relative roles: civilians & military officers 3.12
TRANSCRIPT
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Relative Roles:Civilians & Military Officers
Relative Roles:Civilians & Military Officers
3.12
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Four Questions
• What do we want to achieve? • Security
• How do we want to achieve it?• Which institutions will be required?
• What will their roles & responsibilities be?
• How will they be structured?
• How will they relate to each other?
• Who will staff our institutions?• All military?
• All civilian?
• How will individuals be selected?• Patronage v. Merit based systems
The importance of the desired output will influence the structure of the
institution, which in turn will
influence staffing.
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Parallel Structures
• National defence
HQ: technical
military issues.
• MOD: largely
civilian | deals in
policy & finance.
MODMODNational defence
HQ
National defence
HQ
MINISTER
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Parallel Hierarchies
• National defence
HQ: implements
policy.
• MOD: separate
military & civilian
hierarchies |
arranged by
functional area.
National defence HQ
National defence HQ
MINISTER
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Policy & FinancePolicy & Finance Operations & CapabilityOperations & Capability
MinistersMinisters
Civil StaffCivil Staff Military StaffMilitary Staff
Competing AdviceCompeting AdviceCompeting AdviceCompeting Advice
Integrated Staff
Consistent Advice
Consistent Advice
…UK MOD’s Answer…UK MOD’s Answer
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An integrated hierarchy
• National defence
HQ: implements
policy.
• MOD: mixed
military & civilian
organisations
arranged by
functional area.
MODMOD
National defence HQ
National defence HQ
MINISTER
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2nd Permanent Secretary
Vice-Chief of Defence
Staff
Secretary of State for Defence
Permanent Secretary
Chiefof the
Defence Staff
Chief of Naval Staff
Chief of General
Staff
Chief of Air Staff
Defence Council
Chief Scientific Adviser
Chief of Defence Materiel
DG Finance
Tri-Service post Civilian postMinisterial post Navy post Army postAir Force postKey:
Minister of State for the Armed Forces
Minister for Defence Equipment, Support &
Technology
USoS & Lords
Spokesman on Defence
Minister for International Security
Strategy
Minister for Defence Personnel, Welfare &
Veterans
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The Role of Politicians
• Government Ministers:• UK: SofS, Min(AF), Min(DEST), USofS/Min (DPWV), Min(ISS),
USoS/Lords Spokesman
• Executive authority for:
Making key policy decisions
e.g. strategic direction, force structure, spending & operational commitments (i.e. issues that will attract active Parliamentary, public or international interest)
Ensuring policy implementation
• In the UK Ministers are accountable to Parliament for the conduct of Defence and Security.
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Ministerial Responsibilities in the UK
Secretary of State for Defence (SofS)Rt Hon Phillip Hammond (Cabinet Minister)
Making & executing Defence Policy & Providing the Means by which it is executed, specifically:•Policy ▪Oversight of Acquisition and Industrial Policy•Operations ▪Media and communications•Personnel•Finance and Efficiency
Secretary of State for Defence (SofS)Rt Hon Phillip Hammond (Cabinet Minister)
Making & executing Defence Policy & Providing the Means by which it is executed, specifically:•Policy ▪Oversight of Acquisition and Industrial Policy•Operations ▪Media and communications•Personnel•Finance and Efficiency
Minister for Defence Personnel, Welfare &
VeteransMr Andrew Rowbottham MP (C)
•Veterans Affairs•Civilian Personnel Issues•Recruitment & Retention
Minister for Defence Personnel, Welfare &
VeteransMr Andrew Rowbottham MP (C)
•Veterans Affairs•Civilian Personnel Issues•Recruitment & Retention
Minister for Defence Equipment, Support &
TechnologyMr Peter Luff MP (Con)
•Defence Equipment Programme•Equipment cylce•Science & Technology•Defence Estates
Minister for Defence Equipment, Support &
TechnologyMr Peter Luff MP (Con)
•Defence Equipment Programme•Equipment cylce•Science & Technology•Defence Estates
Minister of State for the Armed Forces (Min (AF))
Nick Harvey MP (LD)•Operations & Operational Policy•Force Generation (includingLogistics)
Minister of State for the Armed Forces (Min (AF))
Nick Harvey MP (LD)•Operations & Operational Policy•Force Generation (includingLogistics)
Minister of State for International Security StrategyMr Gerald Howarth MP (Con)•Defence Diplomacy•Defence Exports
USoS & Lords Spokesman on DefenceLord Astor
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The Role of Politicians
• Parliamentarians• Public Accountability & Transparency
• Parliamentary Committees
• Members of Parliament (MPs)• Represent constituencies with significant defence and security
interests
• Scrutiny of all aspects of security activity via Parliamentary Questions (PQs)
• Ensures Govt remains accountable to electorate
For this to work MPs must themselves be
accountable and operate within the
law.
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The Role of Public Servants:Requirement v. Reality
An efficient, responsive, transparent and accountable public administration is a
central part of democratic governance….
(UNDP: Public Administration Reform, Practice Note, 2007)
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Reality
• UNDP refers to two types of civil service system:• Patronage
• Merit
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Patronage
• Perceived Benefits:• Allows for the establishment of a cadre of loyal
and efficient civil servants;
• Enhances democracy, as it enables the regular rotation of senior staff in accordance with the will of the people.
