Review of Public Personnel Administration recent issues

Dedication--Keon Chi

Condrey, S. E. — 2008-08-01

The Civil Service Reform Act of 1978: A 30-Year Retrospective and a Look Ahead: Symposium Introduction

Perry, J. L. — 2008-08-01

President Jimmy Carter initiated the most sweeping reforms of the U.S. federal civil service in 95 years when he signed the Civil Service Reform Act (CSRA) on October 13, 1978. This introduction reviews the substantive reforms whose implementation began with creation of the U.S. Office of Personnel Management (OPM), on January 1, 1979. CSRA's provisions were wide-ranging. They included reorganization of the agencies tasked with civil service management and regulation, establishment of a Senior Executive Service, creation of performance appraisal and merit pay programs, and clarification and simplification of appeal procedures for personnel actions. The introduction concludes with summaries of the five articles that appear in the symposium and their significance in the context of CSRA and developments of the past 30 years.

Federal Personnel Management Reform: From Civil Service Reform Act to National Security Reforms

Brook, D. A., King, C. L. — 2008-08-01

In what ways are current civil service reform efforts similar to and different from the qualities that characterize the Civil Service Reform Act of 1978 (CSRA)? These issues are explored by examining the new personnel authorities granted to the Department of Homeland Security (DHS) and to the Department of Defense (DoD) in the National Security Personnel System (NSPS). In many respects, current reforms preserve some of the ideas behind CSRA or they derive from the authorities included in the CSRA. In other respects, current reform departs from the CSRA model and new ideas related to enactment, design, and implementation of civil service reform have emerged. Furthermore, a new argument emerged in DHS and NSPS that had never before appeared in any public discourse on personnel management reform: the link between federal personnel management policy and national security.

Policy Parallels: Applying Lessons From CSRA Chief Architect Alan K. Campbell to Contemporary Personnel Reform Efforts

Getha-Taylor, H. — 2008-08-01

The 1978 Civil Service Reform Act may be considered President Carter's most impressive domestic political victory. This victory can be linked to the efforts of many, but specifically to Alan K. (Scotty) Campbell, who served as the chief architect of the legislation and began implementing the act as first director of the U.S. Office of Personnel Management. Thirty years later, personnel reform is again a presidential priority. As part of the 2002 Homeland Security Act, the Bush administration introduced provisions to enhance flexibility and performance, yet the contemporary reforms met considerable resistance. In an effort to compare and contrast these two reform efforts, this article draws upon historical evidence to examine how Campbell effectively engaged diverse stakeholders in the policy design process, why he championed performance-based pay, and how as a political appointee, he guided lasting change on the federal level.

Personnel Demonstration Projects and Human Resource Management Innovation

Thompson, J. R. — 2008-08-01

The Personnel Demonstration Project (PDP) provision of the Civil Service Reform Act (CSRA) of 1978 was intended to promote innovative human resource management (HRM) practices and policies. The early experience in this regard was not encouraging. However, during the second 15 years of its existence, the Personnel Demonstration Project authority has been critical to the diffusion of two important human resource management policy innovations, paybanding and category rating. This analysis explores the policymaking dynamic through which this diffusion has occurred.

Wrongdoing, Whistle-Blowing, and Retaliation in the U.S. Government: What Have Researchers Learned From the Merit Systems Protection Board (MSPB) Survey Results?

Near, J. P., Miceli, M. P. — 2008-08-01

Much of the unethical behavior occurring in modern organizations that comes to light is first identified and reported by insiders: organization members who are willing to blow the whistle. Data from surveys of federal employees conducted since 1980 by the U.S. Merit Systems Protection Board (MSPB) have been analyzed by researchers. These studies have taught us quite a lot about whistle-blowing, but we still need to learn much more. We present here a summary of results from research on the incidence of wrongdoing and whistleblowing, predictors of whistle-blowing, predictors of retaliation against whistle-blowers, and predictors of overall effectiveness of whistle-blowers in getting wrongdoing stopped. We describe key findings and suggest new directions for future research and policy to address the critical questions still remaining concerning whistle-blowing.

The Diffusion of the Civil Service Reform Act of 1978 in OECD Countries: A Tale of Two Paths to Reform

Lah, T. J., Perry, J. L. — 2008-08-01

This study investigates cross-national diffusion of the Civil Service Reform Act of 1978 (CSRA). Two theoretical lenses are used to analyze the diffusion of performance appraisal, merit pay, the Senior Executive Service (SES), and the separation of positive and regulatory functions. The analysis indicates that most CSRA provisions have diffused more broadly internationally than would be expected based on their technical efficiency and effectiveness in the United States. Both the extent and patterns of diffusion indicate that institutional theory better explains diffusion than does communication theory. Although communication theory is helpful for explaining the early diffusion of CSRA provisions, primarily to English-speaking countries, later diffusion appears to be the result of institutional isomorphism. Regardless of which theories account for their diffusion, provisions from CSRA have diffused widely among OECD countries. The analysis suggests that CSRA has profoundly influenced civil service systems around the world.

