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Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
Quality in public administration: A causal configuration
analysis
Complete Research
Claudia Melati, Universidade Federal do Rio Grande do Sul, Brasil, cmelati@yahoo.com.br
Raquel Janissek-Muniz, Universidade Federal do Rio Grande do Sul, Brasil,
rjmuniz@ufrgs.br
Carla Curado, ADVANCE/CSG, ISEG - University of Lisbon, Portugal,
ccurado@iseg.ulisboa.pt
Abstract
This article presents a qualitative study about the influence of Knowledge Management and
Intelligence for a greater quality in decision-making and greater efficiency and effectiveness in
the execution of the public activity. Data was gathered from the perspectives of public managers
from southern Brazil and it was collected using semi-structured interviews. Fuzzy-set Qualitative
Comparative Analysis technique was applied to identify the paths leading to quality, efficiency and
efficacy in the public administration. Results suggest that Knowledge Management and
Intelligence are relevant for the quality of public managers’ decision-making, as well as for a
greater efficiency and effectiveness in the execution of public activities. Findings also address the
combination of these aspects with the support from the senior management and the existence of
financial incentives. Additionally, results indicate that the absence of quality in decision-making
and in the efficiency and effectiveness of the public activity are related to the absence or reduced
use of elements of Knowledge Management and Intelligence in the Public Management.
Keywords: Public Management, Knowledge Management, Intelligence, fuzzy-set Qualitative
Comparative Analysis (fsQCA).
Introduction
According to the Forrester Research (2014), governmental agencies must find better ways to use
data to meet citizens’ expectations and deliver services in an era of unprecedented data volume
and widespread mobile connectivity. According that research, in this context, “smart”
governments become strong players, since they can improve access to information and services,
facilitate mobility through new channels and transform data into ideas and innovations aiming to
meet citizens’ needs.
Information management in Public Organizations is a complex process, because it involves a great
number of organizations that receive numerous information from companies, citizens, and other
organizations, and, with the processing of this data and information, there is the intention to feed
the society back with better public policies or to meet the demands of each citizen. Gil-Garcia et
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
al. (2014) show that governments, in different levels and branches, are adopting tools and
applications to deliver, function and organize themselves in a way that allows them to follow rapid
environmental changes. The implementation of management processes, such as Knowledge
Management and Intelligence (Waltz, 2003), are effective in taking advantage of data and
information from the external environment to transform them into relevant knowledge for public
managers’ better-quality decision-making and for greater efficiency and effectiveness for the
execution of the public activity.
Through Intelligence processes, organizations are able to reduce the amount of data generated by
the external environment, since data must be collected and monitored, interpreted, analyzed and
disseminated, assisting decision-making with more sensitive and useful information (Janissek-
Muniz & Blanck, 2014). Intelligence in public administration refers to the intensification of the
use of data and environmental information, through ubiquitous sensing, advanced metering and
integrated applications that allow the government to make decisions in a more informed and
evidence-based way (Scholl & Scholl, 2014; Gil-Garcia et al., 2016).
The Knowledge Management process relates to a series of practices and techniques used by
organizations to create, share and explore knowledge to reach organizational goals (Nonaka, 2002;
Arora, 2011). Knowledge Management contributes with new options, improving performance and
with practices that can benefit public administration, improve the effectiveness of public services
and the society to which it serves, and the communication between the top management and the
workforce (Wiig, 2002; Monavvarian & Kasaei, 2007).
Thus, it is important that public managers have effective mechanisms for public management. This
in paper we address Knowledge Management and Intelligence process elements and we use Fuzzy-
set Qualitative Comparative Analysis (fsQCA) to identify the pathways leading to: a) a higher
quality decision-making of public managers, and b) the efficiency and effectiveness in the
execution of public activities.
The identification of alternative pathways leading to higher quality decision-making and to the
efficiency and effectiveness in the execution of public activities presents itself as a great
contribution to the administrative practice. The Brazilian context is interesting for the development
of this study, since the country is facing a turbulent, uncertain and full of surprises scenario, and
being able to count on processes of environmental scanning and the compliance with formal
processes of Knowledge Management may help reduce the uncertainty in the decision-making of
public managers.
