Bureaucracy Bureaucracy and and Democracy Democracy (Cont’d)(Cont’d)

January 17January 17thth, 2005, 2005

LiberalLiberal Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

bureaucracy is good in that it emphasis impartiality bureaucracy is good in that it emphasis impartiality (over participation)(over participation)

dissonancedissonance danger is if bureaucracy becomes too powerful and danger is if bureaucracy becomes too powerful and

threatens individual rightsthreatens individual rights– ““Big Brother”Big Brother”

EliteElite Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

top-down and hierarchical nature of bureaucracy is goodtop-down and hierarchical nature of bureaucracy is good effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare

dissonancedissonance danger if bureaucracy becomes too powerful and danger if bureaucracy becomes too powerful and

undermines competition among elected/political elitesundermines competition among elected/political elites– e.g. development of a permanent non-elected bureaucratic elite e.g. development of a permanent non-elected bureaucratic elite

making decisionsmaking decisions

– ultimately decisions must be ratified by elected elitesultimately decisions must be ratified by elected elites

Participatory Participatory Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare e.g. to put into effect the will of the majoritye.g. to put into effect the will of the majority

dissonancedissonance top-down hierarchical nature of bureaucracy is badtop-down hierarchical nature of bureaucracy is bad excessive focus on impartiality (over participation) excessive focus on impartiality (over participation)

Main Messages!!Main Messages!!

bureaucracy and democracybureaucracy and democracy– relationship with democracy is paradoxical (but in different relationship with democracy is paradoxical (but in different

ways depending on model of democracy)ways depending on model of democracy) in tension with in tension with allall models of democracy models of democracy extent of paradox extent of paradox dependsdepends on the model of democracy in question on the model of democracy in question

– range range bureaucratic model fits well with ideal model of democracy (elite bureaucratic model fits well with ideal model of democracy (elite

democracy)democracy) bureaucratic model has inherent characteristics that fit with bureaucratic model has inherent characteristics that fit with

democracy but also poses threat to individual rights (liberal democracy but also poses threat to individual rights (liberal democracy)democracy)

bureaucracy is a necessarily evil (participatory democracy)bureaucracy is a necessarily evil (participatory democracy)– the paradoxical relationship generates a number of the paradoxical relationship generates a number of

imperatives for each democratic model in designing and imperatives for each democratic model in designing and managing bureaucracy...managing bureaucracy...

LiberalLiberal Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

bureaucracy is good in that it emphasis impartiality bureaucracy is good in that it emphasis impartiality (over participation)(over participation)

dissonancedissonance danger is if bureaucracy becomes too powerful and danger is if bureaucracy becomes too powerful and

threatens individual rightsthreatens individual rights– ““Big Brother”Big Brother”

LiberalLiberal Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

bureaucracy is good in that it emphasis impartiality bureaucracy is good in that it emphasis impartiality (over participation)(over participation)

dissonancedissonance danger is if bureaucracy becomes too powerful and danger is if bureaucracy becomes too powerful and

threatens individual rightsthreatens individual rights– ““Big Brother”Big Brother”

imperativeimperative make sure that bureaucracy is tightly constrained (e.g. make sure that bureaucracy is tightly constrained (e.g.

tight rules)tight rules)

LiberalLiberal Democracy and Democracy and BureaucracyBureaucracy

confluenceconfluence bureaucracy is good in that it emphasis impartiality (over bureaucracy is good in that it emphasis impartiality (over

participation)participation)

dissonancedissonance danger is if bureaucracy becomes too powerful and threatens danger is if bureaucracy becomes too powerful and threatens

individual rightsindividual rights– ““Big Brother”Big Brother”

imperativeimperative make sure that bureaucracy is tightly constrained (e.g. tight rules)make sure that bureaucracy is tightly constrained (e.g. tight rules) subject to individual rights protection (e.g. Charter, privacy subject to individual rights protection (e.g. Charter, privacy

protection, FOI, etc.)protection, FOI, etc.)

