Managing Policy Relationships A Seminar for the International Centre for Policy Studies,

1. Managing Policy Relationships A Seminar for the International Centre for Policy Studies, Kyiv, Ukraine, December, 2000 M. Paul Brown School of Public Administration Dalhousie University, Halifax, Nova Scotia B3H 3S7

2. Managing Relationships in Policy Formulation & Analysis • Managing relationships a key function in policy management • --the very stuff of politics • Public sector leadership in public ;policy must be thought of • in relational terms • Public sector leaders requires competency in managing relationships • along three axes: • external • vertical • horizontal • Effective leadership in policy development requires rigour and • professionalism in managing relationships along all three axes

3. Policy Relationships Executive/Legislature Non-governmental organizations Ministries Other national governments-- Canada, Japan, Russia Vertical External Horizontal Boards International Agencies-- IMF, WB, EEU Departments Internal External

4. Managing External Relationships Managing external consultations and relationships is a key function in policy management and the “very stuff of politics”--Canadian Federal Task Force (1995) Pal(224) --Contemporary governance entails substantial private/non-profit/public co-operation at every phase of the policy process Public sector leaders must show rigour and professionalism in managing external consultations and the presentation of issues; avoid ruts and “client capture” Helpful to think of public servants in two roles: “takers” of policy inputs and ideas from organised external groups “makers” of policy inputs from external groups

5. Managing External Relationships • Policy makers as “takers” in external relationships • on receiving end of lobbying efforts by organised interests • seeking to influence public policy in order to promote their • common interest (Pross, 1992:3) • Policy communities • sub-government--large institutions, groups, and core government • agencies, who make actual decisions • attentive public--outsiders whose main influence is to generate ideas • and discussion through conferences, publications, lobbying • Policy networks • properties that characterise relationships among the particular set of • actors that forms around an issue of importance to the policy • community(Coleman & Skogstad, 1990:26)

6. The Policy Community International Organisations Cabinet of Ministers President Major Foreign Governments Lead Ministry NGO Parliament Groups Other Ministries Individuals

7. Managing External Relationships • Managing relationships in the context of policy communities • & networks • Seek the public good • Ensure input from all stakeholders • Ensure that all interests know that input will be sought from all stakeholders • Key on membership as much if not more than leadership • Develop skills for analysing context of external actors(Lindquist) • Engage a stewardship role, facilitating debate/learning • Apply high ethical standards

8. Managing External Relationships Public servants as “makers” in external relationships A key trend in policy community relations (Pal, 1997:217) Canada-Treasury Board Secretariat “It is the policy of the Government of Canada to pursue and to promote consultation with Canadians in the development of public policy and in the design of programs and services.” “Responsibility of every manager to... demonstrate leadership in building a client-centred and consultative culture.”

9. Managing External Relationships Principles for Effective Consultation • Appreciate and understand the different stakeholder groups as “cultures” with their own myths, values, and history • Understand that public participation is a process of bridging the gaps created by different cultures • Plan • Give lots of advance notice to stakeholders of meetings, workshops, calls for briefs, public meetings, etc. • Maintain and encourage information flow (displays/documents/press releases/ technical data) • Develop feedback processes that allow you to know what stakeholder reactions are

10. Managing External Relationships Principles for Effective Consultation • Adjust target dates and deadlines to stakeholder realities • Involve the public and stakeholders in setting guidelines and parameters • Recognise that stakeholders are not created equal; some groups have special interests and differing power • Encourage stakeholders to feel an “ownership of the process” • Provide intervenor funding

11. Managing External Relationships Major Steps in the Consultation Process 1 Preparation • Describe Scope and Objectives • Identify Consultation Team • Discuss Funding • Identify Stakeholders • Consider the Timing • Plan to Evaluate 2 Design • Selectinga Consultation Method • Logistics Planning 3 Implementation • Implement Plans • Explain the Process • Monitor the Results Source: Agri-Food Canada--Consultations Toolbook