Identifying Collaborative Competencies

Getha-Taylor, H. — 2008-05-15

Increasingly, federal organizations must work together with other organizations to jointly produce public value. Thus, it is important for public employees to develop critical collaborative skills. The National Academy of Public Administration affirmed this by calling for a focus on collaborative competencies, but the question remained: What are collaborative competencies? Many skills are theoretically connected to collaboration, but these links have not been tested empirically. Following the methodology developed by McClelland and furthered by Spencer and Spencer, this article presents the results of a collaborative competency study. This investigation involved the use of matched criterion samples (superior versus average collaborators) from the federal government. Individuals in the criterion samples were interviewed using the behavioral event interview design to identify differentiating competencies and create a competency model for future validation.

Explaining Turnover Intention in State Government: Examining the Roles of Gender, Life Cycle, and Loyalty

Moynihan, D. P., Landuyt, N. — 2008-05-15

This article tests a model of turnover intention on a large sample of Texas state employees focusing on four issues. First, the findings support a life cycle stability hypothesis, which suggests that age, experience, and geographic preferences reduce turnover intention, an effect compounded by economic/familial constraints for primary wage earners and members of large households. Second, contrary to previous research, the results show that females are significantly less likely to state an intention to quit. This finding reflects changing patterns of labor force participation, as well as the particular advantages that the public sector offers female employees. Third, the results distinguish between the relative contributions of three overlapping concepts: organizational loyalty, voice, and empowerment. Organizational loyalty and empowerment reduce turnover intention, but voice is not a significant factor. Finally, the article provides a detailed test of different personnel policies, providing particular support for diversity policies.

The Social Costs of Career Success for Women

Tower, L. E., Alkadry, M. G. — 2008-05-15

Women in the workforce, especially those in professional and management positions, are doubly burdened by social traditions that expect workers to meet masculine standards at the office while maintaining their feminine role of nurturer at home. This article studies the social costs of female career progression using a survey of 1,600 respondents from different levels of the public sector. The results show that working women have an increased incidence of being single or divorced, married working women tend to have more housework responsibilities, and working women have fewer children or are childless. The article concludes that government and business organizations need to pay serious attention to this hidden problem of social costs that affect women and men disproportionately.

Alternative Work Schedules and Work-Family Balance: A Research Note

Facer, R. L., Wadsworth, L. — 2008-05-15

For many years, employers have sought to improve employee productivity and work environments. One common strategy is alternative work arrangements, which include flextime, job sharing, telecommuting, and a compressed workweek. In this article, the authors examine the effects of implementing a compressed workweek (four 10-hour days) for employees in city government. This study examines the impact of the compressed workweek schedule on the job satisfaction and work–family conflict of the participating employees. Employees perceived that the alternative schedule increased their productivity and their ability to serve the citizens. Additionally, the authors report that employees working the 4/10 workweek experience lower levels of work–family conflict than their counterparts who are working other schedules, but no significant difference for most measures of job satisfaction. Overall, the authors argue that the impacts of alternative work schedules need more careful study.

Market-Based Pay in Action: Municipal Strategies and Concerns in the Cities of Hampton Roads

Leavitt, W. M., Morris, J. C. — 2008-05-15

The practice of linking the pay of public sector employees to the prevailing labor market, or market-based pay, has been a topic of conversation in many municipalities across the nation. Although much has been written about the use of this pay philosophy, little has been written about the use of market-based pay in local government settings. This article presents the results of in-depth interviews about the use of market-based pay with the human resource directors in the seven Hampton Roads, Virginia, cities. The authors find that although the idea of a market-based pay system is alluring, the difficulties of balancing internal and external equity, political considerations, and economic barriers make full implementation of such a system difficult at best.

Sexual Harassment Isn't Always the Issue: Appellate Courts and Other Factors That Contribute to a Hostile Work Environment

Mann, S., Goodman, D. — 2008-05-15

Discrimination has long been established by the United States Supreme Court to be unconstitutional and illegal. Although the term hostile work environment is not specifically mentioned in the Civil Rights Act of 1964 (CRA), it has been most synonymous with claims of sexual harassment. Have the courts expanded the hostile work environment legal theory to include other protected classes in the CRA? This article analyzes and discusses recent appellate court cases with a claim of hostile work environment with the basis of some action other than sexual harassment. We explain why the courts, in the majority of cases, did not rule in favor of those who claimed hostile work environment, and then we summarize factors the courts used to determine their rulings. In addition, we provide suggestions to both employees and employers.

