The Attitudes of Senior Public Servants in Australia and New Zealand: Administrative Reform and Technocratic Consequence?

This article is in the tradition of comparative international research conducted over recent years into changing political-bureaucratic role relations. Its focus is the attitudinal orientation held toward various dimensions of their work by senior public servants in Canberra and Wellington. In particular, it is concerned to gauge officials' tolerance for pluralistic politics, their programmatic commitment, democratic sensibilities, and identification with conventions of ministerial responsibility. The study draws on and develops into four the two categories of public servants identified by Robert D. Putnam during the early 1970s in Western Europe. The information generated may be used as a baseline for future surveys of a similar type, which could identify changing patterns of distribution among the four basic categories: Political Bureaucrats, Classical Bureaucrats, Traditional Bureaucrats, and Technocrats. The present survey shows some significant differences between senior public servants in the two cities. In particular, those in Canberra are less programmatically committed than their Wellington counterparts, and considerably more “elitist” in their attitudes to popular involvement in policymaking. In both capitals officials are proactively rather than reactively orientated, a finding that may run counter to reformers' beliefs in the predominance of “Sir Humphrey Applebys.” The article goes on to relate the survey findings to major public sector changes that have taken place in both cities since the data for this article was collected. It speculates that, especially in New Zealand (but perhaps less so in Australia), these changes will see the emergence of more strongly technocratic attitudes among top public officials. Such attitudes may not sit easily with expectations that senior public servants be both politically accountable and managerially orientated. Finally, the four categories used in this study are related to the “images” of political-bureaucratic role relations developed in other comparative research.     

The Impact of Socialisation on Graduates’ Public Service Motivation – a Mixed Method Study

The need to attract and retain a high calibre cadre of public servants today has resulted in a renaissance of interest in public service motivation (PSM) within public management literature. This article outlines a study of PSM with graduate employees within an Australian public sector. The study extends our understanding of PSM by adopting a longitudinal, mixed method design, including surveys and individual interviews, to consider the effects of socialisation on levels of PSM. Results show an organisation's mission and values do not affect individual PSM while work type and communication style is vital and organisational socialisation can provide a negative influence.     

Ministerial Leadership and Endorsement of Bureaucrats: Experimental Evidence from Presidential Governments

Scholars have debated what constitutes effective ministerial leadership with respect to administrative competence versus political influence. The authors contribute experimental evidence to this debate through a unique survey design of endorsement experiments. Using original data from 949 national civil servants in South Korea, this article examines civil servants’ assessments of ministerial leadership in three central dimensions of public management: internal management, interbranch coordination, and policy formulation/implementation. Further, existing variation in the characteristics of agencies is used to test whether such variation induces systematic differences in civil servants’ responses. Findings show that that civil servants’ attitudes toward ministerial leadership are asymmetric in nature. Ministers with civil service backgrounds are endorsed in all three dimensions, whereas ministers with legislative backgrounds receive increased support only for interbranch coordination skills. The levels of support for ministers with different backgrounds also vary across agency types. This analysis has implications for public management practice and agency control in presidential governments.     

How Leadership and Public Service Motivation Enhance Innovative Behavior

Prior research has linked the innovative behavior of public sector employees to desirable outcomes such as improved efficiency and higher public service quality. However, questions regarding the drivers of innovative behavior among employees have received limited attention. This article employs psychological empowerment theory to examine the underlying processes by which entrepreneurial leadership and public service motivation (PSM) shape innovative behavior among civil servants. Based on three‐wave data from 281 Chinese civil servants and their 59 department heads, entrepreneurial leadership is found to positively influence subordinates' innovative behavior by enhancing two dimensions of psychological empowerment: meaning and impact. Additionally, PSM was found to influence subordinates' innovative behavior by enhancing the dimensions of meaning and competence. These findings suggest that to facilitate innovative behavior among employees, public organizations should consider introducing training that encourages leaders to serve as entrepreneurial role models and recruit employees with high levels of PSM.     

Responsibility to Be Enthusiastic? Public Servants and the Public Face of “Promiscuous Partisanship”

Contemporary public service leaders are no longer the anonymous mandarins of Westminster folklore. Whether giving public speeches to outside organizations or communicating directly with the media, senior public servants are emerging from anonymity to become public actors in their own right. This article undertakes a comparative study across four Westminster jurisdictions—Australia, Canada, New Zealand, and the United Kingdom—to examine the formal rules and guidelines that apply to public servants when making public statements in their official capacity. Drawing on the late Peter Aucoin's notion of “promiscuous partisanship,” the article argues that public servants are expected to demonstrate a new level of enthusiasm when explaining or justifying government policy to the public. This has implications for the extent to which nonpartisanship can continue to effectively function within Westminster systems.     

How responsible is 'responsive' government?

