak capability and accountability. As promised in the election campaign, PTI started delivering by bringing accountability and efficiency in the system of public sector organization to improve service delivery, medium-term development framework for improvement in management and resources, adapt private sector practices to promote efficiency and competitiveness, reducing cost, and re-engineering government.
For that purpose, KP government adopted a more comprehensive and systematic mechanism by launching multiple units which include Reform Implementation Cell
(RIC) in 2013, Change Management Unit (CMU), Working Groups Approach (WGA), and Integrated Development Unit (IDU).
9
Organizational changes are taking place at a rapid pace in this part of the world.
However, there are very little number of publications on the reform/change initiatives in public sector as compared to private sector (Fernandez & Rainey, 2006). Most of the available literature on change in public sector is on the macro (national) level and not on micro (organizational level) (Karp & Helgo, 2008; Piening, 2013). Similarly, published studies are focused on developed countries and are inclined towards economic effect of PSR (Beer & Nohira, 2000). Thus, there is a gap to fill in the body of knowledge i.e. 1) to conduct a comprehensive study on change initiatives on public sector of developing countries, 2) to conduct a study at organizational level, 3) to study the role of individuals (employees) who are often ignored during change process
(Armenakis & Harris, 2009) and 4) to investigate the perception of change in public sector.
1.2. Research Gap
Review of literature on public sector indicates that there is a sufficient empirical gap particularly when studied from the lens of the change management theories (Kupers et al., 2014) as most of the literature is from the public management and public administration view that investigates reforms initiatives, planning, implementation and outcomes. This indicates that studies are conducted with management theoretical lens or from the underpinning theories of New Public Management (NPM). Under such conditions, the theories and attributes of organizational change has been missed somehow, which is crucial to understand how employees experience change and how the human side of the organisation can contribute to the success of the reforms.
Despite the socio-economic, political and administrative system’s differences, public sector of developing countries is adopting the approaches from developed
10 countries. The appropriateness of those reform initiatives (models of reform) is yet a dilemma. Kuipers et al. (2014) conducted a literature review-based paper and collected
133 studies published in the top tier journals. Many of those studies were focused on case-based descriptions of organizational change/reforms. Most of the studies in this area are qualitative and interview-based, however, these studies are not focused on the case. Similarly, the theoretical frames were mainly focused on institutional theory, change management, and leadership theories. Furthermore, very limited studies are conducted on public services organizations and on local levels (ibid). Nevertheless, the source of these studies is mainly from US/Anglo-centric countries and only a handful contribution has been made from the Asian as well as developing countries (Kuipers et al., 2014). Therefore, to bridge this gap, a comprehensive study in public sector organization based on case study is needed.
De Vries and Nemec (2013) studied the current developments in public management. The global crises have led to the government failures as well as market failures due to which several governments stepped back and reduced their involvement in production as well as services. Moreover, the literature on PSR and development of public sector organizations have majorly reported how the developed world learned to survive and improve their services (Van der Voet et al., 2015). At the same time, public sector has been described as a complex organization where organizational change is not as simple as in private sector (Robertson & Seneviratne, 1995). Public sector is governed through different mechanism as compared to private sector practices
(Fernandez & Rainey, 2006). However, due to the advancement of private sector, the approaches and practices of private sector are adopted in public sector organizations
(Hood, 1991). The development of NPM as a tool for PSR in the public sector has significantly improved the services offered by public sector organizations, however, the 11 development of NPM and its implementation is majorly by the developed countries
(Wise, 2002). Although, the developing countries have been following the same reform pattern for the sustainability and development of its public sector, yet they are not aware of the real essence of the phenomenon of NPM (Manning, 2001).
Most of the literature published in PSR is from the process, structure and strategic point of view (Kickert, 2014). Similarly, the drastic shifts in public sector are also very dynamic. For instance, a shift from public administration into public management and further towards concept of good governance has made a rapid development in recent years (De Vries & Nemec, 2013). An effort is made to study the key reforms in those perspectives, however, an integral aspect of change from the perspective of public sector employees has been ignored. Pakistan being a developing country has taken initiatives to develop and transform its public-sector organizations. These reforms are prevailing under the same bureaucratic structure. The rate of transformation and upgradation of systems and processes is taking pace and there is a rapid increase in the reform initiatives. However, these reforms are yet to be studied so that the processes, particularly in the autocratic structure of law enforcing agencies can be understood.
Law enforcing agencies and particularly the police department has an autocratic style of management and administration. While at the same time, police are governed by the political system and bureaucracy. In such organizations, change is considered riskier as compared to other services providing departments/organizations of public sector
(Jacobs, van Witteloostuijn, & Christe-Zeyse, 2013). The rigid nature of police, culture and autocratic nature of this department make reforms difficult to initiate (Fleming &
Lafferty, 2000). Corruption and misconduct are reported to be two of the major factors that government wants to eliminate through new managerial reforms and accountability mechanism (Jacobs et al., 2013; Henry, 1994; McLaughlin & Murji, 1997). However, 12 it is important to note that the reforms mechanism adopted from private sector has different implications because public sector in the developing world is still governed under the bureaucratic structure. Similarly, the nature of the work and culture of police services are different from other public-sector organizations as well as from the private sector. Ashby, Irving and Longley (2007) also stated that there is no proven effectiveness of NPM in Police organizations despite the effectiveness and adaptation of New Public Management (NPM) in other public-sector organizations apart from police. Therefore, it may not be implemented and transposed in the same pattern
(Fleming & Lafferty, 2000). Thus, the private sector’s managerial practices are not precisely applicable to the police department. The major differences in the culture and value system of police department contradict managerial practices of new public management, hence, the practical limitations affect the outcome of organizational change and reform initiatives in the police department.
Under such circumstances, Police department’s reform initiatives in a developing country is an area of interest which needs to be explored. Moreover, an interesting attribute of any law enforcing agency is of ‘order and obey’, thus, leaving its employees without a voice. Therefore, the organizational change, led by technocrats in the bureaucratic cum autocratic organization where employee lack involvement and voice, builds an interesting case for investigation. Moreover, an interesting yet challenging task for a research is to understand the organizational change from the employee’s perspective. Although, the police department has been researched with respect to its role of policing and reforms (see for example; Pickett & Ryon, 2017; Sparrow, 2016;
Weitzer, 2015), use of modern technology and automation (see for example; Mazerolle
& Terrill, 2018; Morgan, Murphy & Horwitz, 2017; Shah, Fayaz, Shah & Shah, 2016 etc.) yet these researches leave a gap with respect to understand organizational change 13 from employees’ perspective. Moreover, the exploration with respect to public sector reforms, changes in the scope of approach (services providers and customer orientation), change in strategy, structure, process and culture must be explored in- depth.
1.3. Rationale of Study
This study, therefore, aims to explore the organizational change initiative in CDLA as a case through an in-depth analysis. This case of CDLA (Department of traffic police in the KP province in Pakistan) provides an interesting area for research. Unlike other organisations, Police is an autocratic organization, serving under bureaucratic structure, and governed by the provincial government where the top management is appointed by the federal government. Hence, Police, being public sector organization encompasses all the uniqueness and at the same time complexities that can help to discover by (re) conceptualising public sector reforms as a change process that involves lived experiences based upon an individual’s interpretations. Moreover, the involvement of technocrats in the change process at CDLA will help in further contribution in the body of knowledge with respect to their role in organizational change and acceptability by the permanent employees of Police department. Rationale of the Study
This literature review (presented in chapter 2) has highlighted theoretical basis and progress in public sector reforms. Since 1980s, PSR and organizational change in public sector has remained one of the major strategic components of the developed world.
Over the years, theories and practices are revisited for the transformation of public administration into public management. Thus, it illustrates the growing interest of academicians, researchers and practitioners regarding the change phenomenon that was mainly revolving around private sector, whereas, at present, it has been widely adopted
14 by the public-sector organizations as well. As the dynamics of public sector are different from the private sector i.e. private sector organizations are autonomous and are governed by its concerned board while public sector organizations work under the political setup and under the tall bureaucratic structure and legislation which causes multiple constraints on public sector organizations in different regards. Moreover, there are local, regional and national level organizations which function differently. At the same time, there are organizations in public sector that are bureaucratic, autocratic as well as autonomous and yet working under the rule of business or any other specific governing legislation. Thus, all the above-stated factors make public sector an interesting area for research.
The framework for PSR has mainly been focused on the input from developed countries while the developing countries have been on the receiving end. Particularly, law enforcing agencies i.e. police department has an autocratic style of management and administration. In such organization, change is considered riskier as compared to other services providing departments/organizations of public sector (Jacobs, van
Witteloostuijn, & Christe-Zeyse, 2013). The rigid nature of police, culture and autocratic nature of this department make reforms difficult to initiate (Fleming &
Lafferty, 2000). Corruption and misconduct are reported at large to be two of the major factors that government wants to eliminate through new managerial reforms and accountability mechanism (Jacobs et al., 2013; Henry, 1994; McLaughlin & Murji,
1997). However, it is important to note that the reforms mechanism adopted from private sector has different implications because public sector in developing world is still governed under the bureaucratic structure. Similarly, the nature of work and culture of police services are different from other public-sector organizations as well as from the private sector since they are not allowed to raise their voice against change. 15
Therefore, it may not be implemented and transposed in the same pattern (Fleming &
Lafferty, 2000). Thus, the private sector’s managerial practices are not precisely applicable to the police department. The major differences in the culture and value system of police department contradict managerial practices of new public management, hence, the practical limitations affect the outcome of organizational change and reform initiatives in police department.
Pakistan, as an under developing country, started taking some initiatives in past, however, its success and failure are not reported by any study. The current governments are more aggressive and are thoughtful in transforming public sector. Strategic decisions and actions are becoming everyday news and governments in federal as well as at provincial level are showing commitments towards PSR, however, reform plans cannot be successfully implemented unless the employees are taken on board (Alfes,
Truss, & Gill, 2010). In past, not considering HR as an important stakeholder in policy making or change initiatives remained one of the major obstacles to the successful implementation of a similar initiative (Habib & Wazir, 2012). Hence, all these factors give the motivation to conduct a research study that is; i) from developing country, ii) on a law enforcing agency e.g. Police, iii) HR focused and exploratory research, iv) in- depth to understand the entire process of organizational change to learn from the experiences of such initiative.
1.4. Problem Statement
In ideal condition, organizational change/public sector reforms are expected to - deliver desirable results. These reforms are mainly intended to reduce cost and to bring efficiency. Over the last three decades, private sector’s managerial practices are adopted to overcome issues pertaining to inefficiency, ineffectiveness and cost constraints of
16 public sector organizations. Thus, governments are striving to modernize public sector organizations with the help of latest technologies and by enhancing their capacity as well as capabilities. The developed world has progressed rapidly and has transformed their public-sector organizations, whereas, developing world has started taking such initiatives recently. These reform initiatives are either self-sponsored or forced by aid providing donor agencies. However, the reform initiatives in developing countries are facing several challenges; technical, operational and political (Howlett, Wu, Ramesh,
& Fritzen, 2017). The political challenges are associated with the consensus building between key stakeholders. Technical challenges are concerned with the adaptation of technology and with deciding the course of action for policy making and implementation. The issues associated with the implementation of policy and its effectiveness are considered as operational challenges. Another notable threat to the public-sector reforms and organizational change initiatives is posed by tall bureaucratic structure that is still prevailing in developing countries (Glinka & Hensel, 2017). Aher and Luoma-Aho (2017) believe that transformation of tall bureaucratic structure and culture is necessary before initiating change. As the traditional system of public sector in developing countries does not support flexibility, adaptability and democratic systems in public sector organizations, thus, private sector managerial practices become ineffective in this part of the world. Hence, it is becoming difficult and very challenging for developing countries to adopt and implement change agenda (Asatryan, Heinemann,
& Pitlik, 2017). Predominantly, organizational change in law enforcing agencies
(police) is considered as inherently complex process (Hart, 1996) as police operates is very blustery environment. Cohen (2017) reported that police department resists change due to its culture, therefore, majority of reforms in police resulted in failure.
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The complex nature of public sector organizations in general and police in particular are resistant to change (Deserti & Rizzo, 2014). Unstable economic conditions, social instability and changing trends in technology are influencing developing countries to adopt change and initiate reforms in public sector (Bourgon, 2011). Therefore, to cope with socio-economic pressures, government in developing world is adopting practices of e-governance, e-technology and New Public Management (NPM) (Sarker,
2004:2005:2006). Organizational change initiatives require to be studied with emphasis on what, why and how, in order to gain insight into the complexities, constraints, interests and processes of policy-making and implementation. It is essential to investigate the reform initiatives from the perspective of developing country with the focus towards the viewpoint reported by Turner (2002) stating that the developing countries are not fully aware nor familiar with the concept of NPM and yet they have adopted trends of PSR from developed countries. While McCourt (2013) exerted that developing countries are unable to bring about change in public sector organizations due to presence of bureaucracy, structure, culture and processes. Therefore, it is essential to investigate the fundamentals of organizational change in public sector as well as the processes so that necessary actions can be taken in time.
Government of Pakistan has shown commitment and intent towards institutional reforms. These reforms are either state or donor sponsored ranging from local, provincial and federal level. These reforms are intended to upgrade and streamline their departments/organizations. Thus, it is essential to understand the nature of reforms, processes and procedures adopted during planning and implementation. This study is conducted to assess organizational change in the police department of Khyber
Pakhtunkhwa (KP) as a part of public sector of Pakistan to understand the overall process of organizational change planning, implementation, change management and 18 experience of employees regarding the change in organization. More specifically, the area of investigation in this research is the computerized driving licensing authority
(CDLA) working under traffic police, KP.
1.5. Research Questions
This research study is conducted to answer the following questions;
How are changes initiated in CDLA, Police Department of KP?
What are the critical success factors involved in CDLA’s reform initiatives?
How is organizational change is experienced and interpreted by employees of
CDLA?
What are the characteristics of NPM adopted in organizational change
initiatives in CDLA?
1.6. Research Objectives
The main objective of this study is to understand organizational change initiative in the public sector of Pakistan. To elaborate further, this study has the following objectives;
To understand the nature of organizational change and use of NPM (PSR
initiative) in CDLA.
To learn from the employee’s experiences of these changes (reforms).
To classify the variables that play a vital role in the success and failure of PSR
initiative.
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1.7. Research Method
Research questions of this study were exploratory in nature i.e. “what” and “how”.
Therefore, this research was undertaken by using qualitative research. A social- constructionism approach was used because it helps in understanding the origin, meaning, and the nature of reality based on human relationships (Lisa, 2008). To understand what constitutes reality (Burr, 2015), an insight into how humans take meaning out of a particular social situation and how they experience it, are important for such research. Thus, an organizational change in CDLA was selected as a case for investigation. For that purpose, semi-structured in-depth interviews using narratives were conducted from the employees involved during change initiation. Additionally, secondary sources were also used to acquire additional information e.g. PC1, official letters and memos, rule of business and others. Employees were selected from the period of planning and implementation phases and their experiences were recorded through interviews. In total, thirty respondents were interviewed whereas on re- interview was also conducted. Keeping in view the research ethics of qualitative research, consent forms and participant’s information sheets were provided to every interviewee. Interviews were recorded and later transcribed. Afterwards, interviews were analysed using narrative analysis to understand employee experiences, thematic analysis to understand what is shared and not shared among the participants, and thematic networks for the purpose to summarize the findings via diagrammatic presentation. Detailed research methodology and its justification is presented in chapter
3.
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1.8. Scheme of study
Organizational change and public-sector reforms are the buzzwords in this era.
Several initiatives are undertaken by the governments to improve services quality, enhance efficiency and effectiveness to provide best services to their citizens. In some regions, these initiatives are self-driven while in other parts of the world these efforts are forced by external sources i.e. donor agencies or pressure from citizens for quality services. Thus, governments across the globe are adopting private sector’s managerial practices through NPM to meet the requirements and demands of external stakeholders.
Pakistan being a developing country has also realized the importance of efficient and effective services and has been initiating reforms lately. This chapter provided an introduction and background for this research. Furthermore, the research gap, research questions, objectives and significance of this study were discussed in this chapter.
Chapter 2 of this study discusses the major researches published in the literature and research framework of this study. Chapter 3 describes the research methodology adopted for conducting this research. Chapter 4 presents the case of CDLA, chapter 5 presents the findings of this research and analysis of those findings. Chapter 6 comprised of discussion, conclusion, limitations, implications and contributions of this research, and future research directions.
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Chapter 2: Literature Review
2.1.Introduction
This chapter provides an overview and critical review of the theoretical background of public sector, and the phenomenon of organizational change (reforms) in public sector organizations. This chapter mainly covers two broad perspectives; a) theoretical contributions and its applicability in practice, b) organizational change and reform initiatives in public sector organizations. Probing of the literature available helps in identifying gaps in the contemporary knowledge and practices. Thus, the critical examination of the body of knowledge will help in establishing a foundation for this research. Moreover, the conceptual and theoretical development from public administration to public management and the issues pertaining in the actual settings are addressed in this chapter.
Initially, the literature was reviewed to understand and to get discernment view of public sector. For that purpose, it was essential to review the background of public administration. Thus, the theories contributing to public administration was important to be discussed. While reviewing the theoretical background, there were three set of management/administration theories contributing in the development of public sector.
Those theories are categorized as classical, neo-classical and modern management theories.
These theories were presented in the nineteenth and twentieth centuries. However, over the past two decades, the public sector has been facing problems that are rooted through drastic changes in technology, economic system, ideological perspective, and institutional changes. The contribution of these theories cannot be ignored for providing a fundamental
22 foundation to the public sector organizations. However, these theories cannot be labelled as the sole contributors in the modern era. There are several other factors including external factors which are forcing public sector to adopt change.
In the light of the current literature presented, that public sector has been facing mountainous issues due to its traditional approach which has led to the need of change in the public sector organizations. Governments are also blamed for inefficient and costly processes. Furthermore, they are also accused of non-reliability and accountability issues.
These issues are equally faced by both developed and under developing country’s governments and has become a global issue (Alonso et al., 2015). According to Hope
(2001), the future of Public Administration (PA) lies in reforming and adopting the changes. Upholding the ideology and core values along with transforming the public sector
(PS) and making it open, decentralized, knowledge-based innovative and result oriented. public sector remained idle and in status-quo for decades, whereas, on the contrary, private sector remained dynamic and adaptive to change (Benington & Moore, 2010). Similarly, advancement in technology and application, changes in demand for quality services, level of awareness has given rise to the need for reforms in public sector (Christensen &
Laegreid, 2007). Citizens across the globe depend on their governments and the services provided by their respective public sector’s organizations. Public utilizes services from both sectors and while comparing their responsiveness, efficiency, effectiveness and managerial practices, they observe differences at large scale (Fountain, 2001). Thus, based on the argument above, it can be inferred that public sector needs to become more responsive and improved in every aspect.
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To bring efficiency and effectiveness, public sector needs radical transformation from top to bottom (Habib & Wazir, 2012; Habib & Jamal, 2013; Hope, 2001). However, the process of transformation is time consuming and strenuous activity. Therefore, the philosophy of reforms in public sector needs to be explored. A part of literature review in this chapter is focused on establishing the understanding of how reforms are initiated in public sector, the problems and issues faced during the implementation process, and also in understanding the evolution of new public management.
The general public is experiencing services of public as well as private sector. They are well informed and aware of the anomalies between private and public sector’s service providers. The services standard of private sector has improved drastically as to them customer comes first, whereas, the public sector lacks this intention (Bhuiyan & Amagoh,
2011). Customers expect efficient and effective services from public sector, thus, the pressure and demands are increasing on the governments to improve quality of services
(Sharma & Lawrence, 2005). Therefore, Hood (1991) stressed on sustainable development and radical improvement in public sector organizations. Reforms may not be the will of the government, rather a pressure (from social, economic and political) from changes in the international market (OECD, 2000). Therefore, the examination of empirical research reporting evidence of organizational change in the public sector was essential. While doing so, it was revealed that reforms in developing countries are mainly driven by concept of new public management, whereas, developing countries are still under the influence of traditional bureaucratic system due to which public sector is unable to cope with the recent trends. Hence, in the later part of this chapter presents the evidence of developing and developed countries and the role of various stakeholders in public sector reforms.
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Organizational change in public sector has become a prerequisite for bringing efficiency and effectiveness in public sector organizations. However, changing public sector organization is a difficult task. In the presence of bureaucracy and autocracy in this segment, reforms are facing several challenges. Section 2.7 and onwards describes the philosophy of reforms, problems in public sector, employee’s responses to change, public sector reforms in Pakistan and the police reforms.
Public sector has been working through the concept of public administration. While over the years there has been development in the concept of management, therefore, there has been drastic changes in the concept of public administration. From public administration to public management, new public management, e-governance and so on.
Therefore, before reaching the conclusion, it is important to understand the concept of public administration and public sector. Discussion in the next section provides the insight on the journey of public administration and components of public administration. It is important to understand the underpinning theories and development of public sector organization. As this study is focused on studying reforms in public sector of Pakistan, therefore, understanding the applicability of theories and practices of the developed world in the developing world is important.
2.2.Background of Public Administration
Earlier the administration revolved around the concept of “Personal” that was based on loyalty to an individual (Hughes, 2012). This paved way for attaining personal gains by
25 corruption and misuse of authority in administration (ibid). Overall, the system of administration was a “spoiled system” due to political influence of the government
(Kaufman, 1956). Observing this influential trend, Wilson (1887) recommended a separation of politics and administration. Moreover, he also recommended a separation of policy from an administrative task and suggested more neutral public service lead and managed by a competent administration that remained loyal to an organization rather than to an individual. In the opinion of Woodrow Wilson, sound financial system can only prevail in public sector if the above-stated separations take place (Shafritz, Russell, &
Borick, 2015). Thus, several theories and concepts were introduced to guide public sector organizations.
Public sector organizations were governed via public administration. During the 19th and 20th centuries, this sector was revolving around the concept of bureaucracy. Public organization’s characteristics were elaborated as a bureaucratic structure (Lane, 2000). On the other hand, the concept of management was developing with several theories and models presented during the 20th century. After world war II, expeditious development and swift changes were spotted in theory as well as on the ground. Thus, resulting in radical as well as incremental changes in every sector (Hood, 1991). Public sector organizations once governed through the concept of bureaucracy has transformed their processes, structure and approaches (Gray & Jenkins, 2006). During the transformation, it is evident that public sector has adopted managerial practices and approaches from private sector. Therefore, it is important to discuss and understand the theoretical developments under practice. The next section provides an overview of management theories contributing in public sector.
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2.3.Management Theories Contributing in Public Administration
This section describes various management theories that have shown linkage to the public-sector organizations. There is a strong theoretical background that contributed to the development of the literature on public administration. The major division of development in the field of management is divided into different schools of thought; classical, neo-classical and modern management (Robbins & Coulter, 2012). The background theories presented by a different school of thoughts are as under;
2.3.1. Classical Management Theory The classical school of thought focused on increasing productivity and efficiency of workers and organizations. The major contribution of this approach was that it provided the concepts of scientific management, administrative management and bureaucratic management.
Frederick Taylor introduced scientific management in 1911, stressing on standardization of workplace; “in each element of trade, there is always one method and one implement which is quicker and better than any of the rest” (Taylor, 1911;25).
According to him, the manager’s job is key to success. Thus, a manager needs to develop a system for every task, train employees, coach them and teach them rather than leaving them on their own. Another aspect of scientific management was a division of work and specialization. This theory was a shift from unplanned to a more systematic and planned system. Work is properly planned by managers and then performed effectively.
In the scientific approach, the focus is not only on what is to be done but on how it is done so that the firm can become effective and efficient. Establishment of rules and 27 regulations, SOP’s (standard operating procedure), setting goals and targets and assigning tasks are the responsibilities of management. This clarifies the management’s expectation and provides a roadmap to workers and ultimately results in higher productivity (Shafritz et al., 2015). Scientific approach serves as basis of all the theories developed and introduced for organizational management. In the theory of scientific management, the flavour of the industrial revolution was prominent. Division of labour and scientific administration was criticized by academicians as well as resulted in a series of strikes by labour unions in public sector organizations (Taylor, 2004). The utmost specialization of work was considered as an unrealistic and complex process by managers in the public sector organizations (Wren, 2005). Moreover, in the modern era, technological changes and fast-paced development required employees to be dynamic and supporting the phenomenon of adaptiveness. Under such circumstances, employees cannot be specialized in one area rather they have to learn new skills. Thus, the scientific management may result in the unskilled labour force. The demand for multitaskers and employees with a variety of skills have increased over the passage of time, therefore, the scientific theory has limited to offer in the current business scenario (González & Mark, 2005).
Henry Fayol presented the concept of administrative management. Fayol contributed six principles to the theory of management. Shafritz et al. (2015) claimed that among the contribution of Fayol into management (by introducing principles i.e. commercial, security, accounting, technical, financial and managerial), the major emphases are on managerial principle. Managerial principle focuses on authority, responsibility, division of work, clarity of authority, compensation, hierarchy and organization’s policy etc. (Fayol, 1916; Mahmood, Basharat, & Bashir, 2012). However, in public sector and
28 particularly in developing countries which remained mainly under colonialization has shown less focus on responsibility, division of work, technological advancement, commercialization and sound financial system (Silva & Mattia, 2016). Similarly, the lack of flexibility and adaptation has been an issue of public sector in developing countries.
Therefore, rather than management, public sector focused on public administration and over the centuries followed bureaucracy.
Weber’s theory transformed the government’s structure in the 20th century.
Bureaucracy, according to Weber the six basic principles are;
Rules and regulations for governing,
Well established and defined the hierarchal system,
Office management through written and formal paperwork,
Permanency by getting full attention and working capacity of officials,
Specialization: need specialized people with proper training, and
Continuity: this principle focuses on the phenomenon that stable rules must be followed by everyone (Atreya & Armstrong, 2002).
Weber stressed on standardized and system. His approach towards public administration was a move towards a formal organization with bureaucratic structure, well trained and capable workforce on each position having well-defined duties and responsibilities (Jaques, 1976). Officials shall perform and follow established rules and regulations. Moreover, these guidelines and policies must be implemented by officials within their prescribed power and authority. This theory remained a dominant factor in late
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20th century and was widely adopted by several countries (including UK, US, and more part of Europe) (Button, Martin, O’Neill, & Colombino, 2012).
The classical management school of thought provided the basis for the modern management in late 19th and early 20th century. However, there were limitations to each theory and were broadly criticized for the notion that only economic factors motivate people. This may not be appropriate in recent times as there are several other factors that motivate people. Due to dynamism of this era’s organizations, employees are encouraged to take innovative decisions and their involvement in every step is very important, therefore, it led to another criticism on the foundation principles of classical approaches.
2.3.2. Neo-Classical Theory
This behavioural school of thought is also known as a Neo-Classical theory. The focus of this school was on the behaviour of people (workers) which led to organizational behaviour (Robbins & Coulter, 2012). Human relation theory and the behaviour studies under the Hawthorn experiments were the major contributions of this school of thought.
During the industrial revolution in the 1920’s, the focus of the business was on productivity. An effort was made by Professor Elton Mayo to highlight the importance of
HR for productivity. After a series of experiments that emerged as “Hawthorne studies”, the theory of human relation emerged. This theory focuses on the role and contribution of people in the organization. Furthermore, the aim of this theory was to prove that humans are more important (asset) than the machine (Hatch & Cunliffe, 2013).
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HR desires a supportive team and facilities for growth. They perceive that they will be given due attention, encouraged to participate, perceive that whatever they do they are contributing significantly, and they are motivated to produce (perform). Mayo’s work emphasized on social aspects of HR, two-way communication, and leadership. Centre of attention of this whole movement was that the productivity will increase if the firm understands and give due attention to workers, their perceptions, and social backgrounds and to their feelings. This theory successfully builds the perception that humans are not machines nor robots and that they should be treated as a “social person “.
Human relation theory focuses on the social well-being of workers; however, it has
(somehow) contrasting view to the scientific theory (Denhardt & Denhardt, 2015). After world war II the dynamics of public as well as private sector changed drastically. Therefore, the modern theories were introduced that focused on the current world’s situations and needs.
2.3.3. Modern Management Theory After world war II, the world required some aggressive measures to re-stabilize.
Statistical approaches used by the military to solve their problems gained the attention of the organizations. Application of statistical techniques, mathematical approaches, optimization models, use of latest technologies, and other techniques were utilized for the improvement of production and quality. Total quality management (TQM), business process reengineering (BPR) and many other approaches were introduced which led to the development of a quantitative approach to the organization and management (Habib &
Jamal, 2012). Management Sciences, operations management, management information
31 systems and all related approaches aimed at increasing the quality of decision making
(Koontz, 1961).
Neoclassical school of thought acknowledged the value of individuals and group dynamics. They valued human behaviour and focused on human relations. As a result, the productivity of HR in an organization increased rapidly after getting much attention from management. HR was no longer treated as a machine rather were valued over their individual identity and informal/formal groups. This led to adaptation of participatory management style by involving HR in decision making. Thus, a revolutionary change was observed in every organization that changed their approach from classical (work-based focus) into neoclassical approach (human-based focus). Later, the change in approach laid foundation for modern management as the trend was set for adaptive management.
Modern management theories focused on the organizational complexities of this era. It also focused on the diversity, individual aspects, planning and strategies, and innovation. With the introduction of open system theory, modern era management moved forward from the one-way classical management and neo-classical approaches (Von
Bertalanffy, 1956). System theory is based on the concept that an organization is a system of interrelated and interdependent functional areas. Thus, an organization evolves and adapts to the environment it operates (Rice, 2013). Systems are of two types; close and open (Robbins & Coulter, 2012). Close systems are rigid, and they do not interact with their environment while open systems are adaptive, and they do interact with the environment. The organizations in modern era are all an open system (ibid). Raw material,
HR, capital, technology etc. are the input to any organization that works, interacts and
32 transforms input into output. Within these steps, environment and feedback play a key role as the system adapts and adjusts to the environment and the feedback mechanism helps in operations.
Modern management does not depend on a single management approach. As the complexities of the organization increases, therefore, one model does not fit for all situations. Thus, a variety of approaches and techniques are required to manage different situations (Luthans & Stewart, 1977). This leads to a contingency approach in management. It implies that “organizations are different, face different situations
(contingencies), and require different ways of managing” (Robbins & Coulter, 2012, p.
37). The situational based approach of contingency theory is applicable to any situation including; motivation, leadership, management, organizational structuring, system control, monitoring, human resource development, communication, strategic planning and implementation (Otley, 2016).
Development in theory and approaches over a century has transformed the system through which organizations are managed and governed. Organizations are treated as an open system so that change can be adopted easily. Modern management focuses on system approach, socio-technical and contingency approach. However, it is mainly the private sector organizations that benefited from these developments and only a handful of organizations learned and adopted these developments in public sector (Hughes, 2012).
Public sector mainly functioned under a bureaucratic system which was introduced in the early 20th century as a classical approach. Until the 1980s, public sector of both developed and under developing countries remained idle to the neo-classical and modern management
33
(Hood, 1991). Therefore, resulting in several issues in the traditional public administration.
There has been advancement and rapid development in both theoretical and practical fields of public sector. Moving from a traditional public administration which remained focused on rules, processes and limited freedom to the officials towards public management concept where the focus is on initialization and adaptation of private sector’s managerial practices (Dunleavy & Hood, 1994). Thus, resulting in the transformation of public administration into public management. New Public Management (NPM) has emerged as a tool addressing the need of current public sector organizations. Before discussing NPM and its evolution, it is important to review the issues in traditional public administration.
The key issues are discussed below.
2.4.Issues in Traditional Public Administration
Theoretical development in the 20th century was considered as “great improvement” over the previous “personal and patronage system” in public administration.
The reason for success was evident as governments work under huge pressure from society
(Dunleavy, 2014). In the late 20th century and the start of the 21st century, technology and globalization have brought the traditional public administration to the same situation where the previous system of “personal and patronage” was placed. As new demands emerged in the 21st century’s modern society and the traditional public administration was inadequate to cope with dynamic changes (Dunleavy & Hood, 1994).
Hughes (1998, P.22) describes the traditional public administration as a model that was based on; politically controlled system, hierarchal and strict bureaucratic system, permanent employment, public interest (principal-agent relation), only administration and
34 no contribution in policy making, neutral officials, and working under governing political party.
The changing demands of society demanded a contribution from implementers in policymaking. There was a strong urge to involve implementers in planning. However, the traditional public administration ignored this aspect and remained focused on the role of the employee to implement policies (Bryson, Crosby, & Bloomberg, 2014).
Weberian theory was the first one that became irrelevant and obsolete as it did not support the innovative behaviour of public servants and did not encourage risk-taking.
Another shortcoming (issue) raised in scientific management and theory of organization
(Niskanen, 1975). These theories presented the principle of task division and specialization, however, it created problem of coordination in an organization (Behn,
1998). Moreover, span of control and hierarchal system (as suggested by Webber, Guilck and Urwick in their respective theories) made the public sector irresponsive, red-tapsim, less flexible and delay in response. Thus, with the passage of time, citizens realized and understood that bureaucracy is not the only solution. Governments were forced to contract out and get into public-private partnership for fast and improved services. Furthermore, another drawback of Weberian model was permanent staff. It has been evident from resources that public employees (permanent) are less productive than that of private sector
(Dunn & Miller, 2007).
Strict rules and regulations, inflexible system, lack of result orientation, and centralized system has made the traditional public administration inadequate and irrelevant
(OECD, 1995). Similar, fiscal and debt issues, competitive international markets require 35 more cost effective and efficient resource utilization. Nonetheless, socio-economic changes and excessive information has educated public and as a result, citizens are demanding and asking for greater good from government and public sector.
Hughes (1998) highlighted another three issues in traditional public administration;
i. Political control over public Sector organizations is making them worse.
ii. Bureaucracy is making the system inefficient.
iii. It lacked freedom, input from public servants and innovation.
Citizens are expecting government to be efficient, productive, result oriented, innovative, adaptive, responsive, and technologically current (Bekkers, Edelenbos, &
Steijn, 2011).
Thus, the rising demand from public forced governments to think and scholars to introduce solutions that are flexible, market-driven, decentralized, accountable, and responsible to changing trends (Aterya & Armstrong, 2002). As a result, a shift from traditional public administration to new public management has occurred (Nasrullah,
2005).
These components gained highest degree of appreciation and became pillars for managing an organization theories and principles presented by various philosophers and scholars in 19th and 20th century transformed the public sector. The wide spread of those contributions made the public administration successful and effective. Thus, governments across the globe utilize these departments and has remained a dominate contributors until the end of 20th century. Traditional public administration was considered a tremendous
36 success as compared to previous era of personal patronage (Hughes, 1998). However, recently the trends are changing very drastically. Government all over the globe realized the need for change. As discussed in this section as well as in section 2.1, developed world adopted NPM approach to meet with external pressure and public demands.
2.5.Evolution of New Public Management
New Public Management (NPM) is characterized by the concepts and theories from economics, management, political sciences, social sciences and institutionalization. NPM rely on the managerial practices from private sector with the objective to bring efficiency, effectiveness and customer satisfaction. Its aim is to provide practical solution to government officials at every level in public sector (Hood, 1991).
Various synonyms are used for “public management”, including new public management, entrepreneur government, managerialism and market-based government
(Hughes, 2012). This subject matter gained attention in the last two decades with the idea and principles for making public sector more efficient and effective (Hughes, 2012).
This phenomenon strives to bring dynamic changes and thus is different from public administration. Public management revolves around the concept of change (often referred as “reform” in public sector). Accountability, performance management, customer satisfaction, transparency, decentralization, De-bureaucratization and de-politicization are the key focuses of NPM (these characteristics are discussed in later parts of this chapter).
Concepts are changing with the passage of time, for example; public administration is replaced with public management, administrator is replaced with manager (Hughes,
37
2012:P. 29). Public management refers to “maximum utilization of resources towards desired results at macro and micro level of Public sector” (Boston, Martin, Pallot & Walsh,
1996:P.30).
According to Atreya and Armstrong (2002, P.07), Public Management refers to
“the capacity of government to make and implement policies, effectiveness and efficiency of government organizations that provides services to general public”. Blunt (1995) considers public management as similar to governance regarding “power to manage nation’s affairs”. However, public management does not only cover managerial aspects of government but also focuses on governing aspect of government. Furthermore, Pollitt
(2001;p.7) believes public management explains the “role of servant and politicians, structures and processes of government in systematic manner.” Thus, in light of discussion on public management, NPM is designed as problem solver for government. These problems mainly include; lack of confidence of public in the bureaucratic system, inefficient and poor process, design and deficiencies in performance (O’Reilly & Reed,
2010; Pollitt, 2001). Citizens are often reported to show distrust, anger, discontent with the current system and often complaining about the inefficient and in effective policies and services of public sector organizations. In response to those legitimate concerns government adopted private sectors management practices (Eagle, 2005).
Blair (2000) argued that NPM affects the practices of public administration by highlighting the areas for improvement and by bringing balance between administration, politician and public. Moreover, NPM breaks the traditional approach of public administration towards more managerial approach (i.e. customer driven and flexible)
38
(Hood, 1991). Several other authors also added decentralization, service improvement and accountability to NPM (See for example (Dunn & Miller, 2007; Flynn, 2002; Osborne &
Plastrik, 1997; Thompson & Miller, 2003).
New Public Management (NPM) roots can be found in the late 1970s, where Margret
Thatcher’s government in UK and Californian local government in USA brought administrative reforms. Later New Zealand and Australia also took this initiative and soon
NPM emerged as the most important item on the agenda of OECD’s countries (Gruening,
2001). Success of NPM was spread to developed as well as under developing countries and it became the tool for change in public sector. Hood (1991) coined this topic in academia and named it “New Public Management”. Managerial culture spread from UK and US to the globe into struggling as well as developed country to realize a need for change. These reforms were focused on the notion of “Managerialism” and it was based on three major stresses i.e. better control over public agencies, demand for efficient government from public, and increased business sense and market driven approaches (Lynn, 2006).
Furthermore, it is also said that the difference between public and private sectors’ management is fading due to NPM that adopts private sectors approaches into public sector
(Turner, 2012).
NPM is defined as “a normative conceptualization of public administration consisting of several inter-related components: providing high quality services that citizens value; increasing the autonomy of public managers; rewarding organization and individuals on the basis of whether they meet demanding performance targets; making available the human and technological resources that managers need to perform well; and
39 appreciative of the virtues of competition, and maintaining an open minded attitude about which public purposes should be performed by the private sector, rather than a public sector” (Bornis, 1995).
NPM shifts the primary focus from process’s accountability to result’s accountability. Moreover, it stresses on bringing flexibility rather than strict control and bringing efficient technology basted reporting systems rather than manual unaccountable system. It also features cost control and proper monitoring through accounting system
(Reddy, Locke, & Scrimgeour, 2011).
Dunn and Miller (2007) elaborated the operational definition of NPM by focusing on the principles behind the whole phenomenon. These principles are;
1) Responsibility to “Steer”: Government is having a responsibility to control the flow
of services in public sector. To be responsible and in control, it is not necessary that
all activities of services provider shall be done by government. Thus, government
should not act and keep all to control rather, they should steer the whole processes.
2) Empower: As government is “community-owned”, they are required to involve
stakeholders (internal and external) in decision making process. This means that
more decentralized and democratic approach is to be followed. Thus, the delivery
of services, processes and procedure shall be based on client/citizen’s requirement.
3) Competition: by this principle, researchers mean to have competition between
employees on individual basis as well as between teams. Competition is helpful to
improve motivational level, moral, efficiency, innovation and creativity.
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4) Mission Driven Government: mission orientation is important for any organization.
Rules and procedures are never sufficient thus, together rules and mission can
deliver desirable results.
Scientifically, NPM movement includes liberation of management, customer focus and market-based management. Liberation of management focuses on roles (status) of employees, admin and managers. It elaborates that all of them are knowledgeable, skilful and committed when they are given freedom (liberty). They will be very fruitful in contributing towards organization success. On the other hand, customer focused and market-based management stress to adopt private sector’s practices to attain efficiently, efficiency and customer satisfaction (Osborne, 1993). The dynamic nature of NPM is due to its origin. NPM has been originated from diversified theoretical backgrounds including; public choice, principal-agent, and managerialism. These theories and its contribution in
NPM are discussed in the sub sections.
2.5.1. Theoretical Background of NPM Macro and micro level reforms in developed and under developing world are evident from the last three decades. These reforms are mainly guided from several sets of principles. The main contributions are from public choice theory, principal-agent theory and managerialism (Hughes, 1998).
According to Hood (1991) transparency, reward system and user choice are based on institutional economy. Thus, indicated that economic theories are in general one of the major contributors in NPM and institutional economic theories. These set of theories help
41 managers by providing them the necessary tools for handling intense and complex problems (Thompson & Miller, 2003).
The second component that is managerialism refers to the concept of scientific management. It is considered as the most vital component (Dunleavy & Hood, 1994;
Pollitt, 2001). As scientific management is used and adopted in private sector and, therefore, it remains central to the success of private sector. It provides public sectors’ managers to utilize managerial practices, professional management, accountability and performance management tools (Lynn Jr., 1998). Achieving organizational goals and desirable objectives can only be accomplished if managers are given enough freedom and authority (Denhardt & Denhardt, 2015; Diefenbach, 2009; Meisiek & Barry, 2014).
2.5.1.1.Public choice Theory Public choice theory refers to the use of economic tools and techniques for overcoming issues/ barriers of political science (Aidt, Bjornskov, Kurrild-Klitgaard, &
Svendsen, 2013; Dunleavy, 2014). It tries to explain the process of decision making. In public choice theory, it suggests that people decide irrationally. However, institutional economics in contrast suggests that people do not decide irrationally. Rather there is cost benefit analysis at the back of every decision (Russell, 2013). Every agent (politicians, voters, bureaucracy) is driven by self-interest. Thus, several times the decision of politicians and bureaucracy may create conflict with the public choice. Institutional economists also believed that their choices are based on their culture, thus, their culture is reflected in their behaviour. There is no proper method for making decision on social
42 preferences and resolving issues. In public choice, it is evident that individual preferences vary from person to person and that it cannot pose any pressure (Gubler, 2012).
Public choice theory suggests that government should act as facilitator and should have a minimum role in public sector organizations because the role of government
(politicians and bureaucrat) is to serve the interest of voter. It also suggests that bureaucracy should have a minimum say as well so that the competitive and market-oriented mechanism should flourish is public sector. Role of politicians should be minimized and concerned with “management of strategic policy making, setting objectives and evaluating the implementation of those policies as prescribed” (Atreya & Armstrong, 2002;35-36).
Furthermore, this theory explains the nature of political decision making and how conflicts are emerged with public. Self-interest of Politicians is at peek (Because of power, authority and financial benefits). Thus, creating special interest and due to that an inefficient policy will be made with the help of successful lobbying. This scenario is often referred to as “Government Failure” (Eagle, 2005; Hood, 1991).
Bureaucracy is the major subset of this theory. Under this model, it is assumed that
Politicians will choose top bureaucrat and in response, they will try to please the people who appointed them. Once appointed, their jobs and benefits are secured and are at minimum risk of losing anything. Being a civil servant, they are being protected by civil rights, acts and system. The theorists in this field of public choice have split and diversified conclusions. For few, it is tilted towards anti-state agents whereas to others, it is considered as a tool for building strong state and they are against the lobbying of political agent’s
43 interest. Still this theory has laid the foundation for public sector’s reforms and led the
NPM movement (Hood, 1991; Mueller, 2008).
It is assumed that government is constantly correcting their mistake/ failure to bring efficiency. However, this assumption has been rejected by the Public-choice theorists.
Public actors, acting in monopolized system, it is not possible to improve outcome. The services delivery will only improve if the delivery of services is contracted out. In monopoly situation, the agent (state actor) act for their own interest. Influence of state actor’s self-interest is viewed in local government as well as in federal government.
Contracting out can lead to competition and therefore, it is seen to be a source for accountability. This assumption has been backed by evidences from US local Government
(Boyne, 1998; Walker, Brewer, Boyne, & Avellaneda, 2011Public choice theory has contributed significantly in the establishment of NPM. It asserts that the impact of economic market has forced the government to give in itself for change. Public sector has to be reformed and has to adapt to the changing market values (Self, 1993). The market- oriented government’s concept of NPM demands to reduce the administrative and policy restrictions in order to deal with the pressure of economic markets. Thus, making public more powerful in choices to serve their interest. In the NPM driven reforms, public is considered as a consumer whereas government and bureaucrats are considered as the producers (Barton, 2001). Public choice theory has its limitations with respect to its lack of consideration i.e. the legal responsibilities of public office holders towards the government (Self, 1997). Moreover, limitation of public choice theory in explaining the behaviour of individuals i.e. working for self-interest and controlling such behaviour is not addressed by this theory. Nevertheless, this theory provides conclusive support in
44 developing NPM. Furthermore, this theory asserts the role of government as an elite group.
Government (including politicians and bureaucrats) must act as agents and serve public and ultimately leads to Principal-agent theory.
2.5.1.2.Principal-Agent Theory: Principal-Agent theory is concerned over the relation of principal (public) and agent
(public employee and management). This theory states the fact that government and public employee (Agent) has more expertise and information as compared to principal. Similarly, interest of principal and agent varies. Utilization of resources (maximization) is rationally key behaviour of human being. This rational behaviour provides conformity for one’s belief and action from a specific point of view. NPM (based on principal-agent theory) also stresses on rationality aspect that management will focus on maximization and that they will strive to reduce agency cost (transaction cost) (Hood, 1991; Milward & Provan, 2000).
Based on this theory, separation of policy from implementation was experimental.
Agencies were established to provide services to citizens. These agencies (public sector’s service providers) were acting autonomously to deliver services. In few countries these agencies were semi-autonomous. Working within an organization, having defined and well-established targets and outcomes. The agencies are not working as departments
(having single purpose), rather they perform various tasks and multi-purpose activities
(Wollmann, 2004). Another development in public sector through agency theory was the adaptation of “contractual agreement’ (Cruz & Marques, 2013).
According to principal-agent theory, with administrative autonomy is negatively related to democratic accountability and inversely affects the wishes of agents.
45
Furthermore, it becomes difficult for public to access and monitor agent’s performance.
Agent as a result, utilize the opportunity and behave in self-interest (Worsham, Eisner, &
Ringquist, 1997). The cost bared by principals for insuring that agents are acting for the interest of principal is called transaction cost (Downs, 1957). This cost mainly covers the area of benchmarking and performance management (Gruening, 2001).
Act of agent for gain (self-interest rather than principal’s interest) was studied by
Downs (1957) and presented a theory named “Theory of decision making”. He argued that because of conflict of interest, organization budget increases. This increase is due to leakage of authority resulted from differences between organizational and personal goals.
When priorities changes, it leads to increase in organizational budget. Nonetheless, it also raises several other problems including; allocation of resources and collective action etc.
(Blanchard, Hinnant, & Wong, 1998). The self-interest behaviour of agents forced principals and Governments to bring reforms (market based) for optimizing service delivery system (Holmstrom & Milgrom, 1991).
Their task is to act in the best interest of citizens. This relation of public and state as an actor (agent) makes it Principal- Agent Relation. Hence the theory of Principal-Agent comes into action. It also asserts certain problems and creates conflicts between principal and agent (based on self-interest and interest of principal). Problems between principal- agent can overcome by providing some incentives for agents. This will also boost the pursuit for the interest in the principal’s interest. In corporate (private) sector this is done through some options. This approach leads to fulfilment of principal as well as agent’s self- interest. In social welfare states, finding solution to these problems is not easy. Economists
46 over a long time assume that if government wants something done, they establish a department and assign responsibilities for achieving those tasks. However, public-choice theory found so many evidences that governments are not doing what they are supposed to do. Government servants (Employees) are not productive (inefficient), they will resist or stop working (shutdown/ strike) for their self-interest (i.e. salary and incentives) (Persson,
Rothstein, & Teorell, 2013).
