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Some reflections on NHS
‘performance’ management
                  Steve Harrison
School of Social Sciences & National Primary Care
                   R&D Centre
            University of Manchester

            stephen.harrison@manchester.ac.uk
INPUTS



                                    Cost-
                                    effectiveness


                       WORK
                     PROCESSES


        Efficiency
                                 Effectiveness




 OUTPUTS                                         OUTCOMES




Basic concepts
of ‘performance’
Approaches to performance
              management
• Formative = PIs as the means of facilitating local
  management enquiry into organisational
  performance & thereby facilitating local
  approaches to differences/ problems identified
• Summative = PIs define key aspects of
  organisational performance, thereby providing
  targets (absolute or relative) to be pursued, & by
  which locals account to the management
  hierarchy
• Informational = PIs used by consumers as one
  element in making choices
• Tendency in NHS for formative to drift into
  summative over time; not much evidence of
  informational usage
Problems of summative performance
      management in the NHS – 1
               (Bevan & Hood 2006)
• Incentives to perform in relation to what is
  measured drives out concern with what is
  unmeasured but still important (eg cancelling
  ophthalmic follow-ups to reduce new o/p waits)
• Faking performance data (eg ‘correction’ of
  ambulance response times)
• Biasing samples/ statistical associations (eg
  extra staff in A&E sample week)
• Queuing to queue (eg pts in ambulances outside
  A&E; pt records in desk drawer)
Problems of summative performance
      management in the NHS - 2
• Evading definitions (eg A&E trolleys become
  ‘beds’)
• ‘Creaming’ (eg surgeons avoid operating on
  high-risk cases; QOF exception reporting by
  GPs)
• Overall –
   – to turn honest managers etc into dishonest
     (‘knights’ into ‘knaves’)
   – tendency to make public less trusting
     (Tsoukas’s ‘tyranny of light’)
So why do governments do it?
• Symbolic political defence against criticisms of
  public sector (eg Brown ‘something for something’)
• Allows governments to maintain distance from work
  that they don’t understand, yet maintains illusion of
  being in control
• Performance ‘industry’ provides lots of money and
  jobs
• ‘Winners’ validate the regime, whereas ‘losers’ are
  just losers!
• Number of losers usually manageable by
  government turning a blind eye in many cases
• Path-dependence – difficult to stop performance
  management without accusations of cover-up etc
Possible remedies?

• Random monitoring - makes various forms of
  gaming less practicable
• Face-to-face inspections more difficult to
  game and may provoke ‘tip-offs’ from staff
• Abandon summative quantitative
  performance management in favour of
  understanding work & systems, & organising
  them to be better for patients

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Steve harrison

  • 1. Some reflections on NHS ‘performance’ management Steve Harrison School of Social Sciences & National Primary Care R&D Centre University of Manchester stephen.harrison@manchester.ac.uk
  • 2. INPUTS Cost- effectiveness WORK PROCESSES Efficiency Effectiveness OUTPUTS OUTCOMES Basic concepts of ‘performance’
  • 3. Approaches to performance management • Formative = PIs as the means of facilitating local management enquiry into organisational performance & thereby facilitating local approaches to differences/ problems identified • Summative = PIs define key aspects of organisational performance, thereby providing targets (absolute or relative) to be pursued, & by which locals account to the management hierarchy • Informational = PIs used by consumers as one element in making choices • Tendency in NHS for formative to drift into summative over time; not much evidence of informational usage
  • 4. Problems of summative performance management in the NHS – 1 (Bevan & Hood 2006) • Incentives to perform in relation to what is measured drives out concern with what is unmeasured but still important (eg cancelling ophthalmic follow-ups to reduce new o/p waits) • Faking performance data (eg ‘correction’ of ambulance response times) • Biasing samples/ statistical associations (eg extra staff in A&E sample week) • Queuing to queue (eg pts in ambulances outside A&E; pt records in desk drawer)
  • 5. Problems of summative performance management in the NHS - 2 • Evading definitions (eg A&E trolleys become ‘beds’) • ‘Creaming’ (eg surgeons avoid operating on high-risk cases; QOF exception reporting by GPs) • Overall – – to turn honest managers etc into dishonest (‘knights’ into ‘knaves’) – tendency to make public less trusting (Tsoukas’s ‘tyranny of light’)
  • 6. So why do governments do it? • Symbolic political defence against criticisms of public sector (eg Brown ‘something for something’) • Allows governments to maintain distance from work that they don’t understand, yet maintains illusion of being in control • Performance ‘industry’ provides lots of money and jobs • ‘Winners’ validate the regime, whereas ‘losers’ are just losers! • Number of losers usually manageable by government turning a blind eye in many cases • Path-dependence – difficult to stop performance management without accusations of cover-up etc
  • 7. Possible remedies? • Random monitoring - makes various forms of gaming less practicable • Face-to-face inspections more difficult to game and may provoke ‘tip-offs’ from staff • Abandon summative quantitative performance management in favour of understanding work & systems, & organising them to be better for patients