The work of John Rohr focuses primarily upon the constitutional dimension of the work of public servants, most particularly, but not exclusively, career civil servants employed in central government. In stressing public service ethics as a form of constitutional practice Rohr's aim is to help reinforce the legitimate role of career public servants in government and to remind practising public bureaucrats (and academics and politicians) of the nobility of the 'administrative vocation' of state service, a somewhat daunting task in today's political climate. In this article I examine Rohr's work to see what ethical light it might throw upon recent and ongoing political attempts to make the British public administration more 'responsive'. I do so, first, by outlining the main themes of Rohr's work and their location within the US constitutional tradition. I then proceed to discuss the extent to which they translate into other constitutional contexts. Finally, I attempt to put Rohr's work to use in discussing aspects of civil service reform in Britain under recent Conservative administrations and that of the present New Labour government.     

Does Person‐Organization Fit Matter in the Public ‐Sector? Testing the Mediating Effect of Person‐Organization Fit in the Relationship between Public Service Motivation and Work Attitudes

Public service motivation theory suggests that public service motivation is positively related to work attitudes, but person‐organization fit theory assumes that person‐organization fit completely mediates the relationship between public service motivation and work attitudes of public employees. This article investigates which theory better predicts attitudes toward work, such as job satisfaction and organizational commitment of public employees, by testing hypotheses on (1) whether public service motivation directly influences work attitudes, or (2) whether person‐organization fit mediates the relationship between public service motivation and work attitudes, or (3) whether both hypotheses are true. Using survey data on civil servants in Korea, this article shows that public service motivation has not only a direct effect on but also an indirect effect on job satisfaction and ‐organizational commitment through its influence on person‐‐organization fit.     

Does the Love of Money Moderate the Relationship between Public Service Motivation and Job Satisfaction? The Case of Chinese Professionals in the Public Sector

To what extent do attitudes toward money—specifically, the love of money—moderate the relationship between public service motivation and job satisfaction among public sector professionals in China? The authors collected data from full‐time public sector professionals who also were part‐time students in a master of public administration program in eastern China. After confirmatory factor analyses, the regression results show that a public servant’s love of money moderates the relationship between public service motivation and job satisfaction—that is, individuals with a strong love of money have a significantly stronger relationship between public service motivation and job satisfaction than those without, a finding that supports the “crowding‐in effect.” Alternatively, for high love‐of‐money civil servants with a “steel rice bowl” mentality, high job satisfaction is explained by the best offer (output) for the minimum amount of effort (input), at least within Chinese culture. Such findings are counterintuitive in light of Chinese personal values, equity theory, public servants’ institutional background, ethical organizational culture, and corruption.     

Craft and Capacity in the Public Service

Over the past 8 years, debates about Australia's public service have evolved from being focused mainly on skills and capacities to being now increasingly concerned about the operating environment for career officials, their ability to fulfil their stewardship obligations, and to practice their ‘craft’. In this article, I track those changes and ask what is the craft of public administration? How should we understand it? Are concerns it is imperilled or has been lost valid or overblown? I draw on the observations of current and former senior officials, and the findings of recent Capability Reviews. My primary focus is on the Australian Public Service, because here is where the debate has been most public and direct. I note that the focus of concern has shifted from public servants towards ministers, who have been largely absent from public sector reform initiatives of the past 40 years.     

Bridging the Public Service Motivation and Calling Literatures

Public administration research suggests there may be disparity in the extent to which public servants experience their work as a calling. The purpose of this article is to better illustrate and integrate calling research, which grows out of the positive organizational scholarship movement, into how we understand public service motives. The calling scholarship offers a productive way to view differences in public servants' orientations toward their work. Integrating calling into the public administration scholarship—particularly the public service motivation scholarship—provides insights to researchers and managers about how to help employees discover a deeper sense of meaningfulness in their work. In presenting the arguments and corresponding conceptual framework, the authors seek to supplement rather than replace the public service motivation construct. The authors articulate a research agenda that they believe will strengthen and enrich research on public servants' experience with their work.     

Civil Service Reforms in Italy: The Importance of External Endorsement and Administrative Leadership

The traditional portrait of civil servants in Italy, as well as in most other countries, has always been one of not particularly efficient employees yet have the benefit of a secure job and can look forward to a comfortable retirement package. In order to change this image, public management reforms have largely focused on civil servants since the 1990s. However, many academics and practitioners claim some inertia in the reform implementation. In this article we aim to identify the determinants of such inertia in Italy's civil service reforms and we analyze data from 885 Italian municipalities expected to adopt the pay system reform for senior officials, as required by national legislature. Our findings stress the importance of accrued legitimacy, external public endorsement, and the influence of key internal stakeholders (like administrative leaders) as major vehicles to promote or slow down the implementation of administrative reforms in the public sector.     

‘Utterly Disgraceful’: Social Media and the Workplace

Social media use by Australian public servants has given rise to questions pertaining to their political rights, impartiality and privacy outside of work. Drawing on the recent case Starr v Department of Human Services these issues are explored. The findings suggest that social media use has heightened tensions around public servant's rights to comment on issues of the day, and its use by employees both inside and beyond the workplace remains contested terrain.     