In addition, relating the two concepts of Knowledge Management and Intelligence in the public
sector demonstrates an evolution of studies in the public context, contributing to the advancement
of studies on the subject (Massaro, Dumay & Garlatti, 2015; Gil-Garcia et. al, 2016). Also, the use
of Comparative Qualitative Analysis is presented as an original contribution in the analysis of such
processes with the public sector.
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
The paper is divided into four sections. The next section explains the concept of Knowledge
Management and Intelligence in the context of Public Management. The third section shows the
method used in this research, together with the results from the application of the research analysis
method. Finally, the discussions and conclusions of the study are presented.
Literature Review
Public administration is understood as the set of entities that comprise the State, focused on the
provision of public services and meeting the needs of citizens and the community, through the
provision of quality services, encouraging social participation and efficiency in the development
of the public activity (Brazil, 2016). In Brazil, public administration is divided into three distinct
branches: The Executive, which is this research’s scope, Legislative and Judiciary.
In view of the peculiarities of the public administration, from the 1990s the government began a
process of public administration modernization, mainly focusing on the efficiency of the public
administration by means of cost reduction and obtaining results during the execution of the public
activity in Brazil, seeking a more managerial approach with less bureaucracy (Pereira, 1996;
Abrucio, 1997; de Paula, 2005; Klering et al., 2010).
According to Ribeiro et al. (2013), public administration reforms have contributed to the
improvement of the political decision-making capacity and to the State decentralization, with the
implementation of horizontal coordination and the modernization of the human management
potential. The aim is to develop a more participative, efficient and network-integrated public
administration (de Paula, 2005; Secchi, 2009; Capobiango et al., 2013), providing a better public
management in the delivery of services to society. Information and knowledge, representing the
organization’s intelligence, allow public agencies/entities to correct, improve or innovate their
management practices and consequently their performance (Brasil, 2016).
Also, it is from the companies’ processing of data and facts (internal), as well as those coming
from the environment, that are not under direct control (external), that there is influence in the
performance and in assisting the public manager’s decision-making Therefore, the process of
Intelligence in Public Management is important to the objectives of administrative modernization,
once it involves peculiarities when compared to the private sector.
Nevertheless, authors emphasize the importance of governments’ continuous environmental
scanning and data analysis (Cepik, 1997, 2005; Desouza, 2005; Johston & Hansen, 2011; Linders
et al., 2015). Issues related to the efficiency of the public activity, the provision of quality public
services to society from the use of environmental information characterizes the use of Public
Management Intelligence processes (Gil-Garcia et al., 2014; Scholl & Scholl, 2014).
Still, according to Rezende (2012), Intelligence in Public Administration is related to the
systematized, personalized and appropriate use of information and knowledge for decision-
making, and to assist the public manager to deal with the complexity and uncertainties through
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
coordination, continuous involvement, open data access and shared information (Gil-Garcia et al.,
2014; Scholl & Scholl, 2014) and finally, to effectively use the abilities and knowledge that are
frequently latent in the crowd (Johnston & Hansen, 2011).
Senior management support through the incentive of environmental scanning with the objective of
capturing important data and information for the construction of a more efficient Public
Administration (Gil-Garcia et al., 2016); the collaboration and participation of people as data and
information receivers in both environmental monitoring and also important data for the
organization (Johnston & Hansen, 2011; de Paula & Rover, 2012; Gil-Garcia et al. 2016). And the
use of information and communication technologies to collect important data and information from
the external environment, as well as to assist data and information sharing among stakeholders (de
Paula & Rover, 2012; Scholl & Scholl, 2014), are important dimensions in the process of
Intelligence in the Public Management.
