Abstract
Job autonomy allows employees to act upon contextual knowledge to introduce performance-enhancing work process improvements. However, autonomy is not a sufficient condition for change-oriented organizational citizenship behavior (OCB), as employees may lack the skills, information, or psychological safety necessary to pursue change. I propose a job autonomy-based multi-conditional process model of change-oriented OCB that takes into account the mediating role of job performance and the moderating roles of both role ambiguity and procedural justice. Using a large sample of Korean central and local government workers, I estimate a latent variable moderated mediation model. The results suggest that the effect of job autonomy on change-oriented OCB via job performance is strongest when role ambiguity is low and procedural justice is high. In closing, I argue that public managers need to be cognizant of the subtle factors that shape the impact of job autonomy on employee behavioral outputs.
Keywords
Introduction
Maintaining public service and policy performance in the face of resource, technology, and citizen expectational volatility necessitates continuous process and policy adaptation (Bak et al., 2022; Chen et al., 2023; Cho & Song, 2021; Nguyen et al., 2023). While managers may seek greater control in times of environmental turbulence (Stazyk & Goerdel, 2011), even the most conscientious planner will fail to anticipate every performance challenge that will materialize during policy implementation (Peng et al., 2015). Although the performance promise of radical innovation is alluring (Osborne & Brown, 2011; Vigoda-Gadot et al., 2005), an understanding of public sector change is incomplete if it ignores the ongoing micro-changes introduced by managers and frontline employees. Performance-enhancing change initiatives originate at all levels of the organizational hierarchy, and encouraging change-oriented behavior allows public organizations to leverage the diffuse knowledge of workers to drive public service improvement (Chen et al., 2023; Destler, 2016; Hansen & Pihl-Thingvad, 2019). Failing to adapt and change, in contrast, undermines citizen satisfaction and trust (de Vries et al., 2016; Nguyen et al., 2023). Given how crucial change-oriented behavior is to organizational performance, better understanding the conditions that foster or discourage it is a valuable research objective (Li & Xie, 2022; Vigoda-Gadot & Beeri, 2012).
Change-oriented organizational citizenship behavior (OCB) denotes proactive employee actions that address emergent process deficiencies or introduce micro-scale, performance-enhancing change into work processes (Choi, 2007; Bettencourt, 2004; Morrison & Phelps, 1999). In an influential piece, Vigoda-Gadot and Beeri (2012) argue that change-oriented OCB has particular significance for public administration as such behaviors in aggregate secure the long-term viability of public service delivery and are therefore a condition of citizen satisfaction and the production of public value. Although affiliative types of OCB have been thoroughly studied in the public administration literature (see de Geus et al., 2020, for a review), extra-role behaviors that challenge existing work practices have received less attention (Li & Xie, 2022). Moreover, although the importance of change-oriented OCB in the public sector cannot be overstated, creating conditions that facilitate it is challenging. Identifying opportunities for performance-enhancing change and subsequently designing, testing, and implementing effective solutions is inherently difficult. However, these challenges are compounded in the public sector, where a risk-averse environment, stringent accountability requirements, highly formalized administrative systems, and a lack of high-powered incentives not only reduce the scope for individual change-oriented behavior but also expose those who pursue it to sanction (Campbell, 2022; Fernandez & Moldogaziev, 2012; Miller & Whitford, 2006; Peng et al., 2015).
Recognizing these impediments to change and performance improvement, public organizations have increasingly felt the need to provide managers and employees with increased job autonomy (de Vries et al., 2016; Fernandez & Moldogaziev, 2012; Houtgraaf et al., 2021; Lee, 2019; Overman & van Thiel, 2016; Peng et al., 2015; Wynen et al., 2014). However, while some degree of autonomy is necessary for employees to experiment with different modes of working and pursue change (Dedahanov et al., 2019; Sousa et al., 2012), the complexities and challenges involved in change-oriented OCB are such that autonomy alone will not render change-oriented OCB inevitable. How and under what conditions does job autonomy lead to change-oriented OCB? Although the link between job autonomy and change-oriented OCB is intuitive and job autonomy has been used as a practical remedy for the challenges of facilitating change-oriented behavior in the public sector, public administration scholars have not studied the link empirically, and only a handful of studies using data from private organizations make the connection (for instance, Cai et al., 2019 or Dysvik et al., 2016). Instead, most studies on change-oriented OCB in the public sector have focused on individual or social factors, such as public service motivation (Campbell, 2022; Campbell & Im, 2016; Chen et al., 2023), organizational identification (Campbell, 2015), or leadership (Li & Xie, 2022; Vigoda-Gadot & Beeri, 2012).
To address this gap in the literature, I propose a job autonomy-based multi-conditional process model of change-oriented OCB relevant to public organizations. First, I argue the competence and audacity required to engage in change-oriented OCB is not provided by job autonomy directly, but rather through an accumulation of process mastery that job autonomy facilitates. Improved job performance should thus act as a conduit through which autonomy influences change-oriented OCB. However, autonomy will not lead to higher levels of performance if the focal employee lacks clear job standards and goals. Role ambiguity, thus, may undermine the link between autonomy and performance. Likewise, given that change-oriented OCB entails risk (Campbell, 2022; De Clercq et al., 2021; Timeus & Breaugh, 2020), even high performers will be less likely to pursue it if they have concerns about due process. Consequently, procedural justice should strengthen the link between formal performance and change-oriented OCB. Figure 1 shows the conceptual model that I describe and test in this study.

