The Influence of Governance Factors in Performance Management of the Malaysian Public Sector: A Qualitative Exploration Utilizing Goal Setting Theory and the High-Performance Cycle Model

The Influence of Governance Factors in Performance Management of the Malaysian Public Sector: A Qualitative Exploration Utilizing Goal Setting Theory and the High-Performance Cycle Model

Ruhana binti Mohamad Zam^1*, Aida Maria binti Ismail², Aida Hazlin binti Ismail², Syahrul Ahmar bin Ahmad³

 ¹Faculty of Accountancy, University Teknologi MARA, 40450 Shah Alam, Selangor, Malaysia

²Faculty of Accountancy, University Teknologi MARA, 42300 Bandar Puncak Alam, Selangor, Malaysia

³Faculty of Accountancy, University Teknologi MARA, 85000 Segamat, Johor, Malaysia

^*Corresponding author

DOI: https://dx.doi.org/10.47772/IJRISS.2025.9020080

Received: 27 January 2025; Accepted: 30 January 2025; Published: 03 March 2025

ABSTRACT

This study explores the relationship between governance factors and performance management in the Malaysian public sector. Through a qualitative approach, data from in-depth interviews were analyzed to assess how ministries’ capabilities influence the effectiveness of performance management systems. The research focuses on the perceptions of Secretary Generals (Chief or Heads of Departments) regarding governance and its impact on performance management outcomes. The findings reveal that effective implementation of performance management significantly enhances governance by improving transparency, accountability, and service delivery. This study offers insights into best practices for integrating performance management systems to achieve superior governance outcomes.

Keywords: Performance Management, Governance, Public Sector, Accountability, Transparency

INTRODUCTION

Performance measurement is an integral part of performance management, involving the continuous process of identifying, monitoring, and communicating performance outcomes against defined indicators. According to Dascalu et al. (2016), corrective actions based on these assessments ensure the achievement of desired outcomes. This feedback loop is essential for informed decision-making and fostering improvements at strategic, operational, and individual levels. Thus, performance management functions as an ongoing, flexible process where managers and their teams collaborate within a framework designed to achieve set objectives.

In public sector organizations, performance management systems are pivotal for driving accountability, efficiency, and effectiveness (Van Dooren & Kuhlmann, 2014). These systems align individual performance with organizational goals, ensuring that public resources are utilized efficiently. This study investigates how governance factors influence performance management in the Malaysian public sector, viewed through the lenses of Goal-Setting Theory (Locke & Latham, 2002) and the High-Performance Cycle Model (McBer, 2003).

Integrating individual performance with strategic goals is crucial for enhancing organizational success. This planned approach entails setting goals, monitoring progress, and assessing results to guarantee the timely and effective achievement of corporate objectives (Armstrong, 2010). Effective performance management is particularly vital in Malaysia’s public sector, given the challenges of convoluted bureaucratic procedures, scarce resources, and the need to deliver high-quality services while upholding stringent accountability requirements (Rahman & Aminuddin, 2020).

Based on prior research by the researcher, The Impact of Self-Efficacy on Performance Management in Malaysia’s Public Sector, this study contributes to our understanding of governance within the performance management framework by looking into the role of governance elements as a measuring tool, which are currently underrepresented in Malaysian public administration.

Effective governance in the public sector necessitates transparency, accountability, and strategic alignment, all of which can be significantly enhanced by well-implemented performance management frameworks (Bovens et al., 2008).

In a context characterized by complex bureaucratic structures and rising demands for accountability, this research addresses critical gaps in the literature regarding the interplay between performance management systems and governance factors. While the Malaysian government has introduced several quality-focused initiatives to enhance service provision, a notable volume of complaints about public services persists. As a result, the concept of good governance has become more integrated into reform programs aiming at enhancing public sector performance, particularly through the delivery of high-quality projects (Ibrahim et al., 2020).