Both the knowledge generated from the data and information from the external environment, as
well as the knowledge developed inside the organization need to be managed. In this way, the
Knowledge Management formal process arises from the organization’s ability to gather, store and
transfer knowledge, providing the access to knowledge sources through mechanisms of
information identification and recovery, with the objective of applying the knowledge to the
specific needs of the organization (Alavi & Leidner, 2001). According to Riege & Lindsay (2006),
to build a more effective government and to develop public policies grounded on knowledge,
Public Management must apply more systematic and efficient ways to capture, disseminate, apply
and make organizational knowledge transparent. In addition, the use of practices and techniques
to create, share, and explore knowledge can assist the achievement of organizational goals (Jain &
Jeppesen, 2013).
Thus, an effort from governmental agencies to adopt practices of Knowledge Management with
the aim to create innovative and complex systems that connect people with information and
knowledge are important to perform their activities (Riege & Lindsay, 2006), once the central
value of an organization resides on people’s knowledge (Voronchuk & Starineca, 2014).
Massaro et al. (2015) highlight the importance for managers in the public sector to recognize that
their organizations work in a unique context where stakeholders and accountability are
significantly different than the private sector, and that a pure application of the tools and models
for Knowledge Management coming from the private sector can be counterproductive, since the
object is the public sector.
As important dimensions for the Knowledge Management in the Public Management, senior
management support for creation, dissemination and storage of the organizational knowledge,
aiming to develop organizational policies oriented toward learning and Knowledge Management
stand out (Hazlett et al. 2008; Lindner & Wald, 2011; Shinoda et al., 2015); and the use of
information and communication technologies as facilitators to the process of Knowledge
Management, since its use enables knowledge gathering, sharing and storing (Dawes et al., 2009;
Arora, 2011; Schutte & Barkhuizen, 2014; Mao et al., 2016).
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
In addition, human capital appears as the protagonist of the Knowledge Management process, since
people have the power of decision through the use of the knowledge created, obtained,
disseminated, and stored in the organization (Wiig, 2002; Monavvarian & Kasaei, 2007; Arora,
2011; Voronchuk & Starineca, 2014).
It is evident from this literature review that the majority of studies on Knowledge Management
and Intelligence processes in the public context were carried out separately, without analyzing the
opportunity for the development of public management when working together with such
processes.
According to the studies of several authors, the importance of the Knowledge Management and
Intelligence processes for the Public Management and the need to continue the research on the
area are evident. As no studies were found that sought to understand potential sets, through the use
of Knowledge Management and Intelligence in Public Management, for better decision making
and greater efficiency and effectiveness in the development of public activity in the Brazilian
context, this study seeks to fill this gap in the literature.
Methods
Regarding this research’s objective in finding effective ways to a higher quality decision-making
by public managers and for the efficiency and effectiveness in the development of the public
activity through the use of elements of the Knowledge Management and Intelligence processes,
we opted to use a qualitative and exploratory approach since “one of the main benefits of the
qualitative research is that it allows the researcher to see and understand the context in which
decisions and actions occur” (Myers, 2013, p. 5).
The present work uses the fuzzy-set Qualitative Comparative Analysis (fsQCA) technique, which
is a set-theoretic methods for studying cases as configurations (Fiss, 2007). Such methods are
suitable for configurational theory because they consider cases as combinations of attributes and
recognize that different combinations reflect different and unique cases (Ragin, 2000). As such,
set-theoretic methods differ from conventional, variable-based approaches because they explore
multiple and alternative possibilities that lead to an outcome (Fiss, 2007), thus through its use it is
possible to identify causal configurations that lead to the presence or absence of a given result,
with the possibility of presenting more than one solution to each determined objective (Rihoux;
Ragin, 2009).
The set-theoretic methods contribute to theory building by combining verbal statements with
logical relationships that differs from the traditional correlational approach to data. The method
accepts that complex causal relations generate new insights for organizational theory in the fields
of strategy research, human resource management, or the resource-based view (Fiss, 2007).