The objective of principal-agent theory is to ensure that goals are met in the best interest of organization and principal. This theory has been criticized and assumed to be insufficient tool for clarifying the undermine components of principal-agent relationship (Breaux,
Duncan, Keller, & Morris, 2002). Criticism on this theory was based on the research finding;
i) Privatization negatively effects internal systems and accountability
ii) Adding layers of management negatively effects public sector organization
Nreaux et al. (2002) evaluated reforms in welfare states and its effects on internal monitoring and accountability system. Another criticism came from Rkein and Andrew
(2012), stating that by utilizing private sectors (market solution) in a public sector shifts general public’s concerns from political towards economic empowerment. Moreover, an in-depth analysis of the underlying assumptions of this theory was done by (Worsham et al., 1997). Whereby, they criticized that these assumptions are very simple and based on unrealistic grounds. While criticizing, they suggested alternate assumptions. Alteration was made to bring rational and balance between contrary and conflicting forces (Mainly
47 including economic, political and bureaucrat forces) (see for example; (Waterman &
Meier, 1998; Worsham et al., 1997).
It has been criticized that public servants are motived by their self-interest. Thus, there is a need for developing a mechanism for monitoring performance of every individual
(Widmalm, 2016). This theory has been widely criticized for its dysfunctional nature and for creating unrest in public administration. It can be argued that in order to overcome the concept of self-interest’s motivation, sharing and creation of information, proper record and development of employee’s contracts, and support of top-down approach can be helpful in the public sector organizations. It is difficult to create trust, develop individual’s capabilities and professionalism among the public employees (Grossman, 1983).
Moreover, Widmalm (2016) stresses that policy makers in public sector finds it difficult to cope with the complexities of changing nature of public administration, therefore, public choice theory can be more useful as compared to principal-agent theory.
2.5.1.3. Managerialism At the end of 20th century, failure of traditional public administration in public sector and at the same time successful growth of private sector questioned the future of public sector. It was widely assumed and anticipated that private sector’s managerial practices can be useful for the survival of public sector (PS) (Hood & Dixon, 2013). The issues with public sector were no more resolved by bureaucratic system. Thus, it was believed that private sectors managerial practices will solve many problems that the traditional public administration did not overcome (Chatzoglou, Chatzoudes, Vraimaki, &
Diamantidis, 2013). This change in public administration will bring change in public
48 sector’s structure, organizational culture, norms and values, managerial skills; this change will bring efficiency and effectiveness, innovation and creativity, transparency and accountability, adaptability and team work (Dizon, 1996; Dixon, Kouzmin, & Korac-
Kakabadse, 1998). Furthermore, Pollitt (2001) also argued that managerialism is the best chance to proceed in reform initiatives.
Managerialism stands firm on the assumption that management is generic phenomenon which is an instrumental activity. It follows certain set of principles that are equally applicable to public sector as well as private sector (Boston, et al., 1996).
Managerialism gained popularity at the time when economic reforms agenda was linked to bureaucracy to strong then economy. Weak economics were in strong need to gain efficiency, develop strong working culture, create value for money, adaptation of private sector’s management practices, and cost effectiveness. Thus, managerialism helps public sector’s mangers in attaining efficiency, cost-control and improve organization performance (Dixon, et.al., 1998).
According to Uhr (1990, P.22) Managerialism is “the pursuit of result oriented system of government through streamlined process of decision making designed to allow greater autonomy but also greater responsibility for the field or program manager”.
It emphasizes on policy management and its implementation. Moreover, it stresses on responsibility and accountability. It further suggests outputting and outcomes and to create competitive public administration (Dixon et.al., 1998).
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The evidences of managerialism (in practice) are visible in development world including; US, UK, Australia and New Zealand. The adopted principles of performance management, customer services, contracting out, competition and public-private partnership are evident in public sector organizations (Dixon, 1996).
2.5.2.4. Concluding Remarks on Underpinning Theories of NPM Scholars agree that NPM is originated from managerialism, public-choice, principal agent and transaction cost theories, however, Gruening (2001) considers this list incomplete. He traces back and founds the evidences of NPM movement in classical public administration, public choice, principal – agent, neoclassical public administration, management theories, theory of policy analysis, property rights, transaction cost, Neo-
Austrian, and new public administration. Arguing further, Gruening (2001) stated that
NPM’s components are not new rather this movement is the combination of components from several back grounds NPM is not a theory, rather a mix of components.
It can be concluded that NPM is a backed up by several removal sources originated in public as well as private sector. The nationals behind NPM constructed strong basis
(theoretical) for NPM. It accumulates many schools of thoughts (starting from Adam
Smith) and was introduced by the pressure (demand) from public in modern era (Howard,
2015).
As discussed in previous section, NPM’s characteristic (components) are originated from different theoretical backgrounds. Though these is no complete agreement on all elements, however, there are evidences of these elements in practice in several countries.
Despite a great deal of criticism on the adaptation of various underlying theories of NPM,
50 this phenomenon has been widely adopted and practiced in both developed and developing countries. NPM has been recognized as a tool for bringing efficiency into public sector organizations. Although there are success stories as well as failure cases of NPM yet in most cases, researchers reported more success as compared to the damage done due to this concept. One of the major reasons for NPM driven reform initiatives in public sector is due to the expectations that it will fit into any situation and will solve every problem, however, reality is different from the one expected (Widmalm, 2016). Thus, understanding the utility of NPM and its application is important to ensure the success of organizational change in public sector. The next section elaborates the rationale of NPM in order to develop ground for this research.
2.5.2. Rationale of NPM New Public Management has been originated from developed world. Therefore, NPM has been approached in two diverse ways by developed world (Kettl, 1997);
i) “Make the managers manage” in UK and New Zealand: this approach uses contracting out, reward and incentive scheme.
ii) “Let the managers manage” in Australia and Sweden; this approach stresses on empowering the managers.
United States of America (USA), however, doesn’t limit to one approach and both aspects are visible in that part of the world (ibid). Thus, there is diversity in approaches throughout the developed world. This indicates that NPM does not function through a defined set of mechanism and approaches. NPM driven reforms revolve around deregulation, decentralization, dedication of authority and employee’s empowerment, customer service and competition (Osborne & Plastrik, 1997). These themes of NPM are
51 based on components from economics, management, customer orientation, increasing competition and client satisfaction and performance management. Furthermore, these themes are based on economic and managerial principles. It strives to develop a mechanism and policies that leads to achievement of organization goals and objectives by utilizing private sector’s practices (Lynn, Jr. 1998; Wiseman, Cuevas-Rodriguez & Gomez-Mejia,
2012).
Once the public sector organization is deregulated and decentralized, NPM provides a culture like an enterprise (entrepreneurial culture). This culture leads to establish clear purpose and strategy. Additionally, it provides more customer oriented, authority and accountability.
NPM approaches are characterized into two broader fields of improvement and implementation;
I. To improve production and services performance by investing in Human Resource
Management (HRM), Human Capital (HC), and Human Resource Development
(HRD). Additionally, incorporating a bottom-up approach, involving HR in
decision making, acknowledging knowledge workers, linking pay with
performance, reducing autonomy, utilizing latest technology and focusing on client
services. These components are more focused on internal system improvement,
strengthening of HR system and client services by adopting more participative and
decentralized approach.
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II. Public sector shall make a full use of private sector through contracting out and
public-private partnership. This will help in reducing the monopoly and utilizing
more efficient, effective and competitive systems (Nasrullah, 2005).
NPM has been explained by several pioneer scholars in the 1990s (Ongaro, 2009).
Their views comprise of similarities and differences as well. Some views of key authors are shown in Table 1 below;
Table 1: NPM Concept by Pioneers
Hood, 1991; Pollitt, 1993 Ferlie et al., Borins, 1994; Osborne 1996 and Dunleavy and and 1994 Commonwealth Gaebler, , Hood, 1994 1992 1996 hands-on decentralizing decentralization increased decentralize ; d professional management autonomy, government: organizational management authority particularly from promoting within unbundling; central agency more new public services flexible, less controls forms of layered corporate forms of organization governance; move to board of director’s mode shift to breaking up split between split between catalytic strategic core strategic core and government: desegregation traditional and large large steering of monolithic not rowing
53 units into bureaucracies operational operational quasicontractua into periphery periphery l separate or agencies quasi-market forms shift to greater introducing elaborate and receptiveness to competition within public competition and market and develop quasi- competition and quasi-market markets services: mixed an open-minded may be intra- provision, type as attitude about public or contracting mechanisms to mechanisms for which public with a relationship in foster allocating variety of activities should the competition alternative resources within be performed by public sector; providers the public sector the public sector opening up as opposed to the provider roles to private sector competition stress on private clearer split between creating synergy driven by separation mission not sector styles of public funding between the rules between management and independent public and purchaser private practice service and provider provision sectors function greater stress on stress on providing high customer- emphasis quality, quality driven provider on output responsivenes services responsiveness controls s to to that citizens customers consumers; value; service
54
major concern users as with service customers quality explicit performance more organizations result- standards transparent and oriented targets for government: and measures of methods to individuals managers funding performance review measured and outputs not performance rewarded on the inputs performance targets met stress on greater capping/fixed strong concern provision of enterprising government: discipline and budgets with value-for human and earning money parsimony in technological not spending and resource use; resources that efficiency gains reworking managers need to budgets to be meet them transparent in performance accounting targets terms
Changing downsizing market-oriented market-oriented market- government: government: oriented employment leveraging leveraging government: relations change through change through leveraging the market the market change through the market deregulation of deregulation anticipatory anticipatory anticipatory the labour of the labour government: government: government: market market prevention
55
prevention prevention rather rather than rather than cure than cure cure1
After 30 years of reforms in Europe there is still very limited studies of empirical nature. This is mainly because NPM is not coherent approach and it varies in implementation (Wegrich, 2009). It is evident from the literature that scholars agree on the outcome (impact) of NPM i.e. efficiency, effectiveness, customer satisfaction and performance improvement, however, there is difference of opinion on what NPM is? It is argued that NPM is not an approach rather is a collection of several approaches that has been used and named differently over a period (Van de Walle & Hammerschmid, 2011).
For example; alternative names include managerialism (Pollitt, 2001) also named post- bureaucratic and market-based Public Administration (Barzelay, 1992), and entrepreneurial style of government used by (Hughes, 1998). Thus, NPM is said to be a
“mixture of management theories” and is considered as a wave for reforms rather than an integrated or consistent theory (Christensen, Laegreid, Roness, & Rovik, 2007).
2.5.2.1.Characteristics and Concept of NPM
Based on the key scholar’s explanation of NPM concept, researchers identified the common characteristics of NPM (as shown in table2) (Dunsire, 1995).
1 Source: Ongaro, E. (2009). Public Management Reform and Modernization.
Trajectories of Administrative Change in Italy, France, Greece, Portugal and
Spain. Northampton: Edward Elgar Publishing Limited.
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Table 2: Characteristics of NPM
Budget cuts Performance measurement
Vouchers Changed management style
Accountability for performance Contracting out
Performance auditing Freedom to manage (flexibility)
Privatization Improved accounting
Customers (one-stop shops, case Personnel management management) (incentives)
Decentralization User charges
Strategic planning and Separation of politics and management administration
Separation of provision and Improved financial management production More use of information Competition technology
In 19th century, US government was dealing with politicization in administration, corruption, inefficient administrative system and lack of competency. To deal with this issue and particularly to separate politics and administration, progressive movement played a very vital role (Schachter, 1989). Furthermore, to bring efficiency in public sector and to overcome the incompetency and corruption issues, progressive reforms were inspired from scientific management theory and concepts. Thus, the journey of paradigm shift started, and public sector moved from the typical public administration (classical) to Neoclassical and moving further to public choice and modern institutional economics. It further 57 expanded to New Public Administration (NPA) and eventually to New Public Management
(NPM) (Gruening, 1998). Thus, NPM emerged as a tool for reforms in public sector and it covers most of the aspects of reforms in public sector (structural, organizational and managerial changes) (Androniceanu, 2007). NPM is rooted and originated from several theories including economics, administration, management and several others social sciences. Hence, the concept of NPM emerged as a specialized tool for reform, change, adaptation, delegation, and accountability (Lane, 2000; Lynn, 2006)
NPM has adopted several characteristics from the background theories. These components (as shown in table 3) and its origins are showing that NPM is not a new concept rather it is developed from the previous practices (Gruening, 2001). However, the way those components are formalized and combined in NPM has been acknowledged as a tool for bringing reforms and changes in public sectors (Ibrahim, 2012).
Public sector’s transformation through NPM forces governments to work on: budget cuts and controls (Hood, 1991; Santiago, Carvalho, & Sousa, 2015; Siltala, 2013),
Privatization (Boston, et al., 1996; Hansen, 2011; Sharma & Lawrence, 2005),
Decentralization (Alonso et al., 2015; Sharma & Lawrence, 2005), Outsourcing (Box et al., 2001; Singh, 2004), separation of provision and production (Dunleavy & Hood, 1994;
Hughes, 2012), Flexible management and autonomy (Alonso et al., 2015; Lorenz, 2012;
Niklasson & Pierre, 2012), Performance management and competition (Pollitt, 2001;
Walker et al., 2011), and accountability (Andrews & Van de Walle, 2013; Borins, 1995;
Lorenz, 2012). These factors with the right combination can deliver significant reforms but alone. They are vulnerable and cannot deliver as expected from NPM (Gabel-Shemueli &
58
Capell, 2013). Performance focused NPM movement has reshaped the governments across the globe. Public sector organizations are restructured and redesigned to improve service quality and delivery system. Furthermore, it also helped organizations in bringing accountability, developing HR, and managerial practices (Van Dooren, Bouckaert, &
Halligan, 2015).
2.5.3. Criticism on NPM NPM has been in theory and adopted in full as well as in parts, depending on the need of every country. Researches had studied these initiatives individually as well as comparatively. The found the strength of each program and highlighted their weaknesses.
At the end of 20th century, many researches were published focusing on globalization and
NPM, contribution of NPM in the body of knowledge, and the results produced by NPM
(Aucoin, 1998; Dunleavy & Hood, 1994; Hughes, 1998; Lynn, 1998). Research study found some evidences of issues related to NPM and therefore, this section discusses emerging issues and criticism on NPM.
One of the debates that surfaced in 1990’s and has divided the scholars is that of
NPM being international or not. Phenomena (Aucoin (1998); Hood (1991); Hughes (1998);
Osborne and Gaebler (1992)) treated NPM as an international philosophy and as new paradigm. However, Cheung (2005) questioned its nature aid debated that there is no single tool/model that can be applicable everywhere. There is no uniform model that can be universally adopted as a read made tool for reforms. Reform various form country to country and from time to time for cater different problems. Furthermore, Cheung (2013) and Fan (1998) objected the internationalization of NPM by quoting example of Hong
59
Kong and China respectively. Hong Kong’s reform were not emerged from global pressure rather they were politically driven. Similarly, china developed their own mechanism for reform which were different from western reform agenda. Pollitt and Bouckaert (2004) questioned the uniformity of NPM paradigm while conducting a comparative study of New
Zealand, Finland, Sweden, and UK. Common (1998) also criticized the global prospective of NPM and declared it as a set of various tools in practice in management.
Another most important and debated aspect of NPM is its theoretical basis.
Additionally, the contribution of NPM into the body of knowledge was put into question.
Common (1998) first criticism was the lack of definition of NPM.
Hood being the pioneer scholar of NPM discussed that it is having several opposing claims (Hood, 1991):
1. NPM is unable to lower the cost of production/services,
2. NPM has promoted individual interest rather than serving public interest,
3. NPM is not universal, and
4. NPM is just the same underneath and just a window dressing.
Thus, NPM is nothing more than a disguised beautiful form of old concept, like the old wine in new bottle. Maor (1999) criticized the managerial ideology of NPM. Due to managerial, politicians are losing control over public sector organizations. Which in return, create difference between policy contributors and managers? Similarly, public choice theory was also criticized for being a mean for self-interest (Boston et al., 1996). Another criticism was on adopting private sectors into public sectors. Private sector’s ideology is
60 for profit whereas public sector’s is to provide services to citizens without any monitory benefit (Savas & Savas, 2000).
Yet another dominating debate emerged on the results of NPM. As NPM promises efficiency, effectiveness, and makes government more responsive towards societal needs.
Literature has limited empirical data to evaluate and compare results. However, the available (limited) date does highlight weaknesses and deficiencies (Common, 1998;
Lindquist, 1997). Considine (1990) found that managerial reforms are not delivering results
(as expected). The cost of these reforms as compared to the benefits was high in Australia.
An effort to reduce cost affected the quality of services. Australia and New Zealand set standards for reforms in public sector, however, Halligan (1997) claimed that these efforts been fruitful. Cost of reformer has increased, increase in downsizing led to high unemployment, disturb on system has increased, disturbed quality of life, and economic inequality were the major problems that surfaced while governments were trying to bring change in public sector. Similarly, Lindquist (1997) reported decrease in quality of life, lack of vision, limited resources, burnout, and employee’s dissatisfaction were resulted due to reform efforts in Canada.
Engida and Bardill (2013) summarized challenges and constraints faced through
NPM implementation including;
Lack of strategic vision
Reforms being sponsored cannot be fruitful and fails due to differences in agenda
and needs.
Lack of sustaining political and community support. 61
Lack of institutional capabilities and capacity to coordinate, control and manage all
phases of reforms.
Decline in value i.e. honesty, helpfulness, integrity, fairness, dependability and
courteousness etc.
Lack of infrastructure and other supportive facilities.
PSR initiatives are often inconsistent and lack uniformity. Nonetheless, they are also contradicting with each other (Peters, 2014). Furthermore, the common factor of failure of
NPM and PSR in developing countries is the weak form of democracy and lack of organizational capabilities (Hope, 2001).
NPM has been said to have different theoretical background, however, these factors are also somewhat identical to those in theories of management and administration. NPM is a hybrid approach which does not rely on a single background (Kickert, 2001; O;Flynn,
2007). It has adopted characteristics from various origins. Yet, the focus remained on adopting managerial practices of private sector. Although the dissimilarities between public and private sectors is seen clearly through a broader focus on organization rather than the specific emphasis on managers or managerial practices (Perry & Rainey, 1988).
Major differences between public and private sector are based on concept of rationality, serving public interest, purpose and philosophy of service, legal differences, and external factors (Allison, 2004). “Public and private management are at least as different as they are similar, and that the differences are more important that the similarities (Allison, 2004;
410).” However, several times these differences are ignored which eventually leads to failure of reform initiatives.
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Despite the criticism on NPM, its unpinning theories and market driven approach adopted from various backgrounds it has provided significant results and success stories from both developed and developing world. Organizational changes/reforms are necessary to bring efficiency and effectiveness.
2.5.4. Evidences of NPM in Practice
Intensity and implementation of reform initiative have been different from country to country. Some responded quick and some slow, some countries achieved desirable success whereas some struggled. Reforming public sector is very difficult task (because of the obstacles). Politician and bureaucrats are the key players in public sectors thus, they can destroy the entire process. According to Schick (2000, p. 1) “every successful public management reform is an amalgam of opportunity, strategy and tactics”. Opportunities vary from country to country which support certain types of reforms and hinder others.
Strategies are policies, plan of action that helps government in proceeding with goals and objectives for implementing change. Whereas, tactics refer to the support mechanism through which government can implement change and overcome the barriers. These factors are essential elements for the successful implementation of reform initiative (Schick,
2000).
Reform initiatives depend on change in political ideology. It is either due to change in government or increase in pressure (demand) for better services by general public (Atreya
& Armstrong, 2002). Government also bring reforms to overcome budget deficit or under the pressure of donor agencies. Hence, reforms are both proactive and reactive in nature.
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Flynn (2002) believes that there are still differences in NPM initiatives and it varies from country to country. According to researcher, these differences include; degree of adaptation of private sector practices into public sector, extent of decentralization, control over input and output, delayering, downsizing and rightsizing in managerial positions, staffing practices (i.e. HR), customer orientation, and structural interventions.
Furthermore, NPM success depends on various aspects, including; characteristics of the adopted tool, manager’s characteristics and on the method (level) of adaptation. The cost, complexity and its impact on organization also decide the future and success of reforms
(Damanpour & Schneider, 2009).
Nonetheless, it is also reported by scholars that certain countries are using cosmetic approach to NPM which is limiting the scope of the transformation in public sector.
Adopting some characteristics of NPM and keeping certain part of traditional approach can mislead and this overlapping can result in confusion (Torres & Pina, 2004). Moreover,
NPM is also argued to have an ill-defined nature, which makes its analysis very difficult.
Due to this reason, it is considered less consistent and an unstructured theory
(Hammerschmid & Van de Walle, 2011). Even though the theoretical and applied aspects of reforms are intertwined, it is still necessary to study these reforms practically and on actual grounds regardless of the fact that it seems to be very appealing and effective in theory and on paper (Christensen et al., 2007). The following subsections will provide ample evidence and critical analysis of the reforms from both developed and developing countries.
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2.5.4.1.Evidence from Developed Countries Australia is one of the anglophone developed countries. Anglophone countries include
Australia, Britain, Canada and New Zealand which share common traditional and historical associations. Studies report various driving factors as the major cause of public-sector reforms in Australia, which include fiscal constraints, meeting the standard of living and perform to their best, demand and pressure from citizens for new and improved quality of services, demand for accountability, and changing trends and technological aspects
(Sedgwick, 1996; Zafra-Gomez, Pedauga, Plata-Diaz, & Lopez-Hernandez, 2014). Radical approach (macro level reforms) was adopted by governments between 1980’s. These reforms were led by economic rationalists and aimed to implement managerialism, deregulation and privatization. Meek (2001) asserted that a generic management policy was adopted in 1983, followed by PSR act in 1984 with subsequent establishment of government restructuring department in 1987. In 1988, financial management improvement program was initiated. Later, in 1982 “Task Force on Management
Improvement” was launched to evaluate the reforms initiated.
New Zealand’s labour government in New Zealand started reforms in 1984, while the major concern that forced government for PSR was their fiscal problems. Budget deficit raised to 3 billion and country was on verge of bankruptcy. Government realized that the only solution was of macro level reforms for both economic and government management
(Christensen, 2013).
Contrary to the above-mentioned causes, the initiative of reforms in United States of
America (USA), were not to overcome problems and crises rather it was for improvement
65 of services (more tendency of micro level or incremental reforms). These reforms were properly planned after in-depth assessment and analysis. Government involved the top experts from every field and proper proposals were presented. Reform efforts were supported by legislation. The focus of reform initiatives were customer satisfaction, results and performance, improvement, and employee satisfaction. The reforms in US were customer cantered (citizen cantered), market-based and result oriented (De Vries & Nemec,
2013). Even though the drive for reform initiatives in USA was slightly different in its nature, it is still believed to share many characteristics with NPM.
In Italy, NPM based managerial reforms were initiated in 1990s. These reforms were due to changes in legislation, cut-back policies, and loss of credibility of public organization, corruption, and misuse of office (Ongaro, 2009). Furthermore, it was also revealed that the public administrations (in 90s) in Italy were having certain deficiencies
(internally) as well as shortfalls in the HRM practices. Lack of flexibility, compensation and career management, lack of HR planning, weak control over accounts and finances, no performance management system which ultimately resulted in the drop of efficiency, effectiveness and productivity level (Spanou, 2011).
Torres and Pina (2004) assessed reforms in Spain’s public sector. According to
their study, these reforms were rooted back into 1980s that started with minor
incremental changes and later adopting NPM approach for transformation of public
sector. A wide range of initiatives were introduced in different phases by different
parties under their government including; devolution of power and responsibility,
decentralization, separation of policies and practices, public private partnership,
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financial reforms, HR practices, and access to information. However, these reforms
were initiated in different phases and not spontaneous. In agreement to the isolated
NPM based initiatives in Spain, Sahlin-Andersson (2001) argued that due to cultural
context and certain other limitations of the country, NPM initiatives are not introduced
package rather in parts and pieces. Furthermore, sometimes NPM is used and mixed
with other tools, therefore, concentration is on the achievement of goal rather than on
the actual aim of NPM. It is also concluded that to attain the desirable change results,
top management and particularly politicians are required to be highly motivated,
however, in bureaucratic system, it is a cumbersome job which requires developed
skills and proper planning. Furthermore, there is a strong need to redesign and align
HR system to support the reform efforts (Torres & Pina, 2004).
Table 3 shows some examples of PSR using NPM model from the developed countries.
This table indicates number of objectives behind these reforms in public sector of developed world.
Table 3: Reforms in Developed World
Year Country Reforms Reference Mid Europe Economic crises led Europe to: (Loffler, 2003) 70’s privatization, contracting out, deregulation, reduction in expenditure, shutting down unnecessary projects (programs), downsizing and rightsizing public organizations, and M&E programs 1979 UK Privatization, from Administration to (Rutgers, 2001) management
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1981 UK Introduction of efficiency unit, MIS (Rutgers, 2001; department, Customer satisfaction, Talbot, 2004) performance improvement 1993 USA Eight Years program “Reinventing (Lynn, 2006) Government” aiming to develop smaller and efficient government to decentralized, customer first, reduce cost, improve performance. 1993 USA Government Performance and Results Act (Radin, 2000) (GPRA) 1990s Germany Radical changes from federal to local (Loffler, 2003; government and structures, use of RBV, Reichard, 2003; defining output, performance contracts, Ridder, Burns, & customer orientation, flexible resource Spier, 2005) allocation, outsourcing, privatization, downsizing, pay-performance link. 1980s France Decentralization, customer centered, (Elgie, 2003; improve quality, efficiency, Treat HR as an Thoenig, 2004) Integral asset, Training, socialization, personnel management, private sector’s standards, improvement in decision making process, Org. Structure 1984 New Stabilization of macro environment, (Bale & Dale, 1998) Zealand decrease expenditure, improve accountability, improve performance, improve reward and incentives, reporting and monitoring 1988/89 New Two laws were passed to implement plan of (Bale & Dale, 1998) Zealand accountability, HR plan, Performance
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standards, Reporting and monitoring, result oriented approach, economic policy reform
2.5.4.2.Evidences from Developing Countries New Public Management based reforms in developing countries are divided into four broader categories; Social and Cultural, Economic, Political, and Administrative reforms (Schiavo-campo & Sundaram, 2000).
Social and cultural norms, values and beliefs vary from society to society and culture to culture. Reforms can only succeed if they are in accordance with socio-cultural aspects. Government should consider and take this factor into consideration before deciding any reform. Most commonly, the norms in any society are apprised without any documentation. Regardless of being aware of those norms, when the government plans, they ignore considering them, which leads to the failure of reform efforts, hence identifying it as one of the major reasons of failure (Schiavo-campo & Sundaram, 2000). Therefore, there is need for building concerns on local as well as national level before implementing any change. Counties having different and diversified socio-cultural variables then it is very important to build concerns on micro and macro level (Ormond and Loffler, 1998).
Reforms should be acceptable as a tool for development only on the cultural level, while considering the size of the country. Before initiating, government need to arrange all required resources and make sure that the reform is technologically prevalent and up-to- date (Atreya & Armstrong, 2002). On the contrary, aid dependent countries are forced to bring reforms as per their terms of agreement with the country requiring aid. The aid donor agency does not consider the socio-cultural characteristic of that specific country and thus
69 such reforms are not fruit full in producing desirable results (United Nations, 2008). Hence, while devising reforms, it is necessary to consider the importance of cultural norms, values and beliefs. Similarly, performance depends on the organizational culture. The internal culture of an organization is reflection of various local cultures that is accumulated and developed by every person working in the organization.
Most of the developing countries remained as a part of developed countries and therefore, are still under the influence of these developed countries in terms of cultures.
While remaining under the rule of colonial system, the citizens were deprived and controlled with bureaucratic system where most of the decision-making positions were kept by colonial rules and the locals were having low profile jobs in administration (Hughes,
2012). Most countries in colonial system gained independence after World War II and adopted the same administrative system that was practiced by the ruling country under.
Asian countries remained mostly under the rules of Brittan and after independence they continued with British model, however, that system failed because of socio-cultural aspects. Within that system, political and economic exploitation was practiced and is still evident in developing countries (Hulme & Sanderatne, 1997).
Afterwards, cold war between two super powers divided the globe and forced rest of the developing countries to choose one side for economic development. At that time, the dominant economic approaches were socialist and capitalist. The democratic system was developed however, public administration system remained unchanged as it was in colonial system (Hughes, 1998). Developing countries, both under the influence and without the influence of colonization had developed and implemented bureaucratic system and the
70 structure that replicated colonial structure. Centralized, politicized favouritism and nepotism is in the roots of public administration (Atreya, 2002). Despite the development of democratic system which embodies a large portion of social and cultural characteristics, public administration remained unchanged due to other factors directly affecting the system.
Managerial reforms in public sector cannot succeed without political support. As discussed earlier in literature review, many scholars have highlighted the role and importance of political factor in any reform initiative. Political ownership is vital for the success of reforms (Pollitt & Bouckaert, 2000). Reforms are initiated by Government
(Politicians) thus, political leaders and government at every level play a critical role in the success of management reforms (Minogue, 2000). However, the same political leadership is reported to be one of the biggest hurdles in developing countries (Therkildsen, 2000).
Among most of the developing countries political unrest is normally observed right from the time of independence. As they continued to follow authorize rules, centralized system and bureaucratic culture that hinders the progress and development of a country. Similarly, there has been political and democratic instability in developing countries, therefore, they faced so many challenges in reforming public sector.
Due to political restlessness in developing countries, they have faced several problems including: fiscal crisis, ineffective reform effort, over burden of debt from international donors and agencies, distrust, loss of integrity, lack of discipline, and desertion are the common issues among developing countries that are orientated from political factors (Atreya, 2002). Political instability creates room for corruption, decrease
71 in moral of employees, and brain drain. Thus, in order to grow and develop public sector organization political supports, sincerity, freedom of media, free and fair judiciary, accountability and transparency, and participation of stakeholders is very important
(UNDP, 1995). It can be inferred that political instability is directly associated with other aspects which can be the cause of failure in the reforms. For instance, political instability and political interferences in public sector give way to corruption which eventually will disturb accountability and transparency. Thus, separation of politics and administration is important to overcome challenges.
Weak administration cannot prevail in 21st century. Administrative factors take centuries to develop and as compared to developed countries, the public administration of developing countries is having merely half a century history. Researchers argued that development in public administration of developing countries is not substantial (Hughes,
1998). Developed countries, for example: UK and USA started developing their public administration in 19th century. It took them decades in modernizing and stabilizing their public sector.
Administrative reforms brought under NPM requires prevalence of strong administrative factors. Bureaucratic system is considered one of the factors that restricts managerial reforms in developing countries (Hope, 2001). Having such a short history, developing countries are considered weak for adopting NPM. Developed countries have changed public administration system that prevailed in 18th and 19th century whereas the developing countries are still practicing it. Therefore, it is not applicable in the dynamism of 21st century (Klinger & Campos, 2001). Thus, it can be concluded that administrative
72 factors in developed and under developing countries are different (Shah, 1999). These differentiations are in the goals of developing and under developing countries.
Furthermore, authoritarian system, capacity (operational and evaluation), public sector organization structure, decision making, and culture is also different (Shah, 1999).
Additionally, literature suggested that informal rules, personal relationship, and unstructured system is common in governance of developing countries (Schick, 1998).
These informal rules in bureaucratic structure affects the formal structure and, therefore, policy makers must recognize rules that are influencing the administrative factors
(Ocampo, 2000). Atreya and Armstrong (2002) suggested that, in order to overcome the gap between developed and developing countries, governments need to bring managerial reforms. However, it is reported that the factors affecting managerial reforms in developing countries are affected by the poverty which is due to economic conditions of a country.
Financial and economic condition at macro level always remained key factor behind reform initiatives (OECD, 2000). Poor performing countries always faced pressure from technocrats, experts, and international agencies to bring reforms for improvement in financial and economic conditions. World Bank uses Gross National Income (GNI) for classifying country’s economic condition by using ‘World Bank Atlas Method’. According to this classification, countries having GNI less than $1,045 are classified as low-income economies. Countries having GNI between $ 1,045 and $ 12,736 are classified as middle- income economies whereas, having GNI above $ 12,736 are high income economies
(World Bank, 2016a). Lower and middle-income groups are referred as developing countries while high income group countries as developed countries (World Bank, 2016b).
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Poor economic condition hinders the developmental reforms because of the scarcity of resources. Thus, it is important that government should strategize an intervention to take best use of limited resources. Both developed and under developing countries require to improve economic condition. It is comparatively easy for developed countries due to availability of resources and other factors, however, developing countries are faced with poor economy, corruption and lack of efficiency of public sector organizations
(Therkildsen, 2000).
Developing country overcome financial crises by acquiring aid from international agencies (for example: World Bank, IMF, ADB etc.). Most of reforms in developing part of world are supported by donor agencies. Funds are provided with some conditions and therefore, the reforms are always influenced by these agencies (Common, 1998).
Studies exemplify reforms in different developing countries, which show variant results and adaptation of approaches across different countries. For instance, In Africa,
Downsizing, decentralization, economic development, deficit reduction, and public-private partnership has not been sufficient enough to produce desirable results. (Kiggundu, 1998).
Moreover, Latin American countries focused on strengthening of democracy, deregulation, privatization, micro reforms and market orientated factors (Ramio & Salvador, 2008). On the other hand, reforms in Asian countries followed different model. In south Asia these reforms were least successful, however, certain NPM characteristics prevailed in this region, including: decentralization, result orientation, customer service, cost cutting, managerial practices, and contracting out. Nevertheless, there was lack of control on corruption, political influence, and socio-cultural influences.
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New Public Management’s evidences can also be found in the developing economies. These PSR are helpful in establishing a ground that NPM can be implanted in developing countries. See Table 4 for some examples from developing countries.
Table 4: Reforms in Developing World
Year Country Reforms Reference
1980s Malaysia Downsizing, Reengineering service (Ahmad, Mansoor, process, Personnel and financial & Ahmad, 2003; management, customer services, quality, Siddique, 2006, productivity, IT and e-governance, 2007) changes in structure, ERP
1991 Viet Nam Decentralization, downsizing, changes in (Wescott, 2001, laws, One window operation, IT 2003, 2004)
1990s Singapore Market oriented, decentralization, (Samaratunge, empowerment, accountability, customer Alam, & Teicher, satisfaction, development of state owned 2008; Sarker, enterprises, business oriented, IT and 2006) automation, rightsizing, One window operations, transparency and accountability
1980/99 Bangladesh Efficiency, professionalism, (Sarker, 2004, accountability, control, reduces 2005) corruption, HR, Transparency.
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Ghana, as a struggling economy faced several challenges in its public sector. These includes; lack of management of HR, institutional weaknesses, scarcity of resources
(mainly financial), underutilized resources, unavailability of proper performance management system, lack of reward and incentives system, ineffective management and information systems. In order to overcome these challenges, government of Ghana took nearly two decades to bring radical as well as incremental changes in its public sector.
Using NPM, they changed policies, process and practices. The major contributor in achieving reform agenda was decentralization thus, proving that decentralization is an important component of NPM (Antwi & Analoui, 2008).
African region reform initiative focused on structural adjustments. These initiatives were led and forced by donor agencies and governments were forced to impose such initiatives. The prime objective was to reduce budget deficit thus, governments were forced to go through privatization, economic reforms and management, democratic sustainability and development and adopting mechanism for good governance. In Africa, the first phase was initiated to reduce cost. This was not as successful as expected thus, a second phase was initiated to improve service delivery and capacity building of HR. This stage was more concerned on HRD as well as on improving HRM systems. However, there were short- comings in this phase as well and hence third round of reforms was initiated to improve service quality. This stage focused on providing quick and early results with transparency and accountability. An effort was made to shift towards private sector based NPM approach and achieving economic development by adopting integrated systems. During these reform initiatives, the most evident characteristics of NPM were decentralization of management, cost recovery and user charges, and contracting out (Engida & Bardill, 2013). It was also
76 suggested to the governments to adopt decentralization, downsizing and restructuring of government agencies, use of I.T and e-government, outsourcing and contracting out, de- bureaucratization and privatization, and deregulation (Hope, 2001).
In Fiji, reforms were initiated in 1980s. Those initiatives were to overcome the decline in GDP by 6.4%. The agenda and objective were to bring accountability, efficiency and profitability. In 1996 an act “public enterprise act” was approved followed by establishment of “Ministry of Public Enterprise and PSR”. Reforms were influenced by donor agencies (same as in the rest of developing countries). The donor agencies had their own concerns (mainly to ensure the timely payment of load and interest). During the reform initiatives, resistance was shown by managers as well as employees, however, the communication and motivation by change agents and consultants played a positive role in overcoming resistance to change. Furthermore, government in Fiji also adopted profit sharing scheme for employees and it was a fruitful decision that showed positive outcomes
(Sharma & Lawrence, 2009).
Malaysian reforms, however, are not as successful as in developed countries where it has been reported that government has achieved modest results where the obstacles like inefficiency, corruption and a host of other problems still prevails (Siddique, 2006).
Likewise, Bangladesh has failed to reform its public sector due to lack of political commitment, lack of state capacities, corruption, and resistance from bureaucracy (Sarker,
2004, 2006).
In Nepal, budget deficit, outstanding loans and borrowing were the major problems that were faced by government. Contrary to developed world, aid and donor agencies always 77 play its influential role in developing countries. IMF and World Bank forced Nepal’s government for brining reforms into public sector. Donor agencies set terms and conditions to their aid/loan programs or provide support for reform programs (Paudel, 2013).
Like other developing countries, Pakistan has also initiated reforms in public sector organizations. These reforms are somewhat donor driven as well (Ullah, Arentsen &
Lovett, 2017). Pakistan is having weak institutional structures; therefore, the public-sector organizations are lacking effectiveness (Din, Mangla & Jamil, 2016). PSR initiatives are focused on economic growth and sustainability (Kite & McCartney, 2017). Pro-market reforms have stagnated the economic growth of Pakistan. Reforms in Pakistan are mainly focused on overcoming weak governance structure, overcome political interference, sectoral endowment, institutional issues, and to initiate market-driven reforms (Ullah, et al., 2017). Pakistan’s government is also focusing on initiating contracting out as well as on public-private partnership. Moreover, government is striving to bring transparency, performance management, service structure, financial management and financial autonomy with decentralization (Malik, Van de Poel & Van Doorslaer, 2017). Faisal
(2017) reported that PSR in Pakistan is not successful due to issues in implementation of plans and due to lack of monitoring mechanism. Thus, the efforts of government and donor agencies are lagging behind from producing desirable results.
Every country has different socio-economic conditions. Nevertheless, there are difference in their political and administrative systems. Therefore, adopting successful practices of one country may not result the same in other country. There are differences of
78 approaches to public sector reforms. Therefore, the next section discusses different approaches to reform implementations.
2.6.A Way Forward for Public Sector Organizations
Since 1990s, public sector has witnessed a drastic paradigm shift from traditional public administration towards adaptation of NPM (Hood, 1990). The role of government has changed from ‘rower’ to ‘steerer’ (Osborne & Gaebler, 1993). Similarly, the theoretical grounds of public sector have shifted from political administrative prospective towards economics and managerialism perspective (Gray & Jenkins, 2006). Thus, movement from legal rationality towards managerial rationality has taken place in the public sector organizations. This paradigm shift has forced public sector organizations to change their approach and focus; from centralized to decentralized, from efficiency to efficiency and effectiveness, from citizen focus to customer orientation, from rule-driven to mission oriented and so on (Zia & Khan, 2014). This shift in approach was initiated and adopted by developed countries in 1980s-90s (Chittoo, Ramphul & Nowbutsing, 2009). As discussed in section 2.5, although NPM based reforms are initiated in developed world yet it is used in developing countries for reforming public sector organizations. Developing countries are showing increasing trend of adopting NPM based reforms. These market- oriented reform initiatives are aimed to help developing countries in economic development and to overcome global challenges.
The onward sections of this chapter provide a contextual review of literature regarding the approaches to PSR, emergence of organizational change, philosophy of organizational
79 change. Moreover, the later part of this chapter highlights the reforms initiatives as well as provides an overview on the major areas of research gap.
2.7.Approaches to Public Sector Reform Implementation
Reform initiatives are successful, if and only if there is political desirability and sincerity. This is true as UK’s and New Zealand examples in late 1970s and 1980s set the guidelines for other countries. However, reform cannot be brought by only one government in one tenure. In developed countries, consistency and continuity for the success of reforms is entirely dependent on the success rate in persistent attempts of reform agenda. In US, reform initiatives of Clinton were continued by Bush (Christensen et al., 2007). OECD considers creation of suitable conditions for reforms, devising reform agenda that clearly focus on meeting customers (citizens) need, and restructuring of government mechanism that enhance their capabilities to implement reforms in public sector to be some important guidelines for reform implementation (OECD, 2000). Furthermore, the additional guidelines include: consistent and unified reform initiatives, support from all stakeholders, establishing sense of ownership, rewards and incentive building, and accountability for implementation are also important (OECD, 2010) Public sector’s reforms are more political then managerial involvement commitment of top government officials is very important for the success of reforms. Some scholars also suggested that clear vision, proper long-term planning, support of civil services and central agencies, leadership, clear job description responsibility clearly conveyed, accountability mechanism, proper resource allocation, transparency and communications, readiness to handle any resistance, willingness to changes and creating dynamic environment for change needs to be considered while bringing reforms public sector. 80
Intensity of reforms effort depends on the capability and future sightedness of politicians. At the time and opportunity arises, it is dependent on government what they for see and how they proceed. Current scenario and variety of deliverables require more comprehensive effort as compared to past. Today’s reforms are complex in nature and requires consideration to every aspect. Governments are facing financial crises and are no longer in a position to fund operations of public sector organizations, therefore, several governments have reduced budget allocation and imposed budget cuts, for example; in
Australia budget cuts are common (Demircioglu & Audretsch,2017), in Scottish public sector government has reduced spending and have decentralized public sector to overcome issues of financial spending (Asenova, Bailey & McCann, 2015). Different strategies were adopted in different countries to initiate reforms. Some of the most adopted strategies are discussed below.
2.7.1. Market Driven Reforms Reforms under this strategy were to bring competition, adopting contracting out, privatization of public sector organizations, charging users for services, and adopting private sector’s mechanism (Schick, 1998). The ontology and rationale behind market driven reforms is to implement entrepreneurial mechanism in public sector organizations.
Customer orientation and competition will bring efficiency and effectiveness. Successful reforms under this strategy can be found in UK and New Zealand (Blanchard et al., 1998).
2.7.2. Managerial Reforms Set of reforms under this strategy are more related to management, which includes: bringing professional skill development of employees and dealing with ethical standards in organizations. Let managers manage the care philosophy under this type of reform.
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Decentralization and operational decisions authority to manager dedicating so that financial and human resource are at the dispersal of mangers. This is important to run the operation smoothly and for quick decision making (Pollitt & Bouckaert, 2004).
Logic behind this strategy is to overcoming red-tapsim, organization can improve efficiency. Thus, planning objective setting and accountability for performance are delegated to lower level. Decentralization of power and authority are the means to maximize productivity and efficiency (Gore, 1993).
2.7.3. Program Model of Reform
Reforms under this model are based on philosophy that government set priorities from most urgent programs to least important. Afterwards, they allocate resources accordingly (as evident in annual budget). Each program is analysed (program wise) based on government’s need with the help of this model, government achieves its objectives and priorities more effectively. Furthermore, resources are also distributed on basis of set priorities (Atreya, 2002).
This tool has been used by many countries (particularly OECD member countries).
Reforms under this strategy helped in controlling expenditure (Jog & Tang, 2001).
Canadian reforms are good example of such strategies through which they were able to stabilize their financial condition. Methods adopted by Canadian government comprised of six motions:
i. Program’s capacity to fulfil public interest,
ii. Legitimacy and necessity of program for government,
82 iii. Appropriateness of program in connect to federal and provincial government, iv. Need for public private partnership in delivering the particular service,
v. Need for assessment and redesign for efficiency and, vi. Its affordability and feasibility.
It also helps in identifying all activities that needs by stopped, further developed, initiated and re assed. Moreover, this activity is also a mean to deliver, cost effectiveness
(Atreya, 2002). UK’s reform initiative was all pre planned. Before initiating a program, they addressed the need of the program, responsibility uses, who will deliver it (public or private sector): government to deliver then the selection of an organization is also considered (OECD, 1995). These options at parliamentary stage helps government organize and make appropriate decisions. The intension of government is clear and evident that they want to create value for its citizens by delivering the most needed services.
Adopting budget cuts and ceilings, resources distribution mechanism, competition, contracting out, performance measures and rewards system, management flexibility and
HR related activities are all part of program model reforms. Other countries that used this model includes: Australia, France, New Zealand, Ireland, and other OECD countries
(Common, 1998).
2.7.4. Incremental Model of Reform
This model is focused on micro reform (incremental). Governments adopting this model works cautiously. This don’t take reforms radically ratio they wait and see if change is working, only then they will proceed. This is more like a pilot study (testing) before launching a change. Scope of such reforms is limited. This model mostly focuses on setting
83 priorities, identifying problem that need urgent attention and then solving them
(Christensen et al., 2007). Germany used this model for bringing incremental changes
(Schick, 1998).
Variety of reform strategies concludes that reforming public sector is a complex task. Government has to choose wisely from the available options. However, it is argued that these is no can guarantee problem solution. It is a never-ending effort of government that ensures success. It is up to the government how they proceed when the window of opportunity pens. Choosing the right strategy at the right time with support and resources is essential for the success of reforms (Peters, 2014).
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Four different set of models of reforms show that the NPM has been approached differently by every country. Thus, NPM reforms in every country are custom-based as per the requirement of each country. Hence, reforms under NPM should not follow the success and failure of other countries rather, it should be focused on their own factors. Table below
Table 5: Reform Models and NPM Characteristics
Types of Market Driven Managerial Program Model Incremental
Reforms Reforms Reforms Reforms Model
Reform
Competition Personal Budget Any Cuts/Ceilings Contracting Management out Management Strategic characteristic Planning & Privatization Style Management User Decentralization Improve Charges Accountability of NPM can Finance Customer for Performance & Concept Separation of be used that Provision & Accounting Production Management can solve the Performance Competition Auditing Contracting problem Strategic out Planning Performance & Management Management System
Characteristics of NPM Characteristics Management Style Personal shows the summary of all reform models and the characteristicsManagement of NPM that are targeted in reform initiatives.
Literature on reform efforts from various countries also reported a mix of strategic
(models) being adopted and utilized in different countries. Australian government, New
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Zealand and UK’s governments has used ‘market driven’ and ‘managerial’ reforms simultaneously. Canadian government used the combination of ‘Program model’ and managerial ‘reform model’ (Artaya, 2002). OECD countries pioneered and initiated reforms since 20th century. Therefore, literature is rich with their examples. Their effort in reforming public sector has set a bench mark. This success and failure have lessons for the rest of the world. The difference in the approaches towards reforms with OECD shows that they are custom made and vary from country to country. In 1996, Hood reported four different ways (approaches) to public sector reform. They were different in motive and opportunity (Hood, 1996). The reform model explains four different combinations of motives and opportunities (as shown in Figure below). It is the decision of each country to decide the strategy that match this condition. Reform efforts need consistency and at the same time it requires patience. Furthermore, it requires support from all stakeholder and particularly the support of inter stakeholder (employee). Reform efforts can be a fatigue and stressful activity; thus, government needs to case the process otherwise it can affect the successful implementation of change efforts. Government has to play role in involving employee in the process, value their input, recognize and rewards efforts, and motivate their employees.
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High
“Japanese Way” “Swedish Way” Opportunity
“American Way” “German Way”
Low High Motive
Figure 1: Four Distinctive Approaches to Reforms
2.8.Organizational Change in Public-Sector
The main purpose of this research is to investigate organizational change in public sector. The previous sections elaborated the operations of public sector, theoretical development in public sector and approaches adopted for transformation of public administration into public management. Discussion in the reviewed literature showed that the complex nature of public sector poses several challenges with respect to organizational change. Therefore, reforming public sector organization is not an easy task. Processes and structure of operations are different from private sector, yet efforts are made to bring transformation into public sector organizations.
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Public sector organizations are reforming themselves towards private sector’s managerial and business practices (Wise, 2002). Transformation from Weber’s bureaucratic principles towards market-driven approach is reshaping the concept of public administration and converting this phenomenon into public management. The aim of these reforms is to make public sector more efficient, effective and citizen-centred (Van der Voet et al., 2014). The term reform is having many synonyms like making adjustment to something, improve, alter, rebuild and change etc. however, in public sector, any change initiatives or improvement program or rectification of any problem and improvement has always been referred to as public sector reforms. Whereas, on the contrary, any such initiatives in private sector has always need tagged as change, change process or organizational change. The term ‘reform’ is often tagged in association with public sector.