Over the past 25 years, Malaysia’s productivity growth has been notable, although it has lagged behind several global and regional rivals. According to Binti Mohamad Zam et al. (2024), only by continuing reform efforts to overcome major structural barriers will Malaysia’s development path be supported and maintained. Despite many reform initiatives, ongoing complaints about Malaysia’s public sector performance emphasize the need for more information on how governance issues influence performance management. This study looks into the key governance variables that have a direct impact on performance outcomes in Malaysia’s public sector. As a result, this study investigates how certain governance metrics like accountability and strategic alignment affect performance management systems in Malaysia’s public sector. The aim is to identify governance variables that can address existing difficulties while also improving the overall performance management landscape, as assessed by heads of ministries and agencies.

LITERATURE REVIEW

The literature emphasizes the crucial role of governance in enhancing performance management within the public sector (Bouckaert & Halligan, 2008; Pollitt & Bouckaert, 2017). Specifically, it highlights how Goal Setting Theory and the High-Performance Cycle Model can help improve performance outcomes. Despite significant progress, there remains a gap in qualitative insights and theoretical applications within the Malaysian context, which this study seeks to address.

Governance in the public sector refers to the frameworks, processes, and institutions through which public authorities are directed and controlled. Its key components include transparency, which ensures actions and decisions are open and accessible; accountability, which holds public officials responsible for their actions; and efficiency, which aims to optimize resource use to achieve desired outcomes (Kaufmann, Kraay, & Mastruzzi, 2009). Effective governance is essential for fostering trust, ensuring equitable service delivery, and promoting sustainable development in public administration. In Malaysia, governance practices have evolved to tackle challenges such as bureaucratic inefficiency and corruption (World Bank, 2017).

The Malaysian government has implemented various reforms to strengthen governance structures, which aim to improve public sector performance (Abdullah, 2018). Similarly, Lee and Chin (2019) investigated the role of performance management systems in fostering transparency and accountability within Malaysian ministries. The National Governance Framework integrates these principles with local administrative practices to address specific national challenges (Malaysia Public Sector Governance Framework, 2020). Despite substantial improvements in performance management frameworks such as the Balanced Scorecard and governance models such as the Good Governance Framework (UNDP, 1997), there is a lack of qualitative insights into how governance factors directly influence performance management effectiveness in Malaysia’s public sector.

Performance management in the public sector strives to connect individual and organizational goals, establish clear standards, and track progress to enhance outcomes (Pollitt & Bouckaert, 2017). However, the research frequently overlooks how governance considerations, particularly in Malaysia, influence the successful application of these frameworks, which is what this study aims to address.

In the Malaysian context, the implementation of performance management models like the Balanced Scorecard and the Public Sector Transformation Programme has been examined (Kaplan & Norton, 1992; Ministry of Finance Malaysia, 2010). However, insufficient emphasis has been placed on how governance variables such as accountability and openness affect the performance of these frameworks Malaysia’s public sector.

Effective performance management systems enhance governance by promoting transparency through regular performance reporting, fostering accountability through clear performance metrics, and improving efficiency by addressing performance gaps (Kettunen & Kallio, 2020). In Malaysia, such systems have been pivotal in driving public sector reforms and improving service quality (Lee & Chin, 2019).

In Malaysia, implementing performance management systems is frequently hampered by resistance to change, inadequate training, and resource restrictions, which are exacerbated by bureaucratic inertia and cultural issues (Osborne & Gaebler, 1992). Effective governance is not just a facilitator, but also a necessary enabler of successful performance management. In Malaysia, governance issues such as bureaucratic inefficiency and corruption have hampered the complete implementation of performance management systems (Zainuddin & Hashim, 2018).

This study aims to investigate how governance reforms, particularly in accountability and transparency, can enhance the efficacy of performance management frameworks. Therefore, this study attempts to bridge the gap by providing a qualitative analysis of Secretary Generals’ perspectives on governance and performance management. Applying Goal Setting Theory and the High-Performance Cycle Model, it offers a nuanced understanding of how governance factors influence performance outcomes in the Malaysian public sector, thereby contributing to both theoretical and practical advancements.

THEORETICAL FRAMEWORK

This study is grounded in two primary theoretical frameworks: goal-setting theory and the High-Performance Cycle model. These frameworks provide a structured lens through which to examine the influence of performance management systems on governance factors within the Malaysian public sector.

