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 18th 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
PMO and Ministerial staff
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:
3 stages: planning, execution, evaluation
Bureaucrats have a policy role
Defining policy issues
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
Agencification
Out-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 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”
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 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.
Gomery Inquiry into the
Sponsorship Scandal (2)
Judge Gomery’s 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
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.