Unknown Agabekov

The decision to declassify selected historical documents from the archives of the Security Service in 1997 has been a boon to academic historians of intelligence. The declassified files reveal the successes and failures of the Security Service in fulfilling its statutory function of defending the realm. Yet the activity of Soviet spies continues to be one of the most challenging topics in intelligence history. The role of Soviet defectors in transforming the Security Service's understanding of the nature and extent of Soviet intelligence operations, meanwhile, remains largely understudied. In the case of Agabekov, for example, the reaction of SIS or MI5 to his ‘disappearance’ in the spring of 1938 has long been neglected. It is possible that there was no reaction at all, because both services had long-since written off Agabekov as a source. This helps explain why Agabekov's case has been ignored in the relevant literature in both Russia and the West.     

‘… the Defence of the Realm and Nothing Else’: Sir Findlater Stewart,Labour Ministers and the Security Service

In May 2013, a report on the British Security Service (MI5) by Sir Samuel Findlater Stewart was released by the Cabinet Office. Dated November 1945, the report on the future organization and activities of MI5 was significant in that it defined the Service's post-war remit, accountability and relations with the Secret Intelligence Service (SIS), laying the groundwork of MI5's mandate until the introduction of the Security Service Act in 1989. The article also suggests that the report is significant, not just because it sheds important light on MI5's wartime and post-war role, but because it helps question existing assumptions about the relationship between the Security Service and the post-war Labour Government of Clement Attlee, often viewed as a troubled one.     

Security Intelligence in the Middle East (SIME): Joint Security Intelligence Operations in the Middle East,c. 1939–58

Security Intelligence Middle East (SIME) remains an understudied aspect of British intelligence. In many respects it was a remarkable organization. Its wartime iteration was created in haste, ostensibly as a military body but based upon the Security Service's office in Cairo. It evolved into a truly ‘joint’ unit but culturally was closer to the Security Service (MI5) than either the military or the Secret Intelligence Service (MI6). SIME changed dramatically as a result of the end of the Second World War: it became the sole responsibility of MI5; local cooperation between MI5 and MI6 was scaled-down and became the focal point of a broader inter-intelligence service dispute in London; and new nationalist threats caught SIME off-balance and eventually undermined its raison d'être. SIME's contrasting wartime and peacetime iterations provide a useful example of how intelligence agencies respond to external pressures. It also provides a window into wider jurisdictional and constitutional conflicts at the heart of the relationship between MI5 and MI6, both during and after the war. Finally SIME shows practitioners what can be achieved under the right stimulus and what can be lost when that stimulus fades.     

J.C. Masterman and the Security Service, 1940–72

The significance of J.C. Masterman's relationship with the Security Service, MI5, has not been fully appreciated. As a junior officer during World War II, he consistently sought to achieve good working relations with the Secret Intelligence Service. After the war he continued to take an interest in the Security Service and worked closely with other MI5 elder statesmen to ensure that the successor to Percy Sillitoe as Director-General came from within the Service. Masterman always hoped that his account of the double agents run by British Intelligence during World War II would one day be published. As the public image of the British secret services deteriorated during the 1960s, Masterman believed that MI5 did not grasp how his book could promote its interests, and so he insisted on forcing through publication anyway. The correspondence from serving and former MI5 officers in Masterman's papers vividly illustrate changing attitudes to official secrecy and the declining ability of the British Government to enforce it.     

‘No Wishful Thinking Allowed’: Secret Service Committee and Intelligence Reform in Great Britain, 1919–23

The May 2002 tranche of British Security Service files released to the Public Record Office included hitherto classified policy files containing documents on Secret Service Committee meetings held from 1919 to 1923. This body wrote an important yet relatively obscure chapter in British intelligence history: the post-First World War reorganization and retasking of British secret service machinery, the focus now being Soviet Russia. However, by encouraging the deliberate overstatement of the Bolshevik 'subversive' threat and then backing excessive measures to counter it, some British officials may have sown the seeds of government's later inability to detect a much graver peril to national security, that of Soviet espionage.     