Goal-Setting Theory

Goal Setting Theory, developed by Locke and Latham (1990), asserts that setting specific and challenging goals, coupled with appropriate feedback, enhances performance. The theory emphasizes goal clarity, commitment, and aligning individual goals with organizational objectives. In the public sector, Goal Setting Theory facilitates the establishment of clear performance targets and fosters employee engagement (Locke & Latham, 2002). By setting measurable and attainable goals, public institutions can boost employee motivation and accountability, leading to improved service delivery (Hoon, Chen, & Chiu, 2016). The alignment of individual performance with governance objectives ensures that public sector employees contribute to overarching governance goals such as transparency and accountability. This alignment fosters a culture of responsibility and continuous improvement, essential for effective governance (Latham & Pinder, 2005).

Goal-setting theory, developed by Locke and Latham (2002), posits that setting specific and challenging goals leads to higher performance than setting vague or easy goals. In the context of public sector organizations, this theory suggests that clear performance targets can enhance accountability and drive effective governance. By understanding how Secretary Generals establish and pursue goals within their ministries, this study aims to explore the implications of goal-setting on performance management and governance outcomes. The clarity and specificity of goals, as posited by this theory, are crucial for fostering an environment where performance is not only measured but actively improved.

High-Performance Cycle Model

The High-Performance Cycle Model complements this by providing a comprehensive framework for achieving and sustaining these goals through continuous improvement and strategic oversight (Drucker, 1954). Developed by Hrebiniak and Joyce (1985), the model outlines a cycle of goal setting, planning, execution, and evaluation to achieve high organizational performance. It emphasizes adaptability, strategic alignment, and ongoing performance assessment, making it particularly relevant to the public sector. In Malaysia, the model supports the integration of strategic planning with operational execution, ensuring governance objectives are consistently met through effective performance management (Mintzberg, 1994).

The High-Performance Cycle model emphasizes the continuous cycle of goal setting, performance assessment, and feedback as essential components of effective performance management (McBer, 2003). This model underscores the importance of aligning individual and organizational goals to foster a culture of high performance. By applying this model to the experiences of Secretary Generals, the research seeks to illuminate how performance management systems can be optimized to support effective governance in the Malaysian public sector. This cyclical process ensures that performance management is not a one-time effort but an ongoing commitment to excellence.

Figure 1.1 The High-Performance Cycle Model

Integration of Frameworks

Together, these frameworks provide a comprehensive approach to understanding the dynamics of performance management and governance. The interplay between goal-setting and performance assessment within the High-Performance Cycle model allows for a nuanced exploration of how leadership by Secretary Generals can drive governance improvements through effective performance management systems. By integrating these theories, this research will highlight the critical role of leadership in implementing performance management systems that not only meet organizational goals but also enhance governance practices in the public sector (Behn, 2003).

Integrating governance factors into the High-Performance Cycle Model is essential for achieving superior performance management outcomes. By enhancing goal clarity, establishing accountability, fostering effective feedback mechanisms, ensuring optimal resource allocation, and shaping a positive organizational culture, governance factors significantly impact the effectiveness of performance management systems within the Malaysian public sector. This research underscores the importance of embedding strong governance practices into performance management frameworks to promote transparency, accountability, and ultimately, improved service delivery (Van Dooren & Van de Walle, 2016).

Integrating governance factors with the High-Performance Cycle Model illustrates the profound influence these factors exert on various components of the model. Governance factors encompass elements such as accountability, transparency, and organizational integrity, which are crucial for effective performance management (Hood, 1991). In the context of the High-Performance Cycle Model, governance factors play a vital role in enhancing goal clarity. When governance is strong, organizations foster an environment where objectives are well-defined, understood, and aligned across all levels. High levels of governance instill confidence among leaders and employees, enabling them to focus on specific goals without ambiguity. For instance, clear communication of goals, coupled with transparent processes, allows employees to grasp their roles in achieving these objectives, thereby driving performance (Moynihan & Pandey, 2007).

Effective governance establishes a framework of accountability that encourages individuals and teams to take ownership of their responsibilities. In the High-Performance Cycle Model, this sense of accountability is crucial for maintaining high standards of performance. When employees understand that their actions are monitored and that they are responsible for outcomes, they are more likely to be motivated to meet or exceed expectations. This dynamic enhances performance as individuals strive to full fill their duties with integrity.

