P ublic Policy Course Session 14 & 15

1. Public Policy CourseSession 14 & 15 Understanding Ontario Civil Servants & Political Staff: (A User’s Guide) September 10 and 17th, 2010

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3. Five Pillars of the Ontario Provincial Public Sector Understanding civil servants

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12. Civil Servants AKA: Public Servants, Officials, OPS’ers, Understanding civil servants

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14. Review: What some interest groups and activists say…..about government…but what part of government? “Governments have to take responsibility.” “It’s their job to lead and get things done, not to run a popularity contest.” “It’s my job to say what’s right – not to convince the public of what is right. That’s their job.”

15. Understanding Civil Servants Civil servants comprise an important part of government machinery in the world of an advocate. They have the inside scoop in their ministries and departments. Understanding civil servants

16. Understanding Civil Servants: • They can help with a proposal because they know the right buzzwords to make it fly. • They know the constraints and what will be seen favourable and unfavourably within their respective departments. Understanding civil servants

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18. Understanding Civil Servants: Civil servants review your proposal and make recommendations for approval or denial. Advocates often find civil servants hard to understand when they are trying to pursue their advocacy work. Understanding civil servants

19. Understanding Civil Servants Advocates find out quickly that civil servants don't seem to be able to make decisions, even on small matters. Advocates find civil servants to be cautious and unhelpful in groups or with their superiors, but full of advice when you meet them one on one. Understanding civil servants

20. A Short User’s Guide to Civil Servants Why are civil servants like this? Why does their advice change from situation to situation? Why are they so cautious? Why do they seem to make life so difficult for people trying to make proposals to improve a service or make life better for Canadians? Isn’t the government supposed to be working for the people with goals that are similar to those of the advocate? Understanding civil servants

21. The Civil Servant has Two Masters: The purpose of this user's guide is: • To develop a common frame of reference for the advocate so he or she can understand what the civil servant is saying and why he or she is saying it. • To show you how best to work with civil servants and within the world that they inhabit. • To show you how to be successful. Understanding civil servants

22. The Civil Servant has Two Masters: This distinction needs to be made between the world of the civil servant and the advocate: The world of the advocate is linear. The agency has a set of common goals shared at all levels (the Board, senior staff and advocates) Understanding civil servants

23. The Civil Servant has Two Masters: The world of the civil servant is broken into two: Political and program goals of the government in power can differ from how the civil service has been instructed to conduct business with outside agencies. The political agenda (the desire for credit, visibility and specific timelines) can differ from the rulebook for civil servants which outlines the pursuit of transparency, fairness, accountability and orderly governance. Understanding civil servants

24. The Civil Servant has Two Masters: For the Minister, the job needs to get done to seize the political moment For the civil servant, the rules of the organization and the Minster's desires will need to converge. The Minister wants to be assured a proposal will bolster his or her perception with the public. Understanding civil servants

25. The Deputy Minister and the Civil Service The Deputy Minister is an Order in Council (OIC) appointment All Civil Servants report to the Deputy Minister The Minister does not appoint the Deputy The Secretary of Cabinet appoints the Deputy on advice from the Premier/Prime Minister’s Office The Premier or Prime Minister appoint the Secretary of Cabinet (top civil servant) Civil Servants do not report to the Minister Understanding civil servants

26. The Deputy Minister and the Civil Service Hierarchy: • Deputy Minister • Associate/Assistant Deputy Minister • Director • Manager • general staff (variety of titles) Understanding civil servants

27. Some Observations about Advocates/Activists by Civil Servants • Believe governments are much more powerful than they actually are in leading public opinion. • See public opinion as far less important than it actually is. • Don’t see that constant negativity undermines public confidence and support. • Often looking to convert rather than connect. • Underestimates opposition to their plans. • Talks to themselves, not the public. • Often champions the most intrusive, most difficult options.

28. Political Staff AKA: Officials, Staff, Assistants Understanding civil servants

29. Political Staff Political Staff are appointed by the Minister’s Chief of staff The Minister is allowed some government funded political staff for the business of government The Minister will have party-funded political staff for partisan business Political staff do not report to the Deputy Minister or any civil servant Understanding civil servants

30. Political Staff Hierarchy: • Minister • Chief of Staff • Communications and Political Assistants to the Minister on various issues • Assistants to the Parliamentary Assistant • Constituency Staff • General Staff Understanding civil servants

31. What Political Staff and Ministers Say “Give me something I can implement!” “Continue lobbying for your issue – get it in front of the public.” “I don’t hear your issue on constituency day.” “Make it compelling.”

32. The Importance of Convergence The Deputy Minister manages the relationship between civil servants and political staff The Minister and Deputy ensure political staff do not request partisan activity from civil servants There is always a tension between political vs. professional work. Understanding civil servants

33. The Legislature vs. the Boardroom • Political life (i.e. the legislature) is raucous, loud, impatient, fast-moving, willing to quickly commit – must have a stand, sarcastic, sometimes abusive, full of humour, often appears to be out of control • Civil Service professional life is: subdued, quiet, patient, slow-moving, non committal, respectful, temperate, sedate, in control Understanding civil servants

34. The Legislature vs. the Boardroom Institutional Rewards for the civil servant - caution - waiting, non-committal, carefulness, managing advocates, getting the process right Institutional Rewards for politicians and their staff: decisiveness, innovation, seizing the moment, making commitments, getting things done, cutting through red tape. Understanding civil servants

35. The Guide: What you should know: • Ministers make policy decisions • Political staff decide political architecture and messages • Deputy Ministers and Civil Servants build policy, program, systems, and legal architecture • Civil Servants implement or are responsible for program implementation and cost structures. Understanding civil servants

36. The Guide Advocates should: • Work both sides and should value government process • Work up from the bottom and down from the top and meet in the middle • Get involved and interested in all aspects of a policy: Public view, Policy Issues, Political Issues, Program implementation, Automated Systems Issues, Costs, Legal Issues Understanding civil servants

37. The Guide Advocates should: • Know the players and what their needs are: All is on the Internet – Make sure that they know who you are! • Match the above elements with the political vs. the professional • Send a consistent message • Garner power through knowledge of the players and their jobs. • Be explanatory and exploratory Understanding civil servants

38. Conclusion Doing better as an advocate is not selling out. Helping civil servants along in consultation is key. Understanding civil servants

39. Civil Servants may be able to: Help promote your cause within the bureaucracy, sometimes at risk to their own careers. Make deals based on what you want to get done. Mirror the organizations that you deal with Understanding civil servants

40. Handle with Care Be thoughtful and temperate with Civil Servants Find your own values in civil servants, these may not be the people making the decisions at higher levels. Look for your values in politicians who will have their eye on the public, not you! Be direct and forceful with politicians and political staff – if you don’t, they will wonder what you want or what you stand for. Meet in the Middle. Understanding civil servants

41. Handle with Care Multi-Ministry multi-government issues are the most difficult Civil Servants most likely to live in policy silos Political staff less likely to live in silos Understanding civil servants

42. Handle with Care Advocates often need to bring governments and Ministries together Stage Events – invite staff Distribute literature on your organization Invite staff at various levels to know who you are and what you are about Understanding civil servants