However, Kuipers et al. (2014) stated that the concept of change is often considered broad than reforms. Similarly, the pioneers of public management argued that reform is different from improvement, modernization, and transformation (Pollitt & bouckaert, 2004).
“The reform measures may vary depending on the priority of the current
leadership, which maybe in the form of reengineering, reorganization, and
rationalization anchored on the principles of economy, efficiency and
effectiveness, transparency, social growth, innovation, and good
governance” (Perante-Calina, 2015).
Habib and Jamal (2014) considered all of the above-mentioned tools as an effort to bring change in an organization that brings the desirable results (as discussed by Perante-
Calina, 2015). Several tools are used in change process with the same goal and expected
88 outcome. Most of those tools (Total Quality Management (TQM), business process
Reengineering (BPR), Reorganization, Benchmarking, innovation, enterprise resource planning (ERP) etc.) are classified as tools used in the organizational change and as a change process. These processes were introduced in private sector however, with the passage of time and after its success in the private sector, they were adopted in public sector organizations as well. In previous chapter, the literature review showed evidences of PSR being same input, process and outcome as change efforts in private sector.
Public sector reform is introduced by various names in different countries across the globe. PSR being the instrument that introduces modernizations, change, and professionalism for the development of institutions and processes in public sector. There is literature that supports change in public sector (i.e. PSR) and change in private sector to be two different facets (Fernandez & Rainey, 2006) whereas, on the contrary, literature can be found that believes change in public and private sector to be identical change process
(Klarner, Probst, & Soparnot, 2008). Although there are scholarly evidences that change is multifaceted and multi-level phenomenon which varies due to its nature and regardless of the sectors (Karp & Helgo, 2008). Kickert (2014) argued that most of the literature on organizational change and change management has been from private sector. Therefore, most of the literature on organizational change and change management has been disconnected from public sector (Van der Voet et al., 2014). Nevertheless, there is hardly any study that differentiate between the change in public and private sector. Robertson and
Seneviratne (1995) conducted a meta-analysis (comparison-based study) of public and private sector’s change initiatives and concluded that there is no difference in organizational change in both sectors.
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The earlier literature in the field of classical public administration was isolated from the factors and phenomenon of private sector’s developments and approaches, however, the more recent developments (since 1980s and onwards) has reduced the gap between both sectors and has transformed public administration into public management. Thus, the changing environment and context of public sector has stressed on reconsidering the changing nature of public sector and management (Caldwell, 2009). A literature review- based paper by Kuipers et al. (2014) stated that literature on change and change management has been dominated by studies on private sector and that gap needs to be filled.
Pettigrew, Woodman, and Cameron (2001) suggested that, while studying change, a scholar shall focus on the background, content, process as well as the outcomes of change.
Context or background of PSR and change refers to the internal and external environment that rapidly keeps on changing. Outcome of any reform and change process are reported to be identical i.e. organizational strategies, systems and structures are studied under the content of change. NPM addresses the content issues and most of the recent reforms in the developed world are introduced under the umbrella of New Public Management. Processes interventions are studied from the perspective of implementation of change. These processes are described as implementation of change in private sector whereas, in public sector they are called reform initiatives. In both sectors, changes are either radical or incremental in nature. Incremental change was considered sufficient for strategic alignment and organizational positioning, however, since 1980s transformational strategies are adopted by organization and therefore, employees will have to face radical change at a constant pace (Higgs & Rowland, 2005). Moreover, the outcomes of change are suggested
90 to be studied from the perspective of behaviour and experiences of public sector employees.
The nature of organizational change has different perspectives (Higgs & Rowland,
2005) and it varies on the basis of its implementation (radical or incremental). Reforms are considered to be incremental and designed effort. Whereas, organizational change can be planned or unplanned change (Burnes, 2004; Dunphy & Stace, 1988). Despite the differences between the notions of public management and change management scholars, there seems to be agreement about the levels of reforms and order of change (i.e. sub- system, organization and sector change) (Kuipers et al., 2014). Thus, calling it reform or change. It is a change process which takes place in every sector and every organization, at every level simultaneously (Hartley, Butler, & Bennington, 2002).
Several scholars believe that organizational culture plays key role in organizational change (see for example; Marković, 2008; Schneider, Brief & Guzzo, 1996). Success of organizational change depends on organizational culture (Bolman & Deal, 2017).
Organizational culture submerges the organizational strategies, value system, processes and structure, environment and policies etc. which implies that organizational culture plays an integrating role in organizational change (Burke & Litwin, 1992). Lam (2004) stated that the culture of public sector is rigid and therefore resistant to organizational change.
Thus, resistance to change is higher in public sector due to unyielding culture of public sector organizations (Oreg, 2006).
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2.9.Philosophy of Reforms/Organizational Change in Public Sector
Reform refers to “changing established bureaucratic structures, behaviour and practices” (Atreya & Armstrong, 2002, P. 31). Public management reform means, “a deliberate change to structure and process of public sector organizations with the objective of getting to run better” (Pollitt & Bouckaert, 2000;04). Thus, reforms in public sector refer to constant improvement in quality of services in cost effective manner to serve citizens in better manner. However, in order to achieve that target, unaided and haphazard initiations could lead to undesirable results. Armstrong (1997) believes that reforms are initiated at three levels in public sector;
1. Setting up investments: at this level practices are adopted or adjusted to the acceptable
level. These practices can either be new to public sectors that are adopted from private
sector or fine turning of these are already in practice. Thus, at this stage, a decision is
made regarding what investment are needed.
2. Instruments themselves; at this level, reform tools and techniques are selected and
adopted. Decision is made, and adaptation takes place at this level.
3. Comprehensive/ Fundamental Reforms; during this stage goals are set, policies are
made, and a framework is devised for guided action.
Methodical analysis of these levels of reforms show the planning stage of the change adopted in public sector. However, reforms can also be viewed and examined at two levels i.e. macro and micro. Reforms at macro level involves major restructuring, whereas, at micro level adjustments are made to the existing system and processes. Hence, it can be stated that reforms at macro level are radical while incremental at micro level
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(Atreya & Armstrong, 2002). Furthermore, it can be inferred that the selection of micro or macro level reforms depends on the nature of objectives behind the reforms. Although, broadly speaking, the objectives behind reforms is to bring efficiency and effectiveness, improve performance, employee motivation, introduce accountability and transparency, customer focus, quality of service and cost effectiveness, yet the objectives of reforming public sector may vary from country to country. Reform efforts are based on each country’s need and priority. Hence, based on the above argument, to achieve desired results, an unobstructed vision, proper planning and implementation are all essential part of public sector reforms, in other words, a change process.
Kuipers et al. (2014) conducted a literature review-based study and has collected
133 articles on change in public sector organizations. These studies were collected from the top tier journals in the field of public administration, public management, and change management during 2000-2010. Authors analysed these articles for understanding the methods used by these researchers, the sector/ organizations and the level of organizations studied by those researches, and the geographic location of those researches. After evaluating and thoroughly analysing the methodologies, authors reported that 62 out 133 studies used case studies approach, 24 studies used quantitative method, 21 were conceptual studies, 19 were qualitative whereas 7 research studies used mixed methods.
This indicates that while studying organizational change in public sector, the most common methodology has been case study method. In the second part of research, it was found that the sector/organizations under study were from mix background including; government, healthcare, education, government agencies, public service, welfare and others. However, there has been very limited studies on public service organizations (3/133). Similarly, most
93 of the studies were focused on national level organizations (48/133). Moreover, most of these studies were conducted in western part of the world including; US (28), UK (22),
Australia, New Zealand and Canada (12), European countries (25), Asian countries (4) and few from other part of the world. Thus, the literature has been dominated by western reform initiatives while the Eastern and more specifically Asian perspective has been ignorant part of studies. It was also noted that none of the 133 studies were from Pakistani perspective.
Kickert (2014) studied Dutch Ministerial departments to understand the success conditions of organizational change. Case studies method was used and six of the core- governmental type organization were selected. Document analysis and in-depth interviews
(20-30 from each department) from top management and middle management were conducted. The study was based on the most common success conditions from public and private sectors.
The studies that explore different aspects of public sector change have adopted different methodologies based on the needs and nature of the study. The literature reviewed shows that majority of the studies followed qualitative methods and used interview technique for the collection of data, among which semi structure interviews (Alfes, Truss,
& Gill, 2010; Allen et al., 2007) and in-depth interviews (Bakari, Hunjra & Niazi, 2017;
Naveed & Jadoon 2012; Park & Lunt 2017) were conducted. The studies focusing on HR aspects included participants from all the levels; lower, middle and top management.
Moreover, the similar studies which followed qualitative approach also used secondary data analysis techniques (documents) for comparison (Naveed & Jadoon, 2012; Bhuiyan,
2011). On the contrary, some studies used quantitative approach as well (Lines, 2004),
94 however, the recent studies show inclination towards qualitative approach. Majority of the studies targeted change process in two or more than two public sector organizations rather than evaluating change process of single organization, hence, providing comparative analysis of the stages and steps of organizational change (Baraldi et al. 2010; Park & Lunt
2017; Alfes, et al., 2010).
Studies targeting the aspects and factors of success and failure of the public-sector change process have evaluated it from the perspective of employees, citizens and the change process itself. The studies show that policies and practices from the private sector cannot help in implementation of change in the public sector (Naveed & Jadoon, 2012).
Therefore, proper planning before the implementation of change is of utmost importance.
The strategic uncertainties during the initial stage of organizational change is also considered to be an important aspect of the organizational change. These uncertainties regarding the implementation stages and job of the employees may directly affect the change process (Allen et al., 2007). Hence, suggesting that employees play a vital role in the success of organizational change.
The studies revelled that change oriented OCB, OCB directed towards individuals and OCB directed towards organization are found prominent factors in affecting the change outcome (Vigoda-Gadot & Beeri, 2012). Moreover, authentic leadership is considered a crucial factor in motivation of the employees towards implementation of change and therefore, is directly associated with the behaviour of employees (Bakari, et al., 2017;
Vigoda-Gadot). As mentioned above, job-related uncertainties of the employees have adverse effects on the change process, which can be overcome by proper communication
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(Allen et al., 2007). On contrary to that, study conducted by Baraldi et al. (2010) revealed negative relationship between job-related uncertainties and change process. This suggests that multiple views regarding uncertainties are reported by the studies. Furthermore, the attitude of the employees, especially resistance towards the change is also reported to have impact on change process. Park and Lunt (2017) reported both positive and negative attitude towards the change, which may vary from person to person and may also be influenced by group and organizational culture. However, a study reported inverse or negative relationship between the resistance to change and achievement (Lines, 2004).
Thus, there is ambiguity regarding the relationship between resistance towards the change and its impact on the success conditions.
Available literature provides certain factors leading to the success in PSR. One of those factors is authentic leadership, which may have very positive impact on the success of change initiative (Vigoda-Gadot & Beeri, 2012). Moreover, proper policy making for the initiation of organizational change is also reported to be vital for accomplishing desired changes, specifically in e-governance (Bhuiyan, 2011). Studies suggest that HR departments in any organizational change has pioneering role in successful initiation as well as implementation of the change Commitment to change and behavioural support as part of HR practices are key factors to be considered for the success of change process
(Alfes, et al., 2010; Bakari, et al., 2017). The studies show that communication regarding the change process at all the stages of implementation also adds to the success. However, apart from these factors, individual differences, organizational and institutional attributes may influence the success and failure of the change process (Park & Lunt, 2017).
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Table 6: Conditions for Successful Organizational Change
Kotter (1996) success conditions Fernandez and Rainey (2006) success Kickert (2014) Combined Conditions for for private sector’s organizational conditions for public sector’s change public sector’s organizational change change
1. Establish a sense of urgency 1. Ensure the need 1. establish sense of urgency, ensure the
2. Create a guiding coalition 2. Provide a plan need for change, build internal support
3. Develop a vision and strategy 3. Build internal support 2. develop a vision and strategy, provide a
4. Communicate the change vision 4. Ensure top-management support plan
5. Empower employees for action 5. Build external support 3. communicate the change, empower
6. Generate short-term wins 6. Provide resources employees for action
7. Consolidate gains 7. Institutionalize change 4. ensure top-management support and 8. Pursue comprehensive change commitment, create a guiding coalition 8. Anchor new approach in culture 5. build external support 6. provide resources 7. institutionalize change, anchor new approaches in culture 8. pursue comprehensive change
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Above stated conditions were combined by the author and were tested on these six departments. Author concluded that the first condition ‘establishes sense of urgency, ensure the need, and build internal support’ was not found applicable in almost all cases.
As author discussed that there was no sense of urgency in those departments regarding change process. The change was top-bottom approach and therefore, ensuring the need becomes unimportant from the perspective of hierarchical bureaucracy.
However, the third part of first condition i.e. building internal support was found most important aspect for the success of change initiative. The second success condition
‘develop a vision and strategy and provide a plan’ was found irrelevant as researcher could not found any evidences in any level of change. Thus, indicating that Dutch ministerial departments are working without any vision, strategy and plan. The third drawn success condition was to communicate the change and empower employees for action. As no sense of urgency was created in these organizations, therefore, communicating the change became more important to avoid any resistance to change.
The third success condition i.e. empowering employees was irrelevant because in the bureaucratic culture subordinates are not empowered. Ensure top-management support and commitment, and create a guiding coalition was the fourth condition.
Except the last part of this condition i.e. create guiding coalition, the rest of this conditions were found in practice in Dutch ministries. ‘Build external support’ was the fifth condition and it was found to be the cause of success as well as failure. External support of government and politicians is important; however, the excessive interference of same authorities is the cause of failure as well. The sixth condition, ‘provide resource’ was unable to be studied as no information was retrieved in support or against this condition, however, author concluded that it is one of the important factors for
98 success. Moreover, in seventh condition ‘Institutionalize change and anchor new approaches in culture’ author concluded that change should be consistent, and the change brought in an organization shall be over lasting. Last success condition ‘Pursue comprehensive change’ has been found inappropriate in Dutch ministries. Author found that changes in public sector are not integral and comprehensive.
2.9.1. Problems of Organizational Change in Public Sector Organizational change is the phenomenon to move and relocated organizations from unwanted to the more appropriate and desired state (Zell, 2003). Organizational change has gained much importance lately in public sector as inspired by private sector
(Wetzel & Van Gorp, 2014). Therefore, there is a growing interest of academician in this area which indicates that there is much to be explored. The review of literature indicates that evidences from private sector are relatively more prominent in the published literature and contribution from public sector is less. The more recent debate on organizational change is focused on the adaptation of right approach for organizational change i.e. planned or emergent change in order to avoid obstacles in the process of change (Van der Voet, Groeneveld, & Kuipers, 2014). Burnes (2004) states that organization remains in a static position. Organizational change in public sector is more than just convincing stakeholders. It is the process of negotiation and making compromises (Cunningham & Kempling, 2009), hence, suggesting that organizational change is a complex process and therefore, must require adaptation of appropriate approach (planned or emergent).
In planned change approach, the objectives are pre-designed and phases of change initiative are planned (Bamford & Forrester, 2003). In planned change, there is movement from one fix state into another with a pre-determined step. On the other
99 hand, emergent change is a continuous process and is considered as open ended and unpredictable. Planned change takes a top-bottom approach while emergent change is a bottom-up approach. Moreover, emergent change is all about enabling and participative with an essence of ownership. Emergent change is believed to create positive impact on both internal and external stakeholders and it has market orientation
(Farrell, 2000). Planned change has pre-determined objectives in contrast to emergent change where objectives are not pre-defined (By, 2005). Thus, for the organizations that want to become more market oriented, they must adopt emergent change (Burns,
2004). Sminia and Van Nistelrooij (2006) found that planned change approach is replaced by emergent change in public sector organizations, owing to the fact that emergent change process with bottom-up approach has been more successful in public sector organizations (Isett, Glied, Sparer & Brown, 2013). Hence, adopting successful approach may lead to fewer problems and may add to the flawless reforms in public sector.
Governments across the globe are focused on improving public sector by adopting the concept of public management. These reforms are influenced by practices of private sector (Kuipers et al., 2014). Being influenced by private sector, there are several conflicts and constraints of public management and traditional public administration approaches (Liguori, 2012). The bureaucratic tall and centralized structure, rigid systems, legal constraints, accountability, and impartiality are different from the values of private sector i.e. customer service, competition, efficiency, effectiveness, profitability and innovation (Van der Voet et al., 2014). Yet, keeping in view the basic function of public sector organizations and theories (as discussed above), the values of private sector can be adopted and in many cases are adopted in public sector organizations. 100
Golembiewski (1969) identified five basic constraints to organizational change in the public-sector organizations; i) access to authority (i.e. several actors in public sector organizations have access to various authorities, therefore, they can create resistance or support towards organizational change very quickly) ii) reward structure and interest
(i.e. in public sector, different stakeholders serve different interest and therefore, they pursue different objectives) iii) political affiliations (i.e. different actors have different political affiliations, and they work in groups to serve their political affiliations) iv) lack of coordination and linkage between civil servants and political heads (ministers) (i.e. both serve different interest and while the politically appointed heads are different in their approach from the civil servants, therefore, this relationship is fragmented, and one tries to implement authority while other acts to diffuse it) V) lack of permanent leadership (i.e. every party in government is uncertain and are elected for specific time, therefore, there is lack of consistency and approach of parties in power). Thus, these primary factors affect the organizational development process. Moreover, there is no long-term planning in public sector whereas in private sector, there is a strategic plan and consistency which facilitates the development process (Facer & Rainey, 1996).
This shows that implementing change in public sector is a complex process (Zell, 2003).
Doing the right thing in government is much more difficult as there are variety of interests involved as compared to private sector (Cunningham & Kempling, 2009).
The complexity of organizational change in public sector is further increased by several checks and balances in public sector, centralized and ill distributed power and authority, political interests, and internal forces that increases environmental complexities (Van der Voet, Kuipers, & Groeneveld, 2015). These complexities lead public sector to adopt planned change approach. However, there is lack of effectiveness of planned change in public sector organizations (ibid). 101
As discussed above, approaches to implement change in an organization vary from micro level change to macro level change. Similarly, there are also evidences of incremental and radical changes brought into public sector organizations (Wetzel &
Van Gorp, 2014). Deserti and Rizzo (2014) found that implementing minor changes in public sector organization is easier for any beginning rather than a radical change initiative at once. On the contrary, complex and large-scale organizational change faces more complications and barriers during implementation, however, it brings more innovations and better outcomes (Torugsa & Arundel, 2016). Despite that, there are other factors responsible in affecting the outcome of change process including organizational culture.
Strong culture, norms and values are difficult to change. In public sector, there are organizations with strong culture and at the same time there are organizations with weak culture (Cunningham & Kempling, 2009). Law enforcing agencies are an example of strong culture. Whereas, post office and transport departments are relatively operating with weak cultures (ibid). However, organizations with long service history and permanent employment may change the course of action and implementation process.
The longer an employee remains attach with the culture, the difficult it becomes to bring radical change in that department. Managing successful organizational change in public sector
2.9.2. Employee Perception and Expectations “Organizational change is the process whereby an organization converts from an existing state to a hope-for future state in order to increase its effectiveness” (Yu,
2009, pp 17). In public sector, organizational change is often regarded as reform (public sector reform or public management reform). PSR is intended to bring efficiency,
102 effectiveness and customer satisfaction. However, from employees’ perspective, it may have a negative effect. Due to change, employee may face role ambiguity, job insecurity, decrease in social status, and work-family conflict. These indicators (as a result) may increase employee’s stress (Hellriegel, Slocom, & Woodman, 2001).
NPM has been directly linked with HR in public sector. HR, being an integral asset in public sector, is one of the most crucial for the success of reform initiative.
Moreover, the efforts of HR directly influence the outcome, efficiency and effectiveness of all activities in public sector. Furthermore, HR plays the major role in change process and their contribution (individually as well as cumulative) can stimulate or hamper change initiative (Sakalas & Vienazindiene, 2015). When change is initiated, employees are feared due to job related threat. Thus, trust is very essential between management and employees while job threat is negatively related to attitude towards the job (Wu, 2001).
Organizational changes disturb the balance in organization. It affects the relationship across the across the hierarchical levels, group cohesiveness, employee’s status and identity (Paulsen et al., 2005). Although the reforms are planned with the objective to improve an organization but, it brings certain negative components with it
(for example; stress and uncertainty). Thus, change is often resisted, and this is one of the major reason or the failure of reform initiative (Jones et al., 2008).
Oreg (2006) consider resistance to change as multi-facet attitude. It comprises of cognitive components, behaviour and affective components. Cognitive refers to the perception of individual regarding organizational change (what they think of change, its need and outcome). Behavioural components are the action/reaction and response to
103 change. While affective component is about their feelings (e.g. tense, angry or upset etc.). These components lead to two different set of perceptions: (1) perception about predicted change outcome, and (2) perception about change process. According to the study’s findings, perception of anticipated change outcome is related to cognitive and affective components of resistance. On the other hand, perception about change process was found to be associated with behavioural resistance (Oreg, 2006).
The research on employees’ response to reforms is filled with negative aspects, however, the response can be positive as well as negative (Jones et al., 2008). Their study was based on employees’ response to change by using qualitative method. They found a positive attitude towards change and also highlighted problems (e.g. effective communication, conflict and negative perception about change). Thus, there were both positive and negative of reform initiatives.
Peters (2014), realized the changing nature of job in public sector. According to the author, public sector employee’s roles are divided into bureaucrat, manager, policy maker, negotiator and democrat. Most of the roles are not well defined and thus it is a difficult job. Being a public administrator, it is not an easy job. Having said that, the challenges and ever-changing environment are making the job even worse. In current situation, the status-quo is challenged every day and the amount of transformations had made it even more unclear. As a result of changes in public sector, role of public sector employee in this era are more challenging as compared to the past. However, on the other hand, it has also been able to change the life of HR in public sector and made it more creative, interesting and effective. HR in public sector are now effective multitaskers, involved in processes as well as in decision making. They are able to work efficiently and use their creativity in problem solving. There is increase in job
104 satisfaction and are enjoying more freedom. This is made possible with the adaptation of decentralization approach adopted by government and as a result senior management in public sector are empowered and having more authority, enabling them to perform tasks effectively with quick decision making and therefore are helping in PSR.
In public sector, employee’s commitment to change can be very useful.
Additionally, the value that the public servant perceives gives motivation to them. In
PSR, employees must be on board and they should accept the change. This mental dedication to change is necessary for the success of reform initiative (Rafferty,
Jimmieson, & Armenakis, 2013). The public-sector employees are serving the society directly and are more likely to support any decision that may help in serving societal needs in better ways. A public-sector employee with such a mindset is more likely to welcome the change. Employee needs to be educated and informed about the change and similarly they need to be provided with an opportunity to participate (Habib &
Wazir, 2012). Perry and Wise (1990) were of the opinion that a committed employee acts spontaneously and brings innovation. Paarlberg and Lavigna (2010) also confirmed the positive role an employee can play and also emphasize on the role of transformational leader. Several other studies also found that working environment, a satisfied employee with high motivation, positive perception with firm belief and commitment that change brings effectiveness in the process will be beneficial for the citizens (Lee et al., 2006; Wright, Christensen, & Isett, 2013).
Perceptions vary among individuals on the basis of how they understand, interpret and regard something. However, it is also important to understand that the perception is having the ability to influence reform outcome (Yu, 2009). HR being an integral part of an organization plays an important role in reform implementation. If
105 employee perceive that change will affect their existing position and job, there are more chances that they will resist. Thus, perception of threat is positively correlated to job insecurity (Storseth, 2004). This threat and fear lead to uncertainty, anxiety and frustration in HR which effects HR’s attitude and psychology (Doby & Caplan, 1995).
Furthermore, this psychology has adverse effect on organization’s working conditions and develops distrust among employees and management. Hence, the relation is inversely related between trust and perception of job insecurity (Dekker & Schaufeli,
1995).
Job uncertainty and insecurity are the biggest fears of an employee. HR begin to worry and question their capability to cope with change. They doubt their future and eventually it disturbs their relationship with peers, supervisors and organization (Liaw,
Fan, & Wu, 2002).
A negative perception of reforms in public sector will increase the work stress
(Yu, 2009). Management need to plan and reduce job related stress otherwise it will have an inverse effect on employee’s performance and attitude (Jennifer, 2009). Yu
(2009) suggested that governments all over the world are involved in reforming their public sector, therefore, it is important that they should plan on building employees’ trust and motivation through stress management techniques.
Amiot, Terry, Jimmieson, and Callan (2006) stated that employees’ over attachment to the existing organization, they cannot let it go. This creates status-quo and employee believes they will loss it all. The stronger the attachment with existing organizational culture is, the harder it is to let go. Arguing further that employees may perceive it as a negative move as organization will lose its status and prestige.
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According to Aguinis (2009, pp 78-79) “ a combination of three factors allows some people to perform at higher level than other: (1) declarative knowledge (DK), (2) procedural knowledge (PK), and (3) motivation (M)” . Thus, performance is
(DK)*(PK)*(M). Hence, motivation is an essential component for performance. Public management reform affects the HR, therefore, public service motivation (PMS) is very important. Studies has reported decline in the level of motivation in public sector employees (Houston, 2006). Since the emergence of NPM in late 20th century, motivation of public servant has also surfaced as an area of concern for researchers and scholars. There has been rigorous research on motivation and some researches tried to test private sector’s motivation tools in public sector, however, there was difference among private and public-sector employees. Thus Perry (2000) introduced a theory of
PSM that was based on his work in the area since 1990s. According to Perry and Wise
(1990:386) PSM is “an individual’s predisposition to respond to motives grounded primarily or uniquely in public institutions”. Since then, PSM has been a growing issue in relation to PSR. PSM theory has its foundations on four assumptions:
Rational, normative and affective process motivates humans,
People are motivated by their self-concept,
Preferences or values should be endogenous to any theory of motivation, and
Preferences are learned in social processes.
Based on these assumptions Perry (2000) divided the variables into four dimensions:
1. Sociohistorical context (environmental variables as a source of influence),
2. Motivational context (situational factors in an organization),
3. Individual characteristics (individual’s abilities and self-concept), and
4. Behaviour 107
Sociohistorical context comprises of education, socialization (religion and parental relations), and life events (observational and learning/modelling). Motivational context includes institutions (beliefs, values and ideology), job characteristics, organizational incentives, and work environment. Individual characteristics dimension is having abilities competencies, self-concept (values and ideologies) and self-regulatory process.
Whereas, behaviour refers to rational choice, rule governed behaviour and obligation variables (Perry, 2000).
In a border spectrum, motives are categories into three categories; rational, norm- based and affective. Rational motives are based on maximizing self-interest. Norm based motive refer to efforts towards adaptation and adjustment to norms and affective motive are responsiveness towards social aspects (Perry, 1996).
Perry and Wise (1990) sub categorized these motives to four facets of PSM:
1. Public policy making attraction,
2. Public interest’s commitment,
3. Compassion, and
4. Self-sacrifice
Perry (1996) developed a construct and validated it to produce useful and empirical evidence for identifying key features of public administration and PSM. This tool can be very useful in understanding the motives and perception of employees during PSR.
PSM is also linked to attitude and behaviour of public sector employees. Moreover,
Bright (2008) conducted a study on public sector employees to find the relationship between PSM, intention to quit, job satisfaction, and to check the mediating role of person-organization fit. The study found these relationships insignificant in the 108 presence of person-organization fit. This study concluded that when public sector works on improving person-organization fit, it eventually improves the PSM. Furthermore, this study offers that high PSM results in high level of job satisfaction. However, it was also discussed in the study that high PSM doesn’t provide conformity to have high person and organization fit.
2.9.3. Role of Manager The biggest dilemma of managers (at the time of change implementation) is how will employees revamp to change? (Kotter & Cohen, 2012). Managers in public sector are adopting NPM but they are less concern with the social relations. However, they are happy with the approach because it gives them an active role in change process.
Furthermore, managers get role clarity and they seek support of visionary politicians as well as bureaucracy. Thus, the operational manager can provide the desirable outcome if they are supported by these stakeholders (Hansen, 2011).
Managers in public sector consider reforms to be essential for growth and efficiency. These public managers play their effective role in PSR. Being a leader, the characteristics (demographics, attitude and political orientation) of public manager has strong influence over the reform initiative (Damanpour & Schneider, 2009).
Moreover, it was also observed that employees’ perception is strongly related to the behaviour and attitude of supervisor. Thus, the role of leader is found to be influential and it can influence the perception of public sector employees (Yu, 2009).
Leadership and management that is unable to perform their managerial tasks properly should be adjusted. This adjustment of management role and duties will enable employee’s trust on management and an organization (ibid). To avoid or reduce failure
109 chances, organization and management need to build positive perception, belief and attitude about change initiative (Eby, Adams, Russel, & Gaby, 2000).
2.9.4. Role of Government At the time of reform initiative, it is important to keep the process transparent and government should use uniform method for all initiatives. It is also suggested that they should keep communication two-ways (top-down and bottom to top) and open.
Furthermore, the role of government in building the right perception cannot be denied.
They can foster correct and right perception of change by ensuring adaptation of suitable management style, personnel management planning and work distribution (Yu,
2009). Hope (2001) believes that developing countries cannot bring reforms unless they improve and enhance the capability of its institutions. Government need to work on
HR and that they should consider them as an integral component for reforms.
2.10. Evaluating Organizational Change/Public Sector Reforms
Reform’s evaluation is very important as it gives an insight of reform program:
Evaluation helps in providing feedback of effectiveness and program efforts of government and guides them for corrective actions where necessary. To take a strategic action, accurate and timely information is necessary. Evaluation includes three basic activities: (i) Examining the underlying basis of a firm strategy, (ii) comparing expected with actual results and (iii) taking corrective actions to ensure that performance conforms to plan (David, 2011, P. 286), Evaluation is a systematic and analytical process to evaluate the program activities. Similarly, Thoenig (2000) evaluation is an activity to find relevant information about the impact of program on society. Evaluating a program helps organization in many ways including:
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a. Better program management,
b. Accountability & transparency,
c. Collected and accurate information leading to will informed decision making,
d. Helps in resource allocation,
e. Improves objectives and performance,
f. Help managers to evaluate change efforts, and
g. Helps in resource allocation (Atreya, 2002).
Moreover, evaluation helps in devising accountability mechanism which makes managers and other employees responsible for what they do (Rieder & Lehmann,
2002). Thus, evaluation of reform program has a significant role to play. These subjective need to be quantitative; however, they are often qualitatively expressed in public sector. In contrast private sector objectives are qualitative in nature thus, making them measurable and easier to evaluate. Public sector being mostly not for profit has their objectives. Stakeholder’s / perception of reform is different every from other.
Thus, it creates a win / lose situation. For example, if government wants to privatize, it is win situation for them to reduce budget deficit. Whereas, for employees it is opposite.
Evaluating change in public sector is difficult. It is mainly because of several stakeholder and subjective measures. Moreover, it is also difficult to identify the real contributing factor in reform because there are so many variables that are acting simultaneously (Boston; Pollitt, Hood etc.). If a manager wants to evaluate each variable separately then is not possible. Thus, it is hard to highlight major and minor contributor. In public sector everything is documented in several steps. Every aspect of reform is backed up by legislation, proposal, project document and policy documents
(Atreya & Armstrong, 2002).
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Reforms being multifaceted in nature (due to nature of NPM) are difficult to evaluate. Difficult arises when there is lack of benchmarking to compare result. Reform often face problem when they are adopted based on its success in one country but may not be fruitful in other. Moreover, there is another difficulty of being able to clearly define cost / benefit of reform and defining criteria for performance measurement
(Pollitt, 2001). Boston et al, (1996) also identified the similar difficulties in measuring reforms under NPM. Furthermore, Rieder and Lehmann (2002) argued that macro level reforms cannot be evaluated and therefore, suggested that they should be evaluated at micro level. Peters and Savoie (1998) stated that literature has discussed various evaluation measures used in different countries where as there is very little evidence on the impact of those measures. Among various macro and micro tools for evaluation, institutional evaluation tools have been the most successful tool in developed countries
(Schick, 1998).
Several studies reported antecedents for successful implementation of organizational change in public sector organization. Van der Voet et al. (2015) stated that leadership role, need for change, motivating employees and role modelling are required for successful implementation. Fernandez and Rainey (2006) stated eight factors; ensure the need, provide a plan, build internal support and overcome resistance to change, top management support, external support, resources, institutionalize change, and pursue comprehensive change. On the other hand, Obudo (2015) found effective communication, leadership role and their commitment to change, teamwork, and involvement of stakeholders to be important for organizational change in public sector organizations. In addition to this, Kickert (2014) assessed the success conditions presented by Kotter and Fernandez. After analysis and review, Kickert (2014) suggested consolidated conditions for change in public sector. These conditions 112 include; establish sense of urgency, ensure the need for change, build internal support, develop a vision and strategy, provide a plan, communicate the change, empower employees for action, ensure top-management support and commitment, create a guiding coalition, build external support, provide resources, institutionalize change, anchor innovative approaches in culture, and pursue comprehensive change. However, the comparative analysis of all the factors indicate three common factors presented by above mentioned researchers i-e, the need for change, employees’ motivation or willingness and the support of top management as leaders. This suggests that for the successful implementation of organizational change, these three factors are considered essential and therefore, are too be given utmost importance in the reforms.
Deserti and Rizzo (2014) stated that establishing culture for change is very important. Instead of abrupt change, a stepwise change with small initiatives will ensure success of change initiative. Moreover, there is a need for vision, mission, objectives, and long-term strategies which are essential for the success of change in public sector.
Whitmore (2004) found that the role of leader and manager is the most important facet for organizational change. Leaders and managers should understand the globally changing factors and perspectives. Thus, the social and psychological aspects of change are important, therefore, leaders should understand and consider those factors while they plan and implement organizational change.
While assessing the literature on managing successful organizational change in public sector, several articles directed towards the negative effect or resistance to change. It has been reported by numerous researchers that resistance to change acts as a nightmare to the organizational development (Lines, 2004; Reginato, Fadda, &
Paglietti, 2016). Resistance to change is more evident in portly size firms whereas, it is
113 less evident in medium size public sector organizations. Moreover, resistance to change can be managed in formal implementation with planned change approach. Resistance to change is having adverse effect on the objectives of organizational change and its outcome in public and private sector. Thus, for the successful organizational change, it is suggested to consider the above stated conditions and plan to overcome resistance to change.
Several methods are adopted and utilized for the reforms in public sector organizations. One of the most influential and prominent tools for organizational change is New Public Management (NPM). The next section discusses the evolution of
NPM, the underlying theories of NPM and its characteristics.
2.11. Reassessing the Need for Research
While reviewing the literature on public sector reforms, it was evident that all the efforts were customer (citizen) driven, for efficiency and effectiveness, accountability and performance. These outcomes are mainly private sector’s attributes, whereas, the efforts endowed in public sector show that managerial and governance practices are equally applicable in public and private sector. Moreover, the NPM, e-governance and public management concepts are management driven rather than administrative driven.
However, organizational change in public sector is considered as reforms initiative rather than a change process. despite the difference of opinion on organizational change and PSR, this chapter provided justification that the aim and objective of both is same and therefore, both concepts are treated the same in this study. Literature reviewed on 114 public sector started with background of public administration including debate on management theories and issues of traditional public administration led discussion towards the concept of NPM. During review of literature, pros and cons of NPM approach is discussed. The observation of scholars with respect to application of public choice theory, principal-agent theory and managerial theories were discussed. It was evident in literature that there were several observations regarding the underpinning theories and the approach of NPM driven organizational change efforts. Besides those observations, NPM has been a source of successful reforms in public sector.
There are three set of research gaps identified in the literature reviewed. First,
Organizational change in public sector in recent times is based on the concept of NPM.
Whereas, NPM based reforms are approached differently by various countries. Thus, consensus cannot be reached to debate on which model of reforms is appropriate in public sector. Moreover, literature also provided evidences of success of organizational change initiatives in public sector of developed and developing countries. However, success ratio of reforms in developed world is more as compared to developing countries. Thus, it can be asserted that there is either lack of understanding or some other factors due to which change initiatives are not highly effective in this part of the world. Therefore, this research focuses on filling this gap by in-depth evaluation of change initiative.
Second gap in research was identified as a lack of research from employee’s perspective. Although there are studies that reported employee’s resistance to change, readiness to change, and several other attributes of public sector employees, however, their role in organizational change
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2.11.1. New Public Management as a tool for change
Change is key to success in this modern era. Research from public and private sectors studied change/reform from different stand point, however, since the 1990s, the differences among public and private sectors (with respect to) development, reforms and change has been reducing gap. This transformation can be clearly seen from the lens of public management in general and NPM in specific. The variety of practices imported from private into public sector shows that government trusts and believes in the adaptability and compatibility of private sector’s management practices
(Ghobadian, Viney, & Redwood, 2009). Thus, applying those practices within public sector helps governments in improving the outcomes (Kuipers et al., 2014). There has been drastic change (both incremental and radical) in the public sector. Public administration and the concept of bureaucracy has been long gone and the traditional values of public sector has been shifted from increasing equity, legitimacy, equality, fairness, reliability, safety, and due process to the more market (private sector) driven outcomes of increasing efficiency, effectiveness, customer-centred approach, transparency, accountability, and service orientation (Hood, 1991). NPM is helping public sector grow and become more efficient, effective, customer oriented and transparent (Kuipers et al., 2014). The characteristics of NPM has been widely acknowledged by the researchers and it has been adopted by both developed and developing countries. The theoretical background of NPM shows its versatility and the characteristics are all adopted from the managerial approaches of private sector. Thus, in reshaping the public sector, NPM plays a significant role. However, it is important to note that bureaucracy is still prevailing in developing countries. In the presence of tall hierarchy and red tapsim, brining change into public sector organizations is a difficult task. Even then, considering the NPM and its contribution in changing public
116 sector organizations, change has only been viewed from the perspective of structural or process change. Lam (2004) views public sector highly rigid and therefore not being able to cope with change as effectively as private sector organizations. Thus, changing organizational culture is difficult task for the policy makers as well as for the implementors. Additionally, NPM can be helpful in brining reforms, however, the nature of reform varies from country to country and organization to organization.
Therefore, NPM has no clearly stated method and mechanism. Reforms can either be market driven, managerial reforms, programmed reforms or incremental, therefore, adaptation of right method and approach towards specific agenda is important. Turner
(2002) also highlighted that developing world lacks the understanding of NPM, therefore, failure chances are more as compared to developed world. Nonetheless,
Baraldia, et al. (2010) referred to another limitation of developing country with respect to reform initiatives i.e. donor agencies are forcing governments to implement their agenda of reforms to improve the efficiency and effectiveness, accountability and performance, transparency and adaptation of latest technology. Whatever, might be the reason or driving force behind organizational change initiative in public sector organization, there is lack of focus on change theories and models in the reforms initiatives. Hence, NPM driven reforms cannot provide results unless change is properly planned and implemented.
Pakistan being a developing country depends on its donor agencies to support them in economic and financial matter. In response, the donor expects certain initiatives from government including reforms in public sector. The application of NPM and change initiative might not be the will of government yet they have to implement and initiate such efforts. How these reforms are initiated and what was the process of planning and implementation are the key questions that needs to be answered. Moreover, the focus 117 of organizational change in public sector remained of processes and structure while ignoring the culture of this sector. Therefore, human aspect of organizational change in public sector remained a secondary objective.
2.11.2. Human Resource as a neglected aspect of change process
Change has been commonly associated with the modification in strategy, process and structure of organization by most of the researchers (Armenakis & Harris, 2009;
Bobbitt, 1978; George, Jones, & Sharbrough, 1996; Miles, Snow, Meyer, & Coleman,
1978). Literature on reform has highlighted this fact that restructuring has remained the major focus of change in public sector (Noblet, Rodwell, & McWilliams, 2006).
However, during recent years, a parallel view has been drawn by a series of scholars that the human side of organizational change has been widely ignore by the earlier studies (Callan, 1993). Structural changes create problems. Moreover, structural and process change can have an adverse effect on employees (Baraldi et al., 2010). The scholars from social sciences and human psychology believe that employees can strongly influence the success of organizational change. Furthermore, they are considered as an integral part as well as key asset of any organization (Jain & Kaur,
2014). Cullen, Edwards, Casper, and Gue (2014) stated that change can have lethal effect on employees during change process and afterwards. Thus, organizations undergoing through any type of change can affect the attitude and performance of employee (Armenakis & Harris, 2009). Since late 1990s and early 2000, researchers have started studying the human aspect of organizational change. These efforts include studying the adaptability (using I-ADAPT theory) to change (Polyhart & Bliese, 2006), proclivity to adjust to changing situations on regular basis (Bartunek, Rousseau,
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Rudolph, & DePalma, 2006), employee’s perception, working conditions and performance (Oreg, Vakola, & Armenakis, 2011).
Change is considered unpredictable and the reaction may lead to a situation of organizational crises (Van der Voet, 2014). Lack of consideration and devotion of time
(during organizational change planning stage) to address the human aspect of organization leads to several problems associated with employees (Bordia, et al., 2004).
Change leads to uncertainty and the situation of uncertainty is often because of ambiguity created by lack of communication and lack of information (Allen,
Jimmieson, Bordia, & Irmer, 2007). As a result of inadequate information, various perceptions are developed regarding organizational change. Consequently, due to lack of concern from management, employees reported anxiousness and uncertainty about how change will affect their jobs, career, relationships, status, power and position etc.
(Cullen et al., 2014; Van den heuvel, et al., 2013). Therefore, the failure rate of organizational change initiative was recorded as higher as of 70 percent (Todnem By,
2005).
Vakola, Armenakis, Oreg, Oreg, and Michel (2013) characterized employee’s reaction to change into three sets of explicit reactions (affective, cognitive, and behavioural). Affective reaction refers to the negative and positive reactions to change, where positive reactions include pleasantness, satisfaction and commitment, whereas negative reactions include stress, anxiety, fatigue and negative emotions. Cognitive reaction refers to the self-assessment of organizational change from self and organizational perspective (sense making, effectiveness, support, openness to change and perceived fairness). Whereas, behavioural reactions are referred to the level of
119 involvement, resistance, support, and coping behaviour. These reactions are interlinked and interrelated with each other and can occur simultaneously.
Oreg et al. (2011) suggested that during change process, organizations need to focus on employee’s participation, engagement, communication, organizational justice and provide support to the employees. Management should consider the human aspect of organization in order to manage change properly and overcome the negative aspects that emerges during change process. The internal environment is made by people working within organization. The organizational practices, process and procedure, structure and system can create a variety of behavioural and emotional responses. Those responses can be positive or negative. The researchers and management are more concern about the negative response (resistance) of employees (Gingrich, 2015;
Kuipers et al., 2014). Resistance refers to ‘behaviours that are acted out by change recipients in order to slow down or terminate an intended organizational change’ (Lines,
2004, 198). As many of the employees cannot cope with change occurring in the organization, therefore, employee resists and reacts to change (Kuipers et al., 2014).
Resistance to change has been a common topic of the research under change management and it plays very crucial role in the success of change process (Hughes,
2016).
Resistance can arise from different settings. Resistance can be due to psychological issues or it may be due organizational culture (Park & Lunt, 2017).
Furthermore, the internal forces acting to uphold the status-quo tries to increase resistance and therefore, it needs to be managed properly. It is difficult to understand employee’s reaction to change. Resistance to change may occur on several levels i.e. individual, group and organizational level (Van Dijk & Van Dick, 2009).
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For the successful change/reform initiatives, there are several well-known conditions set by various studies. Kickert (2014) considers two of these conditions to be the most successful and highly regarded from both scholars and managers. In private sector, success conditions drawn by Jotter (1996) are highly regarded whereas the success conditions drawn by Fernandez and Rainey (2006). Both authors presented 8 phases and success conditions respectively. Kickert (2014) found many resemblances among both conditions and has presented combined success conditions for public sector
(See Table 6). These finding, and resemblance supports the conceptualization of PSR as change process. Hence, in terms of change and change process, both sectors are following the same tools and management techniques. Moreover, the outcomes of PSR and organizational change are also found to be similar. In addition to that, the planned change approach is also similar, thus the it is apparent that regardless of what, when, how, where and why is changing in an organization, it is all organizational change.
A Top-down approach often leads to too much resistance from employees and therefore, shall not be used (Lines, 2004). Moreover, management in public sector should improve communication (Allen et al., 2007; Johansson & Heide, 2008), overcome misunderstanding regarding the effect of PSR (Higgs & Rowland, 2005;
Hughes, 2016), provide effective leadership (Van der Voet, 2014; Vigoda-Gadot &
Beeri, 2012), break status-quo and improve tolerance for change through creating readiness for change (Kotter, 1996).
One of the major issues that needs to be addressed is the role of employees and human resource of public sector in organizational change initiative. Public sector employees cannot be treated same as employees of private sector. Buelens and Broeck
(2007) identified the differences among both sectors as; i) public sector employees are
121 not inclined towards extrinsic rewards, ii) public sector employees demands more supportive working conditions, and iii) public sector employees pay less attention towards working hours and completion of work. Moreover, the organizational culture and communication also vary between public and private sectors. Public sector being stagnant and more reluctant to change, conditions are less favourable towards cultural change Aher & Luoma-Aho, 2017). Literature addressed the response of employees, causes of resistance and suggested way forward. Even then, do public sector employees know why their organization is engaging or engaged in change? This question needs to be answered as literature suggests that change implementation in public sector is very difficult in comparison to private sector. Level of difficulty increases in public sector organizations that are operating under bureaucratic structure (Brown, Waterhouse &
Flynn, 2003). What are the aims and objectives of organizational change? This question is important from the context of change communication. Literature suggests that lack of communication and inappropriate communication may result in stressed workforce, out of control employees and increase in the degree of uncertainty (Aher & Luoma-
Aho, 2017). This could lead to discussion on the leadership ability, trust and communication skills of management. Thus, aims and objectives of organizational change has to be communication effectively to the employees for smooth transformation and successful implementation (Pollit & Bouckaert, 2011). What is the role of employees in change process? Successful organizational change and reforms depends of level of participation of employees in change initiative (Wankhade &
Brinkman., 2014). Therefore, to overcome resistance and uncertainty, participative management style may help in public sector organization (Xavier, Komendantova,
Jarbandhan, & Nel, 2017). How will this initiative affect the life of employees?
Management always blame employees for the failure of change initiative (Van der
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Voet, Kuipers & Groeneveld, 2016). Several studies highlighted negative response of employees and showed that there are health issues, massive increase in workforce resulting in work-family conflict, relationship issues, aggression, stress, absenteeism, and so on (Aher & Luoma-Aho, 2017). How they experience organizational change?
These are some of the integral questions which needs to be addressed in literature.
2.11.3. Narrative: Extract meaning and experiences
Most of the above-mentioned studies from published researches are focused on the public-sector organizations that were in the process or at restructuring phase. However, this study focuses on an organization which has already undergone through change process. Under this circumstance where change has been implemented and employees has already faced the change process have been through all the phases of organizational change/reforms. Thus, there is no direct access to the hand-on experiences of how employees gave meaning to the change and how they experienced it? Hence, narrative construct becomes the most appropriate tool for tapping the responses and experiences of employees during change/ reform phase (Birchall, 2014). Furthermore, the first response of employees under change is always emotional and uncertain. Therefore, once and employee completes the change process, he/she can narrate the complete portrait under the light of all phases faced by every employee (Bryant & Cox, 2006).
It is very unfortunate that very handful of the research studies (including studies on
PSR, change in public sector, change management, and NPM etc.) were found using narratives for this type of study. Whereas, narratives provide us a rich insight on tapping the psychological state and experiences of employees from pre, during and post reform’s process (Sturdy, 2003). Narratives helps in understanding the behaviour and attitude during a specific course of action and as a result of narratives a suggestions and
123 recommendations can be made for others in similar course of action (Tsoukas, 1996,
2000; Tsoukas & Chia, 2002).