Governance factors also influence the feedback mechanisms within the High-Performance Cycle. A robust governance structure promotes open channels of communication, where feedback is not only welcomed but actively sought. Regular feedback loops enable organizations to assess their progress towards goals, identify challenges early, and make necessary adjustments. This adaptability is essential for maintaining performance levels and ensuring continuous improvement. Strong governance ensures that resources are allocated effectively to support performance management initiatives.

In the High-Performance Cycle Model, the ability to access the necessary resources, whether financial, human, or technological that is pivotal for achieving high performance. Governance factors dictate how resources are distributed, prioritizing areas that align with strategic goals and fostering an environment conducive to success (Kim & Lee, 2012).

Finally, the governance framework shapes the organizational culture, which is integral to the High-Performance Cycle Model. A culture that emphasizes ethical behavior, continuous learning, and collaboration enhances motivation and engagement among employees. When governance factors reinforce a positive organizational culture, employees are more likely to embrace performance management practices, contributing to improved overall outcomes (Robinson & Judge, 2017).

METHODOLOGY

This qualitative study employs a multi-faceted approach to investigate the influence of performance management systems on governance factors within public sector organizations in Malaysia, focusing specifically on the phenomenon of Secretary Generals in ministries. This group is chosen for its skilled and experienced leadership, which plays a critical role in shaping governance and performance outcomes. The summary as at below:

Table 4.1: Methodology Summary

Source: by the Researcher

The detailed narrative for a deeper understanding of the methodology is as follows:

Research Design

A phenomenological approach will be adopted to explore the lived experiences of senior management officials, emphasizing self-efficacy and its relationship to Key Performance Indicator (KPI) success. By collecting these experiences, the study aims to provide a comprehensive understanding of how self-efficacy affects performance results. This qualitative research design facilitates an in-depth exploration of the contextual and organizational factors influencing performance management within the Malaysian public sector. Given the complexity of leadership dynamics and their impact on governance, qualitative research is particularly suited for this inquiry, allowing for an exploration of subjective experiences that quantitative methods may overlook (Creswell & Poth, 2017).

Participant Selection

Participants will be selected through purposive sampling to ensure a diverse representation of Secretary Generals from various ministries. The study aims to involve a sample of nine participants, representing approximately 34.6% of Malaysia’s 26 ministries, to capture a wide array of perspectives. Selection criteria will include factors such as years of experience in their roles and the focus areas of their ministries to enhance diversity. During the data collection process, the concept of saturation will be applied, meaning that interviews will continue until no new, significant insights emerge. This strategy ensures that the information gathered is thorough and representative of the broader experiences and opinions within the ministries.

Data Collection

Data will be gathered through semi-structured interviews, focusing on critical areas such as how governance factors influence the ability to achieve KPIs and the role of self-efficacy in reaching these goals. Interview questions will be developed based on relevant themes from the literature review and the specific roles of Secretary Generals. Each interview is expected to last approximately 45-60 minutes and will be conducted in a comfortable setting, either in person or virtually, to foster open and candid dialogue. To mitigate potential biases, care will be taken to establish rapport with participants. Each interview will be recorded and transcribed for subsequent analysis.

Data Analysis

The data analysis process will begin with accurate transcription of participants’ comments to ensure that all essential information is captured. Following transcription, the data will be rigorously sorted and analyzed using ATLAS.ti, a software that aids in categorizing data and identifying key themes and trends. Thematic analysis will involve coding the data to highlight significant segments related to self-efficacy and KPI performance. These coded segments will be grouped into categories to create a clear and structured summary. By examining these categories, we will investigate how self-efficacy influences performance management and KPI attainment, following the methodology outlined by Braun and Clarke (2006). To enhance the trustworthiness of the analysis, methods such as member checking will be employed, allowing participants to validate their input.

Ethical Considerations

Ethical considerations are paramount in conducting this research. Participants will be informed about the study’s purpose, the voluntary nature of their participation, and their right to withdraw at any time. Informed consent will be obtained prior to conducting interviews. Additionally, participant confidentiality and anonymity will be ensured throughout the research process by assigning pseudonyms and securely storing identifying information (Creswell & Poth, 2017). Data will be stored on password-protected devices, ensuring secure access.