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Patronage
• Perceived Limitations• Unfair system – It is not what you know, but who
you know.
• Lack of continuity
• Risk of corruption
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Merit
• Perceived Benefits• Complies better with a rights based approach to
civil service management
• Allows for continuity and neutrality in public administration
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Merit
• Perceived limitations• Difficult to implement without a broader cultural
change
• Upper echelons can still be subject to politicisation
“It is the politicisation of the Civil Service which has been perhaps the worst of the many crimes committed by Tony Blair and his colleagues.”
(Patience Wheatcroft, ‘The Real Blot on Blair’s Legacy is the Ruin of the Civil Service’, Sunday Telegraph 22/04/07)
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Military & Civil Service
• Common responsibilities:• Public Service
to higher constitutional principles - beyond any particular administration, individual or Party.
• Obligation to Ministers
i.e. to elected executive representatives of the people
• Subject to Rule of Law
always - safeguards against abuse of power
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Public Service Ethos
“ “ The Civil Service as The Civil Service as such has no such has no
constitutional constitutional personality or personality or responsibility responsibility
separate from the separate from the duly elected duly elected
government of the government of the day”day”
““The command of the The command of the armed forces rests armed forces rests
with the crown. with the crown.
The authority of the The authority of the crown is crown is
represented by the represented by the government of the government of the
day”day”British Defence Doctrine
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Ethical Standards
• Hanbury’s Ethical Standards (2004: 191)
• Obligation to the Constitution• Obligation to Law• Obligation to Nation• Obligation to Profession and
Professionalism• Obligation to Family and Friends• Obligation to Self• Obligation to Middle-range
Collectivities (interest groups, churches, unions, etcetera)
• Obligation to the Public Interest or General Welfare
• Obligation to Humanity• Obligation to Religion or to God
• General Rules of Conduct (Civil Service Law of Georgia)
• Obligation to the law• Impartiality and
Conscientiousness• Collegiality• Cost effectiveness and efficiency• Obligation to the profession and
reputation• Obligation to state interests
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Public Servants’ Role
• Military & Civilian - Common features:
• Advice to Ministers:
• Objective & Impartial: free from external personal consideration
• Unable to actively engage in politics
• Full & frank advice = confidentiality (both ways)
• Principal advisors:
• In the UK CDS (4* Military) - co-equal with PUS (4* Civilian)
• Efficient & effective execution of Ministerial decisions
• Delegated authority to take and execute certain decisions
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Civil Service Role• Support to Ministers in
Parliamentary business:
• Responding to PQs, letters from public, preparing for debates, speeches, HCDC evidence, etc.
• Policy advice to Ministers:
• Enabling effective direction of defence
• Political aspects of operations (Policy Advisors in HQs)
• Dealing with Other Government Departments
• Resource issues - Financial Mgt / Mgt of Procurement
• International defence relations - e.g. NATO, UN, bi-laterals
The Basra political advisors team toast their achievements with Bill Jeffery
(centre, left).
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Civil Service Role
• Expertise in administration of government
• Administrative & Financial Management• Accountable to Parliament (Checks & Controls)
• Public Accounts Committee
• National Audit Office
• Principal Accounting Officer:
• PUS (4*)
• Day-to-day budget management:
• Responsibility of Military Commanders (TLBs, HLBs & BLBs)
• Supported by Command Secretaries (2*) & Finance Officers
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Civil Service Role
• Beyond core functions of Policy & Fin Mgt:• Output delivery:
• Estate management• Scientific and other research• Engineering• Policing and site security• Management training
• Balance between Civil or Military delivery of output?:• Operational impact• Value for money
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Military Role
• MOD as a Department of State:• Undertake military tasks following direction from Ministers (principle of civil control
over military)
• Military advice to Ministers:• Operational commitments (balance forces to tasks (& vice versa))
• Military aspects of Crisis Management
• Capability requirements (Equipment & Personnel)
• Military implications of wider policy decisions
• Principal Advisor & Professional Head of Military: CDS
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Military Role
• MOD as a Military Headquarters:
• Strategic Direction of Operations:• Contingency Planning
• Ensuring availability of forces for assignment (procurement & support)
• Overseeing conduct of ops (NOT Command)
• Coordinating Crisis Mgt Mil Response (DCMO)
Note: Force Readiness & Command of Operations is responsibility of Operational Commanders:
e.g. FLCs (FLEET, LAND, STRIKE) or CJO (at PJHQ).
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Military Role
• Leadership of the Armed Forces in society:• Extends beyond professional operational competence
• As part of the ‘Fabric of the Nation’:• National Identity & Character
• Tradition & Ethos
• Subordination to Law & Civilian control
• Embodies certain national values
• Setting standards or following societal trends? (British Defence Doctrine…)
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Military Role
“Apart from their primary roles in support of security and defence policy, the Armed Forces provide an important and distinctive strand in the fabric of the Nation.
They promote the ideals of integrity, discipline, professionalism and excellence …
They also embody much tradition, which helps to promote a sense of regional and national identity.”
British Defence Doctrine
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Summary
• Common constitutional responsibilities to uphold the law
• Politicians - Key decisions & activity oversight
• Public Servants - objective & impartial advice to Ministers; execute policy decisions; manage & deliver services:• Civilians - Lead on Policy and Finance
• Military - Lead on Operations & Capabilities
• Integrated Staffing - Required throughout structure