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Ambiguity of Performance Management in the Fire Safety Policy of Finland

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Ambiguity of Performance Management in the Fire Safety Policy of Finland View metadata, citation and similar papers at core.ac.uk brought to you by CORE provided by Trepo - Institutional Repository of Tampere University ANNIINA AUTERO Ambiguity of Performance Management in the Fire Safety Policy of Finland ACADEMIC DISSERTATION To be presented, with the permission of the board of the School of Management of the University of Tampere, for public discussion in the Auditorium A1 of the Main Building, Kalevantie 4, Tampere, on October 26th, 2012, at 12 o’clock. UNIVERSITY OF TAMPERE ACADEMIC DISSERTATION University of Tampere School of Management Finland Copyright ©2012 Tampere University Press and the author Distribution Tel. +358 40 190 9800 Bookshop TAJU [email protected] P.O. Box 617 www.uta.fi/taju 33014 University of Tampere http://granum.uta.fi Finland Cover design by Mikko Reinikka Layout Sirpa Randell Acta Universitatis Tamperensis 1773 Acta Electronica Universitatis Tamperensis 1247 ISBN 978-951-44-8941-9 (print) ISBN 978-951-44-8942-6 (pdf) ISSN-L 1455-1616 ISSN 1456-954X ISSN 1455-1616 http://acta.uta.fi Tampereen Yliopistopaino Oy – Juvenes Print Tampere 2012 Acknowledgements I begin my thanks to the University of Tampere and to the School of Management, where I spent most of the years studying for my doctoral dissertation. I would also like to thank the School of Public Affairs and the University of Colorado at Denver which I visited in 2008 and to the Scandinavian Consortium for Organizational Research (Scancor) at Stanford University which I visited in 2011. Thank you for allowing me to visit and for the chance to study in the international research environment. I express my gratitude to my supervisor Professor Jarmo Vakkuri from the University of Tampere. Thank you for believing in me and my abilities to conduct doctoral research. I am grateful to have been able to prepare my doctoral dissertation as a researcher engaged in the Public Sector Efficiency as an Ambiguous Problem research project funded by the Academy of Finland, and as a researcher in the university community. Thank you for all these opportunities: it has been a privilege. Special thanks to Professor Pertti Ahonen from the University of Helsinki who also supervised my work from the very beginning and gave me comments even after he moved to Helsinki. Professor Ahonen has always been a great visionary. Thank you for your support and especially for your theoretical knowledge: I have learned a lot from you. I wish to thank my reviewers Associate Professor Emerita Linda deLeon from the University of Colorado Denver and Dr. Reijo Tolppi from the Kemi-Tornio University of Applied Sciences for your valuable comments and criticism. Thank you for accepting this assignment! I also want to thank all the other people who cooperated with me. I wish to thank former Research Director Esa Kokki from the Emergency Service College for providing statistical data on fire deaths and for responding to my questions about that and for participating also in the emergency management colloquium in Denver, Colorado. Thank you for collaboration and encouragement on my research journey. I want to thank Professor Sirpa Virta from the University of Tampere for introducing me to the security management field in Finland. It was my pleasure to follow the application procedure you led for the Academy of Finland. I had not seen before such a big group of academics committed to the same target. The work community played a significant role in completing my dissertation. I want to thank my colleagues in the former Department of Economics and Accounting for providing a supportive and friendly atmosphere. Special thanks goes to PhD Lotta-Maria Sinervo for working together in the Academy of Finland project and for acquainting us with the implications of ambiguity. Thank you also for your friendship. Special thanks to M.Sc. (B.A) Hannele Mäkelä for your friendship and support. We have met at various places around the world and your spirit is always really human and analytic at the same time. Special thanks to PhD Oana Apostol for reading and commenting on my text. Thank you PhD Patrícia C. Nsc. Souto for reading my text and for your positive energy! I want to thank the Ministry of the Interior for allowing to do research interviews. I wish to thank Finance Director Jukka Aalto for offering performance agreements and helping to arrange the interviews in the Ministry of the Interior. Thank you to all the interviewees. I want to thank former Director and Deputy Director General Heikki Joustie from the Ministry of Finance for his comments and ideas considering development of public administration. Thanks to former Director General Jukka Wuolijoki and Director Mikko Kangaspunta from the State Treasury, Finance Director Risto Hakoila from the Ministry for Foreign Affairs, Lic.Pol.Sc., Chairman of the Board at Frisky & Anjoy Petri Uusikylä, Docent, Director of Service Production, Petri Virtanen from the City of Turku and Managing Director Anette Vaini-Antila from the Finnish Consulting Group Ltd. for teaching me what public management is about. Thank you also to my former colleagues in the Net Effect Ltd., State Treasury of Finland, MentorIT FCG Ltd. and in the Ministry of Finance. I have learned a lot from these different organizations and people and from their different perspectives. Thanks for all the high-spirited PhD students I met in Denver, Colorado! Thanks also to the GSE Rotary group members and friends in Wyoming! Thanks to the innovative and bright scholars I was honored to meet in Palo Alto, Scancor! I express my compliments to Professor Emeritus James G. March who created the Scancor. Special thanks to Sirpa Randell for making my dissertation look like a dissertation! Thank you for your patience: you are a professional! I had the good fortune to receive a research grant from the Fire Protection Research Foundation that is much appreciated. Thank you also the University of Tampere Foundation. My family has always been the most important support to me. I wish to thank my parents Maija and Heikki, my sister Pauliina and her husband Tero and their wonderful daughters and my goddaughter Tiia and Liisa and my brother Matti and his fiancé Susanna. Thank you for your support. Without you this work would not have been possible. I wish to thank, Eeva-Maija Hiekkataipale and her family and my godson Veikka. Thank you for your support, good spirit and warmth. Special thanks to M.D. Minna Paloniemi for supporting me in my work and life and by giving me something else to think about by taking me to climb! Thanks to Sanna Käki, Mila Riekki, Mari Riivari, Sari Tuomisto and Kati Niskanen for your deep intelligence, kind-heartedness and for being such good friends to me! Thanks to Anne-Mari and Juho Parkkinen and their family for taking care of us in the Silicon Valley! Thanks to you and to all of our friends in California! You will stay in our hearts! The final thank goes to Henri for supporting me through this work. Thanks for your love and for your patience. I love you. Tampere, September 2012 Anniina Autero Table of Contents Abstract ...................................................................................................................................... 11 Tiivistelmä ..................................................................................................................................13 1 Introduction ......................................................................................................................... 17 1.1 Motivation for researching performance management ..................................... 18 1.2 The government’s objective to reduce fire deaths ..............................................20 1.3 The nature of emergencies .....................................................................................22 2 Setting the Research Problem And Research Task .........................................................23 2.1 The aim and research questions ...........................................................................23 2.2 Methodology ............................................................................................................26 2.2.1 The scientific methodological approach .................................................26 2.2.2 Research method ........................................................................................28 2.2.3 Data collection .............................................................................................30 2.2.4 Methods for analyzing data .......................................................................36 2.2.5 Summary ...................................................................................................... 37 2.3 Structure of the study .............................................................................................38 3 Theoretical Framework ......................................................................................................39 3.1 Ambiguity of decision making in public organizations ....................................39 3.1.1 Ambiguity as part of bounded rationality ...............................................40 3.1.1.1 James G. March’s definition of ambiguity ............................. 41 3.1.1.2 William Empson’s seven types of ambiguity .........................42 3.1.2 Concept of rationality .................................................................................44 3.1.3 Complete cycle of choice.............................................................................45 3.1.4 Garbage can
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