The Bureaucracy Pol Sci 220 St Francis Xavier University

The Bureaucracy: Topics Covered Defining political vs bureaucratic Political Neutrality Policy/ Administration Dichotomy Work of a Political Executive Work of a Bureaucratic Executive Accountability

History of Bureaucracy In ancient societies, the official “caste” Rise of the “bureaucrats” in 18 th century Europe Authoritarian and totalitarian bureaucracy Max Weber and the rational bureaucracy Bureaucrat as a term of abuse

Weber’s Characteristics of Bureaucracy Hierarchical structure Unity of command Specialization of labour Hiring and promotion on basis of merit Full-time employment Decisions based on impersonal rules Written records of all decisions

Political vs Bureaucratic Distinctions Elected officials vs. appointed officials Partisan considerations vs. public interest Partisans: Party officers Party officers PMO and Ministerial staff PMO and Ministerial staff Cross-overs Cross-overs

Political Neutrality Merit principle is the rule Public servants have political rights Public service no place for personal views Bureaucrats are normally anonymous Loyalty to the Government is essential

Policy/ Administration Dichotomy Policy = what governments choose to do (or not to do) about a public issue Administration = implementing policy decisions through applying law or running programs he policy role of the public service: implementing policy decisions through applying law or running programs he policy role of the public service: 3 stages: planning, execution, evaluation 3 stages: planning, execution, evaluation Bureaucrats have a policy role Defining policy issues Defining policy issues Proposing policy solutions/ options Proposing policy solutions/ options The policy/ administration distinctions are often blurred.

Work of a Political Executive (Minister) Constituency work Cabinet and caucus meetings Question Period Media relations Interest groups Meetings with Deputy and senior staff Getting re-elected is job 1

Work of a Bureaucratic Executive (Deputy Minister) Advice to, management of the Minister Advice to, and reporting to, Prime Minister, Clerk (PCO), Treasury Board, etc. Relations with key stakeholders Direction/ collaboration with senior staff on policy options, program options, implementation, daily management Leadership to Department as a whole

Key Objectives of New Public Management (OECD) 1. Improving strategic oversight by elected politicians 2. Ensuring greater accountability for set objectives 3. Greater contestability and market competition for the provision of public goods and services.

Major Reform Themes …1 Steering, not rowing Devolution & deregulation of operations Managerial contracts Results-based accountability Performance measurement Program review and expenditure restraint

Major Reform Themes – 2 AgencificationOut-sourcing Commercialization and privatization Partnerships Creating Internal markets

The Principle of Accountability By Whom To Whom For What By What Means

For What The proper spending of public funds The effective administration and application of public law The efficient and effective management of public programs Overall standards of ethical behaviour, and professional values In general, for that for which one is responsible…

By what means Legal and bureaucratic accountabilityLegal and bureaucratic accountability Detailed reporting by specific dates, for specific information, to specific named organizationsDetailed reporting by specific dates, for specific information, to specific named organizations Broader political accountabilityBroader political accountability Keeping the policy community informed, explaining actions of policy and administrationKeeping the policy community informed, explaining actions of policy and administration Openness when things go wrongOpenness when things go wrong Accountability versus “answerability”Accountability versus “answerability”

The Accountability of Deputy Ministers To the Minister/ Minister’s staff To the Prime Minister and the Clerk of the Privy Council To the Treasury Board, Public Services Commission, etc. Answerable To Parliament (Public Accounts Committee and other Standing Committees) But…general principle of civil service anonymity

The Accountability of the Ordinary Public Servant To the Deputy Minister (indirectly through the DM) to the Minister, Parliament, electorate To their immediate supervisor To stakeholders / Clientele To professional norms and values To their conscience

Gomery Inquiry into the Sponsorship Scandal (1) Sponsorship program ran from , cost $320 milllion Goal was to advertise and promote federal programs, mainly in Quebec Required the administration of procurement contracts with public relations and advertising firms Scandal arose after discovery of fraud, gross mismanagement Judge John Gomery appointed as Commission on Inquiry.

Gomery Inquiry into the Sponsorship Scandal (2) Judge Gomery’s November 2005 findings: Excessive political interference in program administration (by Minister, by PMO) Excessive political interference in program administration (by Minister, by PMO) Insufficient managerial oversight (by Deputy Minister, by Chuck Guite) Insufficient managerial oversight (by Deputy Minister, by Chuck Guite) Excessive secrecy, avoidance of compliance, fear of reprisal for “whistle blowing” Excessive secrecy, avoidance of compliance, fear of reprisal for “whistle blowing” Gross overcharging on government contracts Gross overcharging on government contracts

Gomery Inquiry into the Sponsorship Scandal (3) Gomery report findings (continued) : Funds spent for unauthorized purposes Funds spent for unauthorized purposes Kickbacks and illegal contributions to Liberal party Kickbacks and illegal contributions to Liberal party Conflict of interest by retired employees Conflict of interest by retired employees A “culture of entitlement” among politically-connected persons A “culture of entitlement” among politically-connected persons Report ultimately led to fall of Liberal government, and to stringent new accountability measures.