EliteElite Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

top-down and hierarchical nature of bureaucracy is goodtop-down and hierarchical nature of bureaucracy is good effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare

dissonancedissonance danger if bureaucracy becomes too powerful and danger if bureaucracy becomes too powerful and

undermines competition among elected/political elitesundermines competition among elected/political elites– e.g. development of a permanent non-elected bureaucratic elite e.g. development of a permanent non-elected bureaucratic elite

making decisionsmaking decisions

– ultimately decisions must be ratified by elected elitesultimately decisions must be ratified by elected elites

EliteElite Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

top-down and hierarchical nature of bureaucracy is goodtop-down and hierarchical nature of bureaucracy is good effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare

dissonancedissonance danger if bureaucracy becomes too powerful and danger if bureaucracy becomes too powerful and

undermines competition among elected/political elitesundermines competition among elected/political elites– e.g. development of a permanent non-elected bureaucratic elite e.g. development of a permanent non-elected bureaucratic elite

making decisionsmaking decisions

– ultimately decisions must be ratified by elected elitesultimately decisions must be ratified by elected elites

imperativeimperative ensure that elected elites can be reasonably held ensure that elected elites can be reasonably held

accountable for decisionsaccountable for decisions

EliteElite Democracy and Democracy and BureaucracyBureaucracy

confluenceconfluence top-down and hierarchical nature of bureaucracy is goodtop-down and hierarchical nature of bureaucracy is good effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare

dissonancedissonance danger if bureaucracy becomes too powerful and undermines danger if bureaucracy becomes too powerful and undermines

competition among elected/political elitescompetition among elected/political elites– e.g. development of a permanent non-elected bureaucratic elite making e.g. development of a permanent non-elected bureaucratic elite making

decisionsdecisions– ultimately decisions must be ratified by elected elitesultimately decisions must be ratified by elected elites

imperativeimperative ensure that elected elites can be reasonably held accountable for ensure that elected elites can be reasonably held accountable for

decisionsdecisions ensure bureaucracy with high level of professionalism, merit and ensure bureaucracy with high level of professionalism, merit and

commitment to public service (while ensuring that they have adequate commitment to public service (while ensuring that they have adequate scope to expercise these capacities)scope to expercise these capacities)

Participatory Participatory Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare– e.g. to put into effect the will of the majoritye.g. to put into effect the will of the majority

dissonancedissonance top-down hierarchical nature of bureaucracy is badtop-down hierarchical nature of bureaucracy is bad excessive focus on impartiality (over participation) is badexcessive focus on impartiality (over participation) is bad

Participatory Participatory Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare– e.g. to put into effect the will of the majoritye.g. to put into effect the will of the majority

dissonancedissonance top-down hierarchical nature of bureaucracy is badtop-down hierarchical nature of bureaucracy is bad excessive focus on impartiality (over participation) is badexcessive focus on impartiality (over participation) is bad

imperativeimperative ensure that bureaucracy is representative of the populationensure that bureaucracy is representative of the population

Participatory Participatory Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare– e.g. to put into effect the will of the majoritye.g. to put into effect the will of the majority

dissonancedissonance top-down hierarchical nature of bureaucracy is badtop-down hierarchical nature of bureaucracy is bad excessive focus on impartiality (over participation) is badexcessive focus on impartiality (over participation) is bad

imperativeimperative ensure that bureaucracy is representative of the populationensure that bureaucracy is representative of the population provide opportunities for democratic participation (e.g. provide opportunities for democratic participation (e.g.

consultations, citizen input, bottom-up initiatives)consultations, citizen input, bottom-up initiatives)

Participatory Participatory Democracy and Democracy and BureaucracyBureaucracyconfluenceconfluence

effective mechanism to pursue the general welfareeffective mechanism to pursue the general welfare– e.g. to put into effect the will of the majoritye.g. to put into effect the will of the majority

dissonancedissonance top-down hierarchical nature of bureaucracy is badtop-down hierarchical nature of bureaucracy is bad excessive focus on impartiality (over participation) is badexcessive focus on impartiality (over participation) is bad

imperativeimperative ensure that bureaucracy is representative of the populationensure that bureaucracy is representative of the population provide opportunities for democratic participation (e.g. provide opportunities for democratic participation (e.g.