Limitations

While qualitative research provides rich insights, it is important to acknowledge its limitations. The findingsmay not be generalizable to all public sector organizations in Malaysia, as the sample focuses specifically on Secretary Generals. Furthermore, potential biases, such as interviewer bias, may influence the data collected. Nonetheless, the insights gained will contribute to a deeper understanding of performance management systems and governance in the Malaysian public sector, offering valuable implications for practice and future research.

Integrating Findings with Theoretical Frameworks

The findings from in-depth interviews with respondents from Malaysia’s federal government ministries, classified as Tier 1 and Tier 2 positions, are organized around two major themes drawn from the theoretical frameworks of Goal-Setting Theory and the High-Performance Cycle Model. The findings also emphasize how governance processes influence performance management outcomes in the public sector, with an emphasis on self-efficacy, goal-setting, and feedback loops as critical factors. Also, discussed is the relationship between leadership commitment and performance.

Governance Mechanisms and Performance

A prominent theme that emerged from the interviews was the importance of governance mechanisms in interviews is the role of leadership commitment from the heads of ministries and agencies in ensuring that key performance indicators (KPI). Several respondents highlighted how governance mechanisms, in line with established procedures and laws.

The respondents also pointed out the hierarchical structure of the government and how it impacts goal alignment and resource allocation Additionally, the interview responses emphasize the critical role of leadership by example in reinforcing high governance standards. As one respondent explained, “Experience has shown that governance is key to the successful implementation of KPI-based performance in the public sector of Malaysia. So, the leadership by example to set a very high standard in terms of governance is critical to ensure the success of any KPI-based performance in the public sector.”

Self-Efficacy and Performance Management

The respondents also pointed out the role of self-efficacy in performance management. The findings indicate that governance mechanisms play a pivotal role in establishing self-efficacy among public sector employees, which in turn drives high performance. Self-efficacy, defined as the belief in one’s capability to achieve specific goals, is strongly influenced by the presence of clear governance frameworks that provide structure, accountability, and leadership support.

Effective performance management systems enhance governance by integral to the process of performance monitoring and improvement especially feedback systems. As one respondent explained, “When the governance mechanism is in place, the leadership in the ministry is fully committed to ensure that the implementation of the KPI will be done in a manner that is truthful and also will adhere to the rules and also the procedures and the law.”

Reinforcing rule adherence and commitment helps boost the confidence of ministry staff in their ability to meet performance targets, directly enhancing their self-efficacy. This aligns with Locke and Latham’s (2002) Goal-Setting Theory, which asserts that goal commitment and feedback are essential to strengthening self-efficacy, thereby enhancing overall performance. When leaders set high standards and demonstrate commitment to governance, they create an environment in which public sector employees feel empowered and capable of achieving high performance.

Linking Governance Mechanisms with High Performance

Governance frameworks guarantee that these objectives are not left ambiguous, but rather articulated through a transparent process that includes input from many stakeholders. This alignment of goals with broader corporate goals is critical in supporting excellent performance because it provides a sense of direction and purpose inside departments.

Governance systems that require regular performance reviews and feedback sessions help to continuously evaluate and improve individual and departmental performance. This is congruent with the High-Performance Cycle Model, which emphasizes the importance of constant feedback to improve performance and alter goals as needed.

Several respondents stated that the governance policies in place ensure that feedback is more than simply a formality, but an actionable process that leads to significant improvements in service delivery and accountability. Governance frameworks guarantee that these objectives are not left ambiguous, but rather articulated through a transparent process that includes input from many stakeholders. This alignment of goals with broader corporate goals is critical in supporting excellent performance because it provides a sense of direction and purpose inside departments.

Furthermore, feedback mechanisms were identified as an important role in maintaining high performance. Governance systems that require regular performance reviews and feedback sessions help to continuously evaluate and improve individual and departmental performance. This is congruent with the High-Performance Cycle Model, which emphasizes the importance of constant feedback to improve performance and alter goals as needed. Several respondents stated that the governance policies in place ensure that feedback is more than simply a formality, but an actionable process that leads to significant improvements in service delivery and accountability.