When a Career Public Servant Sues the Agency He Loves: Claude Ferguson, the Forest Service, and Off-Road Vehicles in the Hoosier National Forest

Claude Ferguson, who in his own words “met the test of his lifetime,” deviated from the norms of the U.S. Forest Service articulated by Herbert Kaufman in The Forest Ranger to became a government guerrilla against the organization he loved. This profile highlights several enduring themes: the inherent tensions between democracy and bureaucracy, the many masters of career bureaucrats, how organizational culture can both empower and constrain employees, and what it means to act responsibly, ethically, and with integrity as a public servant. In addition, this case demonstrates how the Forest Service has evolved since Kaufman's classic study. First, Kaufman depicted forest rangers as “valuing the organization more than they value[d] getting their own way,” yet this profile underscores that public servants do not check their worldviews, mores, or ethics at the door. Second, Kaufman described the Forest Service's efforts to routinize the decisions of its employees in an effort to prevent allegiances to, or co‐optation by, local populations. Yet in this Administrative Profile, Ferguson's hidden strategic tactics co‐opted local stakeholders to enlist their support for a cause he deeply felt was right and just.     

Intelligence,diplomacy and the Japanese threat to British interests, 1914–41

This contribution looks at the ways in which the intelligence releases in the 1990s have helped to illuminate previously unknown or misunderstood aspects of the Anglo-Japanese relationship from 1914 to 1941. Although attention in the media has been focused on the release of the Security Service's records, these are of limited use in this area of study. Much more significant are the diplomatic intercepts that were collected by the Government Code and Cipher School, which not only add new angles to old questions, but also reveal British suspicions of Japan in areas not previously studied, such as Japanese pan-Asianism.     

A Call to Action—The Essential Role of Advocacy

Editor's Note: The Perspectives featured in this issue of Public Administration Review were adapted from May 2016 commencement addresses: Anna Maria Chavez, the CEO of the Girl Scouts of the USA, spoke on the 12th at Arizona State University's College of Public Service and Community Solutions; Nancy Pelosi, the Democratic Leader in the United States House of Representatives spoke on the 7th at New York University's Wagner School of Public Service; and Tommy Thompson, the former Governor of Wisconsin and Secretary of Health & Human Services, spoke on the 15th at the University of Wisconsin's La Follette School of Public Affairs. These Perspectives reaffirm the highest principles of American public administration: that by and large, government is NOT the problem, and quite often indeed holds the solution; that effective and helpful public policy depends on informed expert opinion and research; and that those who enter public service should do so with a commitment to the notion that America best fulfills its promise when we seek the well‐being of all people, including the least fortunate. We chose these messages from among a wealth of commencement speeches because while they come from leaders with quite different political views, background, and experience, taken together they offer a coherent and inspiring call to public service. Dan Feldman, Perspective and Commentary Editor     

What Really Happens: Department Secretary Appointments,Contracts and Performance Pay in the Australian Public Service

This account of the practice in the Australian Public Service (APS) for appointing department secretaries, using contracts and rewarding for performance, is based on my own experience in being appointed, reappointed and not reappointed, and in receiving and not receiving performance pay. It also draws on my experience as Public Service Commissioner in assisting with appointments and performance pay of secretaries. I also discuss weaknesses in the current system, and the drift to ‘politicisation’. I was first appointed as a department secretary at the end of 1993 after 25 years in the APS including 15 years in the Senior Executive Service (SES) in three different portfolios (Social Security, Finance and Defence). I was secretary of three different departments (Administrative Services, Housing, and Health, some of which went through changes in name and responsibilities during my tenure) before being appointed as Public Service Commissioner from the beginning of 2002. I retired from the APS in June 2005.     

New Public Management and ‘Photocopy’ Bargaining in the Australian Public Service

The industrial relations policy of the Federal Coalition Government is to encourage industrial bargaining to occur at the enterprise or individual level, free from ‘outside’ influences. While it encourages devolved bargaining at the agency and individual level within the Public Service (Australian Public Service) this policy creates tensions with its role as a centralized policy maker, economic manager and employer of the APS workforce. It also conflicts with the APS' adoption of New Public Management. In practice, the government retains considerable centralised control over agency bargaining outcomes, which is a de facto method of pattern bargaining. By analysing the substantive outcomes from nine APS agency level certified agreements (hours of work, pay and leave entitlements), the article discusses whether this one size fits all' model is evidence of an appreciation that public sector industrial relations is separate and distinct from private sector industrial relations, or another example of duplicity in the federal coalition government's ideology driven approach to industrial relations.     

