School of Social and Political Sciences - Research Publications

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    The Policymaker's Dilemma: The Risks and Benefits of a 'Black Box' Approach to Commissioning Active Labour Market Programmes
    Considine, M ; O'Sullivan, S ; Phuc, N (WILEY, 2018-01)
    Abstract In September 2009, the British Government launched a new employment assistance model called Flexible New Deal. It was soon replaced by Work Programme in 2011. Both prioritized what is often called a ‘black box’ approach to public employment assistance, whereby the government purchaser focuses predominantly on outcomes and does not seek to direct agency operations. Using a study of the orientations and strategies of frontline employment services staff in 2008 and 2012, we seek to enhance understanding of the impact of so‐called ‘black box’ commissioning on key aspects of service delivery. Black box advocates propose that it is a hands‐off approach that allows agencies to be innovative and to improve efficiency. These effects are thought to be due to improved local service quality and greater flexibility to tailor services to individual clients. Critics argue that this increased discretion facilitates under‐servicing of some jobseekers and agency profiteering. These practices are commonly referred to as ‘parking’ and ‘creaming’. In this UK study, we provide evidence of both positive and negative activities associated with black box commissioning. We find some small improvements in flexibility at the frontline, but little to no evidence of increased efficiency as measured by the reported rates of jobseekers moving into work. We also observe an increase in practices associated with creaming and parking. We conclude that improving efficiency and maximizing innovation are not guaranteed by black box commissioning, and that the aim of facilitating increased frontline flexibility, while also minimizing risk, persists as a major policy design tension.
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    The Category Game and its impact on Street-Level Bureaucrats and Jobseekers: An Australian Case Study
    O’Sullivan, S ; McGann, M ; Considine, M (Cambridge University Press (CUP), 2019)
    A key question concerning the marketisation of employment services is the interaction between performance management systems and frontline client-selection practices. While the internal sorting of clients for employability by agencies has received much attention, less is known about how performance management shapes official categorisation practices at the point of programme referral. Drawing on case studies of four Australian agencies, this study examines the ways in which frontline staff contest how jobseekers are officially classified by the benefit administration agency. With this assessment pivotal in determining payment levels and activity requirements, we find that reassessing jobseekers so they are moved to a more disadvantaged category, suspended, or removed from the system entirely have become major elements of casework. These category manoeuvres help to protect providers from adverse performance rankings. Yet, an additional consequence is that jobseekers are rendered fully or partially inactive, within the context of a system designed to activate.
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    Governance, Boards of Directors and the Impact of Contracting on Not-for-profit Organizations - An Australian Study
    Considine, M ; O'Sullivan, S ; Phuc, N (WILEY-BLACKWELL, 2014-04-01)
    This article investigates strategic changes in the governance of not-for-profit (NFP) boards in response to Australia’s fully contracted employment services system. Of interest are changes in board demography, behaviour, procedures and dynamics, with special attention to the impact of those changes on boards’ identity as a representation of community interests. As Australia is in the vanguard of social service contracting, the Australian experience affords insight into the impact of contracting upon the identity of the NFP sector. We find that NFP directors operating in this quasi-market have come to define board ‘professionalism’ as the main strategic move to accommodate the increasingly commercial and competitive nature of contracting. Boards have adopted a more business-like view of how their agency should operate, changed their board’s skill set and utilized strategic recruitment processes, including selecting new board members based on perceived skill deficiencies of the current board and paying board members for their service. NFP boards have also introduced more comprehensive induction, training and evaluation systems. These findings provide Australian policymakers with evidence of the cultural impact of service delivery reforms on NFP agencies. They also afford leaders of NFPs an opportunity to reflect on important changes in the governance of their organizations, including the potential for ‘mission drift’ and loss of local forms of legitimacy.
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    New public management and welfare-to-work in Australia: Comparing the reform agendas of the ALP and the Coalition
    Considine, M ; O'Sullivan, S ; Phuc, N (Taylor & Francis (Routledge), 2014-09-01)
    Since the 1990s, the adoption of new public management (NPM) as a management philosophy has translated into multiple waves of reform in the employment services sector in Australia, namely Working Nation (1994–96), Job Network (JN: 1996–2009) and Job Services Australia (JSA: 2009–present). Each wave has sought to improve the preceding policy. In this article, we examine changes implemented during the Rudd/Gillard Labor governments. Using government policy documents and survey data from frontline employment services staff, we compare JSA to JN against five benchmarks. Our data indicate that JSA has generated modest improvement. JSA is also a system with less emphasis on strong forms of sanctioning. Our combined data suggest that policy actors operating under NPM conditions are indeed able to influence specific aspects of frontline practice, but they must spend great effort to do so and must accept new imperfections as a consequence.
