Emotion Centered Change Management For Public Sector Reform: Integrating Behavioral And Strategic Approaches

Abstract

Public sector reforms often fail not because the technical design is flawed, but because leaders overlook the human side of change—how people feel, what they experience, and how those emotions affect their willingness to engage.

In countries like Georgia—a post-Soviet nation with a transitional democracy and developing governance systems—reforms are often pushed by outside actors, are highly visible politically, and must be carried out quickly. These conditions can create uncertainty, skepticism, and fear, especially among civil servants who worry about losing their professional identity or autonomy.

This article draws on a secondary analysis of the co-author’s 2022 doctoral research, which included survey data from 581 people and 26 in-depth interviews. The findings show that anxiety about uncertainty and feeling a loss of control are strong predictors of low engagement with reforms. On the other hand, a strong sense of public service and recognition of one’s work can help people stay engaged. Interviews reveal that building trust and offering emotional reassurance often need to come before any formal awareness campaigns—something that challenges the step-by-step logic of well-known change models like ADKAR or Kotter’s Eight Steps.

To address this, the article introduces an emotion-centred change management framework. This model blends the emotional journey described in the Kubler-Ross Change Curve with the readiness-building strategies from ADKAR and Kotter. It uses them in a more flexible, adaptive sequence: starting with emotional recognition and empathy-based leadership, then moving to awareness-building, skills development, and embedding change in organizational culture.

The study shows that reform success depends on combining clear information, preparation, and strategic communication in a way that reinforces each element. For reform leaders, this means directly addressing fears, concerns about identity, and uncertainty—not just as obstacles to overcome, but as opportunities to build readiness and trust.