A job autonomy-based multi-conditional process model of change-oriented OCB.
Below, I draw upon theoretical and empirical literature on change-oriented OCB and other constructs to establish the theoretical foundations of the model. Then, I describe the data and methodology I use to test it. I use a large, high-quality sample of central and local public sector employees from South Korea and structural equation modeling with multiple latent variable interactions to provide empirical estimates of the relationships in the model. This methodological approach has been underutilized in public management research but has several advantages (Cortina et al., 2021). Based on the analysis, I present evidence for the job autonomy-based model of change-oriented OCB. Finally, I note the limitations of the study, and then discuss in detail the theoretical, practical, and methodological contributions it makes. Among them is the encouraging implication that managers may increase change-oriented OCB via tractable and concrete measures without the need to reinvent themselves as transformational leaders.
Literature and Hypotheses
Job Autonomy, Job Performance, and Change-Oriented OCB
Although it is a condition of organizational performance that employees reliably execute the tasks they have been assigned, organizations are complex open systems that additionally require supportive employee behaviors seldom specified in formal job descriptions (Katz, 1964). OCB denotes discretionary employee behaviors that support the organization’s established norms and processes (Organ, 1988). Change-oriented OCB is similar to the classic OCB types introduced by Denis Organ and colleagues in that it is discretionary and benefits the organization. However, whereas traditional OCB denotes behaviors that support current operational methods, change-oriented OCB challenges these and attempts to change and improve them (Li & Xie, 2022). Because of this challenging character, the conditions that drive change-oriented OCB differ from those associated with traditional OCB and include a baseline level of employee job autonomy (Campbell, 2022).
Job autonomy captures the extent to which an employee enjoys control over resources, time, work methods, and job expectations (Dysvik & Kuvaas, 2011; H. Kim & Stoner, 2008; Muecke & Iseke, 2019; Sorlie et al., 2022). Management scholars have long suggested that increasing employee autonomy allows employees to act upon their localized knowledge to improve work processes and performance. In centralized organizations, where employees have little scope to determine how their work efforts are expended, a necessary condition for change-oriented OCB is lacking (Cerit, 2017; Lee, 2019; Raub, 2008), and, in the public sector, when employees have more scope to craft their jobs, they will engage in change-oriented OCB (Chen et al., 2023). Fernandez and Moldogaziev (2012, p. 161) argue that looser controls allow employees to “tinker with existing elements and practices and reconfigure them in new ways,” which links job autonomy directly with change-oriented OCB (see also Tran et al., 2021). Job autonomy is also linked to concepts that bear a family resemblance to change-oriented OCB such as creativity, service innovation, and innovative behavior (Cho & Song, 2021; Dhar, 2016; Lynggaard et al., 2018; Wang & Cheng, 2009). From an organizational psychology perspective, job autonomy can enhance motivational factors including work engagement, job meaningfulness, job ownership, organizational identification, and organizational commitment (Garg & Dhar, 2017; Hackman & Oldham, 1976; Hameed et al., 2022; H. Kim & Stoner, 2008; Kuvaas et al., 2016; Sorlie et al., 2022). Self-determination theory (SDT) (Deci & Ryan, 2008; Muecke & Iseke, 2019) holds that individuals have an inherent need for autonomy, and thus the provision of job autonomy can strengthen intrinsic motivation (Dysvik & Kuvaas, 2011; Peng et al., 2015). A key job resource (Bakker & Demerouti, 2007), job autonomy signals to employees that the organization condones the adoption of broader job roles (Grant & Parker, 2009), and, in a public sector context, autonomy can further allow employees to act on their public service motives (Lynggaard et al., 2018), which Campbell and Im (2016) link to change-oriented OCB. In short, autonomy functions as both a practical and psychological condition of change-oriented OCB, allowing employees to “break out of a routine and to find the best solution in the process of trying out new ideas” (Lee, 2019, p. 33).
Hypothesis 1: Job autonomy is positively related to change-oriented OCB.
Job autonomy affords the opportunity to pursue change. However, even within the scope of existing operations, there are opportunities for employees to make small decisions about how to best allocate their time and effort. Consequently, the link between autonomy and formal job performance has been extensively documented, with meta-analyses reliably linking the two factors across different work contexts (Christian et al., 2011; Muecke & Iseke, 2019; Spector, 1986). Work consists of making many small decisions that draw on the knowledge and experience of the employee, the quality and accuracy of which are a determinate factor in producing high-performance. Even in machine bureaucracies, where processes are regimented, mechanized, and based on a centrally-produced blueprint, employees retain discretion about how their effort is expended, and discretion will be an even greater contributor to performance when operations call for judgment. All work processes, standardized or creative, require flexibility (Kuvaas et al., 2016, p. 4), and autonomy allows employees to make connections between different behaviors and job results (Dedahanov et al., 2019), leading to more consistent job goal attainment (Peng et al., 2015). In an influential review, Grant & Parker (2009, p. 343) write that autonomy “facilitates enactive mastery experiences,” not only helping to develop task controllability but also allowing the employee to acquire new job-related skills. Again, autonomy is linked to job performance via enhanced job motivation (Joo et al., 2010), self-efficacy (Grant & Parker, 2009; Saragih, 2011), and, among public employees, job engagement (Hassan, 2014). In contrast, when organizational control is excessive, the basic psychological need for autonomy is lacking, and the sustained expenditure of effort linked to high task performance will not materialize (Deci & Ryan, 2008). Autonomy thus facilitates the production of psychological factors that predict job performance (Donkor, 2021; Rich et al., 2010).