Managing Public Human Resources Following Catastrophic Events: Mississippi's Local Governments' Experiences Post--Hurricane Katrina

Goodman, D., Mann, S. — 2008-01-29

Catastrophic events such as hurricanes, tornadoes, earthquakes, and terrorist attacks can cost millions if not billions of dollars in damages. In August 2005, Hurricane Katrina decimated Mississippi's Gulf Coast and southeastern Louisiana. Many local governments lost facilities, equipment, vehicles, employees, and so on to the storm. In addition, many local government employees lost their homes, friends, coworkers, or family members, and they witnessed the evacuation of their families to other parts of the country. In this article, the authors use Phases 3 and 4 (response and recovery) of the Emergency Management Framework to analyze local governments' human resource management efforts following Hurricane Katrina. Under normal circumstances, human resource issues such as payroll, recruitment, and retention can be mundane. Managing human resources following a catastrophic event, however, can present challenges for the most mundane tasks.

Dual Careers and Diplomacy: The Willingness of Dual-Career Couples to Accept an International Assignment Within the Dutch Foreign Services

Groeneveld, S. — 2008-01-29

This article focuses on factors that are predictors of the willingness of dual-career couples in the Dutch Foreign Service to accept an international assignment. Until recently, diplomatic spouses (mostly women) had simply been expected to follow and give up their own career if their partner was offered an overseas posting. However, with an increasing number of dual-career couples, such an action can no longer be taken for granted. Results of this study show that two thirds of the employees remain willing to accept a relocation abroad and that a similar proportion of spouses remains willing to follow. A spouse's prior experience abroad and relative career priority are significant predictors of the willingness of couples to accept an international assignment. This study indicates that the human resource management policies of the Foreign Services Department need to take into account decision-making processes involving both the diplomat and the spouse now more than ever before.

The Burden of Dealing with Poor Performers: Wear and Tear on Supervisory Organizational Engagement

Daley, D. M. — 2008-01-29

Using Albert Hirschman's (1970) theory of exit, voice, loyalty, and neglect as measures of organizational effectiveness, this study examines the response of supervisors to dealing with poor performers. In recent years, the U.S. Merit Systems Protection Board has focused its Merit Principles Surveys (MPS) on issues directly linked to its role—prohibited practices, retention, grievance and discipline, and so on—and the role supervisors play in their cause and remedy. In the 2000 MPS, there are a number of items that address supervisory efforts in dealing with "poor performers." These run the gamut from identifying performance discrepancies through providing feedback and developmental opportunities to seeking removal. There are also items that assess the supervisors' perceptions of difficulties in engaging in these activities. Using regression analyses, the author examines these factors with respect to their impact on individual supervisors' perceptions of their own organizational engagement. The performance appraisal process and management support prove especially important in maintaining positive supervisory attitudes.

The Role of Mentoring and Supervisor Support for State IT Employees' Affective Organizational Commitment

Reid, M. F., Allen, M. W., Riemenschneider, C. K., Armstrong, D. J. — 2008-01-29

This article assesses the effects of psychosocial and career mentoring, leader—member exchange (LMX), and gender on the affective organizational commitment (AOC) of information technology (IT) employees working in one state government. Few studies have examined the relationship between mentoring and associated antecedents of the AOC of IT employees, and none has examined these relationships for public-sector workforces. The research finds that when both psychosocial and career mentoring are considered, only psychosocial mentoring was significant in predicting the AOC of state government IT employees. When considering just LMX, it was significant in predicting AOC. Neither psychosocial mentoring nor career mentoring was significant in predicting AOC if LMX is also considered. No gender differences were found for any of the variables examined.

Psychometric Verification of Perry's Public Service Motivation Instrument: Results for Volunteer Exemplars

Coursey, D. H., Perry, J. L., Brudney, J. L., Littlepage, L. — 2008-01-29

This research note reports a confirmatory factor analysis for three of Perry's (1996) public service motivation (PSM) subdimensions: self-sacrifice, commitment to public interest, and compassion. A mail survey of national award-winning volunteers constitutes the sample. Results indicate strong support for Perry's instrument, most noticeably better results for self-sacrifice than those found in Perry's original exploratory work. Implications and recommendations for PSM instrument development are discussed.

