Lapsley (2001d, p. 107) contends that the observed failure of modernisation reforms in the literature (see, for instance, Olson et al, 1998; Guthrie et al, 2005) could be related to the propensity of researchers to take a snapshot approach (Pettigrew, 1989) in investigating what is essentially an iterative and ongoing transformation process. Lapsley (2001d, p. 88) writes that longitudinal research overcomes:
…the distinct problem of examining the gap between strategic intent and operational implementation in this large, complex industry [the UK National Health Service]. In examining changes, Pettigrew advocates the longitudinal perspective as essential to understanding the processes of change and cautions against snapshots of reforms: ‘episodic views of change not only treat innovations as if they had a clear beginning and a clear end but also, where they limit themselves to snapshot(s) … fail to provide data on the mechanisms and processes through which changes are created (p. 26)’.
While one of the strengths of this thesis is its longitudinal perspective, it is also a potential limitation for the following reasons. First, this is a documentary-based study that does not include field-based interviews which could have provided richer
Chapter 7 Conclusion 141
understandings of the use of PPPs as a procurement technology and also of changing auditor-general perspectives on the conduct of PPP performance audit. Second, the majority of the documents examined are either official government documents (such as the PPP policies and the 2000 OCSC report) or are government-commissioned reports (Audit Review 2000a; b; Graffam et al, 2005; Kirby, 2000; Birgden and McLachlan, 2004). As there has been relatively little substantive performance audit examination of PPP projects that investigate achievements in the execution stage in light of benefits anticipated in the pre-contracting stage, the work of Australian auditors-general is insufficient to enable a comprehensive evaluation of PPPs. The lack of field research means that the findings in this thesis have not been corroborated by parties actually involved in PPP practices. Third, this thesis has focused on one particular PPP category (PPP prisons and hospitals) in one site in Australia. Accordingly, the findings may not be representative of other PPP arrangements in Victoria, or elsewhere in Australia and other nations. Fourth, the pre-2000 PPP model appears to have been abandoned in Australia (except for a PPP prison commissioned in 2001 in WA (see Robinson et al, 2007)), perhaps rendering the bulk of the findings of historical relevance only because the pre-2000 model has been replaced by the post-2000 model, which has significantly reduced project risk for the government and contractors. Fifth, the findings in relation to the apparent increase in systems-based audit in the post-2000 period need to be investigated further.
In outlining the limitations of this research, this section has alluded to opportunities for future research. Clearly, there is a need for longitudinal field-based and documentary-based research to be conducted into Australian PPPs and their oversight by auditors-general. One of the contributions of this research is that it has provided for others an outline map of the PPP territory in Victoria. Victoria is Australia’s leading proponent of PPPs and has developed the PPP policies that have been adopted in all other Australian jurisdictions with few substantive amendments (English and Guthrie, 2003). Accordingly, this study has done much to flesh out the institutional and policy context in which PPPs have been developed and implemented in this country. However, this thesis has also noted that jurisdictional differences require scholars to take care when examining jurisdictional-based initiatives as there may be unique features that affect objectives and outcomes. Nevertheless, others can build on the findings in this thesis.
142 Conclusion Chapter 7
Importantly, very little field research into PPPs has taken place internationally, and none has occurred in Australia. Field research provides opportunities for the collection of rich empirical data, which cannot be replicated in documentary-based studies (Laughlin, 1995; 2004). Field-based research is time consuming for researchers and subjects. More crucially, field-based research into PPP practices would require the consent and active participation of departments of treasury and finance, and of line agencies. Given the reluctance of governments to make contracts and other PPP related material publicly available, there may be considerable obstacles to undertaking field research into PPPs and their achievements. This is unfortunate. Field-based research could make a valuable contribution to governments’ understanding of PPP implementation and strategies to improve outcomes.
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CHAPTER 8
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