The QCA analysis with the use of the Fuzzy Set allows, through the insertion of association values
between “0” and “1” a much closer perception of the situations studied (Ragin, 2000). By using
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
the fsQCA, we identified which combinations of causal conditions lead to quality of public
manager’s decision-making and which lead to efficiency and effectiveness in the development of
the public activity, as well as the absence of the expected results.
Each configuration of the causal conditions and the associated result are designated as one case
(Fiss, 2007). Causal conditions in the fsQCA analysis are related to the dimension (elements) that
are important, according to the theoretical reference and the interviews’ content analysis regarding
the use of processes of Knowledge Management and Intelligence in the Public Management
context.
The conditions related to the objectives of greater quality in the public manager’s decision-making
and which lead to greater efficiency and effectiveness in the development of the public activity are
the use of processes of Knowledge Management (km), intelligence (intel) and senior management
support (seniormgt), as well as the influence of public service length (fslength) and gender of the
interviewee (fsgender).
Regarding the second objective, the use of a complementary causal condition: financial incentive
(financincentive) was effective. Dimensions related to the use of information and communication
technologies and people engagement were not analyzed in the application of the methodology
since according to the theoretical reference and the interviews they are extremely necessary in both
cases, and therefore we did not incorporate these variables in the study in order to bring a
differential to this research.
Data collection
For the data collection, we conducted semi-structured interviews with 17 public managers of two
Agencies in the Executive Branch in one of Brazilian Southern States between April and May of
2017. Initially, we developed a questionnaire based on the theoretical reference of this research.
Part of the interviewees work in an agency with structured management processes such as strategic
planning, servant’s qualification, productivity measuring with financial incentives, among other
mechanisms that assist Public Management activities. Other managers interviewed do not work in
agencies with such structured management processes and do not receive such financial incentives.
The interviews with the public managers were carried out with the aid of a script with semi-
structured questions and based on the literature review. These interviews lasted approximately one
hour and were recorded and later transcribed and analyzed. First, the responses were categorized
to later be possible to identify causal conditions for the application of the Qualitative Comparative
Analysis (QCA).
Interviewees were public managers with an effective position in the public administration and that
perform activities related to Knowledge Management and Intelligence. Of these, 15 out of the 17
interviewees, (88%) are male, 11 (65%) are in the public service for more than 10 years and 11
(65%) hold a post-graduation. 12 out of 17 (71%) declare they receive financial incentives
(productivity) in the Public Agency where they work. They perform activities in different areas:
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
inspection and collection, quality of public expenditures, projects and system, public purchases,
among other relevant areas for the execution of the public activity.
Through the analysis of interviews, important causal conditions were identified for a Quality in
Public Managers’ Decision-Making and Effectiveness and Efficiency in the execution of the public
activity. For the purposes of exposing the relevance of identified causal conditions: Knowledge
Management, Intelligence, Senior Management Support, Financial Incentive, Public Service
Length and Gender, excerpts from the interviewees demonstrate the importance of these
conditions.
For example, in one of the interviews the public manager explained, "the external environment is
fundamental for our decision-making. It is indispensable to discuss the external scenario,
economic, technological and political scenario, because it interferes directly with work of the
manager". Other interviewees exposed the importance of the use of formal processes of
Knowledge Management, which is established through mechanisms of creation, sharing and use
of individual and organizational knowledge. Emphasizing the importance of such a condition.
Calibration
Originally, QCA was developed for the configuration analysis of conventional Boolean settings,
that is, to analyze whether a given variable is a member or not of a given set through the crispy set
definition (csQCA), which provides researchers with simple data composed of binary variables,
coded as 1 when “present” and 0 when “absent” (Rihoux; Ragin, 2009).
Differently from the use of binary variables existing in the traditional approaches of sets, fsQCA
(Fuzzy-sets) enable inserting associating values between “0” and “1” and not solely “0” and “1”.
The fsQCA accepts alternative condition combinations, equifinality and asymmetry (Fiss, 2011),
that is, fuzzy settings allow for a more approximate perception of the situations studied (Ragin,
2000).
