Politics and the public service : a study of the relationship between the civil service and the political executive in Malta

Abstract

This dissertation explores the issue of whether the roles of ministers and civil servants in policy-making and implementation are complementary or conflicting. Does the minister decide and the civil servant execute, in accordance with constitutional doctrine? Or are there other processes at work beneath the surface? Is the civil service an obstructive force, as was alleged in the Nationalist Party 1989 General Conference? This dissertation starts by examining how civil servants may develop goals at variance with that of faithfully implementing the minister's policies. It then proceeds to look at the factors contributing to ministerial ascendancy over the civil service or vice versa. Examples are drawn from various countries to illustrate the mechanics of interaction between politician and permanent official. With this in mind, the Maltese scene is then examined. The conclusion reached is that just as civil servants can have too much power over ministers, so can ministers over civil servants. The latter situation prevails in Malta; paradoxically, this contributes to many of the deficiencies in the public service's ability to implement policies. This is not to say that the Service has no other problems of its own making, or that it cannot be wilfully obstructive. Finally, the contribution of Malta's small size to its administrative problems is assessed.