Hypothesis 2: Job autonomy is positively related to job performance.
Because employee job performance is a critical factor for organizational performance, scholars often focus on its predictors. However, an employee’s job performance has consequences for their overall experience of and orientation toward the organization. Both the theory of planned behavior (Ajzen, 1991) and affective events theory (Weiss & Cropanzano, 1996) suggest that specific experiences at work shape employee work attitudes and behaviors along with the more stable structures of the organizational work context. For instance, performance ratings can affect job satisfaction (Ghasemy et al., 2022; Varma & Malhotra, 2022) and turnover intentions (Zimmerman & Darnold, 2009). Although job performance and affiliative OCB have been studied as independent job behaviors (for instance, in Chiaburu et al., 2017), a critical difference between change-oriented OCB and its affiliative cousin is that it is difficult. I argue that the opportunities to change organizational processes afforded by job autonomy will not lead to change-oriented OCB if a baseline of job mastery and formal performance has not been obtained. In other words, formal job performance is likely to predict change-oriented OCB.
High performers possess the necessary insight into the work context to identify concept, tool, or process-based performance deficiencies. Such opportunities for change are unlikely to be detected by those who struggle to meet baseline performance standards. Higher performers are also more likely to experience such work context deficiencies given that they are using the tools available to them at a level closer to their performance potential. Although change-oriented OCB can be a source of performance improvement for the employee that implements it (Campbell & Im, 2016), and therefore be an antecedent of formal performance, it is higher performing employees who possess the requisite skill, knowledge, experience, and record of success necessary to challenge existing job practices and processes. In general, employees who meet formal performance requirements are more likely to engage in additional discretionary behavior to benefit the organization (MacKenzie et al., 1998). However, this relationship is likely to be more prominent in the case of change-oriented OCB given that successfully pursuing it requires a level of skill, knowledge, and control that traditional OCB does not. In contrast, although negative performance feedback may encourage some employees to search for methods to improve, the empirical literature suggests that low-performance often leads to withdraw, psychologically and physically, from the workplace (Zimmerman & Darnold, 2009). In short, relative to high performers, weak performers lack the skill, insight, and confidence necessary to introduce performance-enhancing change. Based on this reasoning, I argue that higher performance is likely to be associated with higher levels of change-oriented OCB. 1
Hypothesis 3: Formal job performance is positively related to change-oriented OCB.
Role Ambiguity, Job Autonomy, and Job Performance
Job autonomy is a job resource that impacts employee well-being and performance. A given work context, however, consists of both resources and demands, and these contextual factors are known to interact (or buffer one another) in the production of a range of relevant attitudes and behaviors (Bakker & Demerouti, 2007). Role ambiguity, which denotes an employee-level informational deficiency of critical job-relevant knowledge (House & Rizzo, 1970), is a contextual job demand (Jung, 2014; Zhang et al., 2022) that can shape the impact of job autonomy in public sector organizations. Role ambiguity can result from incompatible expectations or conflicting demands, which are prevalent in the public sector (S. Kim & Wright, 2007; Stazyk et al., 2011), and Jong (2016) suggests that the importance of quality performance information increases with job autonomy. When job autonomy is low, higher levels of role ambiguity lead to stress, burnout, and diminished job satisfaction (Jong, 2016; H. Kim & Stoner, 2008), conditions that are not conducive to performance. Given that role ambiguity in public organizations is not only a direct antecedent of performance (as well as a range of other performance antecedents, such as work motivation, Campbell, 2016, or commitment, Stazyk et al., 2011), but is known for its determinantal effect on other performance antecedents, I argue that role ambiguity will attenuate the link between job autonomy and job performance.
Subordinates possess knowledge of job conditions that their superiors do not, and job autonomy allows them to expend their time and effort in ways that leverage this knowledge and thereby improve performance. However, even if an employee enjoys job autonomy, if they lack sufficient knowledge about goals, job standards, or the scope of their responsibilities and priorities, autonomy will not translate into performance and may even undermine it. Sufficient information is necessary to transform autonomy into performance, and employees enjoying job autonomy but afflicted by role ambiguity lack the informational basis upon which to make sound decisions about the allocation of time and effort. Consequently, to the degree that role ambiguity prevails, the effect of job autonomy on performance will weaken. Although a well-designed bureaucratic structure can communicate the organization’s goals, priorities, and standards to employees (Olsen, 2006), these factors can conflict (Pandey & Wright, 2006). Job autonomy allows employees more scope to improve their work habits (Gao & Jiang, 2019), however, if they simultaneously experience low levels of certainty about the goals and standards relative to their work processes, it becomes less likely that such autonomy will translation into higher levels of job performance.