The application of the method generate different configurations of attributes leading to the same
outcome, using algebraic manipulation of logical statements. Such an approach ways offers a better
fit of data on organizations and provides a sophisticated assessment of different combination of
causes that affect a variety of outcomes, such as performance (Fiss, 2007), or in the present case:
outcomes of quality in public administration.
According to the author, the most important is the connection between theory and data analysis in
social sciences, which can be largely improved using fuzzy-set once they can be designed to fill in
theoretical concepts. Calibration is the process of classifying conditions in each case, from full
membership (1,00) to full non-membership (0,00) and implies a theoretical and empirical
knowledge on the variables (Ragin, 2005; 2008).
For this study’s condition calibration, binary and categorical variables were used through fsQCA,
where each category must be associated to a significant group (full membership, cross-over point
of maximum ambiguity of association, and full non-membership). To calibrate data in a fuzzy-set,
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
we used the manual procedure (grounded on evidences). We calibrated the causal conditions and
the outcomes, based on interviews carried out with public managers.
Regarding Knowledge Management and Intelligence processes, we computed several procedures
encompassed in each process. Thus, Intelligence (intel) is comprised of the combination of at least
one of the variables that comprise the process (environmental monitoring or use of intelligence
process or dissemination of data and information). Similarly, Knowledge Management (km)
consists of at least one of the variables that comprise the formal process (knowledge creation or
storage of knowledge or use of knowledge or dissemination of knowledge).
Regarding km, intel and Senior Management Support (seniormgt) the calibration process was
established through the definition of importance levels: 0.00 (not important process/support); 0.25
(process/support minimally important); 0.50 (process/support reasonably important); 0.75
(process/support considerably important); 1.00 (process/support totally important). The variable
Public Service Length (fslength) presents several values, and it composes a fuzzy-set. Fuzzy scores
present varying degrees to which different cases belong to a set, assessing different membership
degrees between full inclusion and full exclusion. This calibration is only possible through the use
of theoretical and substantive knowledge, which are essential for the specification of the three
qualitative breakpoints: full membership, full non-membership, and the point of maximum
ambiguity about membership (Ragin, 2005). In this way, there is the possibility of full membership
(0.90) for 39 years of public service length; full non-membership (0.10) for the threshold of 2 years
of public service; the point of maximum ambiguity (0.50) for the threshold of 14 years of public
service.
Gender and Financial Incentives are binary variables, according to Table 1. In relation to the
outcomes, the calibration process was established through the definition of importance levels: 0.00
(inexistence quality/efficiency); 0.25 (poor quality/efficiency); 0.50 (reasonable
quality/efficiency); 0.75 (lots of quality and efficiency); 1.00 (total quality and efficiency). Table
1 depicts the cuts used in the calibration of the causal conditions and outcomes.
Table 1. Calibrations of the conditions (variables)
Conditions and Outcomes
Calibration
Knowledge Management (km)
(0.00; 0.25; 0.50; 0.75; 1.00)
Intelligence (intel)
(0.00; 0.25; 0.50; 0.75; 1.00)
Senior Management Support (seniormgt)
(0.00; 0.25; 0.50; 0.75; 1.00)
Financial Incentive (finincentv)
Binary Variable, 0 = absent; 1 = present
Public Service Length (fslength)
(39; 14; 2)
Gender (fsgender)
Binary Variable, 0 = Male; 1 = Female
Quality in Public Manager Decision Making
(0.00; 0.25; 0.50; 0.75; 1.00)
Efficiency and Effectiveness in the Execution of the
Public Activity
(0.00; 0.25; 0.50; 0.75; 1.00)
Necessity and Sufficiency Analysis
The causal conditions are analyzed on their necessity and sufficiency. The degree of necessity of
the causal condition indicates the extent to which it is necessary to reach a given result. The degree
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
of sufficiency of the causal condition shows the extent to which it can be related to the explanation
of the results. (Fiss; Sharapov; Conqvist, 2013). According to Ragin (2000), the necessary
conditions must present consistency values that surpass the 0.80 limit. For Schneider et al. (2010),
a condition or a condition match is called "necessary" or "almost always necessary" if the
consistency score exceeds the limit of 0.90. The necessary condition for Quality in Public
Managers’ Decision-Making, the following conditions are: being a male, having senior
management support, having Knowledge Management and Intelligence processes, consistent with
the previously discussed.