consultations, citizen input, bottom-up initiatives)consultations, citizen input, bottom-up initiatives) ensure accessibility and transparencyensure accessibility and transparency

Public Administration in Canada...Public Administration in Canada...

the structure of the Canadian bureaucracy the structure of the Canadian bureaucracy (and its interface with elected officials) (and its interface with elected officials) represents a particular response to these represents a particular response to these various concerns and imperatives!!various concerns and imperatives!!

What is that response???What is that response???

Part II: The Structure of Part II: The Structure of Bureaucracy and the Canadian Bureaucracy and the Canadian Political SystemPolitical System

The Political-Bureaucratic InterfaceThe Political-Bureaucratic Interface

Cabinet GovernmentCabinet Government

what is it?what is it?– collective sharing of executive powercollective sharing of executive power

how is the structure of cabinet government determined?how is the structure of cabinet government determined?– the Prime Ministerthe Prime Minister

who becomes PM?who becomes PM?

– prerogatives of the Prime Minister (vis-a-vis cabinet)prerogatives of the Prime Minister (vis-a-vis cabinet) size and structure of cabinetsize and structure of cabinet departmental organizationdepartmental organization cabinet committee structurecabinet committee structure appointments to cabinetappointments to cabinet cabinet agendacabinet agenda cabinet decisionscabinet decisions

Principles/Roles/Actors in Principles/Roles/Actors in Cabinet GovernmentCabinet Government

relationships NOT rolesrelationships NOT roles not generally legally prescribednot generally legally prescribed considerable room for manoeuvreconsiderable room for manoeuvre

organic link between different relationshipsorganic link between different relationships nature of any given relationship has implications for the nature of nature of any given relationship has implications for the nature of

other relationshipsother relationships change in any one set of relationships implies changes in other change in any one set of relationships implies changes in other

sets of relationshipssets of relationships

relationships are based on tradition but also on relationships are based on tradition but also on continuing acceptance of the obligations/rights continuing acceptance of the obligations/rights inherent in theminherent in them

implicit bargainsimplicit bargains

Centralized Accountability: Centralized Accountability: Collective Ministerial Collective Ministerial ResponsibilityResponsibilitywhat is “responsible government”?what is “responsible government”?

– the executive must maintain the confidence of the executive must maintain the confidence of ParliamentParliament

what is collective ministerial responsibility?what is collective ministerial responsibility?– all ministers must resign if the cabinet loses the all ministers must resign if the cabinet loses the

confidence of Parliamentconfidence of Parliament what constitutes having the confidence of Parliament?what constitutes having the confidence of Parliament?

– what pre-conditions would the operation of what pre-conditions would the operation of collective cabinet ministerial responsibility require?collective cabinet ministerial responsibility require?

Centralized Accountability: Centralized Accountability: Collective Ministerial Collective Ministerial ResponsibilityResponsibilityrequirements (enforced by PM)requirements (enforced by PM)

– cabinet solidaritycabinet solidarity– cabinet secrecycabinet secrecy

cabinet documents exempt from Freedom of Informationcabinet documents exempt from Freedom of Information the problem of leaksthe problem of leaks

why would cabinet ministers agree?why would cabinet ministers agree? price of being in cabinetprice of being in cabinet collective self-interestcollective self-interest

Diffuse Accountability: Diffuse Accountability: Individual Ministerial Individual Ministerial ResponsibilityResponsibilitywhat is individual ministerial responsibility?what is individual ministerial responsibility?

Diffuse Accountability: Diffuse Accountability: Individual Ministerial Individual Ministerial ResponsibilityResponsibilitywhat is individual ministerial responsibility?what is individual ministerial responsibility?