Fiction,Faction and Intelligence

There is a demonstrable overlap between authentic intelligence operations and the way they have been portrayed in works of fiction, which is not entirely surprising considering the number of distinguished, and some lesser-known, novelists who have worked for MI5 and the Secret Intelligence Service over the years. Setting aside for a moment the work of Compton Mackenzie, Graham Greene, John le Carré and Somerset Maugham, arguably SIS's most renowned authors, what about Kenneth Benton, David Footman and Jack Cordeaux? The writing culture was especially prevalent in the Security Service, where the legendary case officer Jack Bingham, for whom David Cornwall once worked, raised no objection to the employment of authors. His colleague Max Knight wrote some terrible thrillers, and his assistant, William Younger, chose the interesting pen-name William Mole. Bingham's wife Madeleine and daughter Charlotte, who also worked for MI5, wrote many books, and they were not alone. Curiously, however, it is Ian Fleming who has attracted the greatest attention for his great invention, 007. Yet there remains some doubt about whether Bond may not have been inspired by his former tutor in pre-war Kitzbuhel, Phyllis Bottome, whose 1946 novel The Lifeline introduced a suave, German-speaking, Swiss-educated, mountaineering, British agent a full five years before the publication of Casino Royale. A coincidence? Maybe, but the paths taken by these two authors criss-cross on many occasions.     

‘An Internal Housekeeping Matter’:1 Whitehall and the BBC Monitoring Service

For over 65 years the BBC Monitoring Service has been providing Whitehall and its diplomatic, intelligence and security communities with a rich seam of ‘open‐source’ information mined from the word's media. However, while the continued importance of this work remains undisputed, in 2003 the future of the Monitoring Service was brought into serious doubt as a result of a proposed major reduction in its government funding. The source of this problem was a decade old dispute between sponsoring government departments over where the burden of responsibility lay for the costs of the service. The ensuing deadlock led the Intelligence and Security Co‐ordinator, Sir David Omand, to commission a Review of BBC Monitoring by Sir Quentin Thomas whose recommendations formed the basis of a new funding and governance regime for the Monitoring Service. This is the story of that dispute and the means used to achieve its eventual resolution.     

THE EMPLOYMENT OF WOMEN IN THE COMMONWEALTH PUBLIC SERVICE: THE CREATION AND REPRODUCTION OF A DUAL LABOUR MARKET*

Abstract: This paper examines the history of the employment of women in the Commonwealth Public Service (CPS) and attempts to explain the discrepancy between the meritocratic principles on which the personnel practices of the Service have been based and the lack of attainment of women in the Service. It demonstrates how the perception of men's and women's merits was structured by the division of labour current at the turn of the century when the CPS was established, and how, with the routinization and feminization of clerical work, these perceptions have helped create and ensure the continued reproduction of a dual labour market within the Service which is proving difficult to eradicate despite the removal of formal impediments.     

Book Reviews

Change and Decay? Public Administration in the 1990s. By HOWARD ELCOCK. Improving Public Management (enlarge edition). By LES METCALFE and SUE RICHARDS. Political Loyalty and the Public Service in West Germany: The 1972 Decree Against Radicals and its Consequences. By GERHARD BRAUNTHAL. Extraordinary Measures: The Exercise of Prerogative Powers in the United States. By DANIEL P. FRANKLIN. The Politics of National Security: Congress and US Defense Policy. By BARRY M. BLECHMAN. The Vertical Solitude: Managing in the Public Sector. By DAVID ZUSSMAN and JAK JABES. Leadership for the Twenty-First Century. By JOSEPH C. ROST. Interest Groups. By GRAHAM K. WILSON. Knowledge As Power: Political and Legal Control of Information. By DAVID SADOFSKY. Monetary Policy, Taxation, and International Investment Strategy. Edited by VICTOR A. CANTO and ARTHUR B. LAFFER.     