A Major Setback for Pay Equality: The Supreme Court's Decision in Ledbetter v. Goodyear Tire & Rubber Company

Riccucci, N. M. — 2008-01-29

Pay inequities based on gender continue to pervade the public and private sector landscapes. Although Title VII of the Civil Rights Act of 1964 as amended and the Equal Pay Act of 1963 proscribe unequal pay for equal work, the newly formed U.S. Supreme Court has issued a ruling in Ledbetter v. Goodyear Tire & Rubber Company (2007) that ignores Court precedents as well as provisions of the Civil Rights Act of 1991, making it more difficult for employees to file suit for pay inequities. Ultimately, the problem of pay disparities in the workplace can only worsen.

Book Review: Call for Reviews

2008-01-29

Outsourcing Human Resources: The Case of the Texas Health and Human Services Commission

Coggburn, J. D. — 2007-11-09

This article examines human resources outsourcing (HRO) at the State of Texas Health and Human Services Commission (HHSC). It describes the emergence of HRO in the public sector and analyzes the HHSC case. The article develops an eight-dimension conceptual framework for assessing the appropriateness of public HRO and demonstrates the framework's usefulness by applying it to the HHSC case.

The Rise of Transgender-Inclusive Laws: How Well Are Municipalities Implementing Supportive Nondiscrimination Public Employment Policies?

Colvin, R. A. — 2007-11-09

Whereas efforts that prohibit employment discrimination based on factors such as race or sexual orientation require certain organizational changes, creating a transgender-inclusive workplace requires organizational changes that include personnel, policy, legal, and medical issues unique to transgender people. At present, it is not clear whether communities are actually implementing these organizational changes, even after adopting transgender-inclusive nondiscrimination laws. This research project surveyed 74 municipalities with transgender-inclusive nondiscrimination employments laws, in order to assess and better understand the state of transgender-inclusive public workplaces. The initial results of the survey suggest that although innovation continues to increase, implementation and enforcement remain low, affecting managers' and employees' abilities to operate in a transgender-inclusive environment. Recommendations are made to improve implementation and enforcement of transgender-inclusive nondiscrimination laws.

Does Person-Organization Fit Mediate the Relationship Between Public Service Motivation and the Job Performance of Public Employees?

Bright, L. — 2007-11-09

Public service motivation (PSM) is argued to be a meaningful predictor of the performance of employees in public organizations. Many scholars predict that as the level of PSM increases, the performance of public employees will also increase. Unfortunately, existing research has yet to fully support this hypothesis. Two published studies that tested this hypothesis have come to different conclusions. This study investigated whether Person—Organization Fit (P—O Fit) mediates the relationship between PSM and the self-reported performance of public employees, using structural equation modeling. Using a sample of 205 public employees randomly drawn from three public organizations, this study found that PSM had no significant direct impact on the performance of public employees, when P—O Fit was taken into account. The implications of this study and areas of future research are discussed.

The Effective Manager . . . Takes a Break

Berman, E. M., West, J. P. — 2007-11-09

This study examines how senior local government managers take work breaks and how doing so is associated with perceptions of performance. Three purposes of taking a break are studied: (a) to reflect on prior work, (b) to restore oneself physically and mentally, and (c) to take care of personal, nonwork needs. On average, managers take a few breaks every week, lasting about 15 min each. Only about 45% of managers agree or strongly agree that break-taking helps them to reduce stress, clear their mind, make them feel reenergized, or otherwise improve their perceived effectiveness. About one third of managers often think about work while taking a break, which is not associated with positive break outcomes. Positive outcomes are strongly associated with minimizing external distractions, such as asking not to be interrupted, removing oneself from the workspace by taking walks or doing exercise, and focusing the mind on nonwork matters.

A Critical Review of the Sweeping Federal Civil Service Changes: The Case of the Departments of Homeland Security and Defense

Underhill, J., Oman, R. — 2007-11-09

This article critiques the proposed radical changes to the civil service system at the Departments of Homeland Security and Defense. It also summarizes the civil service problems and assesses whether the proposed changes would be likely to address those problems. It identifies the difficulties that one of the critical changes (merit pay or pay-for-performance) has encountered in the past. The article is critical of the proposed termination of the General Schedule system, which has served the civil service system so well in the past. It expresses concern about the proposed weakening of rights of employee appeals, protections, and meaningful union participation. The article argues that there are a number of problems facing the civil service, but that most of the changes do not address those problems. It lauds the major achievements of the federal service and cautions against radical changes that will have the effect of weakening it.

Book Review: Kellough, J. E. (2006). Understanding Affirmative Action: Politics, Discrimination, and the Search for Justice. Washington, DC: Georgetown University Press.

Druckrey, C. — 2007-11-09

Erratum

2007-11-09