Hypothesis 4: Role ambiguity negatively moderates the relationship between job autonomy and job performance.
Procedural Justice, Job Performance, and Change-Oriented OCB
Due to its inherent difficulties, formal job performance should act as a preparatory phase in the production of change-oriented behavior. However, change-oriented OCB is not only difficult; because change-oriented OCB involves challenging existing processes and norms, those who pursue change-oriented initiatives may be open to criticism or sanction if their efforts fail (Campbell, 2022; Dedahanov et al., 2019). As a disruptive force, change-oriented OCB can lead to interpersonal conflict (Campbell, 2020), which is in contrast to affiliative types of OCB that facilitate group cohesion. Moreover, any given change initiative may fail, consuming resources but undermining performance. Employees will thus weigh the risks, costs, and benefits of making suggestions (Liang et al., 2012), and the decision to engage in change-oriented OCB will be based not only on opportunity and competence but also an evaluation of the probability of sanction or ostracism should an attempt at change fail. Indeed, the desire to avoid blame for failure undermines the pursuit of change (Timeus & Breaugh, 2020).
Procedural justice captures a perception that fairness is an objective property of organizational decision-making processes (De Clercq et al., 2021; Konovsky, 2000) and those affected by decisions have the means to influence them (Thibaut & Walker, 1975; Tyler, 1989). Whereas behaviors linked to formal performance pose little risk to employees, procedural justice is relevant to the link between job performance and change-oriented OCB due to the latter’s inherent risk. If public organizations lack policies that provide a feeling of safety and security, employees are less likely to offer new ideas to improve performance or fix problems (Brunetto et al., 2022; Iqbal et al., 2022) and, without fairness, employees will be reluctant to improvise (De Clercq et al., 2021). Change-oriented OCB is facilitated by psychological safety (Iqbal et al., 2020), and procedural justice can provide high-performance employees with the confidence that they will not be unduly prosecuted for pursuing (failed) change (Fernandez & Moldogaziev, 2012). Because high-performance employees are more likely to consider engaging in change-oriented OCB, I predict that perceptions of organizational justice will be more relevant in their case. Despite possessing the competence and knowledge necessary to pursue change, performant employees will be less likely to breach the boundaries defined by their formal performance arrangement and duties in contexts that are perceived to lack procedural justice. In such contexts, employees will simply maintain the status quo, given that there will be little opportunity to defend their behavior and prevent unjust punishment in the case that their change-oriented OCB initiative fails. 2
Hypothesis 5: Procedural justice positively moderates the relationship between job performance and change-oriented OCB.
The logic of the inter-construct relationships suggests several additional hypotheses. Subjective performance occupies an intervening position between job autonomy and change-oriented OCB, suggesting that it plays a mediating role. Relatedly, the moderating roles of both role ambiguity and procedural justice on the mediation paths suggest that these factors will independently condition the indirect effect. This system of hypotheses represents a multi-conditional process model of change-oriented OCB. The auxiliary hypotheses are stated as follows.
Hypothesis 6: Job performance mediates the relationship between job autonomy and change-oriented OCB.
Hypotheses 7 and 8: The indirect effect of job autonomy on change-oriented OCB via job performance is negatively moderated by role ambiguity and positively moderated by procedural justice.
Data and Methods
2020 Korean Public Employee Perception Survey
The Korean Public Employee Perception Survey (KPEPS), collected by the Korean Institute of Public Administration (KIPA), is a large survey of central and local government employees conducted annually in South Korea. The 2020 version used here was collected from August 12 to September 30, 2020. The target population for the survey consisted of 23,703 public officials working in general positions in the headquarters of 46 central government ministries and agencies and 51,136 officials working across 17 metropolitan cities and provinces as of December 31, 2019. The target sample size was set to 4,000 responses (2,000 from central government and 2,000 from local government organizations), with a target sampling error rate of ±2%. A stratified sampling approach based first on organization type and second on employee number was used. Within the sample clusters, participants were randomly selected and sent an email with a link to the survey, or provided with a QR code-based link if email was unavailable due to security or other reasons. A total of 4,339 survey responses were collected. About 40% of the sample is female, and the average employee is in their 40s and with a four-year university degree. About 63% of the sample consists of employees with a job grade of 9 to 6, which denotes lower-level administrative workers. The remaining responses are drawn from grades 5 through 2, which consist of higher-ranking civil servants who have more managerial and policy-making responsibilities. More detailed information about the survey methodology is available (in Korean) from KIPA at https://www.kipa.re.kr/site/kipa/main.do.
Measures
Change-oriented OCB denotes “voluntary and constructive efforts, by individual employees, to effect organizationally functional change with respect to bow work is executed within the contexts of their jobs, work units, or organizations” (Morrison & Phelps, 1999, p. 403). Morrison and Phelps’s (1999) original scale used 10 items to measure the construct, 9 of which were modified slightly by Vigoda-Gadot and Beeri (2012) for use in the public sector. The content of the questions refers to performance-oriented work process modification behaviors (for instance, “This person often tries to change how his or her job is executed in order to be more effective”) or addressing work process deficiencies through change (for example, “This person often tries to correct a faulty procedure or practice”). Using a Korean sample, Campbell (2015) uses a modified 4-item subset of the original scale, which also emphasizes performance-oriented change and error correction. I use 4 items from the KPEPS that capture these two key change behaviors, namely, developing new work methods to improve effectiveness and efficiency and correcting faulty work processes. The items, like those in the other scales, are listed in Table 1. Although the 4 items are not word-for-word translations of the original scale, they have reasonable face and content validity as a measure for change-oriented OCB. However, here I note that ideally, the pre-validated version of the scale should be used, which is a limitation of this study. Further remarks below are provided about the validity and psychometric properties of the scale. Cronbach’s alpha for the 4-item scale is .82.
