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The Fifth Irish Presidency of the European Union: Some Management Lessons

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The Fifth Irish Presidency of the European Union: Some Management Lessons Committee for Public Management Research Discussion Paper 2 The Fifth Irish Presidency of the European Union: Some Management Lessons Peter C. Humphreys _____________________________________________________________ Contents Foreword 2 Acknowledgements 5 Executive Summary 6 Part One: Background and Overview 7 1.0 Structure of the Paper 7 1.1 Purpose and Terms of Reference 7 1.2 Research Approach and Methodology 9 1.3 Role of the EU Presidency 10 1.4 Analytical Framework 12 Part Two: Research Findings 16 2.1 Political Leadership and the Role of the Centre 16 2.2 Strategic Framework and Priorities 20 2.3 Information/Analysis and Policy Co-ordination Structures 22 2.4 Policy Co-ordination Processes 25 2.5 Policy Budget Co-ordination 29 2.6 Policy Implementation 39 2.7 Administrative Culture 33 Part Three: Management Lessons 35 3.1 Overall Evaluation 35 3.2 Critical Success Factors 36 3.3 Looking Forward 43 References 46 Appendix One 49 Appendix Two 56 Glossary 65 Notes 67 Committee for Public Management Research Foreword This paper is one of a series commissioned by the Committee for Public Management Research. The Committee is developing a comprehensive programme of research designed to serve the needs of the future development of the Irish public service. Committee members come from the Departments of Finance, Environment and Rural Development, Health and Children, Taoiseach and Public Enterprise, as well as from Trinity College Dublin, University College Dublin and the Institute of Public Administration. The research is undertaken for the Committee by the research department at the Institute of Public Administration. This series aims to prompt discussion and debate on topical issues of particular interest or concern. Papers may outline experience, both national and international, in dealing with a particular issue. Or they may be more conceptual in nature, prompting the development of new ideas on public management issues. The papers are not intended to set out any official position on the topic under scrutiny. Rather, the intention is to identify current thinking and best practice. This paper summarises and discusses the main management lessons to be learned from the 5th Irish Presidency of the European Union (EU), during the period July – December 1996, as experienced by a number of the key personnel most directly involved in its planning, operationalisation and implementation. The study was commissioned by the Committee for Public Management Research (CPMR) and undertaken, during April – June 1997, in order to capture the experiences of these key individuals, whilst their recall was still fresh. This paper identifies lessons that can be learned from that experience which are of wider and more immediate application, within the context of public service reform. We would very much welcome comments on this paper and on public management research more generally. To ensure the discussion papers and wider research programme of the Committee for Public Management Research are relevant to 2 Committee for Public Management Research managers and staff, we need to hear from you. What do you think of the issues being raised? Are there other topics you would like to see researched? Research into the problems, solutions and successes of public management processes, and the way organisations can best adapt in a changing environment have much to contribute to good management, and are a vital element in the public service renewal process. The Committee for Public Management Research intends to provide a service to people working in public organisations by enhancing the knowledge base on public management issues. Eric Embleton, Chair Committee for Public Management Research Department of Finance For further information or to pass on any comments please contact: Pat Hickson, Secretary Committee for Public Management Research Department of Finance Lansdowne House, Lansdowne Road Dublin 4 Phone: (+353) 1 676 7571; Fax: (+353) 1 668 2182; E–Mail:[email protected] or Peter Humphreys Institute of Public Administration Vergemount Hall Clonskeagh, Dublin 6 Phone: (+353) 1 269 7011, Fax: (+353) 1 269 8644 E-Mail: [email protected] General information on the activities of the Committee for Public Management Research, including this paper and others in the series can be found on the world wide web site for the Department of Finance: www.irlgov.ie/finance/cpmr (this site is currently being developed). 3 Committee for Public Management Research Acknowledgements This project could not have been completed successfully without the active co- operation and support of officials from across the Civil Service, whose help is gratefully acknowledged here. Officials from the following Departments/Offices were interviewed during the period April – May 1997: • Agriculture • Enterprise and Employment • Environment • Finance • Foreign Affairs, including the Office of the Permanent Representation to the EU (Brussels) • Health • Justice • Social Welfare • Taoiseach • Tourism and Trade • Transport, Energy and Communications. In addition, I would like to thank the Minister of State for European Affairs during the Presidency for taking part in the study, as well as the Institute of European Affairs for its co-operation. I am also indebted to Carolyn Gormley and Karen Isaac for their assistance in the preparation of the manuscript and the IPA's Publication Division for its production. Responsibility for the content of this paper however rests with the author. Peter C. Humphreys July 1997 4 Committee for Public Management Research EXECUTIVE SUMMARY The 5th Irish Presidency of the European Union (EU), from July to December 1996, is regarded as having been the latest in a series of successful Presidencies over the past two decades. This research identifies a number of important management lessons that can be learned from the experience of that Presidency which are of application within the wider context of current public service reform. The research conclusions are based upon in-depth discussions with a wide cross- section of the key personnel most directly involved with its planning, operationalisation and implementation, in both Dublin and Brussels. Drawing also upon other relevant international experience, the research analyses the management of the Presidency in relation to the role of political leadership and the centre; the development of a strategic framework and priorities; information/analysis; policy co-ordination structures and processes; policy implementation; resource and administrative issues. With regard to the EU Presidency specifically, a number of critical success factors are identified. These include the objectivity and impartiality with which Ireland prepared for and carried out the Presidency; the proactive establishment of good internal and external relationships with the key players; a consistent commitment to good strategic planning and management, as well as effective cross-departmental working and very high levels of motivation. Using the experience of the 5th Irish EU Presidency as a case study of effective cross-departmental working, management lessons are drawn which are relevant to the implementation of the Strategic Management Initiative. 5 Committee for Public Management Research The Fifth Irish Presidency of the European Union: Some Management Lessons Part One: Background and Overview 1.0 Structure of the Paper This paper comprises three linked sections. Part One includes the purpose and terms of reference for the study; the research approach adopted and methodology employed; an outline of the role of the European Union (EU) Presidency and an analytical framework for the evaluation of the research evidence. Part Two uses that framework to analyse and evaluate the information collected under a number of key headings which have been identified by previous research and international experience to be important for major projects such as an EU Presidency. Part Three summarises the key points, identifies some critical success factors and draws out some of the important management lessons for the future. 1.1 Purpose and terms of reference The 5th Irish Presidency of the EU, from July – December 1996, is regarded as having been the latest in a series of successful Presidencies over the past two decades (see Tonra 1996 and Ludlow 1997). This paper summarises and discusses the main management lessons to be learned from that Presidency as experienced by a number of the key personnel most directly involved in its planning, operationalisation and implementation. The study was commissioned by the Committee for Public Management Research (CPMR) in order to capture the experiences of these key individuals, whilst their recall was still fresh. This paper does not attempt to be a comprehensive record or appraisal of the national or international policy achievements of the 5th Presidency, which would have been outside its scope. The macro-policy background to, and developments 6 Committee for Public Management Research during, that Presidency are already well documented: see for example, Priorities for the Irish Presidency of the Council of the European Union and Developments in the European Union: Forty-Ninth Report. Neither does this paper seek to provide a detailed handbook on how to organise a future Irish EU Presidency. Such an occurrence would not currently be scheduled until 2004 and it is not meaningful to anticipate the extent to which the experiences of 1996 will continue to be directly relevant eight years later in an expanded, rapidly
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