ulster.ac.uk The importance of civil servant education in delivering quality government’ Dr Karl O’Connor Institute for Research in the Social Sciences University of Ulster

Overview Research Topic: Civil servant education and the policy process Why? It is not enough to understand what policy/ies to implement but we need to know how good policy can be implemented Key points: 1.Bureaucrats have discretion in certain policy areas 2.This discretion is exercised differently by different bureaucrats: typologies of behaviour emerge Implications for the region: We must work with, not against the existing public administration if we are to achieve the ultimate goal of good governance Studying public administration is important – we need to invest in administrative capacity

Controls on Discretion Vertical and Horizontal control on behaviours Top–Down organisational accountability professional accountability political accountability legal accountability: Standard operating procedures administrative accountability Bottom-up – Society – Participatory citizenship: Community What happens when accountabilities are in conflict?

Typologies Case studies: Belfast and Brussels Active representation 5 types of bureaucrat Do you recognise these? Summary so far: Given: Discretion exists To prove: How discretion is exercised

Conceptual Framework Efficiency Equality Personal responsiveness. Pro market provision Professional responsiveness Pro state provision Political responsiveness Neutrality Values

Factor One (Belfast) 6 Administrators are not neutral. They should be committed to good management and social equity as values I recommend positions that I perceive represent the needs and interests of the entire urban public As I am involved in policy-making, it is my role to advance the needs of those less well off in society, regardless of their background I take initiative in proposing policies, mobilising support for these policies and questioning policies that may run counter to the general public interest The best way to ensure efficient public service to the entire urban public is through public sector reform so that services may be provided equitably and efficiently by the public sector In my daily work I value the views of international organisations such as the OECD, EU, World Bank, Policy-specific think tanks and NGOs etc

Factor One (Belfast) 7

8

Factor Two (Belfast) In my daily work, I represent the elected government of the city My role is to carry out the wishes of the urban government My decisions are legitimate as I follow procedures established by law and/or secondary legislation Bureaucracies should be staffed by professionally trained, technically competent individuals. The most qualified person should always get the job. When there is a conflict of interest arises between the wishes of the urban government and my own expert beliefs, I automatically and unquestionably follow the wishes of the government. I recommend or actively activate in favour of policy positions that I perceive represent the needs of the entire urban public. 9

Factor Two (Belfast) 10

Factor Two (Belfast) 11

Factor Three (Brussels) When a conflict of interest arises between the wishes of the political level and my personal expert beliefs, I pursue my expert beliefs for as long as politically possible Public employees should aim for governance that works better and costs less My decisions are legitimate as I follow procedures established by law and/or secondary legislation My decisions are legitimate on the basis of my technical expertise and by the fact that I provide technically feasible solutions I know what is legal, not what is right. I stick to what is legal In contemporary social and economic affairs, technical considerations should be given more weight than political factors I represent the elected government of the city 12

Factor Three (Brussels) 13

Factor Three (Brussels) 14

Factor Four (Brussels) 15 Administrators are not neutral: they should be committed to good management and social equity as values I recommend, or actively advocate, in favour of positions that I perceive represent the needs and interests of the entire urban public I take the initiative in proposing policies, mobilising support for them and questioning policies that may run counter to the general public interest When a conflict of interest arises between the wishes of the political level and my personal expert beliefs, I pursue my expert beliefs for as long as politically possible.

Factor Four (Brussels) 16

Factor Four (Brussels) 17

Factor Five (Brussels) 18 I know what is legal, not what is right, I stick to what is legal Bureaucracies should be staffed by professionally trained, technically competent individuals. The most qualified person should always get the job. My role is to carry out the wishes of the urban government I believe that citizens needs are best advanced through directly putting their needs first When a conflict of interest arises between the wishes of the urban government and my own technical beliefs, I automatically and unquestionably follow the wishes of government. My role is to follow the rules of the bureaucracy no matter what the circumstances When a conflict of interests arises between the wishes of the political level and my personal expert beliefs, I pursue my expert beliefs for as long as politically possible Resources should be allocated according to the will of the political elite, regardless of my opinions

Factor Five (Brussels) 19

Factor Five (Brussels) 20

Summary of the findings ‘Bureaucracy [are] acting consistently with [their] own values rather than being directed by electoral institutions’. However, their own values are not necessarily their primary identities. While indeed our factors are found to be involved in active representation, this active representation is grounded not necessarily in primary identities but active representation is found to exist on behalf of a secondary learned identity. The results also demonstrate that not all bureaucrats are inclined to actively represent. Factors two and five indicated high levels of political responsiveness.

Policy contribution The importance of civil servant education in delivering quality government Insight into decision-making Discretion is available to officials High level of competence General types of official within the societies under study Why are these findings relevant? As values guide behaviour, we can now tailor policy programmes that work with, as opposed to against, those charged with implementing policy

Further questions Concluding remarks National level To what extent does bureaucrat discretion exist in your country? How is that discretion exercised in your country? Has education generated reform-minded civil servants? Region level Why are you here? Why do you cooperate with each other? Do you have the ability to embed peer-learning at home?

Further reading Journals O’Connor, Karl (2013) ‘Belfast revisited: Everyday policy making in a contested environment’, Irish Political Studies Vol. 28(1) O’Connor, Karl(2013) Q Methodology as a tool for committee governance research; West European Politics Vol. 36(5) O’Connor, Karl(2015-forthcoming) What are the ideas and motivations of bureaucrats within a religiously contested society? International Review of Administrative Sciences Book O’Connor, Karl (2014) Public administration in contested societies; Palgrave