Survey Items.
Job autonomy captures “the extent to which a job allows the freedom, independence, and discretion to schedule work, make decisions, and select the methods used to perform tasks” (Hackman & Oldham, 1974; Morgeson et al., 2005, p. 399). Scholars in public administration have measured job autonomy in various ways (Jong, 2016; H. Kim & Stoner, 2008; Tummers et al., 2018), with items closely mirroring these conceptual dimensions. The 3 items measuring job autonomy here likewise reflect these three dimensions of the construct, capturing the perceived freedom of the employee to adjust both the scheduling as well as the method of completing their work. Moreover, the third item in the measure has particular relevance to performance management-based job design, specifically referencing the freedom of the employee to participate in the formulation of performance standards. The 3 items have an alpha of .82.
Motowidlo (2003) defines job performance as “the total expected value to the organization of the discrete behavioral episodes that an individual carries out over a standard period of time” (p. 39). When job tasks are simple, employee performance can be measured objectively (Bellé, 2013), via a subjective assessment by superiors or a third party, such as clients (Schwarz et al., 2020), or by the focal employee (Leisink & Steijn, 2009). Although piece rate-based estimates are accurate and objective, performance in the public sector is complex, and seldom are such measures available. In contrast, supervisor ratings are presumably less tainted by bias resulting from a desire to maintain a positive self-image, however, they are also subject to halo bias (Bellé et al., 2017). A recent study suggests that employee self-reports of performance are more biased when their target is broad (for instance, creative performance) than when the evaluative criteria focus on formal job requirements (Janssen & van der Vegt, 2011). In this study, I use a 3-item self-reported measure of job performance (α = .89), which captures the perceived achievement of job-mandated objectives. This self-reported measure of performance is a limitation of the study, which I discuss further after a presentation of the results.
Role ambiguity is a foundational construct in organizational behavior studies. The concept captures a “lack of clarity and predictability of the outcomes of one’s behavior” (House & Rizzo, 1972, p. 471), and is generally viewed as a job-relevant informational deficit. The 3 items I use to measure role ambiguity reflect this deficit in terms of basic job knowledge, job responsibility scope, and job priorities, and are like items developed by House and Rizzo (1972), as well as those used by Campbell (2016) and Pandey and Wright (2006). The alpha for the scale is .90.
Organizational procedural justice research originally grew from legal psychology and concerns perceptions of fairness in the exercise of authority (Blader & Tyler, 2003; Tyler & Lind, 2002). Measures of procedural justice emphasize fairness and transparency in terms of decision-making (J. Kim & Siddiki, 2018). I use 3 items that capture the fairness and openness of decision-making, as well as the perceived ability of the focal employee to challenge decisions. The alpha for the scale is .86.
Factor Analysis and Variance Diagnostics
A principal components analysis (PCA) with all items reports five distinct factors with eigenvalues above 1. Each item in the set loads onto its predicted factor strongly (lowest loading equal to .67 and the average loading of .83). The proportion of variance explained by the first factor is about, 34%. I also performed a second, more conservative PCA including only the items measuring autonomy, performance, and change-oriented OCB. This test suggests that a common factor explains only about 42% of total item variance. This figure is below the 50% threshold commonly used to diagnose common method bias.
Empirical Analysis
Descriptive Statistics and Correlations
Table 2 shows descriptive statistics and correlations for the variables in the study. Composite variables in the table were created from the unweighted mean of all scale items. All variables are measured on a 5-point scale and means range from 3.12 in the case of job autonomy to 3.75 for job performance, with the mean of role ambiguity a lower 2.67. All variables are correlated in the expected direction at p < .001, with the highest correlation of .47 between job performance and change-oriented OCB.
Descriptive Statistics and Correlations.
Note. Scales have a minimum of 1 and maximum of 5. All correlations significant at p < .001.
Confirmatory Factor Analysis
A confirmatory factor analysis was performed using the lavaan (version 0.6-9) package in R (Rosseel, 2012). In the model, each item was specified to load onto the relevant construct, and there were thus five latent variables in the model. A variety of fit indices can be used to assess the fit of latent variable models, and I selected four that are common in the empirical public administration literature (for instance, Borst et al., 2019, or van Loon, 2017). The comparative fit index (CFI) and Tucker–Lewis index (TLI) indicate good fit with values above .90 and excellent fit at .95 or higher. The root mean square of approximation (RMSEA) indicates good fit below .08 and excellent fit below .05 (Cangur & Ercan, 2015; Hu & Bentler, 1999). The standardized root mean square residual (SRMR) suggests good fit at 0.10 and excellent fit at 0.05 or lower. Goodness of fit indices indicate excellent fit for the 5-factor model (CFI = 0.984, TLI = 0.980, RMSEA = 0.039, SRMR = 0.029). (I note that the chi-square test is statistically significant; however, this test is sensitive to sample size and is thus rarely used in the quantitative public administration literature (Borst et al., 2019).)
