The Bureaucracy

1
The Bureaucracy

• Pol Sci 220
• St Francis Xavier University

2
The Bureaucracy Topics Covered

• Defining political vs bureaucratic
• Political Neutrality
• Policy/ Administration Dichotomy
• Work of a Political Executive
• Work of a Bureaucratic Executive
• Accountability

3
History of Bureaucracy

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

4
Webers 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

5
Political vs Bureaucratic Distinctions

• Elected officials vs. appointed officials
• Partisan considerations vs. public interest
• Partisans
• Party officers
• PMO and Ministerial staff
• Cross-overs

6
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

7
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
• 3 stages planning, execution, evaluation
• Bureaucrats have a policy role
• Defining policy issues
• Proposing policy solutions/ options
• The policy/ administration distinctions are often
  blurred.

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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

9
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

10
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.

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Major Reform Themes 1

• Steering, not rowing
• Devolution deregulation of operations
• Managerial contracts
• Results-based accountability
• Performance measurement
• Program review and expenditure restraint

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Major Reform Themes 2

• Agencification
• Out-sourcing
• Commercialization and privatization
• Partnerships
• Creating Internal markets

13
The Principle of Accountability

• By Whom
• To Whom
• For What
• By What Means

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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

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By what means

• Legal and bureaucratic accountability
• Detailed reporting by specific dates, for
  specific information, to specific named
  organizations
• Broader political accountability
• Keeping the policy community informed, explaining
  actions of policy and administration
• Openness when things go wrong
• Accountability versus answerability

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The Accountability of Deputy Ministers

• To the Minister/ Ministers 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)
• Butgeneral principle of civil service anonymity

17
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

18
Gomery Inquiry into the Sponsorship Scandal (1)

• Sponsorship program ran from 1994-2002, 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.

19
Gomery Inquiry into the Sponsorship Scandal (2)

• Judge Gomerys November 2005 findings
• Excessive political interference in program
  administration (by Minister, by PMO)
• Insufficient managerial oversight (by Deputy
  Minister, by Chuck Guite)
• Excessive secrecy, avoidance of compliance, fear
  of reprisal for whistle blowing
• Gross overcharging on government contracts

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Gomery Inquiry into the Sponsorship Scandal (3)

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