In the last chapter of 21 police authorities in

2014-08-25
In the last chapter of 21 police
authorities in Sweden
NPM and EBP in relation to the perception of
quantitative knowledge within the police
organization.
Ola Kronkvist
Linnæus University
[email protected]
The police, a heterogeneous shop in different sectors
Heterogeneous organization
Heterogeneous operations
21 authorities + NPB
Crime prevention
Approx. 28,000 co-workers
(20,000 police officers)
Social control, crime-fighting
Different size of authorities
(7,200-140)
Criminal investigation
A large number of departments Collaborative/social
with different tasks and
structures
Large set of management
levels with overlap
Traffic safety
Span over different sectors
Administration/state authority
Justice sector
Traffic safety
sector
Stateadministration
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The police, not only a professional bureaucracy
Professional bureaucracy
Machines bureaucracy
Homogenous education
Specialized competences
Decentralized management
Centralized management
Low level of control
High level of control
Difficulties to measure results
Easy to measure results
Stable environment
Dynamic environment
High complexity
Investigations, crime
prevention, planned
operations
Immediate operations
(ad-hocracy)
Low complexity
Handling passports, lost Crowd control
property etc.
(depending on level)
After Burns & Stalker, 1961; Woodward 1965 och Mintzberg, 1979, 1993
Standardization and situation adaption
Stable environment
Dynamic environment
High complexity
Competence* PNU,
distribution of tasks
Competence* and
continuous adaption.
PUM-A, distribution of
tasks
Low complexity
Tasks
Competence
Stable environment
Dynamic environment
High complexity
Partly situational
structure
Situational structure
Low complexity
Low level of
situational structure
Situational structure
*Also standardization of tasks to some extent.
After Mintzberg, 1979, 1993
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Street level bureaucrat and the measure of results
Features
Effect
Discretionary power, direct interaction
Difficult to control, qual and quant
Limited information
Difficult to compare
Varied scope of action
Difficult to compare
Rule-conflicts
Difficult to compare
Diffuse goals
Confusion between goals and measures
Tasks outside defined goals
Unrecorded, goal mix-up
Balance of incompatible values
Unrecorded, goal mix-up
House holding of resources
Unrecorded, goal mix-up
Clients can affect resources
Unrecorded, goal mix-up
Policy-makers
Simplifies tasks
Creates routines, group clients
Simplifies categorizations. Risk of
inappropriate/to varied categorizations
After Lipsky, 2010
Effects of hasty ways of measuring results
The organization translates measurements into goals
Exclusive measuring of information easily quantified
Co-workers confusing goals and measurement
Only fulfillment of good measures are rewarded (not goal attainment)
Priorities are adjusted and measures manipulated accordingly =
“pinnjakt”
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New Public Management - the “bad boy” of logics
Logic
Implementation
Effect/reason
Bureaucratic
Forced
System of rules with few compromises,
Predictable, legally certain, some
sluggish
Professional
Necessary
Competent handling of tasks,
standardized competences
Marketconforming
Added, enforces
Increased effectivity, control. Conflict
with other logics. Conflict with
operations.
• Lack of choice
• Different supplier role
• Different costumer satisfaction
• Different influx of clients
After Freidson, 2001
Evidence Based Practice - NPM:s “nice look-alike”
Operations based on scientific evidence
Normally by quantitative randomized studies
Great difficulties to quantify
Ethical reasons makes some experiments difficult or impossible
Research financing rarely follows operative needs
It’s time consuming to construct complete evidence based methodology
Exaggerated specific or general recommendations
Must be completed by qualitative evidence and well tried experience
Postulates communicative and receiver competences
E.g. Sarnecki, 2010; Bergmark, Bergmark & Lundström, 2011: Howard & Jenson, 1999;
Soydan, 2010)
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Leaders of the first line, policy makers and filters of
knowledge
Lipsky, 2010; Kronkvist, 2013, Meyer & Rowan, 1977
Goals, instructions
Goals translated into quantitative
measures, priorities and
instructions translated into
orders, quantitative knowledge
Method to realize orders,
quantitative knowledge
translated into priorities
Quantitative
knowledge adjusted
to fulfil goals and
instructions
Interpret
Mediate
Disconnect formal
and informal
organization
Creates policy
Qualitative knowledge in
quantitative package. Adjusted
to fulfil orders and quantitative
goals (measures)
Policy based on priorities,
qualitative knowledge
adjusted to fulfil orders
Why NPM always fail and why we keep on trying
Market-conforming logic is in conflict with both professional and bureaucratic.
