Much of the academic and policy literature on performance related pay (PRP) focuses on its role as an incentive system. Its role as means for renegotiating performance norms has been largely neglected. The study examines the introduction of performance related pay, based mostly on appraisals by line managers, in the British public services during the 1990s. Previous research indicates PRP failed to motivate many of the staff and its operation had been divisive. Nevertheless, other information suggests that productivity rose. This article seeks to resolve the paradox using contract theory to show that performance pay was the instrument of a major renegotiation of performance norms, and that this rather than motivation has been the key story. Goal setting and appraisal by line managers played a key role in this process.
1The role of performance related pay in renegotiating the 'effort bargain': the case of the British public service. 1 There is a paradox to be explained concerning the spread of performance related pay (PRP) in the British public services. In the public policy debate it has been common to associate its introduction with the aim of improving incentives and motivation among public employees (Brown and Heywood, 2002). This has been a key element in government and top management thinking in the British public services, echoed in two recent government reports (Bichard, 1999, Makinson, 2000, and it has been a long-standing interest in the work of the OECD's public management reform program (Maguire, 1993, OECD 2002. It is also a recurrent theme in much of the Personnel Economics and Human Resource Management literature (eg. Lazear 1998, Milkovich and Wigdor 1991, Mitchell et al. 1990, Armstrong and Murlis, 1994. From the late 1980s, the British public services embarked upon the most systematic and sustained policy of extending and developing performance related pay of any OECD country, mostly replacing annual seniority-related pay increments with performance-related ones based on goal setting and appraisals by line-managers, sometimes called 'appraisal-related pay ' (ACAS, 1990). Nevertheless, when surveying both academic research findings and inside management information, the government's Makinson report concluded that performance pay had not motivated public employees in Britain, and its operation had been divisive (Makinson, 2000). Given that the policy has been sustained by three successive prime ministers of quite different political persuasion, two Conservative and one Labor, as well as successive top managers, it is hard to believe its continued use can be explained by political dogma. Likewise, in the face of such evidence, the perseverance of top public management and of successive governments is hard to understand if employee motivation is the main story. We need to look elsewhere for an explanation.In this article, I argue that the alternative explanation can be found in the use of performance pay, and of performance management more widely, to provide a framework for renegotiating...