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    Mission-drift? The Third Sector and the pressure to be business-like: Evidence from Job Services Australia
    Considine, M ; O'Sullivan, SB ; Nguyen, (Australian and New Zealand Third Sector Research, 2014)
    Becoming more businesslike is seen by many not-for-profit (NFP) agencies as necessary for survival, if not expansion, under the conditions required by New Public Management (NPM). Charged with delivering social services in a competitive environment, NFP agencies must often compete with each other, and with for-profit (FP) organisations, in order to obtain and retain government contracts. While some things are known about why NFP agencies emulate FPs, and the means by which they do so, little is known about whether adopting a more businesslike approach yields benefits. In this study we compare attitudes to profit maximisation against other client-oriented goals among NFP agencies delivering contracted employment services in Australia. We find that profit-maximising attitudes have increased dramatically between 1998 and 2012. Yet despite this, we find no correlation between a profit-orientated disposition and the rate at which services improve for clients. We conclude that while becoming more businesslike might be beneficial for a host of reasons, it does not appear to help agencies meet their key performance indicator: achieving positive outcomes for those they seek to serve.
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    Quasi-Markets and Service Delivery Flexibility Following a Decade of Employment Assistance Reform in Australia
    Considine, M ; Lewis, JM ; O'Sullivan, S (CAMBRIDGE UNIV PRESS, 2011-10-01)
    In 1998, we were witnessing major changes in frontline social service delivery across the OECD and this was theorised as the emergence of a post-Fordist welfare state. Changes in public management thinking, known as New Public Management (NPM), informed this shift, as did public choice theory. A 1998 study of Australia’s then partially privatised employment assistance sector provided an ideal place to test the impact of such changes upon actual service delivery. The study concluded that frontline staff behaviour did not meet all the expectations of a post-Fordist welfare state and NPM, although some signs of specialisation, flexibility and networking were certainly evident (Considine, 1999). Ten years on, in 2008, frontline staff working in Australia’s now fully privatised employment sector participated in a repeat study. These survey data showed convergent behaviour on the part of the different types of employment agencies and evidence that flexibility had decreased. In fact, in the ten years between the two studies there was a marked increase in the level of routinisation and standardisation on the frontline. This suggests that the sector did not achieve the enhanced levels of flexibility so often identified as a desirable outcome of reform. Rather, agencies adopted more conservative practices over time in response to more detailed external regulation and more exacting internal business methods.
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    NETWORKS AND INTERACTIVITY Ten years of street-level governance in the United Kingdom, the Netherlands and Australia
    Considine, M ; Lewis, JM (ROUTLEDGE JOURNALS, TAYLOR & FRANCIS LTD, 2012-01-01)
    The systemic reform of employment services in OECD countries was driven by New Public Management (NPM) and then post-NPM reforms, when first-phase changes such as privatization were amended with ‘joined up’ processes to help manage fragmentation. This article examines the networking strategies of ‘street-level’ employment services staff for the impacts of this. Contrary to expectations, networking has generally declined over the last decade. There are signs of path dependence in networking patterns within each country, but also a convergence of patterns for the UK and Australia, but not The Netherlands. Networking appears to be mediated by policy and regulatory imperatives.
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    Front-line work in employment services after ten years of New Public Management reform: Governance and activation in Australia, the Netherlands and the UK
    Considine, M ; Lewis, JM (Sage Publications, 2010)
    This study examines the impact of administrative reforms upon the work of front-line staff in the employment services of three reform-oriented countries – Australia, the Netherlands and the United Kingdom. These changes have involved greater use of private agents, more detailed performance contracts, clearer expectations about outcomes for job-seekers, and increased competition between agencies seeking government work. The study compares the work characteristics and strategies of front-line staff in agencies in the three systems in 2008 and a decade earlier, using surveys. The results show that there are substantial differences in the level of tailoring and investment in these countries. There are three relatively stable modes of governance in these cases and the most stable of these types across countries and across time is what we term the corporate-market mode – more generally labelled New Public Management (NPM). Despite the expectations of theorists and of reformers, the role of network governance proves neither as stable nor as generalised as expected.
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    From Entitlement to Experiment: Industry Report on Case Studies of high performing providers
    Lewis, J ; Considine, M ; O'Sullivan, S ; Nguyen, P ; McGann, M (UoM; UNSW, 2018)
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    From Entitlement to Experiment: The New Governance of Welfare to Work. UK Report back to Industry Partners
    Lewis, JM ; Considine, M ; O'Sullivan, S ; Nguyen, P ; McGann, M (University of Melbourne, 2017)
    The UK employment services sector is a dynamic landscape that has been the subject of several major waves of reform over the past decade. This has included the consolidation of centrally-contracted programmes focused on particular localities and discrete cohorts of job seekers into much larger programmes aimed at broader groups of unemployed people. For the past five years, the Work Programme has been the main contracted welfare-to-work programme in the UK, although the Department for Work and Pensions has also established a smaller Work Choice programme for those with more substantial barriers to employment related to disability and ill-health. In addition, Jobcentre Plus continues to provide a public employment service to many people during the earlier stages of benefit claims. It will take on an even greater role in doing so when the Work Programme and Work Choice programmes come to an end in mid-2017 and are replaced by a new Work and Health Programme.