Standardized factor loadings for all items in the job performance, job autonomy, role ambiguity, and procedural justice scales were above .750. Three of the items in the change-oriented OCB scale were also above .750, however, 1 item had a lower loading of .444. Removing this item marginally improved the fit of the whole model, however, I decided to retain this item to increase the underlying variability of the scale. However, I also implemented the full structural model with latent interaction terms again with this item removed and found no substantive differences in the direction or statistical significance of the coefficients. The average variance extracted for the constructs ranges from .557 in the case of change-oriented OCB to .747 in the case of role ambiguity, all of which are above the .500 cutoff suggested by Hair et al. (2014). Composite reliability was also above .800 for each construct, which is comfortably above the conventional .600 threshold.
I compared the five-factor model with three alternative four-factor models which combined each of the three strongest correlated variables into single factors (change-oriented OCB and job performance, job autonomy and procedural justice, and role ambiguity and procedural justice, respectively). Each of these alternatives had worse fit statistics than the five-factor model and all had fit indices that were below the conventional cutoff points for assessing model fit. Together, these tests suggest that the five-factor model best captures the underlying structure of the data and that it is suitable for SEM.
Structural Equation Modeling With Latent Interaction Terms
The model proposed in this study depicts a sophisticated system of both mediated and moderated effects. For estimating indirect effects, SEM is favored relative to the traditional independent regressions approach popularized by Baron and Kenny (1986) as it allows latent variables to be specified as endogenous and estimates all paths simultaneously (Gunzler et al., 2013; Iacobucci et al., 2007). Also, unlike traditional regression, SEM accounts for measurement error, which is important when testing for interaction effects (Schoemann & Jorgensen, 2021). Testing interaction effects in latent variable models is more complex than in standard regressions, however, and organization scholars often forgo latent interaction effects in favor of simpler (through more biased) regression-based estimates (Cortina et al., 2021). However, there are a variety of strategies available to test interactions in a structural model (Sardeshmukh & Vandenberg, 2017). To create the interaction terms, I use the matched-pair product terms approach developed by Marsh et al. (2004), which provides a good balance between robustness, information utilization, and implementation practicality. Items were orthogonalized using residual centering before creating the observed product terms (Little et al., 2006). In this way, I can estimate the measurement and structural model simultaneously and thereby account for measurement error at the construct level, while also testing the interaction effects.
As the inclusion of the interaction terms artificially increases degrees of freedom (and thus inflates model fit), I estimate fit for the base measurement and structural model based on a model implementation without them but with all direct paths specified (i.e., paths A, B, and C in Figure, 1, as well as links between role ambiguity and job performance and between procedural justice and change-oriented OCB). Fit statistics suggest that the model fits the data well (CFI = 0.982, TLI = 0.978, RMSEA = 0.040, SRMR = 0.039). Next, I generated a set of residual-centered matched-pair product terms to create latent interactions for job autonomy and role ambiguity and second for job performance and procedural justice. To automate this process, I used the semTools R package (Schoemann & Jorgensen, 2021).
Figure, 2 shows the standardized path coefficients, related p values, and r-squared values for the two endogenous factors produced by the SEM analysis. 3 Parameters are consistent with hypotheses 1 through 5: both job autonomy and job performance are positively related to change-oriented OCB (with standardized coefficients (β) equal to .121 and .478, respectively, p < .001), and autonomy is likewise related to job performance (β = .232). Second, the path coefficient is negative for the interaction between role ambiguity and job autonomy (β = −0.152, p < .001) and positive for the interaction between procedural justice and job performance (β = .059, p < .05).

Results of structural equation modeling with latent interaction effects.
The logic of the results suggests that job performance mediates the relationship between autonomy and change-oriented OCB (hypothesis 6). To evaluate this empirically, bias-corrected confidence intervals based on 2,000 bootstrap draws were estimated for the indirect effect (with each of the moderators held at their mean). These did not contain zero. Given that job autonomy has a direct and statistically significant relationship with change-oriented OCB, this statistic suggests partial mediation.
Bootstrapped bias-corrected confidence intervals were next estimated for the indirect effect at both low and high levels of both role ambiguity and job autonomy. Surveying the coefficients and confidence intervals of these estimates suggests that the effect of job autonomy on change-oriented OCB strengthens are role ambiguity decreases and procedural justice rises. To aid and simplify interpretation, I graphed the raw estimates and confidence intervals for the nine different cases. 4 As Figure 3 shows and consistent with hypotheses 7 and 8, the indirect effect is weakest when role ambiguity is high and procedural justice is low (position 1 on the x axis) and highest when role ambiguity is low and procedural justice is high (position 9). Interpreting the rate of change between different states suggests that role ambiguity plays a locomotive role relative to procedural justice. In any case, when role ambiguity is low or at its mean, the indirect effect is significant (the confidence intervals do not contain zero). If role ambiguity is high (positions 1 through 3 on the x axis), the lower confidence intervals fall below or at zero, suggesting that autonomy will have little indirect impact on change-oriented OCB in these cases.