Regarding the necessary conditions for the absence of the result, that is, for the lack of Quality in
Public Managers’ Decision-Making, those are: the absence of senior management support and the
absence of Knowledge Management processes. Regarding the Efficiency and the Effectiveness in
the execution of public activities necessary conditions are: being a male, having financial
incentives, having senior management support, having Knowledge Management and Intelligence
processes. Concerning the necessary conditions for the absence of Efficiency and the Effectiveness
in the execution of public activities, there are no necessary conditions.
Causal Configurations
The results of the sufficiency analysis, report the intermediary solutions as suggested by the
literature (Fiss, 2011; Ragin, 2008). In tables 2 to 5 we report the core and peripheral conditions;
core conditions represent those present both in the parsimonious solutions and in the intermediary
solutions, on the other hand, peripheral conditions are only present in the intermediary solutions
(Fiss, 2011; Fiss et. al, 2013; Ragin, 2000, 2008). Regarding Quality in Public Managers’
Decision-Making, the results offer a single configuration (Table 2).
Concerning the Absence of Quality in Public Managers’ Decision-Making, results show three
intermediary causal combinations (Table 3). Regarding the solutions reported in Tables 2, 3, 4,
and 5 all respecting the 0.80 threshold suggested by Ragin (2008) or Fiss (2011), they all meet the
0.80 threshold suggested by Ragin (2008). Considering tables 2 to 5 intel=Intelligence;
km=Knowledge Management; seniormgt=Senior Management Support; fsgender=Gender;
fslength=Public Service Length; finincentv =Financial Incentive. In addition, black full circles (●)
indicate the condition's presence. Unfilled circles (◌) indicate the absence of the condition. Big
circles indicate core conditions; Small circles depict peripheral conditions. Blank spaces indicate
that the condition that "does not contribute".
Table 2. Causal combinations for Quality in Public Managers’ Decision Making
Casual conditions
Coverage
Consistency
Combinations
intel
km
seniormgt
fsgender
fslength
Raw
Unique
1
0.88
0.88
1.00
Coverage of the global solution: 0.88
Consistency of the global solution: 1.00
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
Table 3. Causal combinations for the absence of Quality in Public Managers’ Decision
Making
Casual conditions
Coverage
Consistency
Combinations
intel
km
seniormgt
fsgender
fslength
Raw
Unique
1
0.61
0.14
1.00
2
0.64
0.16
1.00
3
0.48
0.09
089
Coverage of the global solution: 0.86
Consistency of the global solution: 0.93
In the Efficiency and Effectiveness in the execution of the public activity analysis we used
financial incentive as a condition, since it is an important influence for the outcome. Regarding
Efficiency and Effectiveness in the execution of the public activity sufficiency analysis, results
show a single combination and two leading to its absence (Tables 4 and 5) (both solutions respect
the consistency 0.80 threshold suggested by Ragin (2008) or Fiss (2011)).
Table 4. Causal combinations for Efficiency and Effectiveness in the Execution of the
Public Activity
Casual conditions
Coverage
Consistency
Combinations
intel
km
seniormgt
finincentv
fsgender
fslength
Raw
Unique
1
0.58
0.58
0.91
Coverage of the global solution: 0.58
Consistency of the global solution: 0.91
Table 5. Causal combinations for the absence of Efficiency and Effectiveness in the
Execution of the Public Activity
Casual conditions
Coverage
Consistency
Combinations
intel
km
seniormgt
finincentv
fsgender
fslength
Raw
Unique
1
0.20
0.10
1.00
2
0.22
0.13
1.00
Coverage of the global solution: 0.33
Consistency of the global solution: 1.00
Discussion
Results show only one causal combination that leads to Quality in Public Managers’ Decision-
Making. This combination shows that processes of Intelligence, Knowledge Management, Senior
Management support and being male lead to a greater Quality in Public Managers’ Decision-
Making.