Therefor it has no ”critical mass”.
The incitements of the market are, to a greater part, absent in human service
organizations
The rhetorical language of the market is alien and provoking
Increase of efficiency is necessary
Fulfilment of goals is important, both from economical and democratic
perspectives
Professional and bureaucratic logics are insufficient
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What needs to be done and where
To succeed with NPM-strategies
Polit.
Centr.
Local
Polit.
Centr.
Local
Harmony in the evaluation of quantitative and qualitative
knowledge
Analysis of every NPM-strategy to identify conflicts with
professional and/or bureaucratic logic.
Pick-the-raisins-from-the-cake-strategy
Continuous efforts
To succeed with EBP
Harmony in the evaluation of quantitative and qualitative
knowledge
Enhance the competence in understanding and use of research
evidence
Collaboration with scientists
Financing of research partly channelized threw the police
organization
Plausible quantitative measures of qualitative phenomena
Plausible qualitative measures of quantitative phenomena
Education, training and mentoring
The “pick-the-raisins-from-the-cake-strategy”?
NPM-strategy
What went wrong
“Raisins in the cake”
Lean
Suited for a machine
bureaucracy, lacks human
service perspective.
Necessary level of control
is absent
Few and brief handing overs
Minimizing of setup time
Learning
organization
Needs the engagement of
co-workers to obtain and
spread knowledge. Other
activities have been more
rewarded
Training shifts, instructor
culture, allowing individuals to
progress
Supply-anddemand
organization
Competence as purchaser
and deliverer has not been
sufficient. Confusion of
authority. Lack of
comprehensive view
Responsibility and collaboration
where parts of the organization
supplement each other
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What can we expect in 2015?
Probable change
Positive effect
Negative effect
Six levels of
management
Faster decisions with
more responsibility
More informal leaders in
hidden structures
Confusion about time
perspective
Larger organization
Better comprehensive
view and responsibility
for weaker parts of org.
More homogenous
organization
Increased corruption.
Risk of less efficiency in
some parts.
Still as heterogeneous
operations.
Academic police basic
training
Enhancement of the
profession
More police research
Higher status and wages
Better knowledgebase
Cheaper
Enhanced competence in
the understanding and
use of evidence base.
Less possible recruits
Some negative effects of
the incorporation in the
academic system
Cultural conflicts
References
Bergmark, A., & Lundström, T. (2011). Evidensbaserad praktik i svenskt socialt arbete. Om ett
programs mottagande, förändring och möjligheter i en ny omgivning. In I. Bohlin & M. Sager
(Eds.), Evidensens många ansikten. Evidensbaserad praktik i praktiken. Lund: Arkiv.
Burns, T., & Stalker, G. M. (1961). The Management of Innovation. London: Tavistock.
Freidson, E. (2001). Professionalism: the third logic. Cambridge: Polity Press.
Howard, M., & Jenson, J. (1999). Clinical practice guidelines: should social work develop them?
Research on Social Work Practice, 9, 283-301.
Kronkvist, O. (2012). Ett argumenterande PM om New public management och evidensbaserad praktik i
relation till synen på kvantitativa kunskaper i polisorganisationen. Paper i organisationsteori.
Göteborgs universitet.
Kronkvist, O. (2013). Om sanningen skall fram – Polisförhör med misstänkta för grova brott.
Doktotsavhandling i Socialt arbete, Linnéuniversitetet, 117/2013
Lipsky, M. (2010). Street-level Bureaucracy - Dilemmas of the Individual in Public Services. New York:
Russel Sage Foundation.
Meyer, J., & Rowan, B. (1977). Institutionalized Organizations:: Formal Structures as Myth and
Ceremony. American Journal of Sociology, 83, 340-363.
Mintzberg, H. (1979). The Structuring of Organizations. Englewood Cliffs, NJ: Prentice-Hall.
Mintzberg, H. (1993). Structures in fives. Upper Saddle River: Prentice Hall.
Sarnecki, J. (2010). Polisens prestationer – en ESO-rapport om resultatstyrning och effektivitet. In E. f.
s. i. o. ekonomi (Ed.). Regeringskansliet: Finansdepartementet.
Soydan, H. (2010). Politics and Values in Social Work Research. In I. Shaw, K. Briar-Lawson, J. Orme
& R. Ruckdeschel (Eds.), Social Work Research (pp. 131-148). London: Sage Publications.
Woodward, J. (1965). Industrial Organization: Theory and Practice. London: Oxford University Press.
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