The Nature and Incidence of Workgroup Innovation in the Australian Public Sector: Evidence from the Australian 2011 State of the Service Survey

Using data from a nationally representative survey of all Australian Government employees, we explore the nature of innovation implemented at the workgroup level and assess the multi‐dimensionality of the workgroup's ‘most significant innovation’ (MSI). Of the 10222 survey respondents, 48% reported at least one innovation implemented by their workgroup, with an innovation more commonly reported with an increase in the respondent's age, seniority, and service experience; among men and university graduates. The results reveal that 54% of the reported MSIs incorporate between two and five dimensions of innovation types (policy, service, service delivery, administrative/organizational, and conceptual), and most of these dimensions reinforce each other. Different dimensions of the MSI draw on different sources of ideas (with senior leaders having the broadest impact), face different ‘revealed’ barriers, require different levels of workplace creativity, and produce different beneficial effects. Our findings help strengthen an understanding of the influencing factors and the effects of multi‐dimensional public sector innovations.     

The Public Service: Independence, Responsibility and Responsiveness

In recent years there has been controversy surrounding the issues of the independence, responsibility and responsiveness of our public services. Critics come from two opposing directions: (i) there have been charges of politicisation of the public service, with the implication that it has lost its independence and become dominated by the government; (ii) Pusey (1991) has accused 'economic rationalists' in the public service of pursuing their own neo-classical agenda and dominating government policy. Both criticisms reveal a misunderstanding of the respective roles and responsibilities of ministers and public servants and the proper relations between them. In our system of democratic government, it is the prerogative of ministers to decide and the role of departments to propose and advise and then implement the decisions of ministers. This contribution begins by considering the respective responsibilities of ministers and officials, before canvassing the charges of politicisation and what should be expected from public servants in contributing to policy development. Finally there is consideration of the ethical values of public servants and what responsibility they might have for the 'public interest'.     

PARLIAMENTARY COMMITTEES,PUBLIC SERVANTS AND DUE PROCESS

Abstract: The parliamentary system of government in its Australian form has a number of unresolved problems, notwithstanding its many virtues. One such problem is that of the role of public servants when called before parliamentary committees as witnesses. The current guidelines are mainly advice to public servants as to how they should avoid or defer questions which neither the minister nor the departmental secretary has authorised them to answer. Of course, this is useful and proper within its limits. However, it fails to address many of the dilemmas and career-threatening choices which can face public servants who find themselves being questioned in an aggressive, hostile manner by members of a parliamentary committee. Unfair treatment of witnesses is not a trivial matter and there are more than isolated instances. This article deals with an episode involving the Joint Parliamentary Committee of Public Accounts in 1982. The case is now some years in the past, but it is still worth examining for what it teaches about gaps in our constitutional conventions. At the end of the article we suggest action in four areas. Intensive training and retraining is needed, first in the upper ranks of the public service, and secondly for chairpersons and members of parliamentary committees. Thirdly there is a need for MAB-MIAC to revisit yet again their guidelines on accountability and to instigate a review of the government's guidelines for public servants appearing as witnesses. Both sets of guidelines are anachronisms. Finally, we suggest that, in any future review of government policy in this area, consideration be given to the amendment of relevant legislation to bring due process and the protection of witnesses more closely into line with the rights available to persons appearing before a court.     

The Public Cost of Unilateral Action

Scholarship on democratic responsiveness focuses on whether political outcomes reflect public opinion but overlooks attitudes toward how power is used to achieve those policies. We argue that public attitudes toward unilateral action lead to negative evaluations of presidents who exercise unilateral powers and policies achieved through their use. Evidence from two studies supports our argument. In three nationally representative survey experiments conducted across a range of policy domains, we find that the public reacts negatively when policies are achieved through unilateral powers instead of through legislation passed by Congress. We further show these costs are greatest among respondents who support the president's policy goals. In an observational study, we show that attitudes toward unilateral action in the abstract affect how respondents evaluate policies achieved through unilateral action by presidents from Lincoln to Obama. Our results suggest that public opinion may constrain presidents' use of unilateral powers.     

TEACHING PUBLIC ADMINISTRATION: EDUCATION OR TRAINING?*

Abstract: There is an ambivalence in attitudes to public administration as a field of study among both academics and practitioners in Australia. Teachers, researchers, students, public servants seeking training and managers have differing interests and expectations. Disagreements about the field have contributed to the lack of a unified framework of concepts, while the field has fragmented into public administration, public policy and public management, aside from other divisions such as "old" versus "new" public administration. "Education" and "training" have taken diverging paths and academics and practitioners have drifted apart. There needs to be a closer dialogue that can only be based on a generally agreed paradigm for Australian Public Administration as a field of study.     

How Much Responsiveness is Too Much or Too Little?

This article analyses the main principles underlying public service responsiveness, illustrating them with examples drawn largely from recent experience in the Australian Commonwealth government. The final section attempts to identify some general international trends which are placing new strains on the relationships between politicians and public servants.