Public Value as Rhetoric: A Budgeting Approach

The public value theory has been accused of serving as a “rhetorical device” for public managers to advance their interests and influence vis-à-vis politicians. This article uses Legislative Budget Offices (LBOs) as a lens to re-examine the theme of “public value as rhetoric”. It examines how an LBO can relegate itself to a lower public value-creating position that avoids conflict with politicians, which then allows politicians to employ rhetoric such as fiscal “sustainability” and “responsibility”, without making actual budget choices that incur political costs. The findings of the article suggest that the use of public value as rhetoric is a function of contradictory values held by citizens, which politicians and public managers must reconcile by choosing to divert either resources or rhetoric. Furthermore, rhetoric is bidirectional, and employable not just by public managers, but by politicians as well.