Arthur Chrenkoff on the differences between the theoretical role of civil servants and what they actually do:
The western front of the United States Capitol. The Neoclassical style building is located in Washington, D.C., on top of Capitol Hill at the east end of the National Mall. The Capitol was designated a National Historic Landmark in 1960.
Photo via Wikimedia Commons.
Public servants consider themselves more intelligent and expert in their areas of competence than politicians. In many cases they are right. This only adds to the frustration. Because it’s not the job of public servants to make policy but to give advice to elected officials and to implement their decisions. And it certainly is not their job, if elected officials choose not to accept and act on that advice, to sabotage their efforts or even try to engineer the downfall of their political masters.
If you are a public servants who disagrees with the direction the politicians are taking, you have a simple, binary choice: you can clench your teeth, stay in your job and implement the politicians’ will or you can resign – at which stage you have every right as a concerned citizen to publicly campaign against people and policies you disagree with. There are more legitimate avenues of dissent and opposition outside than inside the system.
The ideal of the public service is a completely apolitical and impartial workforce, which faithfully assists government of the day in implementing its agenda, whatever that agenda might be. The reality is that while many bureaucrats are able to separate their personal beliefs from their professional duty, some can’t and won’t. For the reasons that are both obvious and unnecessary to go into detail here, public sector attracts those on the left, the way private sector attracts those on the right. Thus, left wing governments rarely encounter the problem of bureaucratic dissent, unless they really act out of the traditional left-wing box. The right wing governments, by contrast, face at best dutiful but unenthusiastic and sullen cooperation. There are no vast and organised conspiracies; this is a systemic phenomenon where organisations are required to do things that go against the conventional institutional wisdom and against the individual beliefs of the majority of members who shape the informal internal culture. This is the Shallow State. Bureaucracy will always cheer on the expansion of its numbers and powers and shriek at the prospect of shrinking the state. It will embrace and run with the policies it approves and stumble with the policies it doesn’t.
Forgetting the rank and file of the public service, which is unmovable and unchangeable, the reason why new governments enjoy the power of key appointments, including diplomatic ones, is not simply the patronage of rewarding supporters and the faithful but more importantly ensuring that the key administrative positions in bureaucracy are occupied by people who share their vision and can therefore be counted on to enthusiastically pursue the government’s agenda within the particular organisation. This, of course, only kicks the basic problem down the line, in that the top government appointees then have to struggle with the “permanent” employees on the levels below. The lower ranks might still succeed in frustrating their superiors, or worse, in “capturing” the political appointees by converting them to the institutional consensus. But for the government, having its own people in top positions is better than having no support at all. In an ideal world, of course, none of this would be necessary and happening because the impartial public service would be working well with whoever is in power. This is not an ideal world; certainly not for right wing governments. The Shallow State is always the reality. The Deep State is nothing more and nothing less than the Shallow State going well beyond the usual sullen uncooperativeness and taking a particularly strong stance against the government they disagree with. It’s a difference between passive resistance and active resistance.
It is not the job of bureaucracy to resist the government. Hence the current vogue for insubordination and sabotage is necessitating a rather radical redefinition of public service. Recently, we seem to have finally crossed the threshold from years of obfuscation (“The Deep State is a right wing conspiracy theory”) to acknowledging the reality (“The Deep State are patriots trying to protect America and the American people from the president”). But for all the talk about the supposed collusion, treason, crimes and corruption of the Trump administration, which could thus justify the resistance, the only thing that the endless agitation and investigation has succeeded in showing over the past three years is policy differences. Quite simply, the public service is vehemently opposed to the president’s views on a whole range of matters, and they are outraged that he has not followed their conventional wisdom.