Narratives provide clear understanding of an occurrence from the lens of the people who were part of it (Gertsen & Soderberg, 2011). Talk and text are the common ways of narration. Description of an event from the past, storytelling, explanation through own experiences, folk talk, occupational stories of working conditions and practices, and traditional myths and legends are all part of oral narratives (Cortazzi, 2005).
With narration, an individual or group of people give meaning to an event from the past and makes sense of their experiences. Thus, language becomes an important fool for knowing about other’s experiences (Riessman, 1993). A storytelling and narrative help in understanding a social reality. Nevertheless, it becomes an interactives process between narrator and listener and through as a joint effort experiences are shared and interpreted (Cortazzi, 2005). Every person is holding a unique story. Those stories hold certain knowledge which needs to be narrated. This knowledge is based on the happening a person have been through (Kleres, 2011).
Several experiences narrated about the same episode are put together to create a single story. During narration, the focus of narrator remains on their feelings and experiences rather than on other aspects (Frost, Dutton, Worline, Wilson, & Fineman,
2000). Narratives have built a sturdy reputation in organizational studies (Birchall,
2014) and has gained popularity among the social science researchers (Gergen, 2001;
Gertsen & Soderberg, 2011). It is a source of understanding the organizational culture
(as they are in cultural context) and can provide deep insight of the organization under investigation (Briody, Pester, & Trotter, 2012; Soin & Scheytt, 2006). Narratives are
124 used in four different contexts under qualitative research. Bernard and Ryan (2010) categorizes them in Sociolinguistics, Hermeneutics, Phenomenology, and Grounded
Theory. The use of narrative analysis in sociolinguistics is concern with the construction of narratives. In hermeneutics is focused on extracting the meaning of narratives while in phenomenology it is a source of understanding the experiences of individuals during any event and the use of narratives in grounded theory is to assess how things are working. As this study is focused on understanding how employees give meaning to the organizational change and what they experienced, therefore, the phenomenology narratives are the most appropriate practice of narrative analysis. In this way, the reality (as constructed by its employees) can be studied because it focuses on interviewee and on dissemination of knowledge and their experiences.
2.12. Summary
Organization development is a complex process (Burke & Noumair, 2015).
Particularly in public sector, it is very difficult to implement organizational change successfully and to bring desired reforms (Isett et al., 2013). Kickert (2012) argued that organizational change in public sector is different from private sector (as discussed in literature review). However, regardless of the differences, government’s interest in reforming public sector organizations has increased (Pollitt & Bouckaert, 2004). While
Kuipers et al. (2014) showed concern regarding the lack of organizational level change initiative’s researches in public management literature. Similarly, another shortcoming in the literature of public management is the lack of studies from the perspective of change implementation (Tummers, Steijn, & Bekkers, 2012). Moreover, the lack of research from the Asian context in general and a handful studies from the developing countries has left the gap in understanding how organizational change is brought in this
125 part of the world (Kuipers et al., 2014). Hence, it was imperative to conduct an in-depth study on the case where change has been successfully implemented in the public sector of developing country so that the change initiation, implementation, and success can be studied. This research question provides answer to the underlying question in detail.
This chapter also shows that to reduce the gap between public and private sector change processes, NPM serves as a tool that has characteristics adopted from private sector management practices. Thus, it is evident from the discussion that although there are differences between public and private sector, however, these differences are reduced to the most extent after managerial reforms and change in the outcomes. Most importantly, this research stressed on the very important notion than in public sector reforms, human aspect has always remained the most neglected part of change process.
Thus, an effort was made to provide sufficient evidences that they remain an integral part of any organization. Therefore, in the case of negligence towards workforce can result in serious damages to the reform agenda. Moreover, employees are the mostly at stake and at the stage of uncertainty during change process and therefore, there is a strong need to study their perspective, their understanding, experiences and the meaning of change. Hence, narration is the most suitable approach to gain direct access to the employees and in tapping their real stories with respect to pre, during and post change process.
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Chapter 3: Research Methodology
3.1. Overview
This chapter provides an insight and justification of the use of qualitative approach to this research. It highlights the philosophical consideration behind this research. To build an argument regarding the nature of research this chapter comprises of an introduction to research where discussion on the research philosophy and its assumptions is provided. In the later part, data collection, research ethics, sampling, data collection tool and analysis techniques is discussed.
The current research is based on two fundamental questions i.e. how and what.
Interest in these questions has been arrived from identifying the successful organizational change project in public sector organization. To address those questions
(mentioned in section 1.5), CDLA was selected purposefully. Patton (2002) also supports the selection of single unit case analysis for understanding the phenomenon of change in a particular organization. The PSR initiative in CDLA of KPTP was considered as a pioneer, most successful, and a change initiative that was based on adaptation of modern technology. The unit of analysis was based on the project that was originally initiated in 2006/7 and completed its implementation by 2011/12. Thus, the analysis was based on the information during the above stated period and from planning to pilot phase and from project phase till its full implementation.
3.2. A Qualitative Study
Qualitative research methodology is used because of its suitability to the research questions. This research deals with the set of questions asserting how organizational
127 change was initiated in CDLA and how change is experienced by employees in CDLA?
Thus, the drawn meanings and experiences vary from person to person, culture to culture, based on timeframe, and societal aspects which cannot be accessed through quantitative methods. In order to investigate the organizational change phenomenon and how employees are experiencing it, a subjective and qualitative inquiry is appropriate. Qualitative research is,
“an approach for exploring and understanding the meaning individuals or groups ascribe to a social or human problem. The process of research involves emerging questions and procedures, data typically collected in the participant’s setting, data analysis inductively building from particulars to general themes, and the researcher making interpretations of the meaning of the data (Creswell, 2013:P.03).”
The importance of qualitative research cannot be denied as it serves the most important research context which cannot be uncovered by causal methods. Since this study is highly contextual in nature as it aims to explores individual experiences and interpretations during change; therefore, qualitative methods are found to be more suitable for this study. As Mason (2002: P. 01) elaborates;
“Qualitative researching is exciting and important. It is a highly rewarding activity because it engages us with things that matter, in ways that matter. Through qualitative research we can explore a wide array of dimensions of the social world, including the texture and weave of everyday life, the understandings, experiences and imaginings of our research participants, the ways that social processes, institutions, discourses or relationships work, and the significance of the meanings that they generate”.
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Public sector reforms in KP and particularly in CDLA are yet to be explored. In order to get in-depth understanding of the organizational change in CDLA, it was important to understand the whole process and qualitative research is a helpful tool in getting into details of how change has been planned and initiated. Qualitative research focuses on subjective matters and interpretations. Studying things in the natural settings, making sense out of the words and understanding the meaning brought by the people (Denzin & Lincoln, 2011) that is required in this study. Similarly, Miles and
Huberman (1994) supported qualitative research. Taylor, Bogdan, and DeVault (2015) suggested that such research which requires interaction with respondents and by producing data in written or spoken words requires qualitative inquiry. Every individual contributes a rich insight and every word said has sense within.
A qualitative research is an exploratory research, focusing on descriptive research, with an emergent design that is inductive in nature. Data is collected through primary sources and in natural settings and the primary focus is on individuals
(Creswell, 2012). Qualitative research implies various data collection methods;
“Qualitative research involves the studied use and collection of a variety of empirical materials case study, personal experience, introspective, life story interview, observational, historical, interactional, and visual texts-that describe routine and problematic moments and meaning in individuals' lives” (Denzin & Lincoln, 2011: P.13).
This study focuses on getting an insight on the experiences of employees during organizational change process in CDLA, therefore, there personal experiences, narratives, problematic moments and meanings were important aspects. Hence, qualitative research justifies the researchers claim for choosing this research method.
Creswell (1994, 2013) suggested some guidelines for conducting qualitative research;
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1. If the nature of research questions is related to “what” and “how” then the
qualitative inquiry is justifiable.
2. If the topic under discussion is in need to be explored further than qualitative
research is helpful. In case the variables are not clear, or the theory is not
available, or the participants response is not known, and if the theory needs to
be developed.
3. If the topic needs detailed view and to be examined from different angles. This
also mean that the population’s deep insight is required to answer the problem.
4. To study the individuals in their natural settings.
5. If the researcher likes to write in literary style and like to use narratives.
6. If the researcher can spend enough time in the field and can devote enough
resources for extensive data collection and do the labour on dealing with details
text information.
7. If the respondents are open, willing and comfortable to the qualitative approach.
8. If a researcher can play an active learner’s role and is able to tell the story that
reflects participant’s view, then qualitative approach shall be used.
Qualitative research is said to be suitable for individuals’ experiences and meaning.
It is ideal for such research because it provides rich insight of the topic under investigation. Change is a very complex phenomenon (Bryman, 2006). As literature revealed that human respond differently to change, therefore, every employee in an organization has their interpretation and response to change. They have their own unique reasons and experiences. Therefore, it requires an in-depth investigation to measure as many experiences as possible. As I have discussed that this study is suitable to the qualitative style of research, therefore, it follows the interpretivist research
130 paradigm. The ontology and epistemology have justified the use of tools from interpretivist paradigm.
Tubey, Rotich, and Bengat (2015) summarized the qualitative study and approach having the following characteristics (see table 8); qualitative research is subjective in nature that follows inductive approach. The research questions are concerned regarding what and why of research and the reality in considered as multifaced. In qualitative research the review of literature is structured before as well as continually till the completion of research. Results are not quantified, and they are descriptive, based on understanding and shared interpretation. Participants and the responses of participants is used as qualitative research is context dependent. In qualitative research, research questions are focused rather than hypothesis and the objective of research is on discovery of meaning.
Table 7: Characteristics of Qualitative Research
Subjective in nature Inductive (Develops theory)
Research questions: What? Why? Soft" science
Literature review may be done as study Multiple realities: focus is complex and progresses or afterwards broad
Facts are value-laden and biased Discovery, description, understanding, shared Interpretation
Interpretive Organic: whole is greater than the parts
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Uses participants Context dependent
Research questions Reasoning is dialectic and inductive
Describes meaning, discovery Strives for uniqueness. Patterns and theories developed for understanding
Flexible approach: natural setting Uses communications and observation (process oriented)
Sample size is not a concern; seeks "informal rich" sample
Source: Tubey, Rotich, and Bengat (2015)
Garcia and Gluesing (2013) studied several approaches applied to investigate organizational change, and thus found that there are several implications to this area of study that can only be studied through methods applied through interpretivism. The research that requires much deeper investigation to understand the phenomenon and in particular the research that is more human centric requires to follow anti-positivist approach (Grosse, Dixon, Neumann, & Glock, 2016). This leads to the argument that in order to understand and describe human nature, an interpretivist paradigm is the appropriate approach (Chilisa & Kawulich, 2012).
“Change is fundamentally about feelings; companies that want their workers to contribute with their heads and their hearts have to accept that emotions are central to the new management style…the most successful change programs reveal that large organizations connect with their people most directly through values - and that values, ultimately are about beliefs and feelings” (Duck, 1993:113).
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Johansson and Heide (2008) argued in their study that there is a gap in the literature on organizational change from the qualitative perspective. They stated that there is lack of study from the aspect of narratives, discourse, and individual stories which can be obtained by studying change from interpretivist approach (Bean &
Hamilton, 2006) since they can help in exploring the phenomenon of change better.
While studying organizational change from human’s perspective, the most elaborated discussion in literature was on resistance to change. Resistance to change can vary from culture to culture and from person to person. It is the most volatile component of change and it may be acceptable, negotiable, or unacceptable aspect, therefore, it needs to be studied from individual’s experience (Van dijk & Van Dick,
2009). Thus, change can have multiple results within the same organization and it needs to be studied within the case as separate cases (Schilling, Werr, Gand, & Sardas, 2012).
Thus, the literature on organizational change urges to study change from individual’s experiences as there may not be any commonality in the responses to change.
Choosing the right method and methodology to conduct a research study is the most crucial decision for a researcher to make (Sarantakos, 2012). In addition to the method and methodology, the justification for theoretical perspective behind the methodology is also important. Moreover, the epistemological stance of a researcher shall explain and lead the research in the right direction (Crotty, 1998). Thus, research is positioned upon the epistemology. The philosophical position of every research is positioned either implicitly or explicitly. The variation in research is based on the research paradigm that is followed by a researcher and also by the underlying principles of every research paradigm (Hockey, 2000).
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3.3. Research Philosophy: A Case for Social Constructionism
Research philosophy follows certain set of assumptions that explains the nature of inquiry, approach to an inquiry and the strategy deployed by researcher to approach the social reality. Ontology, epistemology, human nature and methodology are the four major philosophical assumptions to know about the “social reality” (Burrell & Morgan,
1979). Hence, it is the research philosophy and paradigm that explains where research and researcher stand (Creswell, 2013).
The arguments between the research philosophies seems to be never ending.
Holloway and Galvin (2016) stated that there is no right or wrong methodology for conducting a research. The focus shall be on the question under discussion and the research method shall help to find the most appropriate answer to the research.
Moreover, Mason (2002) stressed on the importance of understandability of research paradigm by a researcher. Arguing further that the choice of paradigm shall be based on practical grounds and that the philosophy behind the selected method must be understood by researcher. Flick (2015) added further by stating that the methodology must be appropriate and specific to the requirements of the study. Thus, the researcher shall give due consideration to purpose of research, the type of knowledge under investigation, the underlying assumptions of each research philosophy and how a methodology fit to those assumptions. The major concerns of the modern era’s research are research ontology, epistemology and methodology. The foundation of research is based on the research methodology; therefore, it is important to discuss those four components with choice and justification.
This research intends to investigate the experiences of public sector employees in the organizations that has undergone through organizational change or reforms. Thus,
134 using qualitative research for this study. The decision of using qualitative research techniques was based on the nature of inquiry under research question, on the basis of research ontology, epistemology, human nature and supported methodology. The next sections provide details about how research was conducted, and data was collected as well as analysed.
3.3.1. Research Ontology The first underlying assumption of research philosophy is of ontology. Research ontology refers to the “reality of nature” (Creswell, 2013). What makes the reality is viewed from two different perspective i.e. reality exists independent of researchers (i.e. objectivism) and phenomenon continually accomplished by researcher (i.e. constructivism). Burrell and Morgan (1979) named those phenomena as realism and nominalism. Realism ontological stance expresses the objectivist approach whereas, the nominalism is inclined towards subjectivist approach. In other words, reality is either subjective or objective. Heraclitus (500BC) a Greek philosopher stated that “the only constant is change and becoming”. On the contrary, Eleatic school of thought had a complete opposite approach to this philosophy (Seibt, 2016). They believed that change and becoming is just illusory and reality is constant. Thus, leading to the notion that ontology of becoming (process philosophy) is considered both as static and dynamic.
Change is reality and is an essential part of being thought of becoming. In early years organizational change was assumed to be static and routine and order, however, it has been realized that change is an ongoing process (Tsoukas, & Chia, 2002). Change is the part of human nature and organizations are continuously evolving around this phenomenon in bringing organizational change. Hence, this study takes the notion that change is dynamic and the experiences during change are subject to one’s interpretation.
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As people, could have different meaning of organizational change, so as their experiences could be different. Therefore, this study specifically assumes that the reality in nature is an abstract concept and it is being socially constructed. Hence, the perception of employees is sought to understand the phenomenon of change in public sector organizations. This leads to the next important factor of research philosophy i.e. epistemological stance.
3.3.2. Epistemological Stance of Research The second underlying assumption of research philosophy is the epistemology of research. Research epistemology is about how knowledge is known (Creswell,
2012). Epistemological issues deal with the notion of authenticity and credibility of knowledge (Bryman, 2012). It can be asserted that epistemology explains the relationship between reality and researcher (Carson, Gilmore, Perry, & Gronhaug,
2001). Monette, Sullivan and DeJong (2013) classifies the epistemological frameworks as positivism and anti-positivism (also referred to as empiricism and interpretivism).
Bryman (2012) states that positivism believes reality exists independently whereas, anti-positivism believes that reality is social phenomenon and is created by the elements in society. Positivism deals with realistic ontology whereas anti-positivism deals with nominalism approach (Burrell & Morgan, 1979). Thus, positivist believes that the reality is external, and the world is external as well as objective. However, anti- positivist believes reality is multiple and internal as well as subjective.
Interpretivist believes, sees and understands from a perspective of reality being socially constructed (Mertens, 2014). Thus, the world of human experience is the main focus of this paradigm (Cohen, Manion, & Morrison, 2013). This research paradigm assumes that humans are thinking beings and are sensible (D’Ortenzio, 2012). Social
136 constructionism is a stance that believes in the same phenomenon. It believes that meaning and concepts are not the permanent property of that idea. The meaning is formed and may vary from culture to culture, time frame, daily interactions and social actions (Andrews, 2012).
“Social constructionism is a theory of knowledge in sociology and communication theory that examines the development of mutually constructed understandings of the world. It assumes that understanding, significance, and meaning are developed not separately within an individual, but in coordination with other human beings” (Zarei & Kamali, 2015: P. 01).
Thus, ‘‘knowledge in some area is the product of our social practices and institutions, or of the interactions and negotiations between relevant social groups’’
(Gasper, 1999:855).
As an epistemological stance,
“social constructionism asserts that knowledge is historically and culturally specific; that language constitutes rather than reflects reality and is both a pre-condition for thought and a form of social action; that the focus of enquiry should be on interaction, processes, and social practices. Corollaries of the social construction of knowledge are indeterminacy, polyvocality, the need for contextualization, and pragmatics” (Gergen, 2001:121).
Thus, knowledge is created by society i.e. knowledge is produced thorough a social process and actions (Young & Collin, 2004). Our understanding of any concept is not an ultimate truth because meanings are historically and culturally related to a concept (Burr, 2015). Social constructionism also reveals the behaviour of individuals and groups as they construct reality on the basis of their perception. The way social
137 phenomenon is constructed and the way it is institutionalized vary on the basis of traditions is studied by social constructionism. Those meaning may or may not be modified with the daily interactions during time. Social constructionism believe that human beings have little or no access to true reality without capability of language
(Young & Collin, 2004).
This study, following the abstract reality stands on the interpretivist epistemological stance. Interpretivist is concerned with reviewing what is happening and being endorsed in the world according to the clarification of the real partakers in the activity in question. The social constructionism as being the epistemological stance of this research leads to the interpretivist approach (Burr, 2015). This approach believes in the reality as multiple, circumstantial and subjective in nature (Flick, 2009). As this study has its focus on the meaning derived by the whole process of organizational change and the understanding of change. Researcher believe that those employees construct the meaning as they perceive and experience everything that takes place in an organization. Thus, the reality becomes subjective and it is, therefore, the reason that this study adopted anti-positivist epistemological stance.
This paradigm provides an access to an individual’s experience; therefore, this study uses social constructionism. The organizational change studied under this research is focused on understanding how the employees are experiencing/ experienced the change process. Moreover, it also aims to find meaning of organizational change from the employees’ perspective. Therefore, these objectives of research require investigation from individuals in natural habitat, in their own words that elaborates the meaning and experiences. Social constructionism believes in constructing knowledge through a process of social interchange. Our interaction in the society forces us to draw
138 meaning and use language to convey those meanings. The responses of the employees towards organizational change are amalgamation of different meanings which are prompted by the whole process of change.
3.3.3. Human Nature The third underlying assumption regarding the nature of social science research is human nature. According to Burrell and Morgan (1979) human behaviour is determined by the situation and environment (determinism) or it is assumed to be autonomous and free from external environment (Voluntarism). In other words, human nature is viewed either as a product of environment or as those who creates their own environment. The researchers who approach social sciences with objectivity believes that human nature is determinist whereas, the scholars with subjective standpoint believes in a human nature being based on voluntarism. As the nature of this research is subjective, with the nominalism ontology and anti-positivist epistemology, this research views human nature as voluntary i.e. humans have a free will and man is completely autonomous to create their own environment.
This research revolves around understanding the experiences of employees with respect to organizational change. Understanding the change process (initiation and implementation) in CDLA was based on experiences of the employees. Therefore, the employees can share their stories more freely as they experienced it. Hence, the human nature is considered voluntary in this research.
3.3.4. Research Methodology The fourth and last assumption is about the methodology. The major area of debate in a research regarding the selection of appropriate methodology and method for inquiry. To acquire the knowledge, two approaches are used i.e. deductive or inductive.
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Objectivist believes in Nomothetic whereas subjectivist believes in Ideographic view.
In other words, objectivist use deductive approach to search for universal laws to explain reality and relationships between elements. Whereas, subjectivist uses inductive approach and focus on how individuals create, modify and interpret the world
(Burrell & Morgan, 1979). In deductive approach, hypothesis is developed on the basis of existent theory and then it is tested (Silverman, 2013). Whereas an inductive approach, data is collected and on the basis of the data collected, a researcher draw a pattern and develops a theory as in this study. Deductive moves from generalized principles to specific conclusions whereas, inductive moves from specific observation to theory (Flick, 2015). Once the methodology is clear, a research shall adopt a method to conduct a research study. Quantitative and qualitative methods are the two major methods used to conduct a research. According to Creswell (2013) research approach depends on the nature of social world and the phenomenon under inquiry and on the availability of resources.
The underlying research philosophy of this research is subjectivist. The assumptions discussed above provides the support to the subjective approach to social sciences. The ontology is based on nominalism with an anti-positivist epistemological stance, voluntarism believe of human nature and ideographic methodology. The detailed research methodology and approach to this study are discussed in the next sections with proper justification and the formal approaches.
3.4. Rationale of selecting CDLA: the research context
As this study was focused on public sector reforms (organizational change) and to study these initiatives from employee’s perspective. Thus, the first task was to identify the most appropriate reform initiative. Khyber Pakhtunkhwa has been reported to be
140 one of the most deprived provinces of Pakistan. The report by Social Policy and
Development Centre (SPDP) reported that on multiple indices from various sectors
(education, health, housing and economic deprivation). Out of 24 districts of KP, 16 are entitled as medium to high on the overall deprivation level (Jamal, 2012) and
Peshawar being the poorest provincial capital (Ghauri, 2016) provides a very unique perspective to the studies on organizational change and public-sector employees.
Provincial government is committed to bring reforms. As per provincial website, 126 reforms initiatives are implemented, 107 on-going reforms, and 137 reforms are reported as under implementation (PMRU, 2017). In total, 370 reforms are initiated by the provincial government. After identification of the organizations and departments working under provincial government, one of the most critical decision was selection of an organizational reform’s initiative for study. The first decision was easy i.e. to select an initiative that has already been implemented and has been running successfully, therefore, the list was limited to the 126-reform’s initiative that were implemented to the full extent. Afterwards, the choice was made on the basis of most suitable with respect to research questions and objectives. It was decided to look for an initiative that has already completed all implementation phases and has all the components of reforms. Keeping in view the latest development in public administration, good governance, e-governance, and NPM in mind, some of the organizations/reforms were approached to discuss the area under investigation and seek access.
Keeping the research ethics in view, it is important to provide a brief overview of the organization. As discussed above, how the organization was selected. It is a public- sector organization of Khyber Pakhtunkhwa (KP). It provides services to the citizens of the province and is operating in almost every district of KP. Almost a decade ago, 141 reforms were initiated in this organization and the nature of reforms were similar to the most of cases that were found in literature from both developed and under developing countries. This organization has set its objectives to improve efficiency, effectiveness and customer satisfaction. Therefore, it has transformed itself from manual system to tech-based organization. Since 2006, organizational changes in this organization are taking place at regular basis and thus making it the most interesting case to study. It comprises of new and old employees. Citizen’s interaction at from office takes place on regular basis and therefore all services are provided under one roof where every process step in provided within the premises. This has been an important reform initiative that led to a chain of reforms and has uplifted the standard of public sector working under provincial government.
“A case study investigates a bounded whole object of analysis” (Morgan, 2012:P.
668). Thus, choosing one organization is not about the singleness, rather it is about the wholeness and within one organization i.e. CDLA there are many sub departments and individuals who shared their real-life experiences. A single case study helps in understanding the whole of phenomenon in-depth by engaging both researcher and respondents. Through case study method, a researcher is enabled to use a variety of research methods of social sciences to reach to the core of complex outcome that has been narrated by the respondents. Many researchers and scholars have used case study in their research and doctoral dissertations (see for example; Almeida, Travassos, Porto
& Labra, 2000; Agyepong & Adjei, 2008; Fu, 2012; Gourley, 2009; Soni, 2000; Uddin
& Tsamenyi, 2005).
A single case of CDLA was selected as a unit of analysis because the experiences of employees during various stages of organizational change was the point
142 of investigation. Understanding the process of organizational change from the perspective of employees was the main aim of this research. Thus, the nature of study was exploratory and a case of CDLA was suitable to find answer to the research questions. Yin (2003) also supports the choice of single case for in-depth investigation.
Moreover, Baxter and Jack (2008) also supports the single case and single case with embedded units for research.
3.5. Data Collection
Saunders, Lewis, and Thornhill (2011) highlighted that it is difficult to gain access to the organizations for data collection. It is also stated that financial and time constraints along with accessibility to organizations for data are the major considerations before selecting the target organization (Gill & Johnson, 2010). Dunn and Miller (2007) also highlighted the issue of “Red Tapsim” in public sector that was faced by scholar during selection of target organization. Collecting data from public sector organization and employees was a difficult task. The approach to data collection is discussed in the sub sections below.
3.5.1. Initial Approach to Gain Access to CDLA Keeping in view the previous sample organizations from the areas similar to this study (for example: Habib,2011; Habib & Jamal, 2013; Habib & Wazir, 2013;
Zaheer, 2009; Zaheer, Mushtaq, & Ishaq, 2008) and ethics of research as well as data collection, organizations were approached informally. During the initial encounter, researcher discussed the purpose, objective and the expected support with the management of those organizations. An informal information regarding the organization and change initiative was also obtained so that it can be used for decided the most appropriate organization. Park and Lunt (2017) were well aware of the issue
143 of gaining access for research purpose to the organizations in Asia. The tall bureaucratic hierarchy and in the presence of quantitative research approaches makes it more difficult to convince an organization to take part in qualitative research and specifically for the interviews. Many organizations refused to partake in the research because of the confidentiality and deny access to information due to several issues. One organizational change was identified that was suitable and fulfilled the purpose of research and thus, the author approached the organization formally. Formal method of approach was by asking for information based on citizen’s “Right to Information” under the provincial government’s Right to Information (RTI) Act, 2013. Secondly, guidance was taken from the management regarding method to approach access to the organization and thus a letter was drafted on the letterhead of the institute in which the scholar was enrolled. Request letter for permission to conduct research and collect data was signed by the scholar and supervisor. It was submitted for further process and approval from the management of targeted organization. Scholar was informed telephonically that his requested has been approved and can approach organization to conduct his research.
An initial meeting was held between the management and scholar regarding way forward. After discussion, a mechanism of conducting research was structured.
Agreement was made on the following point;
Participant’s information sheet will be sent to the concern person.
Consent of participant to partake will be send and signed by the participant.
Interview’s date, time, and venue will be decided with mutual understanding.
Interviews will take place as scheduled and will be recorded.
Confidentiality of the interviewee will be ensured by the researcher at any cost.
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Organization will not be mentioned directly and that the information collected
in this process will be only used for research purpose.
No harm will be done to the participant by keeping their names and biodata
confidential.
In case of directly quoting from the interview, pseudonyms or dummy numbers
will be used.
3.5.2. Sources of Data Data was collected from both primary and secondary sources. For primary data,
Semi-structured in-depth interviews were conducted (discussed in detail under section
3.6) while secondary data was retrieved from official documents (letters, notifications, memos, legal documents and PC1 etc). Secondary data was used to provide additional information to help in understanding the case of CDLA.
3.6. Sample and Sampling Technique
Inclusion of the participant to become the part of the study depends on the nature of the research and its aims and objectives. According to Robinson (2014) inclusion and exclusion of participants to a study sample depends on homogeneity and heterogeneity factor. Inclusion is subject to demographic, geographical, physical, psychological or life history homogeneity. This study focuses on the life experiences of the participants in a change process and identifying underlying emotions of the public-sector employees towards change and deriving meaning from their experiences.
Therefore, the sample was selected on the basis of relevance to study. For this purpose, purposive sampling technique was adopted. In this type of sampling, also called judgement sampling, the participants are knowingly selected on the basis of the qualities possessed by the participants (Etikan, Musa, & Alkassim, 2016). This includes
145 the subjects who are well informed about the phenomenon under study as well as are able to communicate the experiences and idea efficiently and without hesitation
(Tongco, 2007). Heterogeneous methodology under the purposive sampling technique was adopted for choosing the sample. The participants were chosen by virtue of their similar life experience of change process, however, individuals who experienced the change process and the ones who were the part of bringing organizational change were included to get a comparative view of the whole phenomenon.
The study selected CDLA of KPTP in KP, Pakistan for attaining the aims and objectives. The participants were divided in 3 groups to get overview of the experiences from all the aspects of the change process. The participants were initially selected on the basis of their ranks, that is, top management, middle management and lower staff, as the rank of an individual may affect the way they react to anything. Further to this step, the employees of project, Traffic Police and Transport department were added to the sample. The project management team were new to the already existing KPTP; therefore, they might have approached the situations in different ways. However, the involvement of transport department as the later part of the change process is also signified as a separate group and therefore needed to be the part of the study. The third step involved the inclusion of employees who left or were transferred to the other departments and the ones who stayed as the part of the whole change process from the start. The sample also included the participants of different ages to get a general view and in order to have different inputs on the basis of understandings. Thus, a purposive sampling technique was used as a part of non-probability sampling technique.
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3.6.1. Participants The study included thirty participants who were the part of change process of computerization of driving licenses. As discussed above, to get comprehensive view of change process at all levels and from all possible perspectives, the participants were divided into 3 groups i.e. top management, project team and permanent employees of
KPTP.
Semi-structured in-depth interviews were conducted from the employees who were directly or indirectly part of organizational change. Finding employees of KPTP or associated with reform initiative was a difficult task due to the fact that most of the employees were either transferred, retired, left after project transferred to transport department or left the job and working elsewhere. Identification of those employees who were part of old system and those who were part of organization during transformation took a lot of effort. Once identified, the next step was even more difficult to trace them and convince them to take part in this research. Experiences and perspectives of those involved in organizational change, and those who experienced change was vital to answer the questions of this study. Therefore, it took an extra effort in getting on board all such stakeholders.
Participants of this study comprised of top management, middle management, lower level staff, project employees, project staff and transport department. Total thirty interviews and one repeat interview from the middle management was conducted to clarify some information. Demographics and assigned codes of the respondents are presented in the Annexure-I. Fourteen (14) participants were from the project implementation team, among whom eleven (11) left after the project ended, whereas, one (1) left the job and two (2) were still working at the time of interview. Their ages
147 ranged from 22-45. Eleven (11) participants were from Traffic Police. Six (6) of them were currently working, five (5) were transferred and two (2) of them were retired.
Their ages ranged from 37 to 52. Two (2) interviews were taken from the employees of
Transport department who were 27 and 40 years old. However, one (1) participant, age
40, was from Directorate of Information Technology. Among thirty (30) participants, fourteen (14) were contract employees and remaining sixteen (16) were permanent employees. Those participants who were engaged in this organization on contract basis as a project team are assigned codes “PM”. The permanent staff of Khyber
Pakhtunkhwa traffic police or police are assigned KPTP codes, whereas, E, O & M further differentiate employees, officers and management. Participants from transport department are assigned codes of KPTD and Directorate of Information technology/
Directorate of Science and Technology is assigned DIT as code. Thus, in total, 30 members were interviewed, among which 14 project team members were interviewed,
02 interviews are from top management, 09 interviews are from lower level, 02 interviews are from middle management, 02 interviews are from transport department staff and one interview is from IT board.
This research’s findings are based on the narration of those who participated in this study. Moreover, the secondary source of data was also utilized for this study.
Detail discussion is followed in the chapters.
3.6.2. Sample Size and Saturation According to Fusch and Ness (2015) accurate size of the sample has enormous effects on the content and authentication of the conclusions (content validity). The
“one-size-fit-for-all” (p. 1409) is considered erroneous specifically in the qualitative approach. Therefore, determination of saturation point is never fixed for similar studies
148 and varies from study to study due to different factors. According to Mack, Woodsong,
MacQueen, Guest, and Namey (2005) an ideal size and method for revelation of 90-95 percent of the authentic data is 20-30 in-depth interviews. The sample size of the present study is thirty (30) which is an ideal sample size for detailed identification of data.
Moreover, the study detected that saturation point has reached due to the repetition of similar ideas under study based on Corbin and Strauss (2008) views. They ascertained that saturation should be claimed when the data is providing similar view points and is not adding anything new to the story, model, theory or framework. Collection of data from last few participants through in-depth interview were generating the same story about the organizational change. Therefore, the researcher concluded the cut off point for the sample size as 30.
The personal views of the researcher were avoided in deciding the saturation of the data. In interview methods, researcher is the only instrument of collection of data and therefore may colour the decision of saturation which may adversely affect the results (Jackson, 1990). In order to avoid personal views of the data, interviews were searched for codes parallel to the collection and the point where further coding of the data was not possible, the saturation point was assumed to be attained. Guest, Bunce, and Johnson (2006) also asserted similar views for the cut-off point of sampling size.
Such type of data saturation is called thematic saturation where no more patterns are emerging from data Such type of data saturation is thematic saturation (O’Reilly &
Parker, 2013). Besides this, other factors also determined saturation point of the present study.
The ideal sample of the study is also determined by the approach adopted for the study. According to Creswell (2013) for the phenomenological (interpretive)
149 approach the ideal sample size is five (5) to twenty-five (25). Keeping in view this point the present study sample size is 30 as it follows interpretivist approach. Moreover, in interpretive paradigm the exploration of the ideas is more important than the justification of the idea. Therefore, saturation was also based on the exploration of the ideas (Malterud, 2001). The participants were interviewed from different levels and different departments in order to have overall view of the organizational change, however, when the input to the topic under discussion reached to the point of monotony, the sample was cut off and saturation point reached.
Charmaz (2008) suggests that sample size of the studies depends on the objectives of the study. The studies with modest claims might accomplish saturation sooner as compared to the studies that aims at broader group and comprehensive ideas.
The present study involved only one public sector organization for evaluating the change process. Therefore, the saturation was achieved quicker compared to the studies which targets two or more than two organizations for the study.
The determination of correct saturation point is of utmost importance for authenticity and accuracy of the results, therefore the present study did not decide the cut-off point based on only single factor, rather, all the aforementioned factors accumulatively influence the saturation point in the present study.
3.7. Data Collection Tool and Data Triangulation
Bryman (2015) states that there are certain criteria to determine the quality of the research which are referred to as validity and reliability. Validity and reliably of the methodology adopted for the study is extremely important. To justify the quality of the research and to attain validity and reliability, a researcher must follow some steps
150 throughout the research process (Morse, Barrett, Mayan, Olson, & Spiers, 2002). The validity and reliability cannot completely be erased; however, its effects can be decreased (Cohen et al., 2013). Validity, in its initial versions was considered as a something measures which it claims to measure, however, recently validity is measured by the honesty, productivity and scope of the data, triangularization, participants and objectivity of the research (Winter, 2000). Whereas, according to Mason (2002) validity for a qualitative study is to interpret and understand a phenomenon in other words, what the phenomenon means and how is it achieved. The present study aims at understanding the process of organizational change and the meaning given to it by the people involved in the process.
According to Maxwell (1992) descriptive validation is the first concern for the qualitative researcher. It accounts for interpretation of the input provided by the participants. The researcher might have misinterpreted, commissioned or omitted the physical and behavioural response which is essential contribution to the research, for instance, exclusion of non-verbal responses which have meaning to the research. While collecting the data through interviews, all the verbal and nonverbal responses were recorded. Verbal responses were recorded through recorder, whereas non-verbal responses, such as gestures and face expressions were also jotted down on the paper.
Interpretive validity, in the view of Maxwell (1992) is central to interpretive research, where the researcher tries to approach the phenomenon from the perspective of participants. The interpretive is ingrained in the language of the participants.
However, sometimes the participants may consciously or unconsciously distort the meaning or conceal the information. The interviews were, therefore, taken from participants who implemented the change as well as from those who were the part of
151 implementation process. Moreover, to detect the distortion of meaning and concealment of information, the interviews were taken from more than 3 members of each group.
Furthermore, the analysis was purely based on the original extracts from the interview in order to provide accurate meaning from the perspective of the participants.
Moreover, to take complete meaning from the interviews of the participants, their prosodic and non-verbal responses were also analysed by the researcher.
Another validity stated by Thomson (2011) is related to the theoretical construction that the researcher links or builds in the study named as theoretical validation. It goes beyond concrete description of description and interpretation, rather it targets the mental phenomenon underlying the responses. Hence the concepts, properties and dimensions must align together to tell the whole story of the phenomenon under study
(Auerbach & Silverstein, 2003). The present study employs coding for the data analysis. the data is searched for themes and meanings are generated from these themes. Almost all the aspects of the organizational change are accessed through in-depth interviews, from initiation of the change to the present status of the change. Thus, the study fully observes theoretical validation. Similarly, substantive validation, quoted by Angen
(2000), it focuses on all the present, past, and inter-subjective understanding of the topic brought into holistic view of the topic. The present study also establishes the holistic view of the change process, starting the change implementation, takes in consideration the present status of the computerization of the driving licenses and taking the subjective opinions of the employees involved in the change process and hence, establishing holistic view based on that.
The data collected through in-depth semi structured interviews have generated understanding regarding public sector change process and perceptions about that
152 change process. According to Thomson (2011) generalizability is the kind of validity which refers to the ability of the results to be applied to the rest of the population which were not the part of the data. Walsh (2003) states the similar kind of validity as
‘transferability’. Thomson (2011) divides it into two types: internal and external generalization. Internal generalization is the one where the results can be applied to the specific situation or themes or population, whereas, external is applicable to holistic themes and population, which is abstract in nature. Generalizability, in the view of
Strauss and Corbin (1998) is directly linked to the sampling technique used and the target participants. The study chose single public-sector organization where the change was already implemented. Moreover, the sample of the study was selected based on purposive sampling technique. The study included only those participants who were directly or indirectly the part of organizational change. Therefore, the study only fulfils the internal generalization validity, where the results can be applied to the individuals facing organizational change.
Lincoln and Guba (1985) has suggested the criteria for assuring trustworthiness of qualitative data by four criterions; credibility, transferability, dependability and confirmability. This research confers and assured the trustworthiness of the data. As data was collected from various sources i.e. primary and secondary, therefore, the credibility of data was established. The triangulation of data was ensured by collecting responses from lower, middle and top management of the organization under review.
Moreover, it was cross-checked and validated with the secondary data. For transferability of data, a thick description was assured through an in-depth semi- structured interview. The dependability on data was assured by comparing the research findings with previous studies (literature), thus, external audit helped in increasing
153 trustworthiness. Finally, the confirmability was assured through adopting a method of triangulation.
Content validity of the interviews can be enhanced by cross reference and confirmation. Therefore, the interviews were conducted in a way, that questions were rephrased and asked from the similar participants to check the authenticity of the responses. Moreover, formally the interviews were concluded, and the recorder was stopped, after which the participants were asked about their view which gave way to different ideas. Furthermore, the questions related to their experience about the change process were asked. They were inquired about the problems they had to face in the change process and the account of their whole journey, before change implementation and after the change initiative. These all cautious steps helped in enhancing the content validity of the study.
Reliability is also an important criterion for the quality enhancement of qualitative research. Reliability refers to the credibility of the research. The quality of the research in reference to validity relies on trustworthiness of data to real life, its context and situation-specificity, genuineness, comprehensiveness, detail, depth of response and meaningfulness to the respondents (Cohen et al., 2013). Although trustworthiness in validity is similar to the concept of reliability, (Flick, 2009) still it can be achieved by the use of consistent words and questions for each respondent through interviews, conducted pilot interviews and training of interviewers, triangulation of methods, sources, prolonged engagement in the field persistent observation and member checking (Cohen et al., 2013). The interviews were conducted with the permission of the participants and they were assured of anonymity of their identity, in order to elicit truthful responses. The interviews were conducted on two levels, the top management
154 and clerical staff, in order to counter check the information attained. Moreover, the interviews were based on narratives, which elaborated the emotional elements to the interviews and therefore, the nonverbal elements also helped in the authenticity of the data collected. The data was collected in two ways. The first method involved in-depth semi structured interviews whereas the second method was the study of the documents available which also helped in counter checking the data. triangulation of method helped in nullifying the lack of validity in the study.
3.8. Data Analysis, Processing and Coding
Data collected through semi-structured interviews and from studying the official documents was used for analysis purposes that unfolded various narratives. Interviews were based on experiences of the participants. Those experiences were shared and the stories were collected. The method used in this study was based on narrative analysis.
Moreover, in order to summarize the findings of data, a thematic networking is used so that the data can be presented in more meaningful manner.
3.8.1. Narrative Analysis and Thematic Networking Creswell (2012: 367,368) explains narrative’s process of data analysis and representation in six steps; i) Data organization: create and organize files for data, ii) reading and memo writing: read through text, make margin notes, form initial codes, iii) describing data into codes and themes: describe the story and place it in chronology, iv) classifying data into codes and themes: identify stories, and identify contextual material, v) interpreting the data: interpret the story and vi) representing/ visualizing the data: presentation of narration focusing on processes, theories, unique and general features of the life. Details of data processing in presented in sub-sections below.
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The emphasis of this study was on developing a clear understanding of occurrences of organizational change in CDLA through the lens of people who were part of it, therefore, narratives were the most appropriate method of analysis. The adaptation of narrative analysis for such studies has been justified by several scholars (see for example; Birchall, 2014; Gertsen & Soderberg, 2011; Riessman, 1993). With narration, an individual or group of people give meaning to an event from the past and makes sense of their experiences. Thus, language becomes an important fool for knowing about other’s experiences (Riessman, 1993). A storytelling and narrative help in understanding a social reality. Nevertheless, it becomes an interactives process between narrator and listener and through as a joint effort experiences are shared and interpreted
(Cortazzi, 2005). Later those narrations were processed and presented into formalized and systematic themes.
All of the data analysis process was conducted manually. Transcribes of the interviews were printed and manually processed for memos, notes, first and second cycle coding. Thus, the process of assigning initial code, category, subtheme and themes was a time-consuming process and was conducted in several phases to achieve the objective of this research. Narrative and thematic analysis was the major method used as a tool for data analysis in this research. (Leech and Onwuegbuzie (2007);
Saldana (2015)) stresses on use of more than one tool for data analysis, therefore, this research also used thematic networking method for the diagrammatic presentation of the themes. Thematic networking uses three levels of themes; basic, organizing and global themes (Attride-Stirling, 2001). Basic themes are the lower order themes that are derived from the basic categories of the transcription. Organizing themes are the middle level themes that clubs the similar basic themes into one organized place and global theme is the concluding and final theme that clubs all the organizing themes together 156 into one major category. Thus, thematic networking helps in summarizing the findings and linking the lower categories into the more organized and broader categories. Coding and creating link of every finding is difficult, therefore, providing a summarized form of finding helps reader in understanding the output of research data in the easiest form.
3.8.2. Transcription Process Interviews were transcribed and rechecked for confirmation purpose. The processes of memo writing started after transcribing. Saldana (2015) believes that analytic memos is the process of moving from the data collection stage to data analysis phase. Reading the transcripts again and again for several times is important step (Birchall, 2014). After reading the transcripts, it will help in retrieving meaningful information. The extracted information is noted in the forms of memos. Charmaz and Belgrave (2007) takes memos as an intermediate step between coding and report writing. Narratives can have several turning points in the stories of every individual participants, therefore, it is important to conduct analytic memos before starting coding process so that all individual experiences about a specific situation can be made more meaningful and sequenced (Creswell, 2013). The process of data collection and analysis starts from the first interview. After the first interview transcription and memos, the preliminary categories are identified for data analysis (Charmaz, 2008; Saldana, 2015). This process continues and categories are refined and more refined after every interview till the saturation point is reached (Fusch & Ness, 2015). Transcription process was carefully conducted so that the possibility of omission of critical information is minimized. Thus, notes taking after every interview was important. The information extracted after each interview was characterized properly which helped in analysis.
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3.8.3. Thematic- Narrative Analysis In narrative analysis, text is interpreted on the basis of commonalities in stories told.
There are several methods for narrative analysis; thematic, structural and dialogic
(Riessman, 2008). A researcher uses thematic analysis in a case where the focus is on what is said rather than how it is told. On the other hand, structural analysis focuses on the way a study was told and dialogic analysis focuses on interactive talk between researcher and participant through poetry or play. Thematic analysis is the most commonly used technique for data analysis in qualitative research conducted in social constructionism and narratives (Floersch, Longhofer, Kranke, & Townsend, 2010).
Thematic analysis is widely used in method for qualitative studies in social sciences, medicine, psychology and other natural sciences (Bernard & Ryan, 2010). It helps in identification, reporting and analysing of data to understand the meaning expressed by people, understand the situation and specific events (Floersch et al., 2010). Mason
(2002) states that the use of thematic analysis technique provides flexibility to the researchers in analysing information and making sense of it. This study did not adopt structural and dialogic analysis techniques because they are commonly used by researches in linguistics (as a tool for discourse analysis) and other humanities researches. Thus, adopting narrative analysis of the semi-structured interviews was conducted with the help of thematic coding. These codes and coding process are discussed in section below.
3.8.4. Coding Process After familiarization with the data (reading) and memos, coding became easy.
Categorization of the data, assigning codes and reaching to the themes is not a simple task. Data can be categorized/ labelled through pre-defined categories or data driven
(Cohen et al., 2013). Categorization was done through clustering the information
158 derived from transcripts and with the help of memos. This helped in coding data and ultimately to the themes (Flick, 2009). Coding can be performed in several ways. In grounded theory, coding is carried out in three stages; open, axial and selective coding
(Charmaz, 2008). Open coding is extremely subjective where researcher do line by line coding of the original data. The processing of data by breaking down the script, examining data, conceptualizing and later categorization of data is done in open coding.
After open coding, axial coding is carried. In this phase, all codes identified in open coding are combined to make connections between different categories. This helps in defining sub categories which leads to the major categories. In selective coding, the relationships are identified and are connected with the central category. Saldana (2015) uses coding in two cycles; first and second cycle coding. The first cycle coding is conducted during initial coding of data while in second cycle coding, classification of data, integration, abstraction and ultimately theory building takes place. For the first cycle coding, Saldana (2015) proposed several methods; grammatical (attribute, magnitude, simultaneous coding), elemental (structural, descriptive, process, initial coding), affective (emotions, value, versus, evaluation coding), literary and language
(dramaturgical, motif, narrative, verbal exchange coding), exploratory (holistic, provisional, hypothesis coding), and procedural method (OCM, protocol, domain coding). In second cycle coding methods are pattern, focused, axial, theoretical, elaborative, and longitudinal coding. The option of choosing an appropriate coding depends on the nature and purpose of the study (Patton, 2005). However, Saldana
(2015) believes it is open choice to choose the method or mix the methods and remain open to experimenting to get better insight of the data.
In this research, for the first cycle coding purpose two methods are used; elemental
(descriptive and initial coding) and exploratory method (holistic coding). Elemental 159 coding method was used to filter the data and to build foundation for the later stages of coding. Descriptive and initial coding methods were used in elemental coding.
Descriptive coding method was used to assign labels to the data and later initial codes were used. Similarly, the holistic coding was used to save time and identify basic themes and issues highlighting in the data. This helps in streamlining first and second cycle coding. Moreover, in narratives, it helps in coding a large chunk of data into more specific basic theme (Elo & Kyngas, 2008; Mason, 2002). For the second cycle coding, axial and theoretical (selective) coding methods were used. These methods are most widely used methods for data analysis in qualitative research. Summary of the process adopted is shown in figure 2.
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Semi-Structured Interview
From Top, middle and lower management
Transcription of Interviews
Reading, Momos, notes, highlights
First Cycle Coding
Elemental coding: Using Open coding and descriptive Exploratory coding: Axial coding and holistic for basic coding for clustering and filtering data themes and sub categories
Second Cycle Coding
Selective coding and theoritical coding for Theme identification
Pre-defined Codes
Based on the previous researchers, some themes were pre-defined i.e. process, causes, issues, constaints, components, and complexities of organizational change
Data-driven codes
Data driven codes were identified at later stage i.e. employees response to change, confrontation, lack of HR practices, Characteristics of NPM, Shortcoming of new system, critical success factors, Approach to organizational change etc.