Indirect effect based on the joint status of moderators.
Discussion
Change-oriented OCB is critical for the ongoing functioning of public organizations as well as long-term performance, as without a consistent refactoring of work processes in the face of changing conditions, public service performance will stagnate. Most research on change-oriented OCB in the public sector has focused on social factors, individual differences, or some combination of the two (Campbell, 2015, 2020; Campbell & Im, 2016; Chen et al., 2023; Iqbal et al., 2022; Li & Xie, 2022; Vigoda-Gadot & Beeri, 2012). In this study, I depart from this approach and develop a job autonomy-based multiple conditional process model of change-oriented OCB for the public sector. Drawing on organizational design, decision-making, and motivational theories, I proposed that job autonomy would drive change-oriented OCB through its influence on job performance. Second, I argued that the relationship between job autonomy and job performance would be weakened as role ambiguity increased and that the relationship between job performance and change-oriented OCB would strengthen as procedural justice increased. I found support for the theoretical model based on an analysis of a large survey of South Korean public servants using SEM with latent interaction terms. The model I propose represents a theoretical contribution to the literature, opens up several possibilities for further research, and has practical implications for public service performance.
It is important to note a key limitation to put the results in the appropriate perspective. Specifically, the empirical analysis performed in this study relies on a cross-sectional survey dataset, which not only precludes any demonstration of causality but also leaves the results vulnerable to charges of common method bias (MacKenzie & Podsakoff, 2012). Another issue is that all the variables in the study are subjective estimates and that respondents may be biased in their assessments, which is particularly an issue for job performance and change-oriented OCB. These concerns should not be dismissed casually, as the logic underlying the model is causal and the results will mislead if they are excessively inflated by method or other bias. One may temper skepticism about the results by noting that the model is intuitive, logical, empirically plausible, and theoretically grounded. Second, although the central contribution of this study is the model as a whole, some individual relationships tested are consistent with previous studies that are less susceptible to method bias. Third, at the mean, the magnitudes of the relationships are non-trivial, such that even if method bias is responsible for a portion of model-level variance, it is unlikely that all relationships would be rendered statistically insignificant if this were removed. Finally, although method bias remains a legitimate concern for public management scholars, some prominent scholars have argued that method bias fears are disproportionate to the actual threat (George & Pandey, 2017), and highly cited methods literature also suggests that a “surprisingly high percentage” of common method variance is necessary before the actual relationship between variables becomes significantly biased (Fuller et al., 2016, p. 3197).
This being said, there are several relationships in the model that would benefit from a more rigorous test of causality, particularly where there is potential behavior-situation feedback. First, to the author’s knowledge, this is the only study that proposes that formal job performance will predict change-oriented OCB, as only high performers will have the skills, knowledge, and confidence necessary to pursue performance-enhancing change. Although this position is reasonable, consistently pursuing change-oriented OCB itself will over time improve the performance of the focal employee, and Campbell (2015) argues that improved performance is the principal motivation driving change-oriented OCB. This highlights the likely interdependence of the formal performance and change-oriented OCB concepts in the model. Understanding more deeply how the dynamic between formal performance and change-oriented behavior plays out over time would best be studied using longitudinal data. Additionally, although self and supervisor-rated measures of job performance have been found to be correlated (Ford et al., 1986), confirming the findings with different measures of job performance would also be a contribution to the literature.
Perhaps more interesting, one may also imagine that feedback exists between change-oriented OCB (or formal performance) and job autonomy: through the implementation of micro-level work process change, the ability to meet performance targets will increase, thus freeing up extra time and effort. Higher-performing employees may also be given extra privileges and resources by their organizational superiors (Xu et al., 2019; Zhu et al., 2021). These links imply that mediation may run in the opposite direction than proposed here, with change-oriented OCB driving both performance and job autonomy. Although the model of change-oriented OCB proposed in this study is relatively sophisticated, with four distinct concepts combined to produce the phenomenon, the reality is undoubtedly even more complex, and pursuing an understanding of change-oriented OCB beyond the model of this study will require a more sophisticated research design. Finally, future research may address the argument that low levels of performance will drive change-oriented behavior and second that a lack of procedural justice may create conditions for change. While the cross-sectional nature of the data precludes examining these causal issues in more detail, they remain interesting and open for future research.
Linking change-oriented OCB to job autonomy in public organizations represents a key contribution of this study. Job autonomy has received extensive attention from public sector scholars, and, moreover, reformers, particularly in the NPM tradition, have sought to increase job autonomy and introduce stronger incentives to encourage higher performance. On the other hand, scholars have documented how public organizations are resistant to such changes (Behn, 2002; Campbell, 2021), and the turbulent, politically charged environment in which public organizations operate can encourage managers to increase centralization and reduce the autonomy of workers (Pandey & Wright, 2006; Stazyk & Goerdel, 2011). Additionally, public organizations generally have higher accountability requirements than private organizations, which can present further barriers to the implementation of autonomy and human resource flexibility (Feeney & Rainey, 2010). Given the importance of job autonomy for change-oriented OCB as well as the broader constellation of performance-oriented behaviors, a central research goal for public management scholars should thus be to determine the factors that facilitate the implementation of job autonomy in public organizations. While the model developed and tested in this study helps to clarify some of the internal organizational dynamics that drive change-oriented OCB, better linking the model to the context of public organizations would constitute a further contribution.