– do ministers typically resign for errors committed in do ministers typically resign for errors committed in their department?their department?

no...not if they can help it!!no...not if they can help it!! why not?why not?

– minister is answerable publicly (to parliament) for minister is answerable publicly (to parliament) for the actions of their departmentthe actions of their department

regardless of whether the minister was in charge at the regardless of whether the minister was in charge at the time a problem occurredtime a problem occurred

ministers are responsible for correcting problems within ministers are responsible for correcting problems within their departmenttheir department

Diffuse Accountability: Diffuse Accountability: Individual Ministerial Individual Ministerial ResponsibilityResponsibilitywhy would individuals agree to accept this why would individuals agree to accept this

role?role?– price for exercising powerprice for exercising power

Centralized Accountability (Collective Centralized Accountability (Collective Ministerial Responsibility) and Diffuse Ministerial Responsibility) and Diffuse Accountability (Individual Ministerial Accountability (Individual Ministerial Responsibility)Responsibility) the individual minister and cabinetthe individual minister and cabinet

collective vs. individual ministerial paradoxcollective vs. individual ministerial paradox– ministers interest in maximizing their own latitude from cabinet ministers interest in maximizing their own latitude from cabinet

controlcontrol– ministers interested in maximizing cabinet’s ability to direct ministers interested in maximizing cabinet’s ability to direct

other ministriesother ministries the conundrum of cabinet solidarity/cabinet secrecy and the conundrum of cabinet solidarity/cabinet secrecy and

individual ministerial responsibilityindividual ministerial responsibility

cabinet/departmental linkcabinet/departmental link minister represents department in cabinetminister represents department in cabinet minister represents cabinet to the departmentminister represents cabinet to the department

The Structure of Government: The Structure of Government: Centralized and Diffuse AccountabilityCentralized and Diffuse Accountability

Prime Ministerial/Cabinet government is an Prime Ministerial/Cabinet government is an attempt to ensure political control...attempt to ensure political control...– over the centre of government (Prime Minister)over the centre of government (Prime Minister)– over individual departments (Ministers)over individual departments (Ministers)

structure of government is an attempt to balance structure of government is an attempt to balance between collective ministerial responsibility between collective ministerial responsibility (centralized accountability) and individual (centralized accountability) and individual ministerial responsibility (diffuse accountability)ministerial responsibility (diffuse accountability)

The Structure of Government: The The Structure of Government: The Balance of Centralized and Diffuse Balance of Centralized and Diffuse AccountabilityAccountability cabinet structure and operationcabinet structure and operation

– sizesize 30 ministers with portfolio30 ministers with portfolio 6 ministers of state6 ministers of state

– cabinet committeescabinet committees importance and numberimportance and number

central agencies vs. line departmentscentral agencies vs. line departments– line departments – e.g. HRSDC, DFO, Agricultureline departments – e.g. HRSDC, DFO, Agriculture– central agencies – PCO, PMO, Finance, Treasury Boardcentral agencies – PCO, PMO, Finance, Treasury Board

role of the Deputy Ministerrole of the Deputy Minister– technically accountable to ministertechnically accountable to minister– appointed by PMappointed by PM

receives direction from PCOreceives direction from PCO

Individual Ministerial Responsibility – Individual Ministerial Responsibility – Shaping the Political/Bureaucratic Shaping the Political/Bureaucratic RelationshipRelationship

the individual minister demands from their the individual minister demands from their senior bureaucrats...senior bureaucrats...

loyalty in serviceloyalty in service honesty in advicehonesty in advice refrain from public commentrefrain from public comment

= public service neutrality= public service neutrality

Individual Ministerial Responsibility – Individual Ministerial Responsibility – Shaping the Political/Bureaucratic Shaping the Political/Bureaucratic RelationshipRelationship

the senior bureaucrats agree to public the senior bureaucrats agree to public service neutrality in exchange for...service neutrality in exchange for...

official anonymityofficial anonymity promotion based on meritpromotion based on merit security of tenuresecurity of tenure