Figure 2: Coding Process and Cycle
3.9. Implementation of Research Ethics
Ethical issue and research ethics are an important aspect of any research. This consideration starts from idea generation till the completion of research. Starting from the time of research proposal writing, ethical issues need to be anticipated and addressed by the researcher (Hesse-Biber & Leavy, 2010). Punch and Oancea (2014) stressed on considering research ethics and its importance in qualitative research.
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Qualitative research that involves data collection from primary source i.e. from people and the data that is about people needs to follow ethical guidelines. Thus, researcher needs to follow a standard protocol to protect the participant, organization and the research data (Israel, 2014).
“Researchers need to protect their research participants; develop a trust with them; promote the integrity of research; guard against misconduct and impropriety that might reflect on their organizations or institutions; and cope with new, challenging problems” (Creswell, 2013:106).
Ethical dilemmas, privacy concerns and issues has increased. They required proper attention of the researcher. Modern day’s research has some growing concerns about the disclosure, authenticity, credibility, validity and reliability of research.
Furthermore, the anonymity, confidentiality, restriction on the use of data, publication and dissemination of research are all major areas that needs to be addressed by researcher (Oliver, 2010).
Creswell (2013) argues that researcher needs to address variety of ethical factors at different stages. Before conducting the study (planning and proposal stage), research scholar needs to take approval from the university regarding the study and proposal.
Scholar has been granted an approval of the Board of Advance Studies and Research
(BASAR) to conduct the research. Similarly, the author has taken permission for the conduct of study from the target organization. At the beginning of study, Creswell
(2013) mentioned that researcher will face certain issues i.e. disclose the purpose of research, participants shall not be pressurized or harmed to partake in research, norms and values of culture shall be respected, and shall understand the needs of respondents.
During the data collection stage, Creswell (2013) assumes that researcher will face
162 ethical issues e.g. treating all respondents equally, avoiding deception, authenticity or research and protection etc. while at the data analysis stage, author needs to avoid negative perspective and also positive perspective, and to ensure that participants identity is kept secret. Finally, at the reporting and sharing stage researcher will face ethical issues concerning; authorship issue, plagiarism, disclosure issue, sharing data with others and so on.
In order to follow the ethical guidelines, scholar under the supervisor of competent supervisor and co-supervisor has ensured that each step within the research ethics.
Before starting of this research, scholar studied, discussed and understood the code of ethics “Ethical Principles of Psychologists and Code of Conduct2” issues by The
American Psychological Association (APA). Scholar’s topic, area of research, the research questions, purpose of research, population, target organization and sample are all approved by the research committee i.e. Board of Advance Studies and Research
(BASAR). Informal meeting followed by letter of request for entry requirement to the organization for data collection was drafter, sent and approved. During the initial meeting with the management of organization, an ethical guideline was developed to ensure that this study fulfils the ethical standards. These guidelines were established under the code of conduct issued by APA and as suggested by (Creswell, 2013; Flick,
2015; Israel, 2014; Oliver, 2010; Pauwels, 2007). Individual, group and organization were given respect during this research study. Respect to human dignity, integrity, freedom and participation was the priority during various research stages. Furthermore, security of individuals was ensured both physically and mentally. Free and informed
2 http://www.apa.org/ethics/code/index.aspx
163 consent was undertaken in the research data collection phase. Similarly, the confidentiality of both respondents and organization has kept integral. Moreover, during an interview, the audio recordings were kept secured. In order to keep the transcribe free of bias, interviews were carefully scripted manually and then using MS
Word. Afterwards, those transcribes along with audio were shared with language expert, a qualified master’s degree holder in English Linguistics and literature. Proof reading services were acquired for the purpose to cross check and validate the transfer on interview from audio to text. During data analysis stage, it was ensured by the scholar as well as by the supervisors that there is no perspective issue nor the monotony of results. Results were neither inclining towards positive nor towards only negatives.
Similarly, the results were ensured to keep the anonymity intact. Results are critically interpreted without any scholar’s influence and are reported as they were leading.
3.10. Data Collection Timeframe
After the initial meeting with top management of traffic police and CDLA, a focal person from CDLA was nominated. As this research followed purposive sampling
(non-probability sampling technique), therefore, the focal person was briefed regarding the characteristics of desired respondent. A list was generated by the focal person of the population that was part of organizational change during the project initiation and implementation. The population list was verified with the official record and contacted accordingly. Interviews were planned as one respondent at a time. The whole process of data collected took nine months. During these six months several meetings were conducted with the spokesperson of CDLA. The interview’s process formally began in
October 2016 and the last interview was conducted in July 2017.
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3.11. Summary
This chapter provided conclusive justification to the choice of method and methodology adopted for conducting this research. As an exploratory study, a qualitative approach has been adopted. Semi-structured in-depth interviews were conducted with the employees of CDLA. Respondents were asked to narrate their experiences before, during and after change was initiated in their organization.
Interviews were transcribed and data was extracted from all interviews using thematic analysis, thematic narratives and thematic networking techniques. As the research has cleared its means and ways of data collection as well as of data analysis, the next chapter presents the finding and analysis of the data extracted with the help of research methodology adopted in this research.
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Chapter 4: Public Sector Reforms in Pakistan: An Overview and Case of
Computerized Driving Licensing Authority (CDLA)
4.1.Introduction
This chapter provides a brief historical overview of reform initiatives in public sector of Pakistan. The focus of this research is on understanding organizational change in
CDLA, however, before presenting the case of CDLA, it is important to provide highlight some of the PSR initiative of Pakistan. CDLA being a part of KPTP and broadly a part of law enforcing agency, therefore, a brief of reforms in police sector is also necessary.
4.2.Public Sector Reforms in Pakistan
Since independence, Pakistan has faced never-ending issues at macro and micro level. Mismanagement, political instability, selfish acts from politicians and public administration, and corruption have never let this country to develop (Asian Report,
2010). Public sector of Pakistan has been unable to provide effective and efficient services. Unresponsive, status-quo civil service with bureaucratic system has led to dis- functioning and low capacity of public administration in Pakistan. Moreover, the political instability in country has destroyed the past, present and made the future doubtful (ibid). Thus, the only long-term solution to cure and protect the future rests in reforming public sector.
After independence, Pakistan’s first biggest challenge was establishment of civil services. Trained manpower and managerial personnel were the area of acute shortage and biggest problem for Pakistan. Only a handful of trained civil service officers joined
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Pakistan, therefore, there was huge gap and vacant positions. To fill those positions, services of well-trained British officers were retained. They were assigned every type of position, including governorship and secretaries (Sayeeda, 1958).
At the beginning there were no offices, infrastructure or any equipment to run the government’s machinery because (before partition) most of the setup was operated from the Indian part of subcontinent. However, Hwang and Colyvas (2011) stated that despite all odds, initial bureaucracy of Pakistan succeeded in providing start to public administration. While with the passage of time, government needed role expansion, therefore, a high number of civil service officers were required but there was shortage of suitable candidates. In order to overcome the supply shortage, public service commission relaxed the criteria. This resolved the issue however, the quality was sacrificed (Ahmad, 1970). This also opened a door for politicians to exploit and influence. As a result, general public developed a perception that public administration is ineffective, corrupt, and a place where power is always misused (Asian Report,
2010).
Every government of Pakistan has initiated certain reforms to improve public sector. Efforts were made during both democratic and military regimes. However, these efforts were unsuccessful due to political instability at federal as well as provincial level
(Iqbal, 2014). Wallis and Dollery (2001) reported that failure in reform initiative has mainly caused due to adaptation of top-down approach, lack of state’s capacity, donor agencies influence on reforms by adopting other countries model without any organizational assessment, lack of understanding of NPM model and lack of commitment. While Heeks (2002) concluded that there is difference between actual on the ground situation as well as in theory, therefore, reforms are mostly failed in
167 developing countries due to lack of understanding. Chan (2006) added corruption, ill- performing units, issues in judicial system, and fiscal constraints are causing reform failure in public sector of developing countries. Reform failure in Pakistan was similar to that of other developing countries. Failure in developing country was reported as due to non-implementation of planning or due to unsuccessful results. Furthermore, the reform cycle remained incomplete in developing countries and it was evident in the case of Pakistan as well (Polidano, 2001).
Iqbal (2014) divided Pakistan’s reform efforts into three phases. According to him, reforms during Phase 1 (1948-1971) were focused on establishment of basic government functions, departments and public sector. Development of infrastructure, rules and policies for institutionalization were priorities of government during this phase. During Phase 2 (1973-1990), right after separation of East and West parts,
Pakistan had to start working from the scratch. The basics need to be reformulated, organizing the size of government, restructure, system and process modification, power and authorities’ revisions, and pay and incentives development. Bureaucracy was brought under political system and nationalization of major private sector took place.
Pakistan remained handicap during this phase and the public sector remained isolated from modernizing and reforms. Hence, the public sector remained idled and unable to take advantage from globalization or global trends. Similarly, the fragile political conditions have destroyed the economic growth. During the 3rd Phase (1990 onwards) the world was adopting NPM based reforms to improve their public sector. In Pakistan, similar efforts were made by governments to recover from financial problems and to improve public sector’s performance. However, they were unable to achieve any success in their efforts. During the last decade of 20th century, government-initiated reforms by changing the role of government from leading to facilitator, privatization 168 and budget cuts, decentralization, changes in management styles and practices, innovation and financial management mechanism.
Since 1990’s Pakistan started structural reforms for stabilizing and developing country’s economy (Anwar & Iqbal, 1996). Such reforms are usually as a set of preconditions prior to loan or financial aid from international donor agencies (Ahmed
& Lipton, 1997). These conditions are to ensure that donor agencies are having some protective shield against the future shock. Furthermore, it provides an enforced opportunity to developing countries to become more market oriented. In Pakistan, structural reforms were initiated in the system, trade, privatization, financial reforms,
HR development, and protection of public interest.
Structural Adjustment Program (SAP) requires changes in policies and aims for economic stability. SAP is assumed to overcome balance of payment and deficit issue, provide economic development and to bring prosperities. SAP’s objective to sustain growth, decrease inflation and ensure availability of funds for external payment was questioned when this program was unable to deliver results as expected (Collins, 2005).
Thus, donor agencies realized that providing merely an advice over policy doesn’t work, therefore, they shifted focus towards processes development, design and implementation. Hence, the focus was to build institutions rather than policy making and planning (The World Bank, 2008). Thus, making institutional development and capacity building became a prime concern of NPM based reform under donor agency
(Iqbal, 2014). This decision was to ensure that policies are implemented properly with the help of institutional and individual development. Government of Pakistan was advised by donor agencies and international partners to devise a vision and strategy for reforms (World Bank, 1998). In response, Pakistan developed a vision 2010 and then
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Vision 2030. The main focus of Vision 2030 is on bringing stability, liberal system, privatization and decentralization as a part of economic policy (Pakistan, 2007).
Iqbal (2014) studied the strategy of reforms in public sector of Pakistan and found that the main problem of Pakistan’s government is lack of financial stability and growth. The prime reason of this problem is extended form of government and their inefficiency. Thus, as per vision 2030 governments are focusing on steering rather than rowing. Furthermore, the reforms in public sector of Pakistan are reported to be policy and regulatory based and services improvement. Government initiated privatization, deregulation, liberalization, Corporate Social Responsibility (CSR), capacity building, restructuring, and E-Government for cost cutting and efficiency, reduce size of government and build smart and effective government to overcome major problems.
Since beginning of 21st Century, Pakistan was under military rule. This government along with donor agencies worked on modernization of public sector and specifically focused on good governance. The aim of these reforms was to decentralize, financial management to improve economy, poverty reduction, tax reforms, separation of provision and production. Musharaf’s eight years of military regime had both positives and negatives. Local government system, stabilizing economy, Higher Education
Commission (HEC), Foreign Direct Investment (FDI), and law and order were having positives. However, this regime has destroyed the civil services. At the end of his term, the public servants and bureaucracy became inefficient and demoralized. Military (on job and retired) personnel were sent and appointed to different departments to head the public sectors. This military encroachment on civil posts increased the problems further. This led to widening of gap between general public and administration. The vision of public sector was derailed by military rules, authoritarian structures, and
170 rigidity. HR related decisions were purely on personal and political affiliations. Civil services recruitment agencies were chaired by military generals and as a result, standards of these agencies started falling. Thus, the poor citizens suffered, gap between poor and rich winded. KP and FATA (Federally Administered Tribal Areas) became the most deprived and affected regions. The war against terrorism, conflicts across board has increased the problems even further. Internal displacement of millions has affected all development plans. As a result, government priorities changed from reforms and development to conflicts and militancy.
National Commission of Government Reform (NCGR) issued a report (in two volumes) in 2008. According to NCGR (2008a) public sector governance of Pakistan is structured as federal, provincial and local government. Their organization is through secretariats, departments (attached to secretariat), autonomous bodies, and field offices.
The processes are composed of strategy and planning, procedures, rules and regulations. NCGR’s report highlighted the key reforms in Pakistan in three phases.
Phase 1 (1948-1971), phase 2 (1973-2001) and phase 3 (2001 and onwards). The key happenings during these phases are highlighted in table 7.
Table 8: Phases of Reforms in Pakistan
Phases Key Reform
Phase 1 Section officers Scheme (introduction into secretariats
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(1948-1971) Delegation of power and authority (administrative) to departments Delegation of power and authority of policy making and control to secretariat. Appointment of financial advisers to ministries. Delegation of financial management authority Restructuring of planning mechanism Local government system Human resource capacity enhancement. Phase 2 1973’s parliamentary constitution Service structure unification Unified grading through (1973-2001) introduction of Basic Pay Scale (BPS from 1-22) Power of public service commission reduced to just an organization for testing and examination Nationalization of financial institutions, manufacturing and education sector Phase 3 Local government restructuring 12 departments of provincial level were devolved to district level (2001- onwards) Police reforms Introduction of provincial finance commission Source: NCGR report 2008
Internal and external political issues have created distrust of general public on political and administrative leadership. The flaws in the system need to be addressed as government needs the general public support. Reforms can help government to establish the broken link between stakeholders. International communities and donor agencies are also helping governments in reforming public sector for improved governance (Asian Report, 2010).
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Asian Report (2010) recommended to Pakistan’s government that they should work for enhancing performance of public sector and revive the services. The first suggestion was to development of HR based reforms by focusing on their compensation, allowances, training, other benefits, staffing practices, accountability and performance measurement, and responsibility mechanism. Second suggestion made in their report was of the removal of military personnel from civil services. This strictly suggested not to hire any retired military officer in public sector. Third suggestion was made regarding the enhancement of functionality of both federal and provincial secretariats. Deregulation and decentralization of administration and finance to agency level, enhancement and establishment of communication system, and removal of biases from the system. Forth suggestion was regarding strengthening of institutions and brining effective accountability. Fifth suggestion was related to promoting fairness and removal of political manipulation. Whereas, some other recommendations included; improvement of local governance and administration, modernization of civil services through ICT, improvement of police functioning, and
FATA status abolishing and merging with KP.
NPM has been adopted in Pakistan as well for the improvement of public sector
(Islam, 1993; Polidano, 1999). The Bureaucracy of Pakistan and politicians has realized that survival is only possible via reforming public sector, therefore, market-driven policies are visible in this country (Cheung, 2005). To succeed in Pakistan’s state- owned enterprises, autonomy and accountability are necessary, however, these efforts were not fruitful in the beginning (Islam, 1993). Author also suggested the concept of single window to manage things effectively and to reduce corruption, fast track services, improving quality of service and customer orienteers. Pakistan is suffering from economic and political instability since independence. Due to political 173 manipulation and corruption, this country’s public sector is suffering and due to such situation 2.4 million of public servants an unresponsive and corrupt. Lack of governance, lack of attention, interruption from military and inefficient bureaucracy has led public sector of Pakistan to the verge of destruction (Asian Report, 2010). This downturn started in 1970’s and is yet to be settled. In 1973, Public sector reforms were initiated countrywide in a radical manner for bringing equality, however, these efforts were not focused on bringing efficiency, transparency, and accountability. One of the important contributions of those reforms were the introduction of HRD departments for providing and arranging trainings for the civil service employees, however; less attention has been given to this department by later governments. It is a matter of fact that without the support and commitment of governments, nothing is possible (Shafqat,
1999).
Planning Commission (PC) has been established in 1952 for helping government in financial planning and policy making. PC undertakes various researches and devises policies for growth. Key contribution of PC for public sector reforms consists of five years plans and vision 2030. PC has initiated a Public-Sector Development Programs
(PSDP). The aim of this program is to provide budgetary resources for development projects and programs. PSDP provides guidance and plans to bring structural change for development and sustainability, reducing poverty, and economic development. It also helps government in achieving annual targets, channelizing funds, and to maximize the output (Planning Commission).
In Musharaf’s government (Military rule) most of the public organizations were filled with retired military officers with no knowledge of public administrations and management made the situation worst. However, devolution of power with the help of
174 introduction of Nazim (mayors) system was a good decision but resulted in conflicts between bureaucracy and mayors as well as law enforcing agencies. This initiative was rolled back by previous government of Pakistan People Party (PPP).
Similarly, another initiative by Parvez Musharaf’s government was Education
Sector Reform (ESR) for the uplift and reform of education sector however, these efforts of modernizing education system failed due to political appointments in public education, insufficient resources at provincial level, distrust on public educational institute and trust of private education system, conflicts on the course contents and the clash of ideas between religious lobby and secular lobby. Another initiative of Parvez
Musharraf government was of Higher Education Commission (HEC) in 2002, as formally known as UGC (University Grant Commission). A new HEC ordinance 2002 was issued as a replacement of UGC act 1974. HEC being autonomous in building an educated society has produced 5180 PhDs since 2002 whereas from 1947 to 2001 the total PhDs produced were only 3281(Correspondent, 2012). Similarly, enrolment of students in universities has also increased since the establishment of HEC and in 2009 the number increased by four folds compared to 2001 (in 2009 number of enrolments was 803507 while in 2001 the number of student’s enrolment in distance learning, private and public-sector universities was 276274). However, the government of PPP issued a notification on 11th June 2012 that HEC is no longer a decentralized
(autonomous) and will work under the control and supervision of Ministry of
Professional and Technical Training. This decision has been reported to be a reaction of ruling party (PPP) after the issue of degree’s verification of politicians and to politicize the scholarship awarding system of HEC (Junaidi, 2012). Musharaf’s government brought some great reforms into the public sector of Pakistan including; increase in research budgets, increase in higher educational institutes, introduction of 175 digital library with access to all major research databases, induction of international faculty and improved performance-based incentives program for the faculty were his major contribution in reform of education sector (Nature, 2008). For the reform of education sector from primary schools to the higher educational institutes a great deal of reform is still needed. Pakistan is among the very few countries of the world that s spending less than 2% of its annual GDP on education. Moreover, the differences in the standard of education provided in private and public sector is also varying and the major flaw in the system is considering to be an outdated curriculum along with the snooping of politicians. Thus, the society and the international donors are forcing government of
Pakistan for taking serious steps for the reform of educational system at first place (Asia
Report, 2004).
Fudda (2012) reported that Minister of Finance (Dr. Abdul Hafeez Shaikh) considers low level of transparency and poor governance are the major factors that are creating hurdles in reforming public sector. US $ 3.5billion were spent on reform of eight major state own enterprises resulted in loss due to ill system and infrastructure.
Loss of Public sector organization is affecting governmental targets as well as the whole economy. In 2012 these loses reached as much as $ 4.0 billion per year (Siddiqui, 2013).
On the other hand, Pakistan is ranked among top of the list in the most corrupt countries list with the score of 2.5 (0 highly corrupt, 10 very clean). This puts Pakistan on 134th rank out of 182 countries (Transparency International, 2011). Similarly Gallup Pakistan
(2012) conducted a survey from the citizens of Pakistan to find out what they dislike the most about Pakistan which resulted as 16% responded as corruption being the most disliked element in Pakistan.
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Pakistan’s current deficit has reached level of 7.5% which is mainly considered due to unfair taxation measures (Kiani, 2013). IMF and World Bank are the major donors and supporting agencies in Pakistan, however, to continue their support for development, they stress government to improve public sector by bringing radical changes in policies for economic reforms (ibid).
Pakistan and Germany’s relations are more than 50 years old and the Germans are helping Pakistan in four major areas e.g. good governance, energy, health care, and education (BMZ, 2010). As reported, Pakistan is facing problems in administration of public sector, HR, financial management, and political system stabilization, therefore,
Germany is helping Pakistan in bringing administrative reforms, improving tax system, improving infrastructure, hydropower and alternative energy sources, improving health services, and basic education.
In 2006 National Commission on Government Reform (NCRG) was created for the purpose to assist, analyse and provide recommendation to the government of
Pakistan (Federal, provincial, and local government) regarding how the make public sector more productive, efficient and effective. The role of this commission was to suggest the possibility of restructuring, reengineering, improving civil services, and to improve HR practices (NCGR, 2008).
According to World Bank one of the major root causes of poverty is poorly working public sector and is also considered to be one of the major obstacles in the development of developing country. Thus, it is important to note that if Pakistan wants to sustain and improve its situation, the leaders should show their commitment, and radical reforms should be initiated. Pakistan needs institutional changes,
177 decentralization is important for fast and efficient services, utilization of IT to improve the quality of services and for better accountability, one window services should be provided, efforts should be made to reduce corruption at every level, privatization of the ill managed state owned organizations, restructuring and reengineering of the public sector functional areas should take place for modernization of services, and civil services should be reformed (Governance, 2000).
Pakistan needs to bring radical reform to the uplift the public sector and to improve the economy, therefore, they need to reengineer the current processes and take help of the latest updates in the field of technology and innovations. Moreover, there is a strong need to improve the HR practices and utilize the strengths of available human capital as well as to develop the human resource. In addition, the ICT should be improved along with the aggressive development of E-government to facilitate the citizens as well as to create a culture of efficiency with a focus of reduction in level of corruption. When the citizens receive satisfactory services from the state-owned enterprises and a public sector as a whole, it will improve the performance of government and eventually the economy of Pakistan (Afreen & Khan, 2009). So far, since the establishment of
Electronic Government Directorate (EGD) in 2002 under the Ministry of IT, Federal government of Pakistan), only 15 projects have been completed including; hajj services automation for Ministry of Religious Affairs (online processing of applications, fast tracking, and database management), automation of Secretariat (Prime Minister’s), online live coverage and E-enabling of senate and national assembly, Security and
Exchange Commission of Pakistan’s (SECP) introduction of online services, state office, Urdu software, website of District Bar Associations, e-enabled patents office, website for press club, ATMs, and other websites and 19 projects are under implementation (EGC, 2013). A five years plan was developed in 2005 by EGD 178 nonetheless, it has been expired in 2010 and yet they have no other plan till date.
According to the UN E-Government survey, almost every country across the globe are putting efforts in development of E-Government and utilization of ICT and other technological application to improve services quality and efficiency. These tools are used for streamlining the efforts of government and for sustainable development.
Pakistan’s efforts towards E-Government are currently ranked 156th in 2012 whereas in 2010 it was ranked 146th worldwide. A reason for such a weak position in the survey was reported due to lack of understanding of ICT as well as flaws in education system.
However, one of the commendable efforts of Pakistan in the survey was of the introduction of chip-based passport that makes Pakistan the very first country in the world for the use of such an advance technology known as Multi-Biometric technology.
This effort of Ministry of Interior with the support of National Database and
Registration Authority (NADRA) has been appreciated worldwide and has started a new trend (United Nations, 2012).
Pakistan being a developing country has struggled economically. To bring efficiency and effectiveness, government has initiated several plans and initiated reforms. Some reforms are self-initiated whereas, several are forced by donor agencies.
These reforms are initiated at macro as well as micro level. Reforming public sector is a positive sign of progressing nation. Therefore, Pakistan’s public sector is showing progress towards economic stabilization.
4.3.Police Reforms
Police is a law enforcing agency. Ever since the inception of police department, it remained an autocratic organization (Hale, 2005). Initially the role of police was to fight and control crime, however, this role has been changing because the society required
179 democratic role of police and policing (Celedor, 2005). Police reforms are commonly initiated in developing countries (Goldsmith, 2005). As an autocratic organization, working under the bureaucracy and political influence, it has been a difficult task to initiate reforms in police department. There are several issues in police department including; trust (Goldsmith, 2005), corruption (Hollyer & Wantchekon, 2014), political manipulations (Abbas, 2011), capacity of police officer (Anderson, Litzenberger &
Plecas, 2002), old and manual systems (Chan, 2007). Lack of funding and weak infrastructure has been a challenge to bring reforms in police department of Pakistan
(Abbas, 2011). It has been reported that controlling corruption in police has been one of the biggest challenges in Pakistan (Jackson, Asif, Bradford & Zakria,2014; Moran,
2002). Moreover, the fight against terrorism required police reforms in Pakistan (Perito
& Parvez, 2014). However, in the presence of above stated issues/challenges, the efforts towards sustainable reforms in police department faded quickly. Hence, the accountability of police and police department has been in question (Walker, 2012).
Thus, governments in developed world has adopted the NPM approach to bring reforms in their respective police departments (see for example; Kanetkar, 1978; Leishman,
Cope & Starie,1995; Ritsert, & Pekar, 2009).
Reforms in security sector are mainly aimed at reducing political interference in police and other law enforcing agencies, providing adequate resources to ensure efficiency and effectiveness, improve the mechanism to ensure citizen’s rights through policing, and institutional upgradation to improve performance and ensure accountability mechanism (Wulf, 2004). With the help of police reforms, the citizens are protected from corruption, violence and police harassment (Grindle, 2004).
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Since the last decade of 20th century, police in Pakistan has become political puppet
(Suddle, 2003). Key problems with police in Pakistan included; negligence from police officers, incompetence, lack of responsiveness, inefficiency, misuse of power and corruption (Suddle, 2003). Pakistan being a country affected by terrorism since 2001 has built up immense pressure on the security agencies. A country facing both internal and external security challenges has to rebuild its security agencies so that the trust of citizens can be rebuilt. Those war affected nations have faced the challenge of politicized police and corrupt system (Neild, 2001). Abbas (2011) reported the need for efficient system in Pakistan’s police, capacity building, control over corruption, adaptation of latest technology, improved coordination and democratic policing. Thus, there is a need to establish a stabilized, democratic police system, introduction of audit and accountability, measures for performance and adaptation of latest technology.
Hence recreating the whole police system.
Police in Pakistan is unable to cope with political interference. Moreover, there is lack of infrastructure and also lack of technology, corruption is at peak, lack of training and capability, therefore, there is strong need to bring reforms (innovation and traditional) in the entire system (Abbas, 2011). Over the years, provincial government of KP has increased the portion of police in budget spending, however, there has been no change in the performance of police (Mustafa, 2012). Police reforms gained attention of provincial government and several steps were taken in the recent past. KP is a war-torn province which is affected severely by the terrorism. Thus, the government focused on capacity building and reforms. Police job is very risky and stressful, particularly working in law enforcing agency of a province that is facing sever threats and security challenges due to terrorism. Hussain (2014) conducted a study on police
181 officers of KP and concluded that they are facing stress, anxiety and sever level of depression. Under such conditions, the job of police become more challenging.
New public management (NPM) can be useful in police reforms in Pakistan, however, the NPM driven reforms should be cultural and institutional specific (Den
Heyar, 2010). While reviewing the reforms in Police, it was a provincial matter. Police departments in Pakistan are working under provincial governments while the police in
Islamabad (capital of Pakistan) is working under federal government. Thus, the law enforcing agencies are governed under the provincial government and is a provincial matter.
This study being based on organizational change/reforms through NPM, therefore, after a brief study, it was found that notable organizational changes are brought into driving licensing authority (Also known as CDLA) working under Khyber
Pakhtunkhwa Traffic Police (KPTP). Therefore, CDLA was an ideal case for investigation. Section 4.4 presents the case of CDLA in detail.
4.4.Case of Computerized Driving Licensing Authority
In Pakistan, every province and capital have their own driving licenses issuing authorities. They issue driving license for every type of vehicle’s driving license including; motorcycle, motorcar, jeep, light transport vehicle (LTV), heavy transport vehicle (HTV), and international driving license. As per Motor Vehicles Rules (MRV),
1969 of Motor Vehicles Ordinance (MRO), 1965 notified under notification No. T-
9/225-65, dated 1st September 1969. According to this legal document, the issuing authority shall be superintendent of Police (SP) or any gazette police officer nominated by him or additional SP of a division of district. Whereas in district Peshawar, Khyber
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Pakhtunkhwa (KP) the licensing authority rests with Assistant Inspector General (AIG) of police. In accordance to the legal document, every province and federal capital constituted a department or sub department under the MRV. In KP, the driving licensing authority has been setup under the Traffic Police in each district and provincial capital.
Services provided by this department includes; issuance of learner’s permit, conduct driving test, conduct medical fitness test of applicant, issue driving license, renewal of driving license, license conversion, and issuance of international license.
The process was manual and lengthy. Citizen visit the office of traffic police in district or provincial capital. The process started with receiving a copy of application form (to be filled manually) and attaching the National Identity Card (NIC) copy, pictures and fee deposit slip. Fee on a specified challan form was to be submitted in the specified bank branch which was outside the premises of traffic police office and in most cases at distant location. Then the citizen has to receive a medical certificate from the doctor in the hospital located in police lines. After completing these requirements, service seeker returns to the office of traffic police and submit the form along with all required documents. The traffic clerk receives the information and record them into register manually and Motor Licensing Authority (MLA) after verification issues a manual driving license. This was a very time consuming and long process with chances of many errors and issues associated with record as well.
This practice continued for decades since independence until in 2004 the provincial government decided that all the services related to transport shall be handled by transport department. However, the transport department in KP was not functional and had no sufficient resources to takeover various activities which were currently managed
183 by other departments of KP. Thus, due to insufficient resources and limitations of operational capabilities, there were so many observations and questions raised by the other stakeholders. Therefore, despite the decision of provincial cabinet, traffic police as well as others continued operations. The process was manual, scattered, lengthy and time consuming. Similarly, there was lack of efficiency and complaints from clients.
Moreover, there were many limitations of the current system. Issue of record, application and reporting were also evident. Issues related to Human Resource (HR) and cards issuance were found by the government. Thus, government decided to reengineer the whole process and introduce a standardize, IT based one window operations for issuance of driving licenses.
In 2005 Directorate of Science and Technology (DOST) developed PC-1 (Planning
Commission-I) for a project under annual development project (ADP) to develop driving license management system and digitalize the whole process (computerization of driving licensing), ADP No: 836-30836. This project was approved with initial funding of Rs. 22.7 million which was later increased to Rs. 68 Million. This ADP was sponsored by department of science technology and information technology, executed by directorate of information technology whereas the operations were approved towards directorate of transport/ traffic police. The objectives of this project were to provide better services to citizens, efficiency, smooth the whole process and bring transparency (PC-I). furthermore, the ADP aimed to link all districts under one system so that fake licenses can be controlled, and renewal can be made possible from anyplace, and to improve the revenue generation. A project team was sent to traffic police officials for this purpose. Initial project team comprised of management information system (MIS) manager, network administrator and database administrator
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(DBA). The approved project team under this scheme also included 48 computer operators and in total 54 project team members.
Project team collected information regarding the process of manual system and studied MRV. On the basis of the previous process step by step and processes, a software was designed (see figure 3-6) In two rooms, the hardware was installed and on pilot basis computerized learner permits were launched in the provincial capital
Peshawar. This was one window operations and all process were carried out under one roof, thus, overcoming the long and lengthy process of previous system (see figure 5).
The card was also computerized and printed on PVC card with RFID chip inside.
During this course of action, software and the whole system was tested and after six months of parallel system where computerized system was functioning and simultaneously manual system continued as well. After the successful first phase, in
2008 the manual system was stopped and the whole process was converted into computerized operations. By 2011, all 24 districts of KP was computerized and manual system was replaced by IT based digital system. One window operation has been setup and functioned effectively and efficiently with the objective to provide ease to the citizens.
As per the decision of provincial government cabinet dated 11th August 2004, all transport related function shall be shifted to transport department. However, despite the decision of cabinet, computerization of driving licensing project was initiated at traffic police offices in each district. Hence, as per decision of KP government, it was supposed to be a function of transport department whereas the issuing authority as per
MRV was of traffic police. keeping in view the feedback from all stakeholders of provincial government, it was decided to revisit the decision and devise a plan of action.
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In September 2008 transport department was established as per rule of business (1985), government of KP. Since 2004, the interdepartmental conflict between transport and traffic department started to increase and it reached to the peak over the years. This indicated a power struggle between two department. The reasoning and justification.
As the ADP was approved from DIT and DOST which resulted in high revenue generation. This lead to a successful project and afterwards, it was obvious that every department would like to show growth. ADP continued till 2012 and the project ended in traffic police the same year. Several times there has been amendments in MRV and rule of business but the conflict between these two departments were never ending.
Additionally, cases in the high court, justifications of legal forums, provincial level, secretary level and at top level continued but no resolution over the authority of issuance of driving licenses.
In 2012, a meeting was conducted for the transfer of motor driving licensing authority from traffic police to transport department. However, DIG traffic police strongly opposed this idea with logical arguments. Thus, there was disagreement and hence decided that DIG traffic and director transport will prepare a roadmap for that purpose. Moreover, it was also decided to transfer ADP project to transport department with an extension for next two years. Home and tribal affairs department issued a letter to the concerns (reference No. SO (police)/HD/1-6/2012) on July 17th, 2012 with instructions for handing over all project assets and resourced generated under the project. Another letter (No. DIR/TPT/BDU/CDL/1734-38) was issued with directives to extend ADP and transfer it to transport department. Therefore, the ADP project along the project staff moved to transport department. Regardless of the transaction, traffic police continued issuing driving licenses and at the same time the transport department started issuing all types of driving licensing by using the same software and same 186 system. The project staff moved to the transport department and traffic police announced regular vacancies in their own department for CDLA (computerized driving licensing authority). The regular staff replaced project team. 24 MLA, 1 DBA, 18 senior clerks, 33 junior clerks and 76 constable computer operators took charge of CDLA and were working throughout the province. Thus, the organizational structure was revised to adjust hierarchy of CDLA staff and connect them to the traffic police (see figure 8-
9).
Learner Permit
Start
Applicant
Takes token and Submit fee for Goes to token wait for his/her licence counter turn
Takes picture of Capture Thumb DEO enters basic applicant through through integrated information of integrated camera. device applicant
Print learner Approval from Issue learner End permit MLA permit
Figure 3: Learner Permit Process
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By the time project moved to other department, the driving licensing authority was well established and self-sufficient, therefore, without any financial constraints they continued operations. At the end of 2012, shifting of CDLA project took place, however, the resources were not shifted. In a meanwhile, in 2013 the amendments in
MRV were de-notified by home department and the traffic police department was instructed to immediately stop CDLA. Further amendments were made in MRV in 2014 to accommodate director transport as an issuance authority.
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Driving Test
Start
Applicant
Submit fee for Waits for his/her Takes test token MVE takes test driving test turn
Results submitted Give another date Yes Passed? No to computer center for test
Officer assign Applicant submit Submit the slip to Send for printing licence collection driving licence fee officer process date
End
Figure 4: Driving Test Process
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Licence Issuance
Start
Medical Information
Start Applicant
Submit fee for medical
Applicant
Take token for Submit fee for license issuance medical
Take token for Present token to medical officer
Applicant examined by DEO enters doctor receivers information
DEO enters medical information Issue licence
End End
Figure 5: Medical Test Process and Driving License Issuance process
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Licence Printing Process
Start
DEO enters applicant information
MLA verifies
Yes Verified? No
Add licence to Add licence to printing que disapproved list
End
Figure 6: License Printing Process
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Card Counting Module
Start
Printing operator counts cards
Enters necessary information
Verifies cards No balance
Verified?
Yes
Generate Report
End
Figure 7: Card Counting Process
The conflict between two departments of provincial government started in 2004.
After 13 years of issues in relation to the issuance of driving authority, this issue has
192 finally resolved in 2017. According to the notification No. SO(Lit)16-1/2016-17/Main
File dated 22nd February 2017 an amendment in MRV was notified by provincial government. As per this amendment driving licenses as well as international licenses for heavy vehicles and public service vehicles shall be issued by transport department while the rest shall be issued by traffic police.
This organization has been through so many phases. For decades operating with lengthy, scattered and complicated processes and within year the whole process was reengineered into one window operations. From manual to an international standard, IT based, and transparent system. Moreover, change itself is not an easy task and there have been many stories and many experiences of permanent employees, project team and management. There has been tremendous increase in the revenue and there are so many issues since 2004 till 2017. Although this organizational change in CDLA is declared as one of the most successful initiative of provincial government, yet it has to be evaluated to understand what makes it stand apart. during the change initiative has to be explored
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Figure I: CDLA old & New Customer Services Old Driving License Issuance Process
Visit to Traffic Police office for collection of Form Form Verification, Interview, Driving license issued or case Appear for driving test rejected
Visit to District Hospital for Medical examination and Issuance of learner license certificate
Visit to designated bank Form and pictures attestation Form and documents branch for fee submission from public service officer sumission
Reengineered License Issuance process
Customer visits District One Window Traffic Police office Operations
Driving Test (Pass/fail) For Driving License data entered into database Submit fee and receives Submit fee for test and token from the Bank Window Medical examination (fit medical and receives or unfit) data entered into token from the Bank Driving License Issued or database Window gives another date for driving test
Wait for his/her turn in the waiting area within Process ends here. one window Takes print of learning permit, signed by officer and issues
Visits DEO’s table and enters basic information and thumb impressions into computer against the token number Visits the picture booth for digital photograph
Figure 8: Old Vs New Process
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DIG Traffic
PA SSP Traffic
SP Traffic
CDL DSP DSP/HQrs DSP Cantt DSP City Section Hayatabad
Figure 9: Organogram Traffic Police
Database Administrator
MLA
Senior Clerk
Junior Clerk
Constable Computer Operator
Figure 10: Organogram CDLA
Organizational change in CDLA has its own unique features. First, it is considered as a pioneer reform initiative in the province of KP. Second, it is considered as the most modern and technologically advanced reform initiative. Third, CDLA functions under the police department, therefore, it is interesting to understand reforms in law enforcing 195 sector. Therefore, based on the facts that CDLA has undergone through all the stages of organizational change, being the pioneer initiative with respect to reforms, being a different type of an organization (police and associated departments are rarely studied in past), and being the technology driven organization are all an interesting feature with the essence of NPM to select CDLA for research purpose.
4.5.Conclusion
Reforms in Pakistan are evident from the overview above. These reforms were initiated various sectors, different phases and various years. It shows that positive steps are undertaken to improve public sector of Pakistan. The longitudinal development in police and CDLA shows similar initiatives in public sector of KP. The case of CDLA was investigated in detail and in-depth for this research. Findings of the investigation are presented in chapter 5.
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Chapter 5: Findings and Analysis
5.1.Introduction
To accomplish the research questions and purpose of research, data was analysed and the findings of research were based on the research questions. Keeping in view the in- depth nature of this study, finding and analysis was spread over series of chapters. The first research question was how changes are initiated in CDLA, police department of
KP? This was an important research question to understand the process of organizational change in public sector of Pakistan. The find the answer of this research question, narratives of the respondents were utilized. Moreover, secondary data was also used to elaborate the process of change initiation. Section 5.2 reports the findings and analysis with respect to first research question.
The second research question was about the success factors and types of changes brought into public sector of Pakistan. A thematic narratives and thematic analysis were used to find answer to these research question. Section 5.3 of this study presents findings and analysis of second and third research questions. Similarly, a part of these research questions is also presented in section 5.6 by using thematic networks.
In order to understand the experiences of employees working in public sector, third research question was How organizational changes are experienced and interpreted by employees of CDLA? Section 5.4 of this study presents the analysis and findings of human aspect of organizational change, their perspectives and experiences of organizational change. For the analysis of third research question, narrative analysis was used. Moreover, the analysis and findings of forth research question i.e. What are
197 the characteristics of NPM adopted in organizational change initiatives? has been presented in section 5.5
Section 5.6 of findings and analysis is summarizing, verifying and presenting the overall findings of this research study by using thematic networking technique.
5.2.Organizational Change in CDLA
The drive of public sector reforms in KP started in 21stcentury. Since independence, organizations in public sector were administered with the rules and laws of 18th and 19th centuries (as a part of British colony). The traditional public administration practices and dependence on manual system was practiced across the board. However, the external environment and public-sector trends were changing from public administration to public management. In KP, PSR initiatives started with the successful episode of organizational change in the project, “Computerization of Driving
Licensing” launched at the KP traffic police in 2006-07. Therefore, this change initiative serves as a pioneer and role model for the rest of the initiatives. Over a half century, public sector remained unchanged and there has been no major reform effort.
Over the years public sector of KP remained dependent on old and outdated manual operations. For every process in every department/organization, register and file system was used and the whole system was dependent on manual operations.
“Change was very necessary at that point of time because it was an absolute and obsolete manual system where finding individual record in register was very difficult. Technology was changing and so was the practices of private sector. It was the need of the day and demand of the citizens for quality and standard services” (KPTPM01).
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Keeping in view the shortcomings of the current system, demands for better services by citizens and the globalized shift in technology forced the KP’s government to upgrade and redefine their processes and systems. In public sector, change is a difficult task. Not only difficult to initiate but also difficult to successfully implement.
The legal aspects, political aspects, bureaucratic factors, culture and other human aspects are all the odds working against the successful implementations of organizational change in public sector. This chapter discusses the change initiative from different aspects related to change; the drivers of change in public sector of KP, Role of stakeholders, approaches to change, underlying limitations and constraints, and objectives of change. The detailed explanation of the whole process (as reported by the participants and reviewed documents) is explained below.
5.2.1. Process of Organizational change As discussed in the literature, organizational change is a complex process and bringing change in the public sector is most difficult. In the case under investigation change was planned, approved, implemented and executed by different stakeholders which justifies the claim of the complex nature of change in public sector. In 2006, the project was proposed under ADP by the Directorate of IT. The project proposal was approved by provincial government and fund was released to the Directorate of IT. Aim of this ADP was the computerization of driving licensing. At that time driving license was issued by traffic police under Motor Vehicle Rules (1969) and Motor Vehicle
Ordinance (1965).
Directorate of IT appointed project team of three members i.e. Manager MIS,
Database Administrator and Network Manager. They were appointed specifically for this project under ADP’s approved vacancies. After their appointment, they were
199 instructed to go to traffic police headquarters in Peshawar, the capital city of province.
There was no proper correspondence, communication between these two departments regarding the project nor were the traffic police informed about the arrival of project team for the transformation of current manual system of driving license issuance.
Similarly, the project team was not equipped with the proper knowledge nor were the planning formalized.
“We asked him that how will we start our work because that is a new organization for us and we know nothing about them nor we know anyone in that organization so how will we work” (PMI04).
This indicates the lack of involvement of project management team during initial planning phase. It shows the gap between planners and implementers of organizational change in KP.
“Basically, it was initiated by IT department… Directorate of IT. We were recruited by them. We went there. We were recruited and we went there and we were sitting in the Directorate of IT without any work for almost a month. I am talking about the year 2007” (PMI07).
With limited knowledge, work experience (particularly lacking experience of public sector) and being young they were not clear of how to proceed. However, they arrived at traffic police head quarter and met the head of traffic police. After the initial discussion in the meeting with top management, they agreed in principal and approved the launch of project with commitment of full support.
“I think the project was undergone little slowly because of the problem which I told you but at that time our secretary ordered us go to traffic police authorities, meet them and just start your project (throat cleaning) so don’t waste further time. It has been delayed for long time” (PMI07).
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The slow start of project was evident because project team was not completely aware nor guided on how to proceed with the implementation of project. Moreover, they were not aware of the culture and environment of KPTP.
5.2.2. Initial Approach to Organizational Change Initially, the project team used to visit the traffic police office and had no office setup to start the project. Upon request, they were assigned two rooms to start their operations and install the hardware. The major constraint was how to initiate and from where to start the process, thus, it was decided to understand the existing process and design a way forward. The limitation of the project team was that they were not aware about the system under practice. Therefore, the limited knowledge of the process and procedure was a major barrier in the beginning. As an external stakeholder, there were complications in understanding the organizational culture.
“we started going there and we use to sit there every day for the whole day. Without any reason because we had to learn things and understand everything. In the start, because they also had to know about us as they were thinking who they are and what are they doing here and from where those private people have come from and all that (laughing). All this meet and greet and all continued for one or two months, as it was very amazing part and fun time. We were like strangers and the comments were very funny that they made about us. It was a strange time” (PMI04).
Moreover, the process of gaining access to the information was made difficult by the lower management’s non-cooperative attitude. Afterwards the top management brought into picture to ensure support and clearly communicate the commitment and intension of top management towards organizational change.
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“High-ups of the police department were in top management in favour of reforms and they were willing and supporting to bring organizational change. They wanted a new system where everything is available through a single click solution, but the current manual and register filing system that was in practice since 1947 so the change wasn’t supported by anyone. However, slowly and gradually we took initiative and if I guess in September 2007 we started working and introduced issuance of learning driving permits” (PMI01).
Thus, the formal process of understanding the manual process started. Before initiating any organizational change, it is always very important to learn about the existing system, process, structure, culture and working conditions.
“Afterwards we met other people SSP traffic, DSP, MLA means motor licensing authority. We meet all these people and gathered information, manual information about all the process about how manual driving licenses are issued, medical test, each and everything in the process, manual information, manual procedure which were they following in the issuance of manual driving licenses. We acquired all the information” (PMI07).
Although the project was approved for transforming manual system into computer based and upgrade the whole process into one window operations but there was no pre-planned software nor any infrastructure. Therefore, software development, process designing, hardware installation, standard operating procedures (SOPs), role identification, planning and initiating one window operations (under one roof) were to be done all together.
“we came there and gather all the information we installed our software, hardware and each and everything…It started in July 2006 so that was around February, March 2007 and we were not yet in a
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position to launch new process…Motor vehicle ordinance 1965 was the bible for driving licensing and we had it. It was having all the procedures in it each and everything forms and we also took information from the already existing staff. So, we developed a consolidated; software, hardware and we requested them for two rooms one server room and one for one window operations so they allotted two rooms so one room was a large one where data entry operators used to work and the other room was used as server room printing room as well as managers office. We did all the arrangements in those two rooms installing hardware networking establishing server hubs” (PMI08).
Understanding the culture of organization is difficult process. Simultaneously, getting adjusted is another issue. The slow-paced start of the project shows that data collection and getting to know the process is difficult.
“See implementation is the most difficult task. For implementation, aaaammm moving system from one process to another is the most difficult thing to do. We sat together and developed SOPs. Implementation (throat cleaning) we said SOPs are the way forward and we have to follow them. It was decided that we cannot change ummm bring change in one go so we shall move step by step. It was decided that phase-wise is the best way to implement” (PMI06).
After initial approach and gathering of relevant information, the software development was started and at the same time infrastructure development was initiated.
During this course of action, the manual and existing system was in practice and services were provided to the citizens by issuing driving licenses through MLA in the whole provinces.
5.2.3. Pilot Phase Before the inauguration of new system and process, it was necessary to pilot test it. Therefore, it was decided to launch a pilot version in the traffic police
203 headquarter at the provincial capital. As discussed above, the operation started in the setup of two rooms.
“In the beginning software was not developed and we suddenly got under immense pressure that show some concrete working. The prototype was not ready. We went into the state of uncertainty. Anyhow, we were able to launch the learning permit first. That was the first live prototype and we started issuing learning permit. It was tested for about three months. We couldn’t launch full-fledged system at once because it was a system which was not tested and it was custom designed. There were chances of bugs and all that. Three to four months, the system had to take printed photographs of the clients” (PMI07).
It was necessary that before the launch of new system, it should be tested and checked for any improvement as well as for the possible shortcomings. Initially, only one function of the driving licensing i.e. issuance of learner permit was started at only one office among the 24 districts of KP. While at the same time, the manual system of issuance of driving license continued to operate in parallel to the one window operations.