A second contribution of this study is to demonstrate the fundamentally conditional nature of the relationship between job autonomy and change-oriented OCB. Although provisioning the focal employee with some degree of job autonomy undoubtedly represents a necessary condition for them to pursue and implement change, job autonomy will produce change-oriented OCB only when a complex set of additional conditions are met. First, drawing on job demands-resources theory (Bakker & Demerouti, 2007), I argued that the link between job autonomy and job performance is conditioned by role ambiguity. In other words, if employees lack sufficient information about work methods and job expectations, provisioning them with autonomy will not produce the intended effect. Given that role ambiguity has been linked in previous research to a variety of (un)desirable organizational phenomena (Campbell, 2016; Davis & Stazyk, 2016), the present study contributes by further underscoring the significant role that role ambiguity plays in the production of change-oriented OCB. However, like job autonomy, some scholars have suggested that roles in public organizations are less likely to be clear given the exposure of public organizations to a diverse set of external stakeholders and competing values (Ahn & Campbell, 2022; Pandey & Wright, 2006; Stazyk et al., 2011). In some ways, therefore, the first two conditions of change-oriented OCB described in this study, job autonomy and role ambiguity, appear to be a poor fit for public organizations. However, scholars and practitioners need not resign themselves to permanently underperforming public institutions, and research has also documented an extensive capacity for reform and innovation in the public sector (de Vries et al., 2016). Although public sector jobs may be in general more vulnerable to role ambiguity, only in the most extreme cases should this be so serious as to prevent meaningful change, and moreover jobs may be less likely to be afflicted by role ambiguity at lower levels of the organizational hierarchy. Given that frontline employees can be a key source of change-oriented OCB-based performance enhancements, future research should focus on the conditions under which employees report higher levels of role clarity, which in turn will help them pursue change.
Although public organizations need to make efforts to overcome limits on autonomy and high levels of role ambiguity, it is also likely that they have an advantage in terms of procedural justice. Due process is a fundamental value in public organizations, and although from a public choice perspective, strong job protections may be seen as an impediment to change (Campbell, 2021), they may also provide employees with the confidence to attempt reasonable, performance-enhancing changes to work processes without the fear of being unjustly punished if they fail. In this study, I found that, while formal performance was the key driver of change-oriented OCB, the tendency of high performers to report higher levels of change-oriented OCB increased with perceptions of higher levels of procedural justice. This is a significant contribution. However, while high levels of performance are of course the principal objective of providing public employees with more job autonomy, performance that meets but does not exceed performance standards is performance below its full potential. Moreover, the highest performers make a disproportionate contribution to the performance of the organization (Campbell & Im, 2016), and it is precisely the performance potential of these employees that is at stake in the model of change-oriented OCB tested in the study. To the author’s knowledge, this is the first study in the public administration literature that links high levels of subjective performance with other valued behaviors. Future research may explore the implications of high performance further, as well as other factors that allow performant employees to reach their full potential and thereby produce performance dividends for society.
Conclusion
Public organizations and their employees are seldom considered paragons of innovation. However, even a skillful manager, administrator, or policy designer under ideal data collection and analysis conditions can at best have a partial understanding of the complete public service pipeline, and public employees at all levels of the organizational hierarchy have a wealth of knowledge about public service and administrative processes. Unlocking this knowledge can result in performance exceeding that which follows from centralized planning and control (Campbell, 2016; Vigoda-Gadot & Beeri, 2012). In this study, I showed that job autonomy translates into change-oriented OCB under a complex and dynamic set of organizational conditions. Public managers should strive to see that these conditions are met, provisioning autonomous employees with sufficient job-relevant information as well as a sense that good faith attempts at performance improvement through change will not be unjustly punished. This is an important goal. Although the barriers to change in the public sector are non-trivial, facilitating change-oriented OCB in the near term can produce performance gains and public service satisfaction. In the long term, however, the cumulative effect of change-oriented OCB is public service transformation and the ability of government to address the collective societal challenges that loom ever larger.
Footnotes
Appendix 1
Unstandardized structural equation modeling estimates.
| Predicted: Job performance | Unstandardized estimate | Standardized estimate |
|---|---|---|
| Job autonomy (JA) | 0.203 | 0.232 |
| Role ambiguity (RA) | −0.185 | −0.225 |
| JA x RA | −0.149 | −0.152 |
| Predicted: Change-oriented OCB | Unstandardized estimate | Standardized estimate |
| Job performance (JP) | 0.516 | 0.478 |
| Job autonomy (JA) | 0.114 | 0.121 |
| Procedural justice (PJ) | 0.113 | 0.108 |
| JP × PJ | 0.074 | 0.059 |
Declaration of Conflicting Interests
The author declared no potential conflicts of interest with respect to the research, authorship, and/or publication of this article.
Funding
The author(s) disclosed receipt of the following financial support for the research, authorship, and/or publication of this article: This work was supported by Incheon National University Research Concentration Professors Grant in 2019.