12. Managing External Relationships Major Steps in the Consultation Process 4 Synthesis • Analyse Data and Draft Results Feedback 5 • Collect, Analyse and Respond 6 Follow Up • Identify Impact of Change • Develop Work Plans • Issue Progress Report Evaluation 7 • Assess Content and Process of Consultation

13. Managing the Vertical Relationship The vertical axis or relationships consists of the relationship between the public servant, the minister, and the cabinet. What should the role of public servants be in policy development? In Canada, “while many institutions play important supporting roles in the policy process, the central policy-making institution of government is the Cabinet.”(Whittington & Van Loon, 1996:554) Priority Determination Policy Initiation Formulation and Legislation “Bureaucrats are very often the keystone in the policy process and central figure in many subsystems (Howlett &Ramesh, 1995:56)

14. Managing the Vertical Relationship “Cabinet often finds it impossible to make a clear priority decision in the absence of a good deal of detailed advice on policy formulation.” (Whittington & Van Loon. 1996:607) “Behind the cabinet…must stand a central policy agency as the bureaucratic expression of executive authority, the tie which binds together policy work across the government. Such agencies are rarely popular with line departments…Yet, from the executive’s point of view, [they] are essential for policy control and consistency. They make the policy domain manageable, and coordination possible.”(Davis, 1997:141) A well-institutionalised bureaucracy makes a vital contribution to the quality and coherence of decision-making through policy advice and the structuring of the decision-making process, even though the decisions themselves are taken outside the bureaucracy. (Polidano, 1999: 8)

15. Managing the Vertical Relationship DMs in Canada indicate that 80-90% of relationship with Minister is concerned with policy determination Policy gate keepers--screen out policy ideas generated by policy community Policy advocates--identify needs/opportunities through external relationships, alert minister and ultimately Cabinet to need for action

16. Managing the Vertical Relationship Principles for Leadership in Managing the Vertical Relationship • Do not be indifferent to the ends of the government • Do not refrain from pressing your conception of the policy need on the minister • Do not be simply a registrar of facts in indicating alternatives • Do not get involved in electoral issues • Leave the public stage to the politicians • Cultivate contacts without making friendships • Uphold the interests of the minister and department without making enemies in the administration • Total commitment to a policy is possible if carefully presented

17. Managing Horizontal Relationships Context:: “the development of scientific and technical knowledge combined with the growth in the role of the state to give various public issues a multi-faceted, interactive character.” (Bourgault, 1997:12) the driving forces in the new international environment have impacts that cut across the traditional categories in which issues are defined and policy research is carried out.” (ADM Sub-committee on Global Challenges and Opportunities, 1997:33) “growing sense that a horizontal perspective is crucial for meeting the challenges of the next decade (DM Task Force on Policy Research, 1997:2) “Today, policy officers, heads of services and directors general, when they design policies or departmental positions, are very concerned about how their proposals fit into the Canadian macro-governmental whole.” (Bourgault, 1997:22)

18. Managing Horizontal Relationships Principles for Managing Horizontal Relationships • Find out who needs to be led. (Kotter, 1985:59) • Identify all the relevant lateral relationships, both obvious and subtle • Figure out where the leadership challenges will be • Assess who among these people may resist co-operation, why, and how strongly. • Cultivate a “style for complexity.”(Cleveland, 1976: 82) • Be low key; brow-beating and consensus-building do not mix • Develop a tolerance for ‘ambiguity’ and living in a ‘web of tensions’ • Show of the optimism of the doer; the determination to organise a future with a difference. • Work to establish trust • Try to understand both differences and mutuality of interest • Recognise time use as legitimate investment

19. Managing Horizontal Relationships Principles for Managing Horizontal Relationships • Emphasise adding value • Identify where you can promote the agendas of those whose co-operation without sacrificing your own objectives • Be low key(Cleveland, 1976:82) • Strive to build consensus around your objective, not to brow-beat • Have the courage to lead(Kotter, 1985:59) • Have a contingency plan for either more forceful methods in overcoming resistance, or for by-passing it.