“In computerization, there are two approaches 1) direct and 2) indirect approach (parallel approach). In direct approach, you move from previous system to new system directly by removing the manual system at once and replace it with computerized system. Whereas, in parallel approach an organization continue with the manual system for some specific time period while at parallel the new system of computerization is running as well” (PMI01).
In services sector, it is important to bring change in steps. The importance of pilot testing increases because it helps you in monitoring and taking necessary actions.
The parallel approach reduces the pressure on the new system and provides space for it
204 to take its time in getting ready to replace the previous system. As in this case, everything was new, the project team came as Organizational Development (OD) consultants with no knowledge of the organization and similarly the software was custom designed for this specific purpose by software developers, therefore, it required sufficient time and space to be tested and improved. In this case, the risk was minimized and the project team had sufficient time to test, monitor and improve everything.
“We did all the arrangements in those two rooms installing hardware networking establishing server hubs and we started issuance of computerized learning permit as parallel to manual system issuance of learning permit. We run the system for a month or so and during that one-month period our software was tested to see if there are any bugs into it because off course as it was a new system therefore there must have been certain issues with the software and hardware” (PMI06).
It shows that a pilot test of any project is an important step. Particularly, when it involves technology. As new technology needs to be tested time and time again so that the desired results can be achieved.
“We couldn’t launch full-fledged system at once because it was a system which was not tested and it was custom designed. There were chances of bugs and all that” (PMI08).
After the successful launch of parallel approach, the project manager decided that the new system was tested and ready to replace the existing manual system and therefore, the manual operations in Peshawar shall be stopped and converted to new process.
5.2.4. The Launching Stage Transformation of old system was also initiated in phases. After the successful launch of pilot phase, at first the transformation took place in the traffic police
205 headquarters (Peshawar). The project was formally inaugurated and the old manual system was replaced by new computer technology-based system with new process and structure.
“After a month and a half of parallel operations, manager decided that
it is enough with the parallel system and we shall shut down the manual
system and straight away start complete computerized process”
(PMI06).
After the successful takeover by new system and process, things were settling down and eventually the day came when one window operations were inaugurated.
After the successful transformation in Peshawar office, it was decided to start converting the driving licensing process and system in all the 24 districts of KP. Step by step each district office was digitalized and the operations were converted to the modernized operations that became a benchmark for the rest of departments.
“30th August sorry 31st August sorry uhhhhh or something ohh sorry December 2007 it was when we thought we are in a position to inaugurate Peshawar License branch from our Minister Information Technology or IG Peshawar or home minister whosoever is available. So, in Peshawar, in a year or more, ummmm in 15/16 months we were in a position to inaugurate. It was a very big achievement for us because within that time we started issuing learning permit, driving test, license conversion, and we started everything with proper record and each and everything. Slowly and steadily there were issues in our record and other things but we use to resolve the issues with the help of MLA (Motor Licensing Authority). Things like developing reports on daily basis for record keeping, for example: if we issued 200 learning permits per day, a report was generated for that and attached to the learning permits and sent to the record. Clerk use to verify the list against the issued licenses
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and the required documents. Required documents included deposit slip, computer generated slip, and CNIC and it was signed by clerk and MLA after verification. Similarly, other licenses issued or renewed all record was cross checked by clerks and gradually we made the whole process paperless, not paper less but computerized and we got rid of manual register system. There were issues with the software (throat clearing) anyhow, the software just got better and now after 10 or 11 years now the software is running Alhamdullah very smoothly and it has now matured. As you know new thing takes time to get mature and we don’t need anything or any addons and there are no complaints about bugs in the system” (PMI07).
By 2011, all districts were computerized and the new system was running smoothly.
This was a successful initiative of government of KP to bring reforms by using the latest technology. However, there has been a tug of war and interdepartmental conflict between traffic police and transport department over the authority of driving license issuance authority.
The process of organizational change in CDLA comprised of several steps. Figure
10 shows the phases of change initiative. The process of transformation started with approval of ADP proposed by directorate of IT. After planning and approval of project, project team was appointed by directorate of IT and after their joining, they were sent to implement the project. The newly hired project team conducted an initial meeting with top management of traffic police. after the approval of top management, project team collected information and devised its plan of action. After all the planning process, organizational change was launched with pilot test in the head quarter i.e. Peshawar.
The success of pilot phase led to full launch and implementation of new one window operations and process. Planning, implementation and evaluation phases involved
207 several stakeholders (see figure 11). This indicates that public sector organizations have many stakeholders and their involvement vary on every stage.
ADP for computerization of driving license as a project by Directorate of IT
Inital meeting with top management of Project Team appointed Traffic Police by Directorate of IT and sent for project Information & inital data implementation to Traffic collection about the Police existing system & process Pilot Test Transformation of Peshawar Branch
Phase wise transformation in all 24 districts
Figure 11: Phases of Organizational Change in Computerization of Driving Licensing
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Planning Implementation Evaluation •Directorate of Information •Directorate of Information •Project Team Technology Technology •Traffic police •Government of Khyber •Government of Khyber •Government of KP Pakhtunkhwa Pakhtunkhwa •Project Team •Traffic Police •Finance Department •Home and Traibal Affairs •Private partners •Transport Department
Figure 12: Involvement of stakeholders at various stages
5.2.5. Interdepartmental conflict over authority Since independence of Pakistan, the provincial authority of issuance of driving license was vested in traffic police. By the virtue of related laws i.e. Government rule of Business, MRO and MVO, the SSP of traffic police was declared as issuance authority. The conflict over the authority of issuance of driving licenses started after the provincial cabinet’s decision in 2004 to convert all transport related activities and particularly the driving license issuance to transport department. However, under the rule of law (MRO and MVR) the authority remained with the gazette office in police.
Moreover, the transport department was not established and did not have operational offices in all districts. Therefore, the arguments from traffic police remained against this transfer of authority. Conflicts over the authority remained over the year and efforts were made on the legal forums, cabinet level, secretary level, departmental levels and so on but the issue remained unresolved.
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“I am talking about the year 2007. There was a conflict between transport and traffic police even at that time. Both were of the opinion that they shall be doing it and issuing driving licenses. Ultimately police had a worth and they said start it” (PMI01).
Traffic police being the only public-sector organization (in 2007) with the authority to issue driving licenses. Even the project’s initial funding was released to the KPTP.
“All the propelled things should be one and they should not be done separately. I think there should be one building and it should be named transport complex. Under one roof all services shall be provided related to transport. License, excise and taxation, route permit, emission test, and everything should be done within one building and then it will be called one window operation. It should be called transport complex. Worldwide this is the practice of one window operations but here things are different as people don’t allow this to happen. Every time same story of power and delegation. I wish there should be one window operation…Your NIC is computerized, whosoever comes they should enter through thumb impression on the gate and his record should appear and then whatever services he requires, that shall be offered to him” (KPTD01).
Transport department was established in September 2008. After the years of efforts made by transport department to shift driving licensing as per cabinet decision was blocked and the traffic police continued issuance of driving licenses. In May 2012, the chief minister of KP approved the extension of ADP for one year and decided that it shall be transferred along with staff, assets and all resources to transport department
(No. Dir/TPT/BDU/CDL/1734-38). The same was notified in July 2012 as a deadline for transfer of driving licensing from traffic police to transport department.
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“Handing over all assets, resources and staff generated under the project “computerization of driving licensing” to transport department… placing the services of MMPIs and their related staff under 36 posts created in transport department” (No. SO(Police)/HD/1- 6/2012, dated July 17, 2012).
Regardless of the decision, traffic police authorities did not agree to the transfer, despite of the fact that the APD was channelized to transport department and the funds have also been released for the current year. Hence, in 2012, the project staff moved to transport department and they started issuing driving license of all type while at the same time traffic police department continued their operations and hired permanent staff for that purpose.
It was a difficult time for everyone. Citizens did not know the authentic authority and paid visit to both offices. This confusion continued and finally in 2017 this issue over the authority resolved. The government of KP approved amendment in
MVR, 1965.
“for heavy transport vehicles or public service vehicles transport department is licensing authority while for all other vehicles traffic police shall be the authority” (Notification No. SO(Lit)16-1/2016- 17/Main File, dated 20th February 2017).
Thus, the situation was sorted after almost ten years. The authority has clarified the issue by dividing the power of issuing authority. In light of the decision, light traffic vehicles (including motorcar, jeep, motorbike etc.) are to be issued by traffic police while the driving license of heavy transport vehicles are to be issued by transport department.
Transformational process for bringing organizational change in public sector is a complex process. The case under study proved to be a long and lengthy process with
211 several steps (see figure 10). Change was not brought radically, rather a step wise process was adopted and the applicability of new system, process was tested time and time again for corrective actions. The lack of planning at the project planning stage before the approval of ADP proved to be one of the most time-consuming activity.
Similarly, lack of knowledge and involvement of technocrats as OD practitioners took time as well. In public sector, there are many forums and stakeholders (see figure 11).
For any change to be incorporated, legal requirements must be met, approval of cabinet, approval of bureaucracy and the involvement of other departments as well as outsource of services makes it a complex process. Moreover, the approach in this transformation was indirect where the project was approved under one organization, planning and implementation took place at other departments. Amendments were made to the relevant laws and there have been many departments involved in this process. Thus, reforms were made and at slow pace, in many phases, and with many issues emerging from and within this process. The complexities and motives of organizational change are discussed in next section.
5.3. The Causes, Components, Complexities and Constraints of
Organizational Change
Organizational change is usually considered as a planned change but there are many complexities and challenges (both internal and external) that test the efforts, patience, motivation, commitment etc. throughout the process. Recognizing those complexities and taking necessary action may result differently and the timing of response can be crucial to the success of those efforts. The highlights of the previous chapter were that change in a small setup of public sector in KP was not an easy task. This organization had many fragmented parts which are discussed in detail in this chapter. The
212 respondent’s experiences and narration had portrayed a broader picture of the causes for this transformation, the factors considered during change process, complexities in the reforms, and constraints evolved in the whole phenomenon of organizational change. These 4Cs are very important to understand and the lessons from these components of change can help in increasing the success ratio of reforms in public sector.
This section illustrates four emerging themes of causes, components, complexities and constraints of organizational change in public sector. The sub-sections below discuss each theme emerged from sub-theme and categories.
5.3.1. Causes of organizational change in the public sector of KP
Organizational changes are taking place at an increasing pace. Not only the private sector but also in the public sector it has increased. Transformation, reforms, change, innovation, uplifting, standardizing of services, development and many other appellations are attached to this organizational change phenomenon in public sector.
The essence of these developments may vary from case to case. Organization under discussion has also undergone through change process. It is palpable that the main reason for this reform was to transform manual operations into technology-based services “computerization of driving license” as mentioned in the project proposal.
However, this is not the only reason that an organization merely wanted to adopt latest technology just for no reason. Objectives of every reform drive are the real influential component. In the computerization of driving licensing authority there were many causes for change. In this section, the causes of organizational change are discussed as narrated by the respondents. There are two sub-themes emerging under causes of organizational change in public sector: 1) system and process, and 2) human aspect.
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These sub-themes and the categorical illustrates of arriving at categories, sub-themes and main theme are discussed in detail. The tabulation of each theme arriving from several categories is also provided in Table 9.
5.3.1.1.System and Process; A cause of change Rules of business in public sector assumed that all public-sector organizations are same, therefore, they are treated with uniformity. The system and process adopted in almost every organization are implemented through similar approach. The traditional approach did not recognize these differences until certain organizations became inefficient which led to poor performance. Since independence and development of driving license issuance at traffic police in KP, the system and process remained unchanged. This status quo system and process let to an ill organization and was recognized after decades. There were several issues of security, fraud and malpractices, documents and records and so on. An official intervention in the existing system was made after recognizing need for change. Change became a necessity because the previous system was recognized to be unproductive and outdated. As the respondents narrated their opinion about the reason for change as;
“Change was very necessary at that point of time because when we came in 2007, it was an absolute and obsolete manual system where finding individual record in register was very difficult. In register, there was possibility of…. Aarau… I mean fake entry and change of pages and anything was possible”.
“They wanted a new system where everything is available through a one single click solution, but the current manual and register filing system that was in practice since 1947 so the change wasn’t supported by anyone.”
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With the passage of time, existing system and process was not delivering desirable results. Technological advancements and demand for smart services forced governments across the globe to transform. One of the respondents stated that,
“Previous system was based on manual and register system where processes were lengthy, time consuming, scattered and full of errors”. The length of processes and steps made it very difficult task. Everything was outside the office and the clients had to tolerate and suffer throughout the process. Thus, to overcome the problems of manual system and lengthy processes, transformation of the driving licenses was planned.
Provincial government’s efforts to utilize latest technologies and adapt the changing trends led to the development of directorate of science and information technology.
The stagnant system of public sector has always remained reluctant to organizational change or improvement. Bureaucratic culture in public sector is always slow and based on reactive approach. As public sector’s intentions are not proactive because the objectives are not financial gains (Christensen, 2013). Therefore, public sector is not concerned about managing by objectives. The centralized system of public administration has many departments to manage and due to tall and long structure, decision making process is very slow (Dunleavy, 2014). The government and
Bureaucracy are always busy dealing with macro level components which results in lack of attention towards micro level. Hence, the strategies are not managing by objectives (Howard, 2015). Often managing by extrapolation or managing by crises are observed in the public sector. In the case under discussion, it was found that reforms were not pre-planned rather it was a reactive approach to the issues in the existing system. The provincial government realized this after half century. Understanding that the system is obsolete and unable to produce results. The standards set by government under the legal framework and the processes defined by provincial government were 215 no more efficient, effective and customer oriented. Nevertheless, public sector organizations are established to facilitate citizens and provide ease to them. Processes should be free of errors and everything should be transparent so that citizens realize that these services are citizen oriented. As respondent (KPTPM02) narrated;
“There were issues of decline in the revenue. Moreover, the system was unable to take the load as the demand for services increased. There were around 300 service seakers almost everyday and the manual system couldn’t accommodate this much clients. With the increase in demand for service, the current process was resulting in constant delays... There were errors in the process. The number of complaints increased and the system was unable to produce results”.
KPTPE01 highlighted the problems of manual system as;
“As manual record was managed and employee has to feed data into many registers. For example if a person come for renewal of his driving license. Now the old process of renewal was to look into register and search in the piles of registers and the person was asked to come after 5 to 6 days. If one entry went wrong it would have created many troubles because if on daily basis 200 or 300 people come for license it may raise problems, and errors were regular. One wrong entry, one duplication or wrong punching of number made difficultly in finding the exact record. Time consuming, full of errors and fraud was possible” (KPTPE01).
Continuous monitoring and improvement are very important for keeping the system up to date. However, in public sector there is lack of effort on micro level and over the passage of time the existing system and processes become inefficient and ineffective. As a result, they are unable to cope with the demand of citizens and result in delay in services. The case under discussion suffered from the same situation where the process became inefficient and ineffective. Demand for services increased and the
216 manual system was unable to deliver. Citizens suffered and complaint about the lack of productivity. At the same time, throughout the world trends were changing and standardization of services continued to improve services.
“Computer and technologies rule the present world, and this change was highly needed to move with the present world. All the developed countries are using computer systems so why not Pakistan. It was a good change it made things easy” (KPTPO02).
Technology played an integral role in the improvement of service structure and it is adopted by governments in developed as well as developing countries. Moreover, the results delivered by private sector organizations set the standards very high that serves as an external pressure for the uplift of services in public sector. Similarly, citizens are becoming aware of the latest technologies and they demand change in the processes as well. Development of the concept of public management and paradigm shift of governments from traditional public administration towards NPM played very vital role improving public sector organizations. During the last three decades, it is realized by developed countries as well as developing countries that the only solution to improve services, improve efficiency and bring effectivness in the services offered by public sector organizations is by introducing computer based systems and processes.
“Actually previous system was a manual system and comprised of register and type writer, carbon paper. It was having a problem that a citizen was suppose to go through very difficult and long process. For example; In the process to attain a driving license, he would go through different rooms and offices, then collect bank deposit slip, visit bank to pay Challan and bring the receipt and submit. All forms were filled by a classical staff manually and there were greater chances of errors… problem with old system was that it was a vary slow process and as being an individual employee in the specific section, it was very time consuming to collect receipt, interact with general public, verify documents, with record in register, entry into manual register etc, thus took longer time then required. Hence an applicant has to wait for at least ten days. Another problem was of the official and the record may
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not match with the register, or the verification officer may not be available or the record may be very old etc. Thus, that system had its own flaws” (KPTPE02).
Moreover, to reduce the lethargy of citizens and for improvement of services, it was necessary to introduce one window operations (all services under one roof). This practice helped in improving efficiency as the unwanted steps in the process were removed as well as helped in increasing revenue as well. The respondents during interviews expressed their opinions and experiences about the reasons of change with respect to system and process. In their opinion;
“Standardizing the system and facilitate the citizens. They wanted to provide ease and facilitate the clients. They wanted to upgrade because of problems in the manual system… It had every problem that is associated with a manual system throughout the country. Record was not maintained properly, it was possible to manipulate record, long process, extra fatigue for citizens and then delays in the system. Similarly process was slow and then it was very difficult to verify the record as there were hundreds of registers. Shortage of staff was another issue. There were many complaints regarding unfairness of staff in the front office. The whole world has changed and moved from manual systems. NADRA, Passport office, Excise all are using technology and it was necessary to use it” (KPTPO01).
Comparing the old system and the new system, PMI05 stated that transformation from old to new system and process helped in achieving goals.
“Previously, the system was manual and staff used to fill the forms by themselves. Challan was deposited in National Bank. People used to come in the morning at 8 or 9 and used to come back at 12 or 1 due to crowd in the bank. Then they used to come next day. It was a very difficult task. Everything was outside the office. But now, in this computerized system, all the things are done under one roof. They can 218
take print, deposit money, indeed all is done under same roof. Then they are provided with a receipt and are asked to come after few days for their license” (PMI05).
Red-tape has always hindered the system and processes of public sector organizations. Organizational culture and bureaucratic system cause delays, prolong processes and inefficiency of service delivery in public sector organizations. In most cases, public sector employees are the reason for ill-systems and processes. However,
Redtapism is created by external as well as internal environment. Employees are not the reason for Redtapism but the political system, government and the bureaucracy are the reason for it. Lack of coordination and control mechanism in internal environment makes the system and process more complex. Duplication of activates and self-created complexities hinders the smooth flow of service delivery and ultimately obstructs the public-sector employees from providing services with efficiency and effectiveness.
System and processes are not only the reason for reforms in public sector. These systems and processes are run and managed by public sector employee. Nevertheless, there were issues in the system as well as processes that led to the need for change, however, that was half part of the causes of organizational change. Processes are run and managed by employees and management, therefore, their role in the efficiency and effectiveness of any system cannot be denied. Although there were some categories that were directly associated with issues in system and processes but there are many aspects that can only be unfolded after interpreting findings of the sub-theme of public sector employees as reason for change.
5.3.1.2.Public sector employees: a cause of change The process was made complex and complicated. Over the years, the system has been manipulated and remained dependent on public sector employees. The
219 motives and motivation of these employees and management had affected the processes and resulted in inefficient sick units. Due to Redtapism, vested interest, and self-interest has reduced the effectiveness of an organization. Bureaucracy and public administration have resulted in repletion of citizens. Public sector organizations are protected by rule of law. Similarly, governments around the world has created restrictions and set of standard operating procedures (SOPs) for every step. The over cautious approach of public administration intends to minimize chances of errors but it leads to increase in operational cost, delay in service delivery and so on. A single step and process has been made so complicated that it frustrates and annoys service seekers.
Hence, red tape leads to severe complexities in an activity which eventually leads to problems of coordination and control. There are often complaints that public sector officials create complication by their own. The Behaviour which the public sees as a lack of responsiveness may be justified by officials as meticulously following SOPs and business rules. Therefore, it is difficult to argue that inefficiency of system was because of public sector employees or caused by Redtapism in public administration.
However, the lack of appropriate attitude and lack of sense of professionalism complicate a simple process. In the case under study, one of the causes for organizational change was associated with the attitude, misuse of power, blaming others and imposing authority at middle and lower level. There seemed to have no sense of urgency and none of the official tried to improve the system. Thus, both internal and external factors are found to be responsible for red tape culture. This is an important cause for change as it led to hinder the organizational goals and objectives. Nonetheless, over the years organization’s system has remained stagnant, unimproved and unchanged, therefore, employees had a role to play in making system and processes nonresponsive. As one of the respondents commented that;
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“The clarical staff and the lower management was just like a mafia. There was no check on them and they had full authority. They wanted to work or not this was their own decision. They complicated the whole processes and when checked there were so many unwanted and unnecessary steps. Those steps were not even in their bible, I mean their law book MVO and nor in the SOPs. Aaaa citizens complaints increased over the years and there were no actions until 2006. These employees mostly get regular transfers from one department to another within police, and mostly for three years. Their working habits never changed and every new employee induldge into system and became part of the system. It was so hard to break and change their way of doing work as they had no fear” (KPTPM02).
Arriving at category and sub-theme in relation to the above discussion was very difficult task. It was found that both system and employees are cause of similar output.
Similarly, the decision that was it external or internal factor responsible for Redtapism and simultaneously the decision to decide whether it was bureaucracy or government,
SOPs or employees the real reason. After analysing the responses and the narrations of every interviewee it was found that system as well as employees both were the root cause. Therefore, this category of Redtapism has been placed in both sub-themes.
Another category identified from the HR perspective was of vested interest of public sector employees. One of the major reasons for the computerization of driving licensing was to control the financial elements. Because of the vested interest of employees, there was numerous cases of fake driving licenses, manipulation of record in register, and other monetary gains were common in the manual system. As one of the respondents narrated that;
“Every employee was having a mentality that within 1-3 years span that they will spend in licensing, they will make around 10 million Rupees
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and will go home. This was their motive and an additional source of income” (PMI03).
Similarly, National Accountability Bureau (NAB) also investigated the issues of financial gains. The involvement of NAB indicated that there were issues reported regarding the vested interest of employees in driving licensing. As (PMI05) started that;
“There was vested interest involved and that is why NAB had raided this office but they were not learning from it as their brain was working only in one direction to earn more through bribes and corruption”.
Principal-agent theory and the values of public administration focuses on the parameters of selflessness, integrity, objectivity, accountability, openness, honesty, and leadership. Public sector employees are believed to be honest, however, there was lack of honesty reported which caused organizational change. The integrity of public servants was at stake and several complaints were received by the management regarding misconducts, malpractices, lack of lawfulness and lack of selflessness. In the absence of accountability and control mechanism, there are opportunities to exploit their power and position.
“Because NAB investigated the issue of corruption and the manual system was so badly managed. In register, its your page but picture is of someone else, you are holding license of Motorcar and Jeep whereas, in register it is LTV. You paid the full fee but government had no record of your fee submission. That money was going to the pockets of staff as they were having the stamp and they issued license without fear and put money in their pockets and by the end there was no revenue record in account of government. Cards were issued like that and that was a real concern for the government” (PMI01).
Similarly, another respondent (KPTP01) stated that;
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“They are the people who only know their self-interest and they don’t even care even if that’s their own brother. When someone among them is caught or in trouble, they don’t look back at all and they run away from there”.
To overcome these issues, it was necessary to bring reforms. Public sector organizations are slow in responding to these issues and it was noticed in this case as well. The causes of organizational change were imminent to respond.
Table 9: Causes of Organizational Change
Main theme Subthem Category Code Data extract e Causes of Issues in Problems of System “record manipulation was organizationa system & manual unable to easy… fraud… it was l change processes system respond to lengthy process… registers the were used… resulted in increased misplacement of record… number of no match found in most applicants. cases…fake entries… duplication of record… missing record… unwanted delays… long queues… Use of IT Global system was unable to meet change of the demand” technology
“since independence relying on manual and register system…directorate of IT established to utilize latest technology… ease for customers… transparency of the system and process… citizens facilitation… adaptation of latest technology was necessary to meet the demand of quality services… to improve efficiency, effectiveness and citizen service” Internal & Lack of “system was ineffective and External system’s inefficient… problems with Pressure capacity & manual system…increase in change in the number of citizens for technologica driving licenses…fatigue l awareness due to long and isolated processes…citizens
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awareness about technology…services efficiently offered by NADRA and Passport office” Need for One Lengthy, “the process was window time lengthy…and time operation consuming consuming where the citizen and has to move around a detached lot…bank was far away to process deposit challan steps fee…medical examination at police lines hospital… driving test at other place…verification and attestation at other offices…too much travel and fatigue” Inefficiency Unwanted “System was not of the & delays and standard…delays in the ineffectivenes steps process…record s manipulation…there was no accountability…increase in complaints…rapid increase in the demand for driving license…no capacity to respond quickly…workload… no proper directions for the clients…decline in revenue…increase in fake entries and no record matching” Redtapism Self-created “System was not following complexities the complete procedure… in the process was made system and complex…for every step processes there were confusions for the citizens…created a monopoly…hurdles and numerous unwanted steps in the process” Issues Redtapism Rigidity and “The employees in public with self-created sector made the system public flaws to paralyzed…it was made sector increase complicated…many employee dependency unwanted steps…mafia…internal and external factors created hurdles…the simple job was made extremely difficult…not following sops”
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Vested Lack of “everyone works for his interest and fundamenta personal gains…almost self interest l ideology of everyone wanted to gain public financial benefits through sector unfair means…no one knew their moral and legal duty…personal motives…not working themselves nor letting anyone work…monopoly…paralyze d the entire process…mafia…money making machine…no accountability…lack of responsibilities” 5.3.2. Components of Successful Organizational Change
Success of organizational change depends on several elements. It requires synergy at every step. In the case under discussion, change was designed to transform the process, however, the change was not limited to process only. As discussed in the previous chapter, there was system-oriented change, process change and people- oriented change. To ensure the success of reforms, it is important to carefully plan, lead, manage and maintain organizational change. Therefore, it will be unable to work without clear vision, mission, strategy and values. In order to make change an effective change, it requires understanding of what to change, why to change, how to change, and when to change. Therefore, involving internal and external stakeholders, open communication, leadership, and management team’s role is essential.
The first step taken was to understand need for change. In the previous heading
(causes of organizational change), it was evident that the top management and provincial government well understood the cause of change and need for transformation. The next element was of planning. In previous chapter, it was found that planning was not through third party i.e. Directorate of science and Technology as a project under ADP. However, this planning was incomplete because the ground
225 realities were different and the organizational internal stakeholders were not aware about the planned change. Project team met with AIG traffic police and briefed him about the intention and took permission for the implementation of computerization of driving license project. Hence, it has been revealed that internal stakeholders were not involved during change planning. As an essential component of organizational change, planning phase did not involve the leadership and management, therefore, they had to face challenges. The respondents narrated the start of implementation as;
“We went there and no one showed any interest nor was bothered about that. No one gave us time and none were willing to even talk about it. Today, come tomorrow, come day after tomorrow. Boss is not available, PA to boss is not available, his PS is not around, the one who is having the book is not available, this was the daily story and routine. Anyhow, time passed and then finally we had a meeting with the boss and he said, that all right, you start working” (PMI02).
Lack of interest by the employees of CDLA was apparent. Delaying tactics and lack of support with excuses were the responses that the project team faced. After some time, a meeting was fixed with top management. As narrated by one of the project team members;
“Meeting him for the first time was a bit difficult because of his schedule and all due to his commitments and meetings but thankfully we got an opportunity to meet him on the very first visit. Then after that slowly things got settled and we got approval with his support and we started going there and we use to sit there every day for the whole day. Without any reason because we had to learn things and understand everything. In the start, because they also had to know about us as they were thinking who they are and what are they doing here and from where those private people have come from and all that (laughing). All this meet and greet and all continued for one or two months, as it was very amazing part and fun time. We were like strangers and the
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comments were very funny that they made about us. It was a strange time” (PMI03).
At planning stage, there was no involvement of top management nor any representation from the department, where it was planned to be implemented.
Moreover, it was not even clear that the implementation will take place at traffic police or at transport department. As the project team member stated that;
“There was a conflict between transport and traffic police even at that time. Both were of the opinion that they shall be doing it and issuing driving licenses. Ultimately police had a worth and they said start it” (PMI05).
Another key element of the successful implementation of organizational change is the leadership and their support. Every individual interviewed confirmed that leadership was motivated and they were supporting this reform initiative. The commitment from leadership is key to success and this was evident in this case as well.
“High-ups of the police department were in top management in favor of reforms and they were willing and supporting to bring organizational change. They wanted a new system where everything is available through a one single click solution, but the current manual and register filing system that was in practice since 1947 so the change wasn’t supported by anyone” (PMI01).
Not only one employee praised the supporting role of top management, rather almost every individual working during that particual phase narrated positive experiences.
“Top management was the person who was very much understanding and if there was someone else in his position then this wouldn’t be possible. It happened because he understood and knew what we are doing and how it will happen” (PMI05).
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Thus, it indicates that top management support, commitment, vision and will are very important for the success of reform initiative. The person sitting in leadership role has to play the positive role that lead to the successful implementation and goal attainment.
“Leadership must be on your side as their role is very important in brining change in any organization. If leadership is not on your side then you cannot bring change. Because we were like guests in the organization and if the elders of that home are not on your side then you cannot even enter that home without the support and permission of the boss. Working in other organization, going there and then bringing change was itself a challenge. The support of leadership, constant meeting the boss, and being on the same page was very crucial. Without that, we don’t think so we would be able to work. If not, then we would have to wait till the leadership changes or we had to impose pressure from the top i.e. minister or IG etc. only then it would have been possible. Still that would be very difficult because how much will you accommodate us and how much will you tolerate and someday, you would yourself kick me out of that organization, but it was the big boss who remained committed and supportive due to which we made it” (PMI04).
At the functional level, there were difficulties as the project team were all outsiders (the technocrats) and it is difficult for an outsider to settle in and get things done through the internal stakeholders. These difficulties were faced by the project team members and there were managerial issues. There were no one on board from the middle management. Thus, the acceptance of organizational change initiative was difficult. Similarly, the lack of knowledge about what is happening and changing also created issues. Communication being a key component to change was lacking and there was lack of acceptability from the lower management.
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“The lower staff was not accepting change”, “lover staff was creating hurdles in implementation of change”, “employees were not supporting”, “employees were not sharing information”, “Management hurdles were there, communication with them was difficult”. These were the common statements of top management and managerial team.
This clearly indicates that regardless of the leadership support, change was not communicated properly and the lack of involvement of internal management created barriers in the implementation of change in traffic police.
Similarly, the change management team was not aware of what and how to proceed. An important factor in the success of change is that change agents had to work with clarity, vision and should understand what is happening around. The project team had no experience of change and therefore, they were not sure what to do and how to approach. The commitment and will of top management created a support for this transformation and helped in implementing change.
Table 10: Components of Organizational Change
Main Subtheme Category Code Data extract theme Planning Lack of There was no “Planning by outsiders…no planning physical survey…no data planning with collection…even project team respect to the was hired after planning…lack
organization of vision…no clarity…no of initiation objectives…no ground realities” Leading Leadership Leadership “leadership was clear…they support & positive and wanted change…they were will committed to visionary…they understood change change…supportive…always willing to get things done…fully focused on the outcome”
organizational change organizational Managing Lack of Project team “Fresh team…lack of managerial inexperienced experience…they had no skills working exposure…they were not clear…young…objectives unclear to them…no dealing with law enforcing
Components of of Components agencies…no managerial skills”
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5.3.3. Complexities of Organizational Change in Public Sector
Findings in causes and components of organizational change elaborated the approach to change in public sector organization. During both factors, it was found that there are certain complexities in change process. Thus, the respondents were asked to elaborate on the complexities that surfaced during this whole process of transformation.
Narration of each respondent during in-depth semi-structured interviews exhibited the list of complexities. With the help of their responses, category, sub-theme and themes were identified. Components of change were not addressed properly and that created complexities during change process. Organizational change is a complex process. The micro level complexities effect the behaviour and outcome of the whole system (macro level). With the increase in the complexities, planning and prediction become difficult.
Moreover, the adoptability of change also becomes difficult and problematic.
The number of processes and elements in the system leads to increase the complexities. In order to prevail in the complex system, there has to be an interaction and feedback mechanism. However, in the current situation there were no feedback and bottom-up approach. As the top management narrated;
“In police, there is a system of discipline and it is in every law enforcing agency. The order and obey system keep system intact and the top management decides and orders where the rest follow those orders. They are trained to follow the orders and there is always a rule of law that has to be enforced. Aaaa it is more like autocratic system and that is the reason of success” (KPTPM02).
The complexities of organizational change increase due to external pressure.
When the change is forced through external factors it creates chaos in the internal
230 system. It was found that change was forced change and organization was not ready to change. This led to force organization away from the equilibrium and a crises situation.
“Organization members were not aware of what is happening. When we get to know that there are some computer people coming to computerize the driving license, we were all shocked. System was running fine but the government decided to change things. Off course no one wanted to change. It was said that it will not work. The new system will not work because we (the front office staff) is not ready nor we have any knowledge of the system. So, we were informed that change will happen and those who are not aware of the use of computers will be transferred and those who wants to stay shall stay. Employees were not happy to be frank because it was something they never wanted and this changed everything” (KPTPE04).
There was centralized control and every decision was imposed. However, at micro level many complexities can be self-organized. Very limited concentration towards the micro level led to increase the complexities and reached, however, it was realized that change cannot succeed without resolving micro level bifurcations. Hence, the project team started working on all the complexities at micro level. The project staff was not welcomed nor accepted by the traffic police staff; “It was like a balloon. We had to inject ourselves into balloon without opening it or bursting it. We had to make our way into the so rigid and so complicated system that was having no tolerance or change intentions. It was a very tragic and sad story” said one of the project team members (PMI06).
Similarly, the involvement of politicians, bureaucracy and legal aspects make organizational change more complex in public sector. Within bureaucracy there is involvement of management group from provincial as well as federal level;
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“There is a lot of pressure from both of them. The role of bureaucrat is very critical. Politician on his own cannot do anything unless bureaucrat says so. If minister ordered secretary to do this task, he will say yes sir but he doesn’t do it. There is no worth of any minister’s words if the bureaucrat becomes stubborn then politician cannot do anything and that is the end of story. People say that bureaucrat runs the government and that is so true, they do. Even they will know that whatever bureaucrats are doing is wrong but the minister cannot do anything because they are CSS and DMG officers and they are posted by federal government” (KPTPM02).
Hence, bringing stakeholders on a same page is very difficult task. Therefore, the organizational change in public sector has proved to be more complicated and complex process. The complexities were not addressed in the beginning, therefore, it created problems for the project team. It took almost a year to overcome the complexities and implement the change. From the above discussion, the identified categories, sub-themes and themes were reached which are demonstrated below (see table 11).
Table 11: Complexities of Organizational Change
Main Subthem Category Code Data extract them e e Communicatio No “There were no formal meetings n gap communicatio between the n between stakeholders…communication internal & never took place unless project external team approach traffic police…no stakeholders interaction…no understanding” Lack of clarity Project team, “Project team was hired after PC1 leadership, approval…directed to approach
employees and implement change…no unclear about vision, no sharing the motive, no vision, motivation…lack of objectives vision…things were unclear how to proceed…there was no plan of
Complexities of Planning Lack action and no objectivity…just
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knew have to implement and computerize the driving license” Lack of Planning by “fund was issued and approved involvement external under ADP to directorate of IT and stakeholder & it was planned as a project… no Management of traffic police was involvement not involved…it was not decided of any internal where to implement stakeholder it…government decided without involving internal and external stakeholders”. Top Top “the idea and project were management management appreciated by AIG support intent to bring traffic…extended his full change and support…agreed to transform the transform…believed in the current vision…one of the most visionary process person ever met…firm and committed” No Culture & Project team “Project team had no experience environment was not aware of working in public sector…fresh scan of graduate…outsiders…technocrats organizational … lack of knowledge about law culture nor enforcing agency…working was any study conditions were new to of internal them…during planning there were environment no focus of employee’s readiness to change”. Forced change Change was “It was decided by third parties not welcomed and they came to inform us that by employees this is going to happen…top rather forced management was in favor…they were clear…employees were not clear…uncertain…not ready…had no option…they did not ask employees” Top down Top “Planned and decided at the approach management top…no one was aware of what is & external happening…they came and took stakeholders information from us...decided all decided and and implemented it... no exchange involved no of information, just orders” one from management and employees
Leadership Leadership’s “Top management was clear and support will and focused…they were committed to commitment change…they wanted it at any to change cost…it was the top management commitment which led to success of change initiative” Ignorance of No “No one asked us what we micro-level involvement want…employees were not kept
Implementation stage Implementation factors of employees on board…old employees and on
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at any stage, the other hand project no team…system flaws, system consideration change, process computerization…no one asked about our problems, our suggestions…only collected information about current system and processes”. 5.3.4. Constraints During Change implementation
Transforming organizations that has remained idle for longer period of time is one of the most difficult tasks. There are number of constraints faced by such organizations while it comes to the stage of implementing change. During change initiation, this organization also faced certain barriers and limitations. These constraints are associated with system, processes, resources as well as from the employees. As discussed above, there was a lack of strategy and planning which led to increase the problems of project team on how to bring change in organization and how to proceed. Planning needs concentrated efforts from the team with the involvement of management and employees, however, there was lack of involvement during planning and implementation stage. As a result, there was lack of cooperation among the project team and existing staff. There were two aspects for not cooperating; firstly, employees did not accept the change and that too of an outsider coming to instruct them, and secondly because of the lack of knowledge.
Employees were not willing to accept this all of a sudden decision;
“We were not aware of what is going on. Straight away out of nowhere the IT experts came and started asking about the documents, process and steps. We asked them who are you and they said that we are here to computerize the system. We were like ************** and we had no idea what is going on. We said it will not work, as computers were new and we had no idea so that cannot be trusted. So, we were informed that change will happen and those who are not aware of the use of computers will be transferred and those who wants to stay shall stay. Employees
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were not happy to be frank because it was something they never wanted and this changed everything” (KPTPE07).
Similarly, the project team was not aware of what are they going to do. They were instructed to go and launch a project. There was no roadmap, no strategy and no planning. As soon as the project team got approval from the top management, they started working;
“Slowly things got settled and we got approval with his support and we started going there and we use to sit there every day for the whole day. Without any reason because we had to learn things and understand everything. In the start, because they also had to know about us as they were thinking who they are and what are they doing here and from where those private people have come from and all that (laughing). All this meet and greet and all continued for one or two months, as it was very amazing part and fun time. We were like strangers and the comments were very funny that they made about us. It was a strange time” (PMI02).
Taking start of the project was difficult. With patience of the implementers and support of top management, the process started. It was difficult to get the desired information from the employees but that was also a part of learning.
“Although we were not even clear ourselves that what we are doing, how will we do it and what will be the impact of it etc. but as it was something new that we were doing so that was a motivator for us to do it and see what happens because everything was unclear to us” (PMI03).
One of the major drawbacks was the lack of clarity of project team. As they were appointed after the approval of project proposal, therefore, they were not aware of the objectives and vision of reform.
“We came from private sector, all of us and we were all new in our jobs. We exactly did not know how to proceed. If our officials went with us in the beginning then or proper documentation or written intimation was
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done from our directorate or director about this initiative and about all the support and requirements for us…So if we knew then things would have been much clear and smooth. We had no training, we were not briefed or made learn how to proceed” (PMI01).
The first interaction between project management team and lower level employees was not satisfactory. Due to non-cooperative attitude of employees, there were several issues in change initiation. Employees resisted change from the very first day. Moreover, there were delaying tactics by employees. Furthermore, it was also found that lower and middle management’s behaviour was heart breaking and demoralizing towards project team. Both management and employees were asked to share their experiences about the change process. Some of the experiences regarding resistance were;
“They were resisting because they did not want to change themselves. Simply, there was only one thing they wanted their supremacy to remain intact. It was all power and delegation of authority. A clerk has the power and authority as they thought unless they don’t stamp, no one can issue the license. Such people will resist to the last moment. They will not share the information, they will not give you the record. They will do delaying tactics. Personally, we required record so that we can design the software accordingly and they were not sharing it. They used to give us irrelevant information and documents that had no information for us” (KPTPM02).
Change was not acceptable to the employees of CDLA. It was believed that change will reduce their power and the staff will no longer be in authority.
“They were having computer phobia. we were faced with a lot of resistance, too much resistance from the clerical staff. They were thinking their vested interest will be at stake if the new system is implemented” (PMI02).
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Lack of trust on the technology was another reason for resistance. As technology brings accountability and transparency, therefore, the vested interest of employees was at stake.
“Today, come tomorrow, come day after tomorrow. Boss is not available, PA to boss is not available, his PS is not around, the one who is having the book is not available this was the daily story and routine. Such delaying tactics were used by the employees of traffic police” (PMI03).
Employees resistance was palpable. During most of the cases when change through top-down approach, there are greater chances of resistance from the lower level employees. As the employees narrated their experiences:
“Off course no one wanted to change. It was resisted. It was natural because if you come and change the way we were doing things then it will be resisted. It was said that it will not work. The new system will not work because we (the front office staff) is not ready nor we have any knowledge of the system” (KPTPE09).
It shows that status-quo was one of the reasons for resistance and the management did not work on motivation as well as on readiness to change.
“I would like to say that, change was resisted by most of the people and were of the opinion that change shall not take place. As they believed that data can be erased and lost in computer system. Because people were not much familiar with the computer technology and it was considered as an alien system, therefore, Employees were resisting and preferring manual system. Arguing further that, there is electricity and power issue in Pakistan, system may not function and it can be toasted etc. were the reasons and justifications by employees to resist new system” (KPTPE05).
Constraints were not limited to resistance to change. There is limitation of resources. Due to lack of planning at the start of project, lack of infrastructure, lack of funding, lack of human resource, issues with software were some of the major
237 challenges faced during implementation. While narrating the limitations and challenges, management expressed their concerns as;
“Challenges were that we had limited staff only 28 computer operators for the whole province and have to run the new system in whole province by this handful employees was very difficult. Limited resources, low budget was the challenges” (KPTPM01).
Limited staff and quality of workforce was a constraint in the beginning. The project team was holding responsibility of implementing change in all districts, however, due to lack of resources it was difficult to initiate change at once.
“In between there were hurdles of software and system. Because software was not ready and as it was custom made so it was not tested. Two rooms one server room and one for one window operations so they allotted two rooms so one room was a large one where data entry operators used to work and the other room was used as server room printing room as well as managers office. We did all the arrangements in those two rooms installing hardware networking establishing server hubs and we started issuance of computerized learning permit as parallel to manual system (throat cleaning) issuance of learning permit. We run the system for a month time and during that one-month period our software was tested to see if there are any bugs into it because off course as it was a new system therefore there must have been certain issues with the software and hardware” (PMI03).
Due to delays in the start of the project, the timeline was not met. Thus, the pressure was increased with the launch and inauguration date approaching.
“It was very difficult task. It was our day and night effort that took our days and nights. System crashed many times and every time we had to start over. Problem with the system and with the employees’ readiness were the challenges we faced on regular basis since day one” (PMI02).
Project started with limitations. Planning in isolation led to increase in constraints during implementation. Moreover, external members were not welcomed for change initiation. These issues were resolved with the passage of time but it has 238 given us a lesson to consider financial, infrastructure as well as human factors before implementation. Three sub-themes were reached under the theme of constraints.
Themes, sub-themes and categories are mentioned in the table below.
Table 12: Constraints of Organizational Change
Main Subtheme Category Code Data extract theme Lack of Limited “There was limited funding funding financial available for the launch of support project under ADP…ADP through ADP channeled through directorate of IT…on grounds there were differences and we had to carefully utilize
fund…requested additional funding at later stages” Revenue Revenue “It was a challenge to generation improve revenue… third was party hired to keep financial decreasing in factors transparent…challan old system fee collection started under the same roof…revenue
Financial constraints Financial increased 800%” Lack of No space to “When infrastructure start approached…permitted to operations start working…no space…two rooms allotted to start the project…limited space…not enough…started setting up” No facilities Space was “there was no furniture…no provided but AC…no proper without any counter…electricity system setup and was not proper appropriate…security of facilities server room”
Hardware & Installation “hardware was not installed, Software of software and the space provided was and setting not sufficient…somehow up hardware managed in two was an issue rooms…hardware setup and software were installed…in start pictures were taken in hard form…software bugs issues on daily basis…network
Infrastructure constraints Infrastructure issues…databases issues Lack of No “Project was approved by
Constraints H u m an re communicationso ur ce iss ue s involvement directorate of IT…confusion
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of internal about initiation…project stakeholders team was not aware…top management informed…project started by outsiders…without any communication with internal stakeholders” Distrust Cooperation “project staff was not between welcomed…lack of project team cooperation…no sharing of and information…delaying employees tactics…verbal reasoning” Resistance Employees “Lower level employees resisted to resisted change…no change support…no readiness to change…not accepting change…no knowledge…no computer skills” 4 Cs discussed in this section through narrative thematic analysis provided complete set of information apropos organizational change in public sector of KP. Each theme was arrived through descriptive coding, initial coding and holistic coding during first cycle, whereas axial and theoretical coding through second cycle. Findings and analysis of data collected through semi-structured in-depth interviews revealed key incidents experienced during organizational change process. Starting with the causes of organizational change it was found that the fundamental reasons for reforming public- sector organization was to overcome the issues related to system, process and human resources. While transforming organizational change, this organization faced complexities due to lack of proper planning and complexities during implementation stage. Moreover, the major components of organizational change revealed that organization undergoing through the change process shall focus on planning, leading and managing change properly. Change planned properly with the appropriate leadership and management skills will be successful. Finally, public sector had certain limitations as well. Data extracted from the respondent’s narration showed that there are three types of constraints associated with public sector; financial, infrastructure and constraints related to human resource. Public sector has financial and budgetary 240 constraints as the allocation of budget follows proper structure and that is always limited. Infrastructure and supporting factors are also limited and it is a long process to receive desirable infrastructure. Similarly, the public-sector employees are having constraints and are mostly in the state of status quo where there is limited acceptance to change and mostly resistance.
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5.4.Employee’s Perspective and Experiences of Organizational Change
Public sector management related reforms through NPM has led to certain unanticipated consequences. Due to a paradigm shift from public administration to public management has led to new complexities. Particularly, the approach of public- sector management has remained top-down which led to high level of resistance from the lower end’s employees. Changing trends in public sector requires an active managerial role from the administrators in overcoming resistance to change. Public sector is often at status-quo and the internal forces works to maintain this state forever, however, the external forces are intended to transform public sector organizations by using innovation and modern tools. In order to improve public sector’s efficiency, effectiveness, transparency, accountability and quality of services, governments are increasingly involved in radical as well as incremental reforms. Their focus remains on system and process due to which HR remains neglected during planning as well as implementation phase. The organization under study has also undergone through system and process-oriented transformation. Top-down and forced change has led to several ambiguities which eventually led to unexpected response from the employees.
Therefore, it was important to understand the employee’s perspective, their experiences regarding organizational change. This chapter fills the research gap and answers the neglected question in the literature about the public sector’s employee’s experiences and perspective of organizational change. HR being an integral part of organization suffers from the unexpected and uninformed organizational change. How they live through these stages and what does change mean to them can only be understood through their own narration of their experiences. This chapter provides an insight into the employee’s response to change, perspective and experiences through their own narration.
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5.4.1. Initial Response: Resistance to Change Employees were not involved during planning stage. It was carried out in isolation from the internal stakeholders. Organizational change was unannounced, when the project team approached for implementation of the computerization of driving licensing system and processes. Due to lack of involvement, lack of communication and sudden announcement of change, it was resisted by employees at every level. Change was not accepted from the beginning by the existing staff. There were mainly two reasons for resistance: i) change was not something they never wanted and ii) third party involvement in transformation process. “No one was accepting change…change was not supported by anyone” said an old employee who was part of organization during change process (KPTPE04).
One employee narrated his perspective and expressed his concerns that it was lack of trust over technology due to which they resisted change:
“I would like to say that, change was resisted by most of the people and were of the opinion that change shall not take place. As they believed that data can be erased and lost in computer system. Because people were not much familiar with the computer technology and it was considered as an alien system, therefore, Employees were resisting and preferring manual system. Arguing further that, there is electricity and power issue in Pakistan, system may not function and it can be toasted etc. were the reasons and justifications by employees to resist new system” (KPTPE05).