In relation to the absence of quality in decision-making, the fsQCA analysis produced three causal
combinations, the first two combinations presented by the fsQCA regarding the absence of Quality
in Public Managers’ Decision-Making are coherent when we compare them to the results for
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
Quality in Public Managers’ Decision-Making Based on the content analysis of the interviews with
public managers and the subsequent calibration of the data and information collected, it was
possible to identify important causal combinations that are in line with what was exposed in the
literature review and with the main points mentioned by the respondents, as well as regarding the
findings from the content analysis of the interviews carried out.
Nevertheless, combination number 3 shows an interesting finding in the present study in which
being a male manager with short public service length, and absence of senior management support;
intelligence and knowledge management support is sufficient for quality in decision-making. Such
result highlights an important issue that may be further explored in future studies, since the
theoretical review did not provide issues related to gender and service length, additionally, it could
even be influenced by other unevaluated conditions. Additionally, it is noteworthy that there are
less combinations leading to Quality in Public Managers’ Decision-Making than to its absence.
This result serves as an alert for public management in what concerns the management of data,
information and knowledge for managerial decision-making.
Such result may be related to the difficulty of using and sharing knowledge among public servants
and managers, related to the lack of dissemination about the importance of using data, information
and knowledge with Public Management or linked to the interest of the government now. As one
of the public managers interviewed points out "information and knowledge produced from
environmental data qualifies decision making." but "it does not cover everything, but 50% of
decision-making is based on data and information, the other 50% is the result of government
momentum."
Regarding Effectiveness and Efficiency in the execution of the public activity, fsQCA analysis
produced a single causal combination involving having Knowledge Management and Intelligence
processes, having Senior Management Support, being a male and having short length of public
service. According to one of the interviewees, "it is extremely important to increase efficiency and,
on the other hand, to achieve concrete results in Public Management."
Yet regarding the absence of Efficiency and Effectiveness in the execution of the public activity,
there are two possible combinations, such result shows that the combinations of being a male
public manager or having short length of service, along with the absence of Knowledge
Management and Intelligence processes, not having Senior support and not benefiting from
financial incentives lead to the absence of Efficiency and Effectiveness in the execution of the
public activity.
Corroborating with the findings in the analysis, three of the interviewees claim that the greater the
amount of data and information it is used, as well as the ease of communication, the greater the
efficient development of public activity. They claim to have concrete results in the processes, such
as the capture of tax fraud, mechanisms that help in planning the quality of public spending, control
of public costs, among other possibilities inherent to the activity.
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
Therefore, the absence of Efficiency and Effectiveness in the execution of the public activity
involve almost the opposing causal combinations that lead to the achievement of that result. In
other words, there can be alternative combinations of causal conditions both for the presence as
well as for the absence regarding the expected outcome. These configurations reflect the three
characteristics of fsQCA:
a) More than one combination of causal conditions leads to the result and to its absence
(alternative combinations of causal conditions)
b) The alternative causal combinations can produce the same result (equifinality);
c) Causal conditions of the result can differ from the causal conditions of its absence
(asymmetry).
Using the Qualitative Comparative Analysis, we uncovered paths that lead to a greater quality in
public managers’ decision-making and to a greater efficiency and effectiveness in the execution
of the public activity. Such paths involve the use of Knowledge Management and Intelligence
processes, or its absence. Findings are consistent with the theoretical review and the interviews’
content analysis, that identified Knowledge Management and Intelligence processes together with
other conditions lead to quality in public managers’ decision-making and efficiency and
effectiveness in public activity execution.
Conclusion
This study provides an original contribution previously unaddressed in the literature, since it
presents the causal configurations that lead to the quality in public managers’ decision-making and
to the efficiency and effectiveness in the execution of the public activity (as well as causal
configurations leading to the absence of such outcomes) by using elements from the Knowledge
Management and Intelligence theories in the context of Brazilian Public Management. Findings
show one path leading to quality in decision-making and three that lead to its absence.