Furthermore, the researcher makes an effort in investigating the problem utilizing two components that some of the variables are affected such as the moderating factors: ability, task difficulty, situational considerations, goal commitment, feedback, and constraints. The pursuit of a particular objective and the enhancement of output mediating processes, such as task strategies (plans), direction, tenacity, and effort, are both influenced by high levels of self-efficacy. The newly created mediating mechanisms of effort, persistence, direction, and task strategies will be used to achieve this purpose as intended.

In order to support the idea, this seeks to involve the cooperative application of diverse research approaches to examine a connected phenomenon. The responders consist of representative samples from federal government ministries. Tier 1 and Tier 2 at the Ministry level comprise the respondents. The following are the issues raised by the respondents and their comparisons with the High-Performance Cycle model:

Table 5.1: Factors Revealed from In-depth Interview and Listed in High-Performance Cycle Model

Source: In-depth Interview

The findings emphasize that governance mechanisms are essential in establishing a solid foundation for performance in Malaysia’s public sector. A recurring theme is the importance of well-structured, clearly communicated goals that align with broader organizational objectives. Self-efficacy is also crucial in driving performance, as employees who believe in their ability to succeed are more likely to engage with the performance management systems and contribute to overall organizational success

DISCUSSION

Analyzing the comments of Tier 1 and Tier 2 reveals that strong governance procedures considerably boost employee self-efficacy, which is critical for achieving high performance. This finding is consistent with Locke and Latham’s (2002) goal-setting approach, as clear and achievable performance indicators provide guidance while also instilling confidence in employees’ skills. Furthermore, the emphasis on leadership commitment underscores the vital role that organizational culture plays in creating an atmosphere conducive to high performance. The findings underscore the vital role of leadership commitment and accountability in shaping employees’ self-efficacy, which, according to goal-setting theory, is crucial for achieving performance objectives.

Integration of Theoretical Frameworks

Incorporating goal-setting theory into this debate gives a solid foundation for understanding how governance considerations influence performance management. Setting explicit and attainable KPIs can help public sector leaders boost employee self-efficacy, as seen by interviewees’ emphasis on the necessity of leading by example. This conclusion supports the idea that the effectiveness of performance management systems is closely tied to the governance structures in place.

The qualitative insights from Tiers 1 and 2 show that when governance mechanisms are strong, they are characterized by transparent decision-making, adherence to established rules, and strong leadership, which creates an environment in which public sector employees feel empowered and capable of carrying out their performance mandates. As one respondent pointed out, the dedication to true KPI execution develops a culture of trust and responsibility, which is critical for ensuring that everyone in the ministry can participate effectively.

Additionally, the High-Performance Cycle Model is consistent with the findings that strong governance and leadership commitment serve as foundational elements for achieving high performance. The model suggests that high performance is facilitated by an ongoing cycle of feedback, evaluation, and adaptation. The findings reveal that when governance frameworks ensure regular performance reviews and feedback sessions, employees are given the opportunity to assess their progress, make necessary adjustments, and improve performance. This continuous feedback loop is critical in reinforcing self-efficacy and ensuring that performance targets remain relevant and achievable.

CONCLUSION

Finally, this study underlines the importance of governance aspects in performance management in Malaysia’s public sector. Public sector leaders can improve organizational performance by encouraging self-efficacy through strong governance systems such as transparent decision-making and leadership accountability. This research not only contributes to the theoretical knowledge of governance and performance management, but it also makes practical recommendations for increasing public sector efficiency and accountability.

Practical Implications

From a practical sense, this study proposes that Malaysian public-sector organizations prioritize upgrading their governance frameworks. Initiatives such as frequent training sessions, performance evaluations, and open communication channels aimed at increasing leadership accountability and building a transparent culture can result in considerable gains in performance management. By investing in leadership development programs that focus on governance principles, ministries can create an environment in which people are driven to perform to their full potential.

Limitations and Future Research

While this study provides useful information, it is important to recognize its limitations. The research was done within certain ministries, so the conclusions may not be applicable to all sectors of the public service. Future study might look into how governance issues influence performance management across a larger spectrum of public sector entities, as well as the long-term effects of governance reforms on employee performance and organizational outcomes.

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