The reason for resistance was found to be lack of computer skills and fear of the unknown. Narrating about the events taking place during 2006, another employee stated that;
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“Change was initiated back in 2006, as I remember. The news spread in the department that the register system is going to be replaced by computer system. All the records are going to be the part of online system. I mean, it will be available on the server. Whatever is in the register will be in computer systems. And all the process will change too, but we were not sure of how it is going to be changed. We were furious about the change and started arguing that it shall not take place. We discussed with each other and no one was in favour of change” (KPTPE06).
The perspective of KPTPE06 directed towards the fear of unknown and resistance showed inclination towards lack of willingness to change. Status-quo has been an integral reason for resisting organizational change and the narrations of experiences are showing significant signs and affirming that employees were not ready to change. This was confirmed when KPTPE03 stated similar reason;
“Well, during 2006 and 2007, a complete change in the Driving licensing authority at traffic headquarter took place. It was a very nervous time for me because many things were going in the mind of employee. It was totally new system; technology and we were not use to it. We were happy with the previous system because we owned it. We were used to it and understood everything about manual system”.
Another perspective for resistance from employees was the expected change in the nature of work. Public sector employees are easy going and there is no fear of losing job. Employees in public sector enjoy leisure time and have no fear of failing to meet deadlines as well as targets. One of the senior employees narrated that;
“See all employees are permanent employees. There is no force on doing job Aaaa they get to work whenever they want and they are used to take long breaks without any reason. Coming late, long breaks, leaving early
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are all the benefits of having permanent jobs in public sector. We enjoy our time and work and socialize a lot. When change was announced, and we heard that each employee will be responsible for his work station, that means we will no longer be able to rest and there will be accountability. So, it was obvious to resist because employees did not want to change the work routine” (KPTPE09).
Advantage of being a public-sector employee is that they are all permanent staff.
Therefore, they believe they have no issue of job security. Hence, they are not afraid of losing job.
“Every public-sector employee gets bore and frustrated when workload and pressure increases on them. They get annoyed when they do not get relaxing, lunch, refreshment time” (KPTPE01).
Since there was no involvement of internal stakeholder, there were issues from the very first interaction of change agents and employees. Lack of communication and sharing of information were among the reasons for resistance.
“They came and started learning about how we do things. Who are you? Said we are here to computerize the process of driving licenses. We laughed as they were some new young people and we were like who are they? The technical guys, the IT guys. Now they will change the system. They wanted information but they were not sharing any with us. We were having no idea what is going on and going to happen. All of a sudden, out of nowhere, three young people came and said there are issues with the system and that needs to be changed. So, we did not want to change and it is fine as it was” (KPTPE06).
The first response from employees was negative. Their narrations exhibited their perspectives and experiences at initial stage of transformation. At the similar stage, management and change agents had their own unique experiences. Therefore, it is
245 important to depict a complete picture from both ends. Change initiator’s perspective tends to be different from the employee’s standpoint. During initial encounter with existing employees in real working environment was not encouraging. As per their experiences, reasons for resistance from employees were mainly due to fear of losing self-claimed power and authority, vested interest at stake, no interest in learning, computer phobia and self-interest which are apparent in the following extracts from interviews:
“They were resisting because they did not want to change themselves. Simply, there was only one thing they wanted, their supremacy to remain intact. It was all power and delegation of authority. A clerk has the power and authority as they thought unless they don’t stamp, no one can issue the license. Such people will resist to the last moment…From clerical staff to superintendent and to DSP and SP all were resisting as they were also rankers. Power was taken away from them, they were losing the authority, the source of extra earning was about to end” (KPTPM02).
The senior employees during 2007-08 were not aware with the development of latest technology. Most of those aged employees started job in early stages and learned to perform their duties by using manual system of paperwork and registers.
“Phobia, they were having computer phobia. Computer phobia was the main reason. They were thinking if this machine become a part of this system then what will they do?... we were faced with a lot of resistance, too much resistance from the clerical staff. They were thinking their vested interest will be at stake if the new system is implemented” (PMI02).
Lack of higher education and lack of training in public sector and particularly the entry requirement for lower level jobs were observed. 246
“Employees were less educated and less trained. They were used to work with paperwork and they were not made accountable for anything. NAB received complaints of manipulation and corruption and they investigated as well…they were not accepting change because of their age. Most of the employees were in late 40s and 50s. How can they learn new technology at that time? They knew if they do not learn, they will be out of this place and their self-interest will be at stake” (PMI01).
Over the years, government and public-sector organization did not work on development of HR. Therefore, employees in public sector were rusted and did not want to learn.
“They did not want to get equip. so rigid and they plead that the way they are for God sake they shall be left that way. Wasn’t willing to get equip. they were old and were 40 to 50 and plus of age and in that age, they did not want to learn something which they cannot survive in. whenever they inquired us about our grades and we tell them its 17 as we were recruited in 17 so they were all fired up like look at their age and their salary and grades which they couldn’t digest. We were technocrats and there is a hell of difference between them and technocrats that was a dilemma for them but we have seen that they are the people who eat the flesh of their own brothers. They are the people who only know their self-interest and they don’t even care even if that’s their own brother. When someone among them is caught or in trouble, they don’t look back at all and they run away from there” (PMI03).
Resistance to change was not only limited to verbal resistance but it reached to the extreme of damaging public property i.e. infrastructure and equipment sectioned for implementation of project. Initially employees were not cooperating and they tried to develop negative image regarding the computerization of system. As PMI03 narrated further that;
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“The situation of old staff was like a mouse chased by a cat. But at that time, they were trying their level best to make this change unsuccessful. So that the system can be turned down and to create a negative impact of this system in the mind of seniors”.
It is indeed a difficult task to convince the staff to accept change. The fear of unknown and resilience has to be subsidized so that they understand the need for change. While it is a lengthy process, employee’s response to organizational change can lead in any direction.
“These issues we use to resolve time to time as the more time was spent there, the more we understand their nature but there were many occasions where someone use to cut the wires of network, someone use to destroy our offices or equipment and broke into offices and stole very valuable components” (PMI02).
5.4.2. Confrontation and overcoming resistance to change Due to employee’s resistance and status-quo of system, there were difficulties in launching new system as well as in the whole process of transformation. The reform efforts were affected and new system was unable to start operations as predicted.
Project team was unable to cope with the issues and thus decided to confront and overcome resistance by the involvement of top management. The approach adopted by top management was forced change. Employees were warned and forced to accept the change. They were given a clear message that transformation will happen and there is no question about that.
“One day finally we got fed up from the behaviour of lower staff because they were not letting us work therefore we went to AIG traffic police and we request him and explained him the whole situation. We told him about our commitment and the commitment from our secretary and you
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see that every day we are coming and putting our effort and commitment and that the clerical staff is not letting us work in that scenario 8 to 10 months have passed” (PMI02).
Extreme level resistance leads to lower the moral and motivation of change agents. It not only frustrates the change initiators rather they affect the whole process.
Thus, the leadership role at that stage becomes extremely important to keep the positive energy as well as overcome the negativity.
“It started in July 2006 so that was around February, March 2007 and we were not yet in a position to launch new process then AIG called meeting of the license clerks as license clerk was the head of all clerical staff he told them very loud and clear if you people are creating hurdles and if you people are not helping them out then I will transfer you and I will put you in a jail (Quarter Guard) and we will not require your services any more. He ordered them to do as they tell you to do” (PMI02).
The involvement of top management cleared their intension and commitment to change. This helped in overcoming the major resistance, however, there were minor issues which the management dealt with the passage of time. Autocratic system of law enforcing agencies helped in overcoming major resistance to change. The employees were permanent employees, therefore, those who were unable to work in the reformed system and processes were transferred to other departments where their skills and expertise were useful. Moreover, new IT skilled employees were hired to run the processes. However, transfers and replacement of old staff was not the first choice.
Change agents made efforts to create awareness to change, prepare employees through readiness to change, hand-on training, coaching, mentoring, and communication were used to prepare employee to understand change as well as develop their skills. It was
249 almost impossible to develop them due to the low level of education/qualification, lack of interest in learning and age of employees (40-55 age).
“Most of them were police clerks and they were appointed on inter or Bachelor (14 Years education). They belong to lower income level and were happy with the job they had… the officer said it clearly that those having computer skills can stay and be a part of new system. Those who were unable to cope with change and were not familiar with computer technology, they were replaced with new staff with the suitable skills… Yes, On the job training, coaching was provided and the project team provided timely support so that the project can be led to a success” (KPTPM02).
In the absence of HRD, education, coaching and mentoring on the job helps equip the staff with necessary knowledge and skills.
“We were briefed by the project team, that was assigned the new task. So, they gave us some trainings and observed that if we can use computers or not. Whether we can learn the new system and can we become the part of that system. The ones who were not able to work, like me, will obviously be replaced by the ones with computer knowledge” (KPTPE03).
Age of the employees is one of the biggest barriers in technology-based changes. Learning process reduces with the increase in age. CDLA case shows that transfer of skill was difficult because convincing them and educating them was difficult.
“They could not learn it because of their age. Aged staff has the issue with learning new technology because they are not familiar with it. They made up their mind that they cannot learn it and they will not change. We tried to transfer skills, we extended our hands and expertise to
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convince them, counsel them, educate them and provide them the training but most of them could not make them all learn” (PMI01).
There were interdepartmental transfers, the computer constables were transferred in and most of the clerical staff was transferred out. Similarly, appointments of computer operators and other staff was made for the project.
The resistance was managed after a year and the transformation’s first cycle was completed. After the lessons learned at one district, there were no further issues in launching organizational change in the rest of 23 districts. Due to lack of planning and lack of readiness to change, there were several issues that delayed the whole process.
However, after resolving the concerns of old staff, taking them on board, educating and training them and creating change awareness the issues were resolved. The nature of management in law enforcing agencies also helped in overcoming resistance to change.
5.4.3. Lack of Human Resource Practices Narration of the employees, management and project team revealed that there was lack of concentration on improving HR practices. It was observed that the focus of management was on process transformation and there was no working on human aspect of organizational change. There was no proper planning, same old Annual
Confidentiality Report (ACR) system for performance evaluation, no performance- based compensation or incentives, no career development plan, no training need assessment, no attention towards employee’s motivation, no feedback system and overall no HR department to deal with all these issues. The change agents were all IT experts which means technocrats appointed for system transformation and there was no
HR knowledge to deal with human aspect of organizational change. Similarly, the strategic importance of line managers as well as front office staff ignored. The main
251 reason for the lack of HR practices is the nature of public sector organizations governing under the bureaucratic system as well as functioning under the legal jurisdictions. Every provincial government’s organization follows the rules and laws set by government and employees are appointed under the same set of laws. Although the government has adopted the private sector practices and transforming public sector with the help of NPM but their focus is on system and process rather than HR.
It has been found from the narration of employees and management that transformation was not an easy task. There were mix perspectives and experiences developed through various stages of organizational change. Employees did not accept change initially and their perspective for resistance was lack of technological know- how, lack of communication, lack of skills, lack of involvement and attachment with the previous version of system and process. On the other hand, management was committed to bring change, therefore, they imposed change autocratically and with force. Moreover, the change was focused on system and processes whereas, the HR function remained an ignorant part of organizational change. Most of the responses from employees were negative, however, presently they are all happy and satisfied for the change. On the contrary, the management and technocrats were committed and had an objective to bring reforms. Thus, with the passage of time, with integration and communication, the issues were resolved and those unable to cope with changes were reallocated and transferred to other parts of organization. Due to lack of planning and lack of HRM practices, organizational change initiative was delayed and had been faced with numerous challenges. In order to overcome human aspect of challenges, strict and forced methods were used.
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5.5.Characteristics of NPM in CDLA
Respondents highlighted some key NPM characteristics. Their experiences before, during and after reforms gave an adequate knowledge of the public management’s focus of reforms. The first and most important characteristic of organizational change was use of information technology. As the global trends are technologically centred, therefore, it has been the main reason for organizational change in the public sector of
KP as well. There has been separation of provision and production (see annexure-II).
Public sector organizations are contracting out for public-private partnerships. As in this case, the software was developed by private firm. Similarly, the PVC/RFID cards are provided by private sector firms. Moreover, the challan fee is collected through private firm as well. The basic objective behind organizational change was to bring efficiency, effectiveness, customer satisfaction, transparency, accountability, one window operations and revenue generation. Thus, indicating that customer concept, performance auditing, accountability and accounting management were adopted features of NPM. Moreover, decentralization to some extent along with managerial flexibility was also observed because of the involvement of external stakeholders during and after transformation. Similarly, the separation of politics and administration as well as separation of those who plan and those who implement it were also found in this case. Thus, there was strategic planning and implementation in place. However, there were certain characteristics of NPM missing in this reform initiative. For example; cost cutting and budget cuts, privatization, change in management style, personnel management (HR), and to some extent the performance auditing and management were not observed in this case (see table below).
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5.5.1. Shortcomings in the New System
After the transformation and completion of all the reform phases, the new system is functioning successfully. Operations are running smoothly and the initiative has been matured. However, employees have shown certain concerns and shortcoming.
According to lower level employees, the pay scales are not according to their qualifications and at par with the other organizations. The front office staff is facing excessive workload due to which their work-life balance has disturbed. There is limited staff available at front offices due to which they are unable to avail any leave. Several employees have dual responsibilities and there is lack of career growth. Lack of reward system and pay-performance linkage is not motivating good employees. There is a need for proper performance management system. Moreover, sometimes there are shortage of driving license printing material which leads to increase in quires. Due to lack of proper HR system, there are issues reported regarding nepotism and favouritism.
Every system has limitations and there is always room for improvement. Most of the identified shortcoming are associating with HR functions, whereas the focus of management was on improving system and processes.
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5.6.Concluding Findings Using Thematic Network Model
Based on the components described under thematic network, this section provides a diagrammatic web of basic themes clubbed into organizing themes leading to global theme.
5.6.1. Basic, organizing and global themes In light of the nature of research questions and objectives of this research, organizational change initiative in public sector organization of KP was assessed. The purpose of this research was to understand the nature of organizational change initiatives, understand the HR perspective and their experiences during reform phases.
Thus, the organizational change/reform served as a global theme for this research.
Every research question and objective revolved around organizational change.
Moreover, the perspective and experiences of employees being a part of that particular organization during change was also important to understand the human aspect of change, therefore, every basic and organizing theme led to a global theme of organizational change/reform.
During reading, rereading and extracting themes from the transcripts of interviews, the basic themes were leading to interesting organizing themes. These organizing themes helped in bringing the basic themes all together and gave meaning to the data in more elaborative as well as concise manner.
Each of the organizing theme and the basic themes within the organizing themes are discussed below;
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5.6.2. Reasons for Change Organizational change is mostly initiated as planned change, therefore, there are always reasons for change. In the organization under study, there were several reasons due to which transformation took place. Information extracted from semi-structured in- depth interviews provided the basic themes that led to the organizing theme of reasons for change. The basic themes included; self-interest, vested interest, decline in revenue, standardization, Redtapism, introduction of one window operations, external pressure, and problems with manual system. These reasons led the driving license issuance authority to bring desirable change in organization.
5.6.3. Types of change There are various types of changes in an organization; for example, strategy, culture, people, process, and system etc. Data identified that there were three main types of changes i.e. System, process and people. Change in organization system was the main objective of reforms whereas, change in process was necessary to accommodate change in system. Moreover, people-oriented change was also observed as a part of implementation to assure success of organizational change.
5.6.4. Approach to change Public sector is a complex structure and there are several steps involved in bringing desirable change. This organizing theme was extracted from the basic themes carrying information about the approach adopted by public sector in KP. Initially, the reforms were launched as a project. After the approval of project proposal, data collection and information gathering about the manual system was carried out. Upon gaining access to all the information, the next step was to design a software (based on the steps involved in manual system). Once the software was designed and the processes were mapped, in another step, a pilot testing took place at one of the districts
256 where only one process (learner permit) was run on a trial. At the time of pilot testing, in parallel, the manual system and processes were also operating. The results of pilot test were positive and the software was running without any major issue. The process was smooth and after satisfactory outcomes, manual system and processes were stopped in Peshawar district and computerized one window operations were launched as direct approach and the manual/ old process was stopped.
5.6.5. Stakeholders involved in change process Involvement of internal and external stakeholders in any change process is very important. Information provided by the respondents reveals that provincial government, directorate of information technology, top management of KP traffic police and some private firms were also involved during change process. However, most of the internal stakeholders were not involved in this initiative.
5.6.6. Change outcomes Every reform initiative has expected outcomes and so does the computerization of driving licensing in KP. The outcomes associated with this transformation includes:
Citizen's ease and facilitation, to bring efficiency, improve the process flow, effectiveness, increase revenue, bring transparency, introduce audit and trial system for bringing accountability mechanism, and to design work as per area of specialization.
5.6.7. Response to change Human resource experiences change differently. Their response towards change can be positive, negative or no response (neutral). The information extracted from interviews revealed that there were differences in response from employees working at different organizational levels. For an instance, lower level employees were not accepting change and their response was negative which led to resistance to change. At
257 middle level, the response was mix and had neutral response. Whereas, top management were in favour of transformation and were positive towards organizational change.
5.6.8. Constraints in implementation Major issues and constraints in any change initiative are raised during implementation stage. During change process, resistance to change, limited resources, software bugs issues, readiness to change, lack of planning, lack of cooperation, demoralizing behaviour of lower level employees, delaying tactics, and skilled workforce issues were commonly reported by the respondents.
5.6.9. Causes of resistance Whenever, there is change, there will be resistance. Resistance to change from the lower level staff was reported in this case as well. On investigation, the causes of resistance were found. Data showed that project team members were outsiders and they were not accepted and therefore, they were not welcomed to do activity in KPTP. The factor of uncertainty was also one of the major reasons for resistance, especially from clerical staff. Moreover, lack of knowledge of computer technology was also one of the major reasons for resistance. Other factors included status-quo, fear of increase in workload, fear of unknown, fear of losing power and authority, vested interest, lack of information about change initiative, lack of involvement, typical public-sector employee’s mentality, lack of two-way communication, lack of learning attitude, and uncertainty due to radical change.
5.6.10. Overcoming resistance to change Management is required to overcome resistance as soon as possible. Resistance serves a major threat to the success of organizational change. Thus, the management of
KPTP started creating change awareness and readiness. Moreover, they adopted HRD
258 approaches which included; mentoring, coaching, on-the-job trainings, guidance, and roleplays. On the other hand, those employees who were unable to learn and work in the new system were transferred and replaced by new hired skilled and specialized employees.
5.6.11. Success factors Every organizational change/ reform initiative has its own critical success factors. Data extracted provided the success factors, including: top management support as a key to success, vision and will of top management, devoted and dedicated effort of project team, top down approach by the top management, forced and imposed change, and the autocratic nature of law enforcing agency helped in successful implementation of change.
5.6.12. New Public Management Characteristics Public sector has been transformed from public administration towards the public management approach. In public management, characteristics are adopted from private sector’s managerial practices. Several NPM characteristics were evident in this reform initiative as well. For example: use of IT, separation of provision & production, strategic management, management flexibility, financial efficiency, user charges, decentralization, and customer concept.
Thematic network summarizes the whole findings and analysis. It comprised all the information extracted from the semi-structured interviews and official documents helped in understanding the process of organizational change. Change was brought to overcome the issues associated with manual system. While doing so, the expertise of technocrats was utilized which led to lack of involvement of external stakeholders and ultimately into resistance to change. The approach of government was forced change
259 and that ultimately led to delay in response and increased barriers during implementation stage. However, the commitment and vision of top management helped a lot in achieving desirable results.
Modernization and standardization of services provided by public management help in brining efficiency, effectiveness, ease and facilitation to general public.
Transparency of process and accountability of public sector employee’s is to ensure quality of service, thus, the ultimate goal and objective of reforms in public sector revolves around the citizens concept. Adaptation of NPM characteristics reduces bureaucratic influences and this shift towards more decentralized approach helps in brining efficiency. The system and processes remain the core purpose of reforms, however, HR needs to be on board for the successful implementation of planned change. In public sector, there are many constraints and lengthy processes that hinder the whole approach to change. Lack of HR departments and understanding of the functions of HRM are the biggest challenge faced by public sector organization.
Basic themes and organizing themes in this thematic network portrayed a clear picture of organizational change in KPTP. Themes (identified) are based on the experiences and real narration of employees of KPTP and particularly of the employees working in driving license issuance authority during change initiation.
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Figure 13: Thematic Network
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5.7.Chapter 6: Discussion and Conclusion
6.1.Introduction
This study was conducted to understand the organizational change brought in
CDLA of KPTP, a public sector of KP, Pakistan and to understand the experiences of employees. Since the emergence of NPM as a tool for change in public sector organization which focuses of adaptation of latest trends and managerial practices of private sector, there has been tremendous pressure on public sector organizations to improve efficiency and effectiveness. Reforms are taking place all over the world and particularly in public sector organizations. This shift from bureaucratic public administration towards manager’s public management has been an area of interest and investigation in this research. However, there has been a lack of research from developing world on the topic under discussion. Therefore, this research focused on finding answers to research questions. With the help of semi-structured in-depth interviews, themes were identified that helped in answering the research questions regarding how changes are initiated in CDLA of KPTP, Pakistan? What are the critical success factors involved in CDLA’s reform initiatives? How is organizational change is experienced and interpreted by employees of CDLA? What are the characteristics of
NPM adopted in organizational change initiatives in CDLA? As the literature is filled with the publication and studies from public sector of developed countries and at the same time from the service providing organizations. Police and the concerned departments were not studied from the reform perspectives. Therefore, this research provided evidences from an autocratic nature of organization from a developing country’s perspective.
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This chapter answers every research question and discusses the findings in detail.
Moreover, comparisons are made with theory and practices to clarify key points under discussion.
6.2.Change Initiative in CDLA
Pakistan being a developing country has initiated public sector reforms. Among the various initiatives, this study focused on public sector reforms initiated in CDLA. The organizational change selected for study was in KPTP. Finding and analysis chapters of this research analysed the data and information to understand the change initiatives in this organization. Organizational change was technology driven and the reforms were process oriented. Analysis revealed that change in KPTP was initiated by third party and was planned by directorate of Information Technology. It was approved as a project under ADP by provincial government and after the approval of PC1, project team was hired and sent to KPTP for implementation. To this point, the management of KPTP was not aware of reform initiative nor were involved in planning stage. Similarly, at planning stage there was no involvement of employees, thus, planning was done in isolation from the internal stakeholders as well as environment. Moreover, change implementers were hired after approval of PC1, therefore, they were not aware of the change vision and objectives. This shows that government agencies are playing its role in improving efficiency of public sector organizations. Similar role of agencies was reported by Brunsson and Sahlin-Andersson (2000) where the specialized public-sector agencies helped public entities in attaining a state of completeness and perfection.
However, due to lack of involvement of internal stakeholders and planning in isolation leads to eroded state (Lead, 1998).
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Public sector government-initiated change in KPTP to introduce state of the art technology in this department and to transform manual process into computerized operations and processes. Oyaya and Rifkin (2003) investigated health care sector reforms in Kenya and found that process-oriented reforms are more sustainable and able to achieve objectives of government rather than outcome-based reforms. Tan and
Pan (2003) argued that change is becoming a continuous process in public sector organizations. In order to reinvent the old and outdated operations, governments are transforming their processes with the help of information technology. While finding an answer to the above-mentioned research question, it was found that change in KPTP was based on use of IT. Manual system and operations were transformed into computerized processes and this shows similarities with the previous studies.
It is reported in previous studies that organizational change is very risky and complicated process (Jacobs et al., 2013). Therefore, planning stage shall be dealt with immense care. However, organizational change in KPTP was not planned properly.
Brakman, Garretsen, Van Marrewijk and Van Witteloostuijn (2013) claims that organizational change faces high rate of failure (70%) and almost 30% failure is due to lack of proper planning. Thus, planning is an important step in organizational change process. Results of this study shows that there were issues with planning stage because internal stakeholders were not involved in planning process nor did the need assessment took place. Comparing the organizational change in CDLA with the model presented by Lewin (1951) for planned change, approach of CDLA did not show any such evidences that shows signs of all activities as described in unfreezing stage of Lewin’s model. Change was initiated through ADP by third party and it was implemented by the people who were not part of planning nor had any stake in KPTP. Neither employees nor management were aware of this change until change agents arrived to implement 264 change. Therefore, there were issues when the team entered into transition phase
(movement). Hence the Lewin’s model was not applied in this organizational change initiative of CDLA, thus, indicating that organizational change in this department did not follow the basic model of change.
Another most frequently used model for planned change is action research model
(Cummings & Worley, 2014). It is used to solve existing problem(s) and also used as reflective process. This model follows a series of steps starting from problem identification, consultation with behavioural science experts, data gathering, preliminary diagnosis, feedback, joint diagnosis, joint action plan, action and ends with data gathering after action. While comparing the approach of provincial government in case of organizational change in CDLA, it was not following this order. Although there were signs of problem identification (as provincial government assessed the condition) but there was no involvement of key internal stakeholders. Similarly, there were no evidences of the involvement of behavioural science experts, rather their focus was towards technological advancements. On ground data was not gathered at the planning stage nor were the top management of KPTP involved. Moreover, the case in the remaining steps were also the same. For example; there was no feedback to the management nor to the employees, no joint action planning which led to issues during implementation stage. This indicates that the process of change adopted in public sector of KP was not in line with the planned change models. On a contrary, Van der Voet et al. (2014) found planned and radical change taking place in public sector organizations, however, in the case of KPTP, it reflects that there is gap between theory and practice and that reforms are not in-line with the theory.
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NPM driven reforms in Singapore (Samaratunge et al., 2008), Malaysia (Siddiquee,
2006), Viet Nam (Wescott, 2001) and other developing countries (Sarker, 2005) are all based on proper planning. PSR in those countries started with changes in legislation to set the grounds for reforms. Afterwards, a comprehensive planning and need assessment was conducted to identify departments and areas where efficiency and effectiveness along with financial management were issues. Use of IT, market-oriented approach, accountability, one window operations and to reduce corruptions were the main objectives of reforms in developing countries. However, these reforms were properly planned and initiated but in the case of KPTP, there are differences in approach to reforms. Here, at first, an ADP was initiated without involving internal stakeholders whereas in developed countries it was mainly through bottom-up approach (Rutgers,
2001). OECD countries adopted change to facilitate citizens and it was found similar in this case of KPTP. Moreover, KPTP adopted incremental model of reforms which matches with the approaches adopted in UK, Australia and New Zealand (Christensen et al., 2007). Kickert (2014) enlisted conditions for organizational change in public sector; i) the process shall start with establishment of sense of urgency, ensuring need for change and build internal support, however, in KPTP this process was not adopted. ii) develop vision, strategy and provide execution plan was also not visible in KPTP. iii) communicate change and empower employees for actions was not the case in KPTP. iv) ensure top management support was evident in change process of KPTP. v) build external support was found in shape of governmental support, support of other departments as well as of the third parties. vi) provide resources: although resources were provided for the project, however, they were not sufficient. vii) institutionalize change and anchor new approach in organizational culture: this was the most difficult area and task for the project team to institutionalize change and building new approach
266 in organizational culture, however, eventually it was achieved. viii) pursue comprehensive change: KPTP did not follow the conditions for change in public sector, therefore, at the time of implementation, they faced several problems and the success was delayed due to lack of understanding of reform process.
The above discussion shows that change in public sector of KP was not in accordance with the theory nor with the practices of developing as well as developed countries. Thus, change is implemented without considering the change models, processes as well as approaches in practice. Due to these factors, there were issues in the implementation of change as a whole. This provides clear evidences that although changes/reforms are brought into the public sector of Pakistan but lack of professional approaches and lack of understanding is creating barriers in the timely and successful implementation of organizational change.
6.3.Change Implementation in CDLA
Implementation of public management reforms have transformed public sector organizations across the globe. These reforms are focused on moving from Weber’s bureaucratic approach towards business-oriented approach (Van der Voet et al., 2014).
The purpose of such reforms is to make public sector organizations more customer
(citizen) oriented (based on principal-agent theory) and to overcome the deep-rooted problems in the relationship of principal and agent (Kickert, 2014). Moreover, these organizational changes are also aimed to bring efficiency and cost effectiveness into public sector organizations. Meyer and Hammerschmid (2006) argues that brining the desirable change in public sector is not an easy task and it is mainly due to differences of strategic orientation of private and public-sector organizations. Therefore, Kuipers et al. (2014) stressed on studying the implementation process of organizational
267 change/reforms in public sector. Van der Voet et al. (2014) also stressed on studying the implementation process of change in public sector due to the fact that change (and theories of organizational change) are rooted from private sector and in order to understand the unique characteristics of public sector, it is important to study the whole process of implementation.
It was found that there were no major strategic changes in CDLA rather process oriented changes. Change is a system and people-oriented change was also found during investigation of organizational change in CDLA. Initially change was implemented using parallel approach where at the same time both old (manual) operations as well as computerized operations were taking place and later on the radical change took place.
However, radical change was not initiated simultaneously. Transformation of the process and system was planned phase wise (one district at a time). Van der Voet et al.
(2014) found that organizational change in public sector is more likely to be radical and it starts with change in values of public sector organizations. This research also found similar evidences that change was brought in the values. The focus (in terms of values) shifted towards improving process to bring efficiency so that citizens (customers) can get quality of services with international standards. The objective of reforms in CDLA were to provide ease and support to citizens, bring efficiency, innovation, effectiveness, increase in revenue, bringing transparency and accountability, and introduction of audit and trial system. Isett et al. (2013) reported similar objectives of public management approach in New York’s health sector. (Noblet et al. (2006); Oyaya and Rifkin (2003);
Samaratunge et al. (2008); Sarker (2005) reported similar reform efforts in the public- sector organizations.
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Van der Voet et al. (2014) emphasize on more participating approach rather than top down approach in change implementation, however, in CDLA, it was forced and top-down approach. Similarly, two-way communication is crucial for the successful implementation of organizational change (Allen et al., 2007). Being forced change in
KPTP’s reforms in CDLA, it was one-way communication. This organization being a part of law enforcing agency has always remained an order and obey system, therefore, the same one-way communication (top-down) was followed during change implementation.
During change implementation, every respondent appreciated the positive and supportive role of leadership (top management). Top management support, their vision and will remained key to success. Bakari et al. (2017) believe that leadership plays an important role in the success of change implementation. The role of top management in any type of reforms is crucial to achieve change objectives and outcome (Hughes,
2016; Sminia & Van Nistelrooij, 2006; Vigoda-Gadot & Beeri, 2012).
Implementing organizational change is difficult task (Bero et al., 1998).
Therefore, it was important to understand causes, components, complexities and constraints associated with implementation of organizational change. This research identified two major causes of organizational change: i) system and process, and ii) public sector employees. System were having many flaws as it was never updated and the processes were manual as well as outdated. Therefore, change in system and process was necessary to adopt latest and up to date technology. Markus and Robey (1988) also stated that adaptation of latest technology is one of the reasons to organizational change in public sector. Kuipers et al. (2014) found that system and process-oriented changes are most common in public sector organizational change efforts across the globe.
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Providing services under one roof (one-window operations) has been one of the major reasons for change in public sector organizations and it was among the causes of change in CDLA of KPTP. Howard (2015) found the similar causes in Alberta. Similarly,
Janenova and Kim (2016) concluded identical results in Kazakhstan. Sarker (2005) found evidences of one window operations in Bangladesh. Changes in public sector are also due to pressure from external stakeholders. Citizens are demanding better services from the public sector which has forced governments to improve their services delivery mechanism (Brignall & Modell, 2000). To bring efficiency and effectiveness, public sector organizations has transformed their processes and systems (Christensen &
Laegreid, 2007). This was evident in KPTP as well. This study also found that public sector employees were also the reason for organizational change. However, literature has very limited support to this finding as the published literature is overloaded with publications focused on process and system-oriented change (Kuipers et al., 2014).
Red-tapsim, vested interest and self-interest were among the major issues that government of KP wanted to overcome in CDLA. Public sector employee has to act in the public interest (Leisink & Steijn, 2009). Public sector employee’s motivation is to serve the interest of principal (as per principal-agent theory) (Lyons, Duxbury, &
Higgins, 2006). However, Baur et al. (2015) reported conflicting interest of public sector employees as they use their vested authority to serve their own interest rather than working in the interest of citizens. These were the causes of reforms in CDLA to overcome the vested interest and self-interest of employees.
There were lack of planning and lack of managerial skills. Whereas, leadership support, commitment and will were positive components of reforms. Herscovitch and
Meyer (2002) concluded that organizational commitment is one of the major components of organizational change. Commitment of top management and project 270 team was found in CDLA, however, commitment to change was not found in public sector employees. Madsen, Miller, and John (2005) researched commitment in detail with three factors; identification, involvement and loyalty and found them to be important components for change implementation. Moreover, they also found readiness to change and relationships at workplace to be integral for change. However, in the case of CDLA, employees were finding ways to fail the reform efforts (due to lack of readiness for change). Moreover, there were lack of working on improving employee commitment as well.
During change implementation, there are many complexities that are faced by the change agents. In the case of CDLA, there were evidences of lack of planning and lack of understanding of implementation process which led to increase in complexities.
During planning stage, this research found that there was communication gap, lack of clarity, lack of involvement, lack of culture scan and assessment. Kotter and
Schlesinger (1989) stated that lack of communication during change process will lead to misunderstanding and issue of trust. It was evident during change planning as well as implementation that employees did not understand the value of organizational change and eventually led to lack of trust on the project team. Moreover, manager’s clarity about the organizational change is also important so that they can achieve the objectives by taking appropriate measures to manage process successfully (Meyer &
Hammerschmid, 2006). However, the confusion of change implementers was evident in this case as they were not sure how to proceed and how to initiate work.
Employees (other than top management) were not involved in the organizational change process at CDLA. ADP was planned by externals and it was enforced on internal employees which led to resistance to change. Change would have been easier if internal
271 stakeholders were involved in the process. Lines (2004) stressed on involving employees during change planning and implementation as they are well aware of the culture and process. Moreover, involvement of employees in change will provide support in managing change effectively (Park & Lunt, 2017).
For the successful implementation of change, it is important to understand the constraints and overcoming those constraints. Findings of this research (section 8.5) reported the constraints during change implementation in CDLA. Change initiative was faced with financial constraints, infrastructure constraints and human constraints.
Transformation in CDLA was based on the approved ADP and therefore, there was limited financial support available. Similarly, there was no planned infrastructure available and the project had to start from limited space. Installation of all the required resources (hardware and software tools, machines, equipment etc.) had to be done from start. Moreover, there were constraints associated with the existing human resource due to which, there was lack of communication, distrust as well as resistance to change.
Amburgey, Kelly, and Barnett (1990) stressed that these resources shall be readily available in order to avoid any unpleasant circumstances. Gulati (1999) believes that these resources can affect the whole strategy and have the ability to change the outcome of reforms. Avey, Wernsing, and Luthans (2008) draws attention towards the importance of human resource and their role in the success of organizational change.
Constraints related to human resource can be reduced with the help of improving moral, increasing awareness, building psychological capital and enhancing organization citizenship behaviour. While reviewing the findings (in case of CDLA), these attributes were lacking and there was no planning to develop (or improve) the above stated factors. Thus, it resulted in resistance to change.
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Van der Voet et al. (2015) stated that the nature of public sector organization makes it very difficult to implement change. In Dutch public sector reforms, complexities of environmental forces lead to top-down approach. Moreover, the leadership style had to be changed so that need for change can be realized and employees get motivated to accept change. Furthermore, there were evidences that the dynamic role of leadership was very important in bringing the desired change in public sector. In CDLA, top-down approach was adopted and leadership was committed, however, need for change was not sufficient and therefore, employees were lacking motivation.
This research analysed CDLA to understand implementation of organizational change in public sector organization in KP, Pakistan. It was found that there were both process and system-oriented causes as well as human related factors for the reforms.
Organizational change was mainly focused on processes which was similar to the most cases (Kuipers et al., 2014; Van der Voet et al., 2014). Moreover, similar to most of the published literature, human aspect of change remained neglected until implementation phase. While reviewing the components of organizational change, it was found that the only positive factor of change was the role of leadership, commitment and support of top management. Complexities and constraints were evident during initial stage of planning the implementation as well as during implementation phase.
6.4.Critical Success Factors
Top management support, vision and will of top management, commitment and never-ending effort of change implementation team, top-down approach, autocratic nature of organization, and forced change were among the critical success factors
(CSFs) found in this research. Fernandez and Rainey (2006) listed eight CSFs for the
273 successful implementation of organizational change in public sector; i) ensure the need, ii) provide a plan, iii) build internal support for change and overcome resistance, iv) ensure top management support and commitment, v) build external support, vi) provide resources, vii) institutionalize change and viii) pursue comprehensive change. This research found that there were reasons for change which reflects that the need for change was identified, thus, there are evidences that first CSF was considered. While comparing the second CSF, it is difficult to claim that a comprehensive plan was devised. However, there are sufficient evidences to claim that there was a plan but it was not developed internally. The problem in CDLA was lack of internal support e.g. except for the top management, there were handful employees in favour of change, therefore, there was resistance to change. The most significant CSF in CDLA was the top management support and commitment and it is evident in literature as well that change cannot be succeeded without the support and commitment of top management.
Evidences were found in support of the fifth CSF i.e. build external support as in the case of CDLA, government wanted change and both bureaucracy as well as other government agencies were supporting change. As ADP was planned in isolation and without keeping the existing resources under consideration, therefore, there were challenges of limited resources. Although ADP had approved budget for resources (as per PC1), however, on the ground, they were facing challenges and resources were limited. Furthermore, another CSF is to institutionalize change. It means that organization members have to adapt change, the new values, and policies, however, in case of CDLA, it took time to adapt to the new processes and accepting change was a real challenge. Employees were not accepting change nor were they willing to work with the project team, therefore, it took time to launch change initiative. The last CSF asks about pursuing comprehensive change by developing a comprehensive approach
274 and system to launch, however, as soon as the project team arrived to launch project, they were not clear about change themselves and the initiative did not have any proper plan to proceed.
Pitman (1994) identified six CSFs; management support, preparation for change, encouraging participation, need for change, proper reward system, strong communication. Comparing the findings of this research, management support and need for change were the only two CSFs evident. Lack of participation, no proper reward system and weak communication and lack of proper preparation for change were the issues faced during organizational change in public sector organization of KP.
Whelan-Berry, Gordon, and Hinings (2003) state that organizational level change requires motivating change, creating vision, developing political support, managing transition, and sustaining momentum. Results of organizational change in
KPTP indicate contrasting results. There were no evidences about developing commitment and readiness to change, top management had a vision but it was not communicated, political support was evident among external stakeholders, however, internally there was lack of support. Transition was not managed properly and there were several issues during implementation. Furthermore, once the change was initiated and the objectives were achieved during pilot phase (as per plan) then there was momentum and support was developed accordingly.
6.5.Types of Organizational Change
While evaluating organizational change in CDLA, process-oriented changes, system related changes and people-oriented changes were identified in the public sector
275 of KP. Moreover, two approaches were visible i.e. initially incremental (parallel) and later radical changes were evident.
Literature has sufficient debate over types of organizational changes and approaches towards these changes. Variety of approaches are used and every approach is supported with its end result. The point to consider here is that change has to be successful and in order to achieve its objectives, organizations (both in public and private sector) adopts an approach which is the most suitable and appropriate (Burnes,
2004). Planned change and emergent change is debated widely in research (Bamford &
Forrester, 2003; Todnem By, 2005). In planned change, there is movement from one fix state into another with pre-determined steps. On the other hand, emergent change is a continuous process and is considered open ended and unpredictable. Planned change is top-bottom while emergent change is bottom-up approach. Moreover, emergent change is all about enabling and participative with an essence of ownership. Emergent change is believed to create positive impact on both internal and external stakeholders and it has market orientation (Farrell, 2000). Thus, for the organizations that want to become more market oriented, they have to adopt emergent change (Burnes, 2004). In the CDLA, change was nor planned nor emergent rather a combination. The movement was from one fix to another constant state and the approach to change was top to bottom. At the same time, the outcome of change was unpredictable and employees were uncertain about the change.
Thus, it is difficult to understand that change has been following any particular type of organizational change. Neugebauer, Figge, and Hahn (2016) argues that we cannot separate planning from implementation and that any change initiative can have both planned and emergent components. Moreover, they identified contingency factors of
276 both planned and emergent change i.e. environment, organization, decision making process and decision maker characteristics. While comparing these factors with the findings of this research, it was found that environment in public sector is mainly stable and centralized, therefore, the features of planned change were favourable. On the other hand, the organizational factors were more inclined towards emergent factors i.e. the size of an organization was large (operations all over the province), directions were unclear, ownership was unclear, current performance of organization was low (in terms of revenue generation and customer satisfaction). Similarly, decision making process was through ADP and it was an opportunity to utilize the services of other public-sector departments, therefore, it was following the emergent factors. Lastly, the common factors of decision maker characteristics were mix of both planned and emergent change i.e. project management team was new and unaware of how to approach an organizational change, directions were unclear, team was young and had no experience of change implementation and had no influence over the organizational members.
Therefore, mix of planned and emergent characteristics were found in CDLA.
6.6.Employee’s Experiences of Organizational Change in CDLA
Human resource is a key to successful implementation of organizational change.
Instead, researchers found that most of the organizational change remained focused on system and process-oriented change (Kuipers et al., 2014). Thus, most of the literature has reported process-oriented change and has not considered the human side of change
(Van der Voet et al., 2014). Keeping in view that research gap, this research aimed to study public sector employee’s experiences of organizational change/reforms. Results revealed that organizational change was planned in isolation from the internal stakeholders, therefore, at the time of change initiation, there was a lot of resistance to
277 change. As reported by the respondents, no one was involved in transformation. It was a sudden change for the employees, therefore, readiness to change was missing. As change was technology driven, therefore, one of the reasons for resistance was that lower level employees were lacking skills. Lack of trust, lack of commitment, lack of motivation, lack of involvement, involvement of external experts as well as the status- quo were among the major reasons for resistance to change. Moreover, it was a forced change and the management (with or without current workforce) was committed to implement change at any cost. Employees were unaware of the change and its nature, until it was announced to be launched. Employees showed their concerns and uncertainty because they were not taken on board. There was no skill assessment survey conducted to understand the existing employee’s knowledge, skills and abilities. No training need assessment was carried out, no trainings were planned or conducted and there was workforce planning.
Employee’s experiences of reforms in CDLA were not positive. While interviewing, it was found that change was a surprise to them. Similarly, when they wanted to express their concerns, they were ignored and change was forced. Due to the autocratic nature of organization, communication was only top to bottom. Change was not a pleasant change, nor it was accepted. The arrival of inexperienced individuals and outsiders for implementation of change was not welcomed. Change agents were not aware of the organizational culture and they were considered as a threat to the internal stakeholders. Moreover, it was also found that there were conflicts between clerical staff and project team. On the other hand, middle management and top management supported change initiative. Upon investigating further, it was found that the age of lower level management and employees were above 40 and level of education was low
(to the maximum of bachelor’s degree). Similarly, their experiences were with manual 278 operations and technology was not trusted at all. Additionally, their power and authority were at stake, their monopoly was at stake and so was their vested interest. The nature of work in public sector is easy going and employee does not have any accountability or check and balance, therefore, they enjoy leisure time for most of their working hours.
However, due to change, increase in workload is anticipated (Concept, 2016).
Moreover, there is a critical skill gap, decrease in morale and lose of talented workforce due to organizational change in public sector organizations (ibid).
Cunningham and Kempling (2009) formulated nine principles to change; i) form a guiding coalition, ii) understand and respond to resistance to change, iii) develop a need for change, iv) articulation outcomes, v) establishment of implementation process, vi) steer on constant improvement, vii) design commitment plan, viii) active involvement in management and ix) change structure and HR system. These principles help in institutionalizing change; however, no such principles were evident in CDLA, therefore, employees were unable to accept change. Reginato et al. (2016) claim that resistance to change is high in large organizations, however, CDLA was relatively a small part of KPTP and has faced high resistance to change. Lines (2004) argued that participation can influence the outcome of change, quality of decision, and success of organizational change. Their study showed positive effects of participation on outcome, commitment and showed negative relationship with the resistance to change. Moreover, their findings showed a moderating effect of organizational culture and pursuit of personal goal by the employees. While comparing these results with the findings of this research study on CDLA, employee felt distant from the decision making as well as complained about the lack of participation. Similarly, their commitment was not towards the success of change because they were permanent employees and had no fear of losing job. Likewise, there were evidences that organizational culture was not studied 279 during planning or implementation phase and the employees vested interest (self- interest) was among the reasons of resistance.
Human resource remained the missing and ignored link during reform initiative at CDLA. Rather than investing in the existing HR, management preferred to replace them with the new employee with the right skill set. Technology driven change often results in such issue where an existing skilled workforce become unskilled and organization has to replace them (Bresnahan, Brynjolfsson, & Hitt, 2002). However, if the management put honest efforts, there are good chances that the existing workforce can be trained and retained (Edwards & Sohal, 2003). Research findings showed that lack of human resource development (HRD) and human resource management (HRM) strategies led to the situation where employee reached to the status-quo and did not accept change. Jacobs (2013) recognized these limitations as a cause for reforms in human capital strategy in USA. Lack of training policy, workforce development policy, lack of funding in HRD, inadequate employee engagement, and lack of trust were the issues found in USA’s public sector. Similar issues were reported in this research where the focus remained of process and systems rather than on HRM or HRD.
Public sector employees are working under approved legislation and services act.
Jobs are offered on permanent basis with job security and compensation is according to basic pay scale. Moreover, rewards are not aligned to the performance and increments are subject to budgetary increase. Training and development programs are unstructured and unplanned. Yeganeh and Su (2008) reported similar approach in public sector of
Iran. Due to lack of HRM practices and HRD strategy, Nyhan (20000 reported dysfunctional behaviour and negative experiences of organizational change in public sector organizations. Worrall, Cooper, and Campbell-Jaison (2000) reported mix
280 experiences of public sector managers. After analysing the experiences of employees in CDLA, this research found mix experiences as well i.e. top management was positive, middle management reported mix response whereas lower level showed negative response to organizational change. Thus, HRM practices are important for improving motivation and organizational performance (Giauque, Anderfuhren-Biget,
& Varone, 2013).
6.7.New Public Management
Several NPM characteristics were evident in CDLA. Gruening (2001) identified those characteristics and this research tried to find it in public sector of KP. Identified characteristics includes separation of provision and production, contracting out, customer concept, performance auditing, decentralization and restructuring, accountability, competition, user charges, separation of politics and administration, improved financial performance, strategic planning, flexibility of management, and use of IT. However, these attributes were not practiced to the full extent. OECD’s eight characteristics were examined and found that except for the improving of HRM practices and improving regulations all other characteristics were evident in CDLA
(Service, 1995). Similar attributes were missing in the characteristics of NPM in developed countries (Ocampo, 1998).
One of the major issues with the NPM based reforms in CDLA was that technocratic driven reforms were adopted. According to Manning (2001) technocratic driven reforms are doomed in developing countries because of the existence of high state capture, administrative corruption, lack of administrative competence and non- participatory governance. Thus, the government is incapable and unmotivated. Similar issues were reported in CDLA as well and there were issues emerging due to the
281 involvement of technocrats, lack of participation from internal stakeholders and administrative corruption (with reference to power and authority).
Response to the NPM driving reforms vary from country to country (Turner, 2002).
Every country has selected specific attributes and did not initiate reforms to the full extent (Mongkol, 2011). Reforms in CDLA are although market driven reforms with aim of socio-economic development, however, they do not fulfil the requirements of
NPM driven reforms. Such conditions of countries are stated as unfamiliar with the menu (Turner, 2002). NPM driven reforms are not completely initiated in developing countries because of the presence of bureaucracy and its structure (McCourt, 2013).
Thus, it is evident that anything and everything originated from developed countries cannot be adopted and implemented in developing countries. The differences in culture, unique political and bureaucratic structure and socio-economic conditions vary from country to country. Therefore, it is not feasible to adopt practices and success stories of every country.