Furthermore, there is one path that leads to efficiency and effectiveness in the execution of the
activity and two that lead to its absence. These findings highlight the importance of the conditions
in the paths, strengthening the assumptions found in the theoretical review. Thus, based on this
study, the importance of using elements from Knowledge Management and Intelligence processes
for a more efficient and effective execution of Public Management activity becomes evident.
Furthermore, efficient knowledge and information management enable valuable decision-making
for the public manager regarding public policies to be adopted and/or maintained, meeting the
main objectives of public management, which consist on the provision of quality services, on the
efficient execution of the public activity, and on the encouragement of social participation focusing
on the collective wellbeing.
One of the main benefits of knowing the paths that lead to a desired result is to point out what we
can try to develop with the Public Organizations in order to obtain a better Public Management.
For managers, in turn, it is important to recognize that there are alternative ways to achieve
objectives in a more efficient way with greater quality in the decision making process. It should
be emphasized that when one of the paths is described, it is necessary to maintain it and to look
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
for new paths that prove effective for the results sought. As for the benefit of knowing what can
lead to the absence of the desired results, we have the opportunity to avoid such combinations in
the public organization, so as not to generate the absence of the intended.
This paper brought the new way of analyzing the conditions with the purpose of making a more
effective public administration and to empower public managers with important paths to make
decisions of higher quality. The fact that there are no studies on this subject in Brazil, especially
those that address the Public Sector, which is more complex than the private is, demonstrates this
study’s originality.
Future studies can focus on the vision of public servants, to analyze how these concepts and
conditions are understood and practiced by various positions and functions with the said Public
Bodies. Also the research has potential to be applied in different public institutions, aiming at a
pattern of paths that lead to Quality in Public Managers' Decision-Making and Effectiveness and
Efficiency in the execution of the public activity in the context of the Brazilian public sector.
Finally, it is important to highlight the importance of the joint use of Knowledge Management and
Intelligence processes, together with other conditions identified in the paper, in favor of a more
effective Public Administration in the development of its activities and in the construction of a
cities, states and countries.
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Authors’ Biographies
Claudia Melati is a Ph.D. student in Business Administration from the Universidade Ferderal do
Rio Grande do Sul - UFRGS. She completed her MSc in Business Administration from the
Universidade Ferderal do Rio Grande do Sul - UFRGS (2017), with strong in studies on
Knowledge Management and Intelligence in the public context. Her current research is aimed at
Refereed Paper Proceedings - KM Conference 2018 – University of Pisa, Italy
A Publication of the International Institute for Applied Knowledge Management
understanding and developing studies on Smart Government and Intelligence in Public
Management.
Raquel Janissek-Muniz is an Associate Professor and Researcher at the Business Administration
Department of Undergraduate and Graduate Programs, UFRGS. She is the Coordinator of the
Information, Intelligence and Information Technology Research Group and at the Strategic and
Anticipative Intelligence Brazil Research Group. She is also a member of the LESCA Research
Group at Université de Grenoble - France. Her current research interests include Strategic
Intelligence, Anticipative Intelligence, Environmental Scanning, Strategic Foresight, Processes
and Methods of Anticipative Intelligence and Knowledge Management. She has published
numerous articles on these topics.
Carla Curado is an Associate Professor at the Department of Management, ISEG – Lisbon School
of Economics and Management, University of Lisbon, Portugal. She is the Coordinator of the
Corporate Sciences Master Program and of Human Resource Master Program at ISEG, University
of Lisbon, Portugal. She is also a board member of the ADVANCE research center, ISEG;
University of Lisbon. Her current research interests include Knowledge Management, Human
Resources Management, Organizational Behavior, and Intellectual Capital. She has published
numerous articles on these topics in outlets such as the Journal of Business Research, Computers
in Human Behavior, Journal of Knowledge Management, Management Decision or Creativity and
Innovation Management.