Noncitizens and the Supplemental Security Income program

The Supplemental Security Income (SSI) program, established by the Social Security Amendments of 1972 (Public Law 92-603), was designed to provide cash assistance to needy aged, blind, and disabled citizens, and noncitizens lawfully admitted for permanent residence or permanently residing under color of law. Since then, this means-tested program has undergone many legislative changes that affect the eligibility status of noncitizens. This article, presented in three parts, discusses the legislative history of noncitizen eligibility, and details relevant laws enacted since the program's inception; provides current data on the trends and changes of the noncitizen population; and describes the larger population of foreign-born SSI recipients, of which the noncitizens are a part. Data on the number of SSI recipients born abroad but who had become citizens before applying for SSI payments were not previously available. Analytical data are from the Supplemental Security Record (SSR) matched to the Social Security Number Identification (Numident) file.     

Response to Peter Shergold

Andrew Podger wrote an article in the June 2007 AJPA entitled ‘What Really Happens: Department Secretary Appointments, Contracts and Performance Pay in the Australian Public Service’. Dr Peter Shergold replied to his criticisms in the September issue of AJPA. This short response from Podger is the final rejoinder. In a second paper following this rejoinder the present Australian Public Service Commissioner comments on public service independence today.     

In search of an anatomy of African administrators

By way of welcoming one of the first—and still too few—accounts by African administrators of what it was like to have served under two masters, one British and one African, the article first reviews the chronology of the literature on and by Africa's administrators. Starting from a survey of the history of the British Colonial Administrative Service and some of the recent memoirs of its members, a milestone in the literature is signalled by the shift in emphasis of public service commissions of enquiry away from primary concern with salaries and conditions of service to concerns with the positive Africanization of the civil services. The gradual responsibility of Africans themselves for such reports is then noted, often culminating in a recommendation for the establishment of an Institute of Public Administration. While the quantity and quality of insiders' literature by Africa's civil servants still falls short of that which has characterized the writing by Indian members of the former Indian Civil Service, the position has improved since the publication of the proceedings of the Inter-African Public Administration seminars and by the noticeably less constrained comments by the bureaucracy during a period of military rule. The article concludes with a look at the Ife University project and calls for an extension of such primary research into African administration while the first, and historically unique, generation of African bureaucrats are still alive to record their memories and interpret their significance against subsequent analysis.     

British intelligence and the middle east, 1900–1918: how much do we know?

Primary sources available in British and Israeli archives (first and foremost – the Public Record Office) allow serious study of the British intelligence apparatus in the Middle East and its contribution to the military operations and diplomatic-political process there, prior to and during the First World War. Yet, existing knowledge focuses on military intelligence, as documentation on the Secret Service and the Security Service (both in the form of EMSIB) as well as on army and naval signal intelligence operations in the region is barely available – destroyed or still classified. Examination of hitherto unexplored foreign depositories may serve as an indirect approach to overcome this paucity of material, owing to the close wartime cooperation between British, French, Russian and Italian intelligence on the Ottoman Empire.     

Reflections on Vincent Ostrom,Public Administration,and Polycentricity

Among Vincent Ostrom's many contributions to the study of public administration, policy, and political science, the concept of polycentricity remains his single most important legacy. This essay locates the origins of this concept in Ostrom's early research on resource management in the Western United States and demonstrates its continuing influence throughout The Intellectual Crisis in Public Administration, The Political Theory of a Compound Republic, and his other major publications. Although typically pigeonholed within the confines of the public choice tradition, Ostrom's body of work should be widely appreciated as an early statement of the critical importance of network forms of governance in democratic societies.     

The Role of MI5 in the Internment of British Fascists during the Second World War

Despite the controversy that will inevitably continue to surround Britain's use of executive detention to contain domestic fascists during the Second World War, recently declassified Security Service (MI5) records reveal the details of MI5's role in the defence regulations. MI5 was one of three bodies responsible for the administration of Defence Regulation 18b (DR18b) and as such its power was limited by an inherent system of checks and balances. As others have suggested, the administration of DR18b was full of tension; however, it is now apparent that this tension was a positive feature of the defence regulations and one that protected the individual rather than condemned him. The strategic detention of key figures from Britain's fascist circles effectively destroyed the ability of fascists to function in unified organizations. Newly available records provide answers to previously unanswerable questions related to the nature of the fascist threat as it was perceived and as it changed throughout the war.