6.8.Conclusion
The aim of this study was to understand and explore the organizational change/reform initiatives in the developing country. For this purpose, organizational change initiative in CDLA of KPTP in Khyber Pakhtunkhwa (KP) was selected.
Narratives based qualitative research using social constructionism was adopted. Semi structured in-depth interviews were conducted from the top management, project team members, middle management, lower level management, both working at the time of change initiation and after change was initiated. Respondents included previous employees and existing employees. In total, 30 respondents were interviewed and one re-interview from top management was conducted, making the sample of 31 interviews.
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Interviews were recorded for transcription, coded, organizing and for making it more meaningful. Data was analysed and the findings were reported in a formalized manner to achieve research objectives.
After findings, analysis and discussion, it is concluded that organizational change in CDLA was technology driven. Planning was done by third party and as an ADP, after the approval of ADP the sponsoring agency hired project team which was not aware of the nature of the project nor were aware of the existing processes and organizational culture of CDLA or KPTP. During planning, there was no involvement of public service employee of KPTP. While analysing the change initiative, it was found that change was neither planned nor emergent rather a combination of both. It was also found that there was no internal assessment and evaluation conducted before planning, therefore, when change was announced, several issues emerged. These issues were mainly HR issues and infrastructure issues. Causes, components, complexities and constraints to change in public sector organizations revealed that organization was not prepared for change, therefore, employees resisted as well as attempted every possible solution to stop change. Thus, reforms were forced using top-down approach. This was helpful as the nature of organization was autocratic and employees were used to obey the orders. Employees were forced to accept change and threatened to be transferred or strict disciplinary actions. There was lack of HRD and HRM practices, lack of motivation, lack of communication, lack of participation, lack of commitment, and lack of trust on IT as well as on the project team, which were the major issues. Similarly, fear of the unknown, lack of computer skills, status-quo, vested interest and self- interest, fear of increase in workload and accountability, loss of power and authority, and the public-sector mentality were the causes of resistance.
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The main aim of this reform was to overcome the problems of manual system. The objectives were to become citizen-centred, more efficient, more effective, bring accountability and transparency, and to improve the revenue. These objectives were similar to the NPM based reform objective of developed and under developing world.
However, the approach of implementation was different i.e. change was forced rather than educated, change was top-down rather than bottom-up, change was not communicated or announced as it was not an initiative of the organization rather than imposed by the government. Instead of training the existing workforce on the new system, project team was hired to run the operations and the current lower level staff was transferred to other departments and stations. This indicate the lack of concern for
HR and human capital in public sector. Kuipers et al. (2014) highlighted that the focus of majority of reforms in public sector is on process and system, therefore, less attention is given to the human side of organizational change.
This study also concludes that approach to organizational change was different as change was initiated outside without input from internal stakeholders. Change was treated as a project and once the project started delivering, there was conflict of ownership between two of the provincial agencies over the authority. Moreover, approach adopted to bring reforms was parallel in the beginning (i.e. incremental) and later transformed into radical approach. Moreover, change was not fulfilling any theoretical principles, steps, process or procedure. The characteristics of NPM were confusing and not practiced properly, which indicates the lack of knowledge of the phenomenon. Similarly, the CSFs were different and the only commonality was top management support, leadership will and commitment. Although the change was a successful change, but there were several components, factors, steps and principles of organizational change that were not evident in this initiative. Change is a complex 284 process and it needs to be dealt with care and with the support of internal and external stakeholders. This research shows inconsistency with theory and practices from developed and under developing countries. Findings of this study showed limitations and issues in planning as well as implementation stages of organizational change.
6.9. Limitations of Research
Like every other research, this study has several limitations. This research was based on the narratives of stakeholders involved in change planning and implementation. Therefore, the list was limited to internal stakeholders. The experiences of citizens and service seekers, government officials, donor agencies, suppliers etc. were not included. Therefore, this research provides a specific and limited overview of internal stakeholder only.
This study’s findings were compared to the theories of organizational change and models of change in general. This study was not intended to evaluate the utility and applicability of any specific theory of organizational change nor focused on validating any specific change model. Although the research findings show that the change models and theories were not adopted, and the evidences also suggests that specific change model was not applied either, therefore, change was nor planned neither emergent.
Thus, this leads to a theoretical limitation of research.
Conducting research in public sector is difficult task. Gaining access to the respondent is not easy. Similarly, this research required access to the old employee (at the time of change initiation i.e. 2006-07). Majority of the old employees were either transferred, retired, no access or there was no information about their whereabouts. As
CDLA was part of traffic police and being an autocratic organization, the employees of
285 this department were reluctant to share their experiences. Due to their nature of job, they were not very supportive. Therefore, within limited access, researcher tried to gain access to the maximum available respondents.
The process of organizational change was explored in this research. The focus of study was to conduct an exploratory research on the case of CDLA by using narrative approach which provides longitudinal information. Hence, this study chose a broader concept of change as it focused on exploration of the concept and aimed at understanding the organizational change initiative, process and implementation in an organization that has completed all stages and is considered as the most successful project, therefore, this study investigated organizational change in CDLA of KPTP at
KP, Pakistan. Choosing one reform project was with the belief that its in-depth investigation helped in understanding the whole process step by step. A limitation of research was the choice of organization that has already undergone through the change process. Conducting research at later stage, the researcher was unable to observe the actual scenario and the process as it took place. Thus, the findings of this research were only limited to the narration of employees.
Forth, the methodological limitations cannot be ignored as the choice of qualitative approach, interviews and selection of narrative approach using social constructionism has its own limitations. Data is derived from narration and it is based on human’s experiences and their observations. This research cannot be generalized as experiences can vary from person to person, organization to organization, culture to culture and so on. However, with the help of qualitative research study, an in-depth research and investigation of the phenomenon under discussion can be studied. Although the results
286 cannot be generalized but it provides conclusive evidences and reports the findings in most appropriate manner.
The researcher was not an employee of the CDLA, therefore, he was treated as an outsider. Being an outsider, there is always a limitation that respondent might have provided restricted information or limited information to protect identity and their own reputation. Although, researcher tried to take in-depth interviews with several follow up questions and questions to get into the depth of the concepts, however, there is always a chance that some information may not be shared because of the fear of getting exposed. Even though all formalities were completed by the researcher; consent form, participant information sheet and other requirements were fulfilled before approaching the responded but there is always limitation. Yet, it helps in providing an independent and unbiased assessment because of the neutral nature of researcher.
This study was conducted after several years of organizational change, and there are chances that respondents might have changed their perceptions about change or they might have forgotten their real experience over the passage of time. However, it helped in better understanding over the passage of time and the respondents shared their views in light of all phases of organizational change.
However, this research is based on the facts and findings without any manipulation, unethical practice or researcher’s bias. Researcher under the supervision and guidance of supervisors has discussed these limitations in detail and approached this research study in a way to ensure that these limitations are dealt in the best possible way.
6.10. Theoretical Research Contributions and Implications
Academic research is expected to contribute into the body of knowledge (Whetten,
1989). Some research studies are conceptual in nature while few develop theories. In 287 all respects, there is valuable addition and that is how theory is improved. Every study published on a specific phenomenon helps in understanding that concept. This research has significant theoretical contributions.
First, this study contributes theoretically by (re)conceptualising public sector reforms as a change process that generates several experiences in the specific context of traffic police in an underdeveloped country. Unlike previous research, this study accommodates the viewpoints of the change initiators, change implementers and the employees who have experienced the change. This provides a multidimensional view of the change process in a provincial government organisation of traffic police department. This study highlights that change was neither planned nor emergent as the required steps were not initiated of any of the two types of organizational change.
Leading to an argument that whether change in autocratic organization is not considered as similar to the other organizations? Thus, making the notion questionable, that is there some other approaches that can be useful and utilized in developing countries?
Moreover, the models of organizational change were not evident in the case of CDLA.
Therefore, the existing theories are not supported by reform initiative in CDLA. The
4Cs of organizational change in CDLA are unique and different from private sector which makes the case different from other studies.
Secondly a, most of the published researches are based on quantitative research methods and have investigated the concept of change in generalized form that ignores the experiences of the employees. Whereas, this study adopts a social constructionist perspective and takes a narrative approach to gain an in-depth understanding how employees experience the change process. Also, this study includes the experiences of the change initiators and change implementers along with the employees to understand
288 the way it was planned and implemented. Also, it gives useful insights on the difficulties involved in implementing change. Hence, this offers two-way perspective of the change initiators, implementers and the employees on whom the change has been implemented. From the above-mentioned point of view, it is evident that autocratic and bureaucratic organizations are reluctant to change. Hence proving the claim that change is difficult in police as well as bureaucratic structures.
This study was based on social constructionism and narratives to study the concept of organizational change in-depth and in detail. Moreover, the experiences of employees helped in understanding the whole process ranging from process of planning, implementation and change management. Similarly, police and law enforcing organizations are not dominantly featured in the research and has gained less interest from the scholars and researchers, therefore, this research contribution with respect to research methodology and choice of organization provides a new dimension to the area of research. Due to lack of research in such organizations, theory is not sufficient in this regard. The narrative based study resulted in understanding the whole process of organizational change from the employee’s perspective. The results show that HR is neglected part of public-sector organizations which requires due attention. Lack of skills and capacities of public-sector employees are the major reason of employee resistance to change. As a matter of fact, that change was process driven, therefore, less attention has been given to the people working in an organization. However, the fact that organizations are run by people cannot be denied, therefore, equal attention is required to the HR as they operate the processes and systems.
Third, two major organizational change approaches dominate the literature i.e. planned change and emergent change (Bamford & Forrester, 2003; Burnes, 2004;
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Neugebauer et al., 2016; Van der Voet et al., 2014). In this research, it was found that change was not following steps and characteristics of planned or emergent change rather it was a hybrid approach, which means that NPM is not yet understood in this part of the world. There is a need to involve OD practitioners with the knowledge and experience of NPM and are aware of the transformation process in public sector organizations.
Forth, this research identified that organizational change was planned in isolation from the organization of implementation. This is a significant contribution that the internal stakeholders were not aware of the organizational change until the project team (under ADP) approached top management for the implementation. Similarly, this research also found that the organizational change was not specified to be implemented in CDLA of KPTP and that was the reason for conflict between two public sector organizations. It asserts that organizational change requires due attention with respect to planning and implementation. The mechanism adopted by the developed world may not be applicable in this part of the world because of many attributes that differentiate developed and developing world.
Fifth, contribution of this study was to highlight this fact that the task of change implementation was assigned to the technocrats (IT experts) which led to conflict between internal stakeholders and project team. Thus, it implies that external members
(change agents) are not accepted in the bureaucratic system and bureaucracy does not support external interferences.
Sixth contribution of this study is regarding the lack of planning in public sector organizations. Moreover, lack of resources, lack of HR practices, lack of support, lack
290 of commitment to change, lack of communication and many other factors were the part of findings that prevails in the public-sector organization. The autocratic style of top management and top down approach led to successful organizational change, however, it led to negative experiences of public sector employees. Thus, HR remained neglected part of organizational change in the public sector. In police department, there is order and obey mechanism because of the autocratic nature of law enforcing agency.
Previously, police department was filled with the belt and badge holders, whereas, with the passage of time, the requirement changed and need to acquire people with administrative knowledge as well as IT and other areas also developed. However, the nature of organization did not change, thus, the same traditional approaches were in practice. Even with the variety of functional areas and sub-departments, there is no HR department and there is no proper structure for non-uniform employees.
Seventh, the Four Cs of organizational change provided a comprehensive overview of the factors involved in the organizational change in public sector.
Eighth, this research found that technocrats may be area experts, but they may not necessarily be experts in change implementation.
Ninth, NPM is a buzzword and it is not applied in its true spirit. Thus, organizational change has set of characteristics that is not necessary to be adopted completely.
Tenth, this research has contributed by identifying that both incremental and radical change was utilized. It was also found that one step and one office upgradation at a time helped in smooth implementation of reforms. Thus, a stepwise change has proved to be successful in case of CDLA.
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Lastly, as far as response to change is concerned, top management is always behind every successful organizational change. Middle management has a mix response and lower management has shown resistance to change.
6.11. Research Implications and Contributions for Practitioners
Like every research, this study also has several research implications. This research provided rich insight on the organizational change process, planning, implementations, causes, components, consequences, constraints of organizational change, identifications of CSFs, HR perspective of organizational change, and on NPM adaptation. Thus, it covers the major aspects of change, ranging from change initiation to implementations and factors contributing into organizational change in the public sector. Implications of this research findings are multi-fold i.e. implications for practitioners and implications for academia.
Implications for Practitioners This section provides implications for variety of stakeholders who practice organizational change. Globally, organizational change efforts are initiated with the help of organization development (OD) practitioners. These OD practitioners are hired for their expertise in their respective fields. In the case of CDLA, this role was assigned to the technocrats which was faced by sever resistance and conflicts. This situation highlights that the practitioners need to understand the organizational culture and system before entering change implementation. The resistance to change by public sector employees can be overcome by involving them into decision making, planning and implementation process. To overcome the communication gap, planning phase needs to be extended so that input from every stakeholder in present and everyone in on-board. Moreover, the organizational change models adopted in private sector are not
292 necessarily applicable nor useful in the context of public-sector, therefore, before change initiation, it is necessary to conduct organizational scan.
In this study, the change was more related to automation of system and process, however, the capacity of existing workforce was not sufficient, therefore, the OD practitioners need to focus of capacity building of HR working in public-sector. It is important to note that public-sector employees are not supportive to the external members involved in change process, therefore, they create hurdles. For the OD practitioner it would be wise to involve all level of management for smooth transformation and to keep themselves passive during early stages.
The findings of this study showed that there is lack of alignment between vision and objectives of government and the departments, therefore, before initiating change, there is a need to bring synergy between the goals and objectives. Thus, policy alignment in necessary for the successful implementation of organizational change. For that, OD practitioner needs to understand the mandates of federal, provincial government, departments and of the donor agencies. After understanding the agenda for change, practitioners will be able to overcome the issues of lack of coordination, communication, trust and collaboration. The possibility is not limited although it can be done through development of long-term policy framework and with proper legislation. Government needs to provide sufficient resources i.e. financial, manpower and others to smooth utilization and a program is required for skill as well as capacity development.
For the successful organizational change in public-sector, it is important to understand the causes of reforms, analysing and overcoming complexities and
293 constraints of public-sector. This will help the practitioners in planning and implementation of change. Moreover, it is essential that in developing countries, the western agenda is not imposed because the external agenda creates tension between planning and implementation. On the ground realities are different in developed and developing countries. Therefore, the models, theories and NPM approaches adopted in the developed world are not supported in the context of developing countries. This claim is supported from literature review as several studies reported that the causes of reform failure in public sector of developing countries are similar (see for example;
Chan, 2006; Heeks, 2002; Iqbal, 2014; Polidano, 2001; Wallis & Dollery, 2001).
In public sector organizations, it has been observed that different stakeholders are involved for different purposes and at different stages. Therefore, these implications are separately discussed below.
Implications for Public Sector Organizations This research’s findings have several implications for practitioners. Based on the findings of this research, there are number of areas that practitioners need to consider before initiating organizational change. Similarly, organization change at the time of implementation requires due attention and consideration. Thus, the implications to the practitioners are multi-folds.
Implications for The Specific Industry The nature of public sector is different from private sector. Public sector organizations are governed under various legislations and bringing reforms in this sector is very difficult task. Findings of this study showed that organizational change has been planned in isolation from the implementing stakeholders (partners). This led to the gap which leads to further problems during implementation phase. Reforms were
294 undertaken under ADP project and the project implementation team was hired after the approval of proposal (PC1), thus, in this state, the project team was not involved during planning and were not aware of the real objective of reforms. Moreover, the project team comprised IT specialist and they were having no experience of public sector.
Whereby, an ultimate distrust between members of organization and inexperienced IT specialists emerged, creating hurdles in the implementation. As per the findings of this study, it can be suggested to involve all the related stakeholders in planning as well as in implementation phases.
Assessment of the resources is also necessary at the planning stage to ensure smooth transformation. This study’s findings highlighted that planning was not done considering the organizational resources, culture, problems and real working environment, therefore, there was delay in the launch of project. Similarly, literature of organizational change and public-sector reforms suggested that change is either planned or emergent, however, in this case, it was neither planned nor emergent. Top- down approach was not an issue and it has produced results in this sector, however, there is a need for proper environmental scanning before change initiation. This study provides a comprehensive assessment of the change initiative, where the public sector needs to understand internal stakeholder and they need to be involved in decision making, a proper diagnosis of organization, collection of information and data, analysing the information and then designing of intervention will ensure the outcomes in more professional and appropriate manner. After the planning process, implementation and managing change will be relatively easy transition. Moreover, keeping in view the reforms being technology driven, the role of HRD is very important, therefore, there is a strong need to plan for it as well.
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Implication for The Concerned Department Findings of this research provided a rich insight of the organizational change in
CDLA. Variety of lessons learned about the process and implementation of public sector reforms in KP. First, this research started with understanding the process of organizational change and how change was initiated in CDLA of KPTP. Initially, it was found that this ADP was not designed for any particular organization. As KPTP was an issuance authority of driving licensing at that time, therefore, reforms were directed to this organization. Later, it was the reason of conflict between two provincial government agencies, therefore, ADP needs to be clear and directed towards a specific organization so that conflicts can be avoided. Second, there were legal constraints and complications which led to issue over authority between KPTP and transport department. Resolving this issue took almost a decade. It shows that legal aspects need to be covered before the launch of any ADP or change initiative. Third, CDLA and
KPTP are aware of their problems, resources, needs and culture. Therefore, utilizing
NPM, they are capable of diagnosis, planning and implementation. It was found that when planning took place in isolation from the internal stakeholders, it created chaos and unrest among the employees and ultimately resistance to change. Therefore, KPTP may involve internal stakeholders to create readiness to change and overcoming the uncertainty. This may help in successful implementation of reforms.
Forth, the involvement of IT specialist (technocrats) is a good sign, however, in the presence of bureaucratic system this shift and involvement of outsiders is not a prevailing practice. Therefore, organization may work on reducing bureaucratic culture to utilize the expertise of specialists. Fifth, it was found that it was an abrupt decision to bring change in CDLA, therefore, there were lack of planning and resources. In order to improve chances of success, KPTP may improve communication and create support
296 for change. Moreover, before initiating change, planning phase needs to be completed in all respects in order to avoid any unwanted delay in the implementation. Sixth, it was found that there was lack of HR practices and in the absence of HR department, it is always difficult to plan from HR perspective. Hence, the results showed that there were some major issues of employees. The major problem faced by this organization was that the skilled workforce became unskilled after transition from manual to computerized process. Another issue emerged was that the IT specialist were only experts in the field of IT, therefore, they were not aware of the HR issues. No training need assessment (TNA) took place, no training program was designed, lack of communication, lack of change management practices, lack of motivation, lack of link of pay-performance and so on. It leads to the implication of involvement of HR experts in any type of organizational change. HR, being an integral part of organization, needs due attention of the top management.
Seventh, it was a wise decision of top management and project team to take one step at a time. Therefore, transformation was made easy by modernizing one district at a time. The lesson learned is that organizational change is a challenging task and it has to be planned properly. Change implementation team learned from each office and revised their approach to improve further. This shows that learning is a continuous process and the change agents need to be flexible to learning and continuous improvement.
Eight, CDLA did not plan change by their own. They were informed about the project after planning was finalized and project was approved by government under
ADP. Therefore, neither top management nor any employee were involved in planning process. Similarly, the project implementation team was not part of planning process.
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KPTP may devise a strategy to overcome this gap. Last, top management was very strict and autocratic with top-down approach. As far as the nature of an organization is concern, this approach has no issues, however, organizational change is different from daily operations and it requires special attention with different approach. Management may adopt more flexible, liement, decentralize and involvement techniques for the smooth transformation.
Implications for planners Public sector reforms are similar with respect to change planning. Planning any reforms has identified steps and procedure, therefore those who plan organizational change in public sector needs to understand these steps and procedures. Emergent change may be more appropriate with its application and outcomes under NPM. On the other hand, the stagnant nature of public sector organizations in this part of the world may favour planned change. The findings of this research show that change was neither planned nor emergent. For an instance, it can be assumed that the planning team did not show any clarity and understanding of change process. Therefore, it seems that it was a sheer luck to get success with the organizational change. Based on the findings of this research, it can be suggested that change needs proper planning with clarity and with the involvement of all concern stakeholders. Planning without an input from all stakeholders can lead to a disaster and everyone has to play their productive role in assisting the planners.
Implications for implementers Once planned, change implementation and management are more delicate and sensitive tasks. In this research, the lesson learned was that change implementation task was assigned to relatively less experienced team, therefore, due to inexperience there were many constraints. It can be suggested to assign task of implementation to more 298 experienced team. Moreover, project team comprised of external members whereas, literature suggests that there needs to be a leading role of internal stakeholders.
Therefore, it is important to involve the management and participation from the internal stakeholders in the leading role. Thus, the role of change agents is very important in the success of organizational change. Being a part of organization means that they are aware of the nature and psyche of employees as well as of the organizational culture.
Employee listens and understands each other; therefore, implementers may assign such roles by involving the internal stakeholders. This can help in improving acceptability, overcoming resistance, improving communication, reducing stress and tension, and increase the chances of success.
Implications for government Governments in developing countries has much to learn from the magics of
NPM. Although there were slight evidences of NPM being practiced but after investigation it was revealed that those components of NPM were not planned rather emerged without any planning. Both developed and developing countries has utilized the concept of public management. Therefore, governments in this part of world need to understand the concept of NPM and utilize it for improving public sector organizations. Government may take initiatives to improve the performance of public sector organizations. Once they have improved performance, government can reduce their budget by introducing budget cuts so that they become self-sustaining and self- sufficient. Budget cuts can reduce burden on government and they may utilize that fund on more productive and social causes. Government can further reduce their burden by identifying the roles (organizations) which are burden on the government. Once identified, they can be privatized so that government shift their costly projects to the
299 private sector. Both developing and developed world has privatized such operations so that they can focus on the far more important tasks i.e. to govern.
The most important attribute of NPM is decentralization. There were very few evidences of decentralization in CDLA. Government can reduce their burden by using decentralization to improve efficiency and effectiveness. However, in the presence of bureaucracy, it is not possible. Bureaucratic system supports centralization which is against change. Therefore, the role of bureaucracy may be reduced to improve the outcome and improve efficiency. Effectiveness and efficiency are enhanced through
NPM and decentralization is key to the success.
Decentralization is not only to bequeath power to the lower end or take power from bureaucrats. It is important to improve performance and leads to accountability.
Tools for performance measurement are important for accountability. Findings of this research shows that performance management system is not based on concrete tool.
ACR is still used and it has no impact on the performance and accountability. Similarly,
ACR is not linked with reward or promotion. Therefore, in order to improve performance, a competency base performance measurement or proper performance management system may be implemented by government in public sector organizations. This can lead to improve performance, accountability, performance auditing and personnel management.
This research also found that after the use of IT and one window operations, efficiency as well as effectiveness improved. Additionally, the revenue has increased remarkably. This indicates that computer based and one window operations have improved the accounting as well as financial system. Thus, this can be implied that
300 government may incorporate similar systems in every organization. Moreover, one stop shop concept has facilitated citizens (customers) in more effective manner. Therefore, one of the important lessons learned in this case was the positive impact and trust created by one window operations in public sector. This might be an important step to improve services in public sector organizations.
Findings of this research show issues in planning and implementation. This indicates that strategic planning and management is the areas of concern. Planning is a technical task, therefore, during planning phase the involvement of technical and experts can help in proper planning with their technical skills and expertise. Similarly, it can be implied that during policy making the role of area experts can help in making better plans and policies. This paradigm shift is important in light of NPM as it has been widely used in private sector and is considered important characteristic in the success of private sector.
NPM stresses on separation of politics and administration. This means that let everyone do their own job. The role of politicians is not to run the administration and their role may be restricted to the policy making, addressing public issues and by planning accordingly. In public management, the role of administrator (manager) is empowered. Therefore, it may be suggested to provide management with the flexibility to manage with accountability and performance measures.
This study findings reveal that government is engaged in reforms to create an impact on society. For this purpose, the services of third parties are also utilized through contracting out. This is a positive sign to see public-private partnership in this part of the world. However, there are evidences of inter-departmental conflict and political
301 interferences. In order to improve the quality of service, government requires efforts in devising clear policies and roles. Thus, before embarking on the organizational change implementation, the legal aspects needs to be addressed to bring more clarity in business rules and roles of different departments.
Implications for Academia This study offers a comprehensive overview of organizational change in public sector organization. Although due to the exploratory research nature, the findings cannot be generalized yet it offers several implications for academia. The purpose of this research was to study and understand organizational change initiatives in this part of the world with the aim to contribute in the body of knowledge from the perspective of developing country. The phenomenon of organizational change and public-sector reforms were explored to unfold change initiatives in this region to contribute to the debate of organizational change in public sector.
First, literature on organizational change in the public sector of developing countries is limited. Second, the literature is fragmented with respect to the in-depth studies on organizational change. Third, literature is mainly focused on process- oriented change and inadequate on how organizational change process take place as well as on how change is implemented. Forth, literature has focused on studying change from the planned change perspective and limited to offer from the actual change perspective. Fifth, published literature is limited to offer with respect to HR and employees experiences. Sixth, there are number of explanatory researches with quantitative research approach whereas, exploratory research with qualitative approach based on experiences are limited. Seventh, NPM based assessment in this part of the
302 world has not been praised. Therefore, the implications of this research are more important for academia.
Organizational change is gaining importance in the developing world with the focus on utilizing the modern tools and technologies. This implies that public sector reforms are technology driven in this region. Public sector organizations remained unchanged for about sixty years and the drive for adopting latest technology has forced government to take such initiatives. The major portion of literature believes that organizational change is problem driven, however, in this research, it was observed that the primary contributor in change initiative was technology with problems as secondary concern. This implies that change was more macro level as compared to the micro factors.
Organizational change is not limited to an organization’s own initiative. In public sector, this research found that change was initiated by donor agency via ADP and later, it was channelized to CDLA. This implies that organizational change follows different process in public sector as compared to private sector. Organizational change has not followed the steps as per literature. Similarly, the CSFs were different from those in literature. This can mainly be due to the lack of awareness about organizational change and change management literature or it can be due to the different nature of public sector.
Process oriented change was the driving force behind reforms in CDLA. Over focus on the process and ignorance towards the other factors leads to disaster and issues in implementation. Moreover, not valuing internal factors and not involving internal stakeholders backfire during implementation. Literature does provide support to this
303 argument; however, it is restricted to the private sector. In this case study, when process oriented change was announced, no one expected issues to emerge from internal stakeholder and the project team was not prepared to deal with such issues. Thus, the approach adopted was forced change rather than readiness to change. Similarly, at the time when conflicts emerged during employees and project team, the top management adopted an autocratic style with clear warning to the employees that they will either be transferred or terminated. Literature suggests that during such conditions, communication and convincing shall take place, however, approach adopted was different from the proposed method and surprisingly the results were achieved. This implies that there is more to explore in the field of organizational change in public sector organizations.
A top-down approach was adopted with the support of top management.
However, besides this characteristic of planned change, there were no other steps of process adopted. Similarly, market-oriented approach was evident with the aim to create an impact on the stakeholders. This implies that part of emergent change approach was adopted. In short, the approach was neither planned nor emergent rather a hybrid approach was adopted. This implies that change is not restricted to any specific approach. It leads to the implication that organizational change in public sector does not follow any protocols as suggested in the literature.
HR remained an ignorant part of public sector during organizational change. On a contrary, HR is an important aspect of organizational change in private sector.
Literature suggested that change without the support of organizational internal stakeholder will not achieve its objectives. However, in this case, those employees who became unskilled (due to change in process) were transferred to other departments
304 rather than providing them with an opportunity to learn and develop new skills.
Employees were replaced with the new project team with right skills and qualification.
This led to more conflicts between the permanent and project team. Thus, the permanent staff was not happy and their experiences were not positive. They felt distant and unwanted part of the organization. It was announced by the top management that change will take place with or without them and that all those unwanted employees will no longer be a part of organization. Although the nature of employment was permanent but they were transferred to the other part of organization. Similarly, there were no internal assessment or environmental scan before the launch of organizational change.
This implies that HR is not an integral part of public sector organizations and it can lead to great concern in the near future.
NPM is claimed to be a driving force behind PSR in CDLA. However, after investigation it was found that public sector is not aware of the real essence of NPM.
Mark Turner (2002) characterized such countries as “unaware of the menu”. Thus, it can be implied that academia and academicians can play their role in making the government aware of the menu.
6.12. Directions for Future Research
This research provided conclusive evidence by investigating one specific organization, offering number of contributions and implications for both practice and academia. More importantly, it aimed to fill the research gap by providing answers to the research questions. After findings and analysis, discussion opens new areas to be investigated and researched. Thus, this study has concluded but raised more questions that needs to be answered. The first question pertains to the existing organizational change theories. In this part of the world, not a single theory has been followed, thus, it
305 raises a question that if the theories developed in developed world are not applicable in developing world then how the concepts can correlate? Thus, there is a need to develop a theory that is relevant to the developing countries. Similarly, the approach adopted for change and the change process cannot be correlated with the existing literature, therefore, there is a need to investigate the adopted approaches and suggest the most appropriate approach. Furthermore, the process of organizational change is different from the rest of the world. This leads to a question that how sense-making and decision making is different as well as to the question whether these approaches are appropriate or not? Specifically, a grounded theory researchers need to focus of developing a theory that can ensure successful organizational change in an autocratic organizations like police etc.
In addition, findings suggest that there is a strong need to conduct a comprehensive study on the process of planning, process of implementation, change management throughout the public sector. The need for consolidated study may find an answer to these questions by evaluating all change initiatives rather than studying a single case.
Moreover, this study was limited to the input of internal stakeholders only, which opens an avenue for future researchers to conduct a research involving every stakeholder i.e. customer, government, secretariats, politicians and suppliers. Future research can further contribute by studying the organizational change from more than one case study.
This will help in getting cross-sectional data which will help in comparative analysis.
Moreover, there is a possibility that future research may identify similar organizations in various developing countries and study their process of organizational change.
Moreover, this study also found that the experiences of employees were not positive and that they were not taken on board at any stage during change initiative. Thus, it
306 raises a question i.e. is HR an integral part of public sector or not? There were no evidences of HRM practices in this organization. In the absence of HR practices, how long public-sector organizations will survive? How will the public sector become more efficient and effective?
As this research was conducted at post-change phase where the organization completed all phases of organizational change. Similarly, the choice of case was based on studying successful organizational change initiative of public sector, therefore, it is suggested that future research may identify a case that is about to initiate organizational change and study it over period of time throughout its various phases. Moreover, researchers can focus on failed change efforts as well so that a contribution in the body of knowledge can be made by lessons learned.
Finally, in the presence of bureaucratic structure and in the presence of bureaucracy, how NPM and public management will prevail? Is autocratic approach an appropriate tool for the success of organizational change? Does accountability for performance will be possible in centralized systems. These are some of the research directions for the future research for further exploration.
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Annexure-I: Demographics of Participants
Table 13: Demographics of Participants
S# Code Role Age at the Current service Job Status time of status in KPTP reforms
1 PMI01 Project 30 Left after Contract implementation project ended employee
2 PMI02 Project 22 Left after Contract implementation employee project ended
3 PMI03 Project 25 Left after Contract implementation employee project ended
4 PMI04 Project 25 Left after Contract implementation project ended employee
5 PMI05 Project 26 Left after Contract implementation project ended employee
6 PMI06 Project 22 Left after Contract implementation project ended employee
7 PMI07 Project 25 Left after Contract implementation project ended employee
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8 PMI08 Project 28 Left after Contract implementation project ended employee
9 PMI09 Project 29 Left after Contract implementation project ended employee
10 PMI10 Project 26 Left after Contract implementation project ended employee
11 PMI11 Project 32 Left after Contract implementation project ended employee
12 KPTPM01 Managerial 46 Working at Permanent managerial Employee position XYZ in ABC
13 KPTPM02 Administrative 45 Working at Permanent managerial Employee position
14 KPTPE01 Front office 43 Transferred Permanent
Employee
15 KPTPE02 Front office 39 Transferred Permanent
Employee
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16 KPTPE03 Front office 37 Transferred Permanent
Employee
17 KPTPE04 Front office 26 Working Permanent
Employee
18 KPTPE05 Register work 43 Transferred Permanent
Employee
19 KPTPE06 Register work 43 Working Permanent
Employee
20 KPTPE07 Register work 49 Retired Permanent
Employee
21 KPTPE08 Register work 52 Retired Permanent
Employee
22 KPTPE09 Verifications 38 Working Permanent
Employee
23 KPTPO01 Management 42 Transferred Permanent
Employee
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24 KPTPO02 Management 37 Working Permanent
Employee
25 KPTD01 Management 27 Working Permanent
Employee
26 KPTD02 Management 40 Working Permanent
Employee
27 PM01 Project 45 Working Permanent Management Employee
28 PM02 Project 34 Left job Contractual Management Employee
29 PM03 Project 28 Working XYZ Contractual Management Employee
30 DIT01 Planning 40 Working XYZ Contractual Employee
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Annexure-II: NPM Characteristics in CDLA
Characteristics Adopted/ Comments Used
Cost Cutting/ Budget Cuts NO We are having our own revenue generation but no cuts are implemented.
Privatization NO
Separation of Provision Yes There is separation and roles are identified and Production
Contracting Out YES we have public-private partnerships to do various things
Customer Concept YES The basic purpose of all these changes are customer oriented, and to bring efficiency
Performance Auditing, YES Audit and trial system Measurement and Management
Decentralization and YES To all operational and administrative decisions are made by the Restructuring concern authority. Dedication of authority are provided with power as pre-defined.
Accountability YES Every employee is accountable for his/her
Competition YES Transport department are also issuing driving license and we are also having competition with other authorities in Pakistan
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Management Style NO Same
User Chargers and YES Customers are charged Voucher
Separation of Politics and YES IG Is the head and politicians have no interference in the system Administration
Personnel Management NO There is no HR Department but we do things as per provincial government and legislation
Improved Finance and YES/ NO Revenue has improved however; the revenue is submitted to Accounting Management treasury as per provincial laws and system.
Strategic Planning and YES There is a process for planning and management against the Management objectives
Flexibility of Management YES Depends on the nature of decision
Use of Information YES The major pillar of this organizational change. Technology
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Annexure-III: PARTICIPANT INFORMATION SHEET
Faculty of Business Administration, Institute of Management Sciences (IM|Sciences),
Peshawar.
You are being invited to participate in this study. Before you decide whether to participate, it is important for you to understand why the research is being done and what it will involve. Please take time to read the following information carefully and feel free to ask any question. I would like to stress that you do not have to accept this invitation and should only agree to take part if you are happy with it.
Working Title of the Project:
Evaluation of Change in Public Sector of Pakistan from the Employee’s perspective: The case of Khyber Pakhtunkhwa.
Purpose of Study:
This study is conducted to assess organizational change in public sector of Pakistan and to study the organizational change from the perspective of public sector employee’s through their experiences.
As organizational change is often called Public Sector Reforms (PSR), therefore, for your better understanding it is important to use the terminology that you are more comfortable and familiar. The aim of this study is to understand the nature of change (PSR initiative) brought into public sector of Pakistan from the perspective of public sector employees’. This study will help in understanding the human side of reforms by looking into the way how people give meaning to the changes brought into their organizations. Furthermore, the experiences of employees will help in learning the human aspect of change.
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Confidentiality concerns
I assure you that your confidentiality will remain intact in any case throughout the study and also after the study is over, and you will be not known to anyone. Whatever data you will provide that will be protected and will not be available to anyone except the investigator (in this case me and my supervisor as it is a doctoral research project).
Why have I been chosen to take part?
You are chosen to take part in the study due to your relevance to this study. You are/were the employee of the organization under study and you have been through the reform process, therefore, your experiences are very important for us to conduct this research. Your contribution and input will make this research valuable
What will happen if I take part in this study?
If you agree to take part in this study, you will be then interviewed based upon your convenience. The interview will be semi-structured and may take up to 45 minutes. The interviews taken will be transcribed and analysed for research purpose. If you will need any explanation for some question it will be given accordingly.
Are there any risks of taking part in this study?
There is no potential risk/disadvantage involved in taking part in this study
Are there any benefits of taking part in study?
This study will help in developing a better understanding of the change process and human aspect of PSR and will help to achieve the following:
The improvement of reform initiatives by government and ensuring the success of the project.
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Help in understanding the employee’s aspect of change and can help in learning from their experiences that can help further in planning and implementation of reforms. Help in the clarification of the role of leadership during reforms (actual and expected). Your experience and the others who take part in this research will share their understanding, meaning and experiences of organizational change and that will benefit everyone by learning from your experiences.
What if I am unhappy or if there is a problem?
Please contact me ([email protected]) if you have any concerns. Following are my contact details:
Muhammad Nauman Habib
PhD Management Scholar,
Institute of Management Sciences,
Phase 7, Hayatabad, Peshawar,
0333-9065996
Will I have access to the result of this study?
If you wish, you will be conveyed the results of the study through appropriate method (email, telephone, post, publication)
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Annexure-IV: Consent Form for Participants Taking Part in Doctoral Research
Project
Working Title of the Project:
Evaluation of Change in Public Sector of Pakistan from the Employee’s perspective: The case of Khyber Pakhtunkhwa.
Brief outline of the Research Project:
The aim of the research is to develop a better understanding of the change process in the public sector of Khyber Pakhtunkhwa by looking into the way how people give meaning to their lived experiences during the change process. In particular, it focuses on the way change has been planned and implemented. Furthermore, my aim is to study the lived experiences and the challenges faced by the employees. As organizational change is often called Public Sector Reforms (PSR), therefore, for your better understanding it is important to use the terminology that you are more comfortable and familiar. The aim of this study is to understand the nature of change (PSR initiative) brought into public sector of Pakistan from the perspective of public sector employees’. This study will help in understanding the human side of reforms by looking into the way how people give meaning to the changes brought into their organizations. Furthermore, the experiences of employees will help in learning the human aspect of change. I will use the narratives by using in-depth semi-structured interview.
I understand that there are issues of confidentiality to which I will completely adhere. I will keep your name or any information confidential. This includes its use in publications where I can render your name fictitious thus keeping anonymity – I shall not identify you or use your name in any publication or discussion.
I thank you very much for the help and support.
Muhammad Nauman Habib 373
This research is solely a doctoral research project and that the confidentiality of the information will be safeguarded as mentioned above.
I agree to take part as a participant in this research and I understand that I am free to withdraw at any time without giving any reason and without detriment to myself.
I also agree that my interview recorded by Muhammad Nauman Habib on dates …………………………………………………… a) may be used for publications (tentative title) “Evaluation of Change in Public Sector of Pakistan from the Employee’s perspective: The case of Khyber Pakhtunkhwa”. b) may be offered to an archive for the use of future researchers and writers.
I have been provided with a copy of this form and the Participant Information Sheet
I agree that my name will not be used in any publication.
Signature: ______Date______
Full Name (IN BLOCK LETTER):______
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Annexure-V: Interview Guide and Questions
1. A brief introduction about yourself? 2. Since how long you are associated with this organization? 3. Can you tell me about your journey and role in this organization so far? 4. How was your experience of old system? 5. What is your opinion about the change? 6. Why was change initiated? 7. Why did the change occur?’ 8. ‘What did the change mean for you and your job?’ 9. ‘How did you first hear about the change?’ 10. ‘What information did you receive regarding the change?’ 11. ‘Was this information effective?’ 12. Being an Employee Let us go back to the year 2006, new system isn’t launched yet, what was the opinion staff at that time? a. Why employees showed their concern? b. Which feeling was more prominent, positive or negative? 13. What were the positives and negatives of old and new system? 14. What sort of changes have you experienced? 15. What organizational change means to you? 16. How was change initiate? 17. How employees adjusted to new system? a. What challenges were faced? b. How were they motivated? 18. Where are the old staff? a. What options were given to the old staff? b. Why the left? c. Were there any layoffs? 19. How was the top management’s behaviour during all this process? 20. In your opinion, was change necessary? 21. What was your contribution in change process? 22. Were you offered any training? a. What sort of training? b. How the training program contributed? 23. How is the new staff and project team contributing? 24. How is this process and system performing now? 25. What is the level of commitment of employees and management? 26. What is the role of employees in decision making? 27. In your opinion how you can contribute further for the betterment of system? 28. Do you think change was a success? 29. What could be done more?
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Annexure VI: Interview Script Sample
A brief introduction about yourself?
XXXXXXXXXXXXXXXXXXXXXX
For how long you have been working in this organization?
I have been working it this organization for about XXX years.
Was this a profession of your choice?
No, an opportunity to have a permanent public sector job is all that anyone needs. Positions were advertised and like everyone I applied for the position. After the selection process, I was selected and I joined.
How has your experience been in this profession?
Well I hold degree is XXXX and I am appointed on the XXXXX. I am doing the same work on XXX and doing the XXXXXX etc. before this job I was doing XXXXX and I was happy in that but just because it had many uncertainties, I joined this organization so that I can be at ease and salaries comes on time and there is some job structure as well as career.
However, since XXyears I am still in same scale. Although the scales are
XXXXXXXXXXX but they are not upgrading us. Ummmm as you are taking this interview and if you can do that ammm if you can recommend our upgradation to the provincial government and authorities then we will be very grateful.
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So how will you describe your journey and role in this organization so far?
My job in this organization is very simple. Come at 8am and leave at 3PM. I have to be iXXXX to me and do my work on the other side of XXXX. Sitting all day in XXXX and cannot leave the seat for a while because there are always customers seeking services. For example if I am at picture capturing window, there is always someone their and always always in a rush to complete the process as soon as possible. Then most of the time there are dozens of people and if you are not in the counter then they will create noises and complaint numbers are written everywhere so they will complaint to the management. I cannot take off from the job for a day (ahhhh… sigh) you know if even I am in the hospital,
I have to come and show them the proof that look I am hospitalized and will show then the
IV infusion as well as everything. (upset and in anger) even then may me they ask us that its ok if you can work then please go to your XXXX. This is very difficult to manage and if we do not come for two days, they get very harsh with us. And yes sometimes we are tired or mood swings you know, in that situation if some citizen come for something, aaaaaa for example to inquire about the status of his driving license or anything and if that is not ready then he will start to quarrel with us and reason and blame us for the delay and reason with us bla bla bla. But being on the front desk, we have to listen to whatsoever they are saying. But sometimes we also lose our temper and argue with them that it is not our responsibility as we are here just to inform you and on the back end sometimes there is a delay due to some reasons like any reason anything as like the cards are not printed because of cards runs out of stock, and the new stock is not purchased yet or approval of the finance department is pending or there is delay from the supplier. But in all those cases, we are the
377 one who have to face the citizens and as they are clients and they are equally right at the same time in their own ways.
Were you a part of the old process and system?
No sir, we were hired when system was changed from manual to computerized system. As
I am XXXX and these posts were created in the new system therefore, me and several others who were having computer qualification were hired to run the system as replacement to the old and project staff.
You said about old and project staff, will you please elaborate who were they or were they similar?
No they were not similar. Awwww old staff means manual system clerks and those were the people who were part of the previous system. By the time change was taking place from manual to computerization, this was as a project. And those who came to initiate and launch the new system as project team were the project staff. Our appointment was to replace the project staff as the project was ending to we were hired.
So, did you experience working with old staff or project staff?
If I tell you honestly then I have no experience of old system. I have to some extent worked with old staff of manual system. Actually they were not staff of old system, they were traffic police staff and as a traffic police staff they are appointed for certain time period to
(throat cleaning) any branch or office and then transferred to another. Project staff was outsiders who came to launch the project and once the project was launched then they were
378 not needed further. I have started my job working with them and there were few of the old staff as well but now 99% there is no old staff in the computerized driving licensing authority.
Ok, so when you started working with the project staff, how was your learning process and how much you learned from them?
Project staff was not at all supportive. You know they were reluctant to train us or guide us on the system. As an operator we knew how to run the computer, but the back end systems and software was important to learn. But it was our manager who helped us a lot and he gave us on the job training. He was always around and whenever, there was some problem in the system or we didn’t understand any task or there was an issue with the software or hardware or information display etc., the manager was always around and gave us the hand on training and timely guidance. As the project was ending so the employee’s services were no longer required and they were going. But they did not help me. I was like ummm a person whom they thought took their job, so what, I was not, I applied and hired.
They were on contract so they left.
So how will you describe the relationship of management and employees?
Management is very supportive. Right from DIG to DSP and our director and managers all are very supportive.
Did you ever encounter in any conflict with the old staff or project staff?
Well… can you please explain the question to me.
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Yes sure, I mean to say that as you have been working here for quite long and you have experienced working with the old staff and then the project staff from the beginning. Any story that you remember and share that had any issues of conflict between you and the other staff members?
Aaaaa hmmm well there are ummm. See this is all part of organization. You know that there will be arguments and reasoning in every organization. In this organization as well.
Old staff is not here because they were police clerks and they are transferred whenever required. We are also police operators but we are hired for this driving licensing. But we can be transferred. You know the IG, AIG, DIG and all of the staff is rotated on regular basis. May be you stay for 6 months or 3 years. So since I joined, the old staff has changed and only one or two employees in this system are left who worked in the manual system as well. They are also permanent staff of police department and we never had any issue of working them. (throat cleaning) actually the system has changed and the current system has reduced the dependence of humans. But we heard that changing from manual to this current system was having issues of acceptance by old staff. I ummmm was not part of that so I wont say anything. There were head clerks and few others from the old system who use to verify and keep the manual working. However, it was the project staff that thought they have it all. (Throat cleaning) they were holding all the information and not sharing so that they are dependent on.
Ok. So how did you deal with their behaviour?
Well it was our top management and specially the manager at that time Mr. Aftab who was always available to us and guided us. It was the time when the project team was leaving to 380 the transport office and they took the data with themselves. They thought that if they do not train us, then we will be unable to work but it was the commitment of management that gave us the support and backed us and we continued.
So what do you think was the major challenge that you think you faced while implementing the new system?
The challenge was nothing. System was already implemented and it was fully working. We just had to replace the previous project staff as the project ended. It’s a police department and here its always order and obey. If you create problems, you will be transferred to other office. The time project was ended and there were two parallel public sector organizations offering the same services of issuance of driving licenses. Aaaaa traffic police and transport were offering the same service so it was a bit confusion for the citizens that from where they shall get their license. We had established our offices of one window in all the province and our data and process was the oldest. They also had the same process and software as they took data from us. So that was the case and even now this is the case.
The project team was experienced then why they were not given permanent jobs to continue the work?
You know in the government of ANP, it was decided by Iftikhar Hussain Shah, information minister at that time decided that driving licensing to be transferred to transport department.
So the project team moved with that decision. We do not understand why government decides such things because traffic police has been issuing driving license and it has no
381 reason to be moved after initiating and successfully launching computerized process in the same department.
So which one is authenticated issuing authority at present?
Both are. Ummm both are public sector departments. We both are functioning under the same provincial government. Project was shifted to transport but there is no order from government to stop issuing licenses.
Ok understood. Will you please share how often do you get training?
We are trained. As I said that when I joined, the manager and in-charge was always ready to help and guided us. Ummmm Aftab, Nauman and all others helped us learning. Even now when we need something they train us.
As far as I understood, when you joined you were given orientation and sort of on the job training. So you mean to say you are guided but not properly trained?
Yes we are trained on the job and related to the one window operations. We are not sent for any training outside but you see that my job is in this specific role and that training is enough for me to get my job done.
Correct. How will you describe organizational change?
Well change is good. Its always good. It helps in improving and you see the world has move rapidly going into advance direction. There were many problems in the previous
382 system and now computerization of the process has given facilitation to the citizens.
Change means improvement and that is very important.
You mentioned problems related to organizational change. Can you elaborate what were the problems during change in this organization?
Aaaammm when I joined change was already initiated in Peshawar so I don’t know the problems of change. System is expended to 24 districts. Problems are like for example printing cards are out of stock, printer gets out of order, when we were hired there was a project staff who wasn’t cooperating and didn’t help in transferring the knowledge they had. Alright alright so next was the issue of authority over driving license between traffic police and transport office. There was not an issue in this system but heard about the corruption and bribery cases in the manual system.
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