Canadian Political Science Review, Vol. 6, No. 2-3, 2012, 281-285 281 The Policy Analytical Capacity of the Government of * Quebec: Results from a Survey of Officials Luc Bernier (a) and Michael Howlett (b) (a) ENAP, Quebec City, PQ. [email protected] (b) Simon Fraser University, Burnaby, BC. [email protected] * This article originally appeared as Bernier, Luc, and Michael Howlett. “La capacité d’analyse des politiques au gouvernement du Québec: Résultats du sondage auprès de fonctionnaires québécois.” Canadian Public Administration 54, no. 1 (2011): 143-152. Abstract. This article complements the work of Howlett et al. on the Résumé. Cet article complète le travail de Howlett et collègues capacity of Canadian governments for public policy-making. The concernant l’aptitude des gouvernements canadiens pour new public management wave was driven by the notion of a need for l’élaboration des politiques publiques. La vague de nouveau mana- improved service delivery to the population. A number of authors, gement public était portée par la notion d’un besoin visant à amélio- including Metcalfe, pointed out that the government was then rer la fourniture de services à la population. Plusieurs auteurs, neglecting management in favour of "policy advice." It was fashion- incluant Metcalfe, ont montré que le gouvernement négligeait alors able to show interest in policy but not in management. After decades le management, au détriment du « conseil en matière politique ». Il spent seeking greater efficiency, have we gone too far in the other était alors couru de montrer de l’intérêt pour la politique, mais pas direction? Do governments have the capacity to develop public pour le management. Apres des décennies passées à chercher à être policy? Have those responsible for developing public policy received plus efficace, avons-nous été trop loin dans cette direction ? Les the training they require? This article addresses the Quebec portion gouvernements ont-ils la capacité de développer des politiques of a set of Canada-wide surveys on the capacity for public policy- publiques ? Ceux qui sont chargés de développer des politiques making. It complements the earlier analyses by presenting the publiques ont-ils reçu la formation nécessaire ? Cet article se penche results of a survey conducted among public servants in Quebec. We sur le segment québécois d’un vaste questionnaire canadien sur la place particular emphasis on education and the training of the capacité d’élaboration des politiques publiques. Cela complète les public servants who work on developing and formulating public analyses précédentes en présentant les résultats d’un questionnaire policy. mené parmi les fonctionnaires du Québec. Nous soulignons l’importance de l’éducation et de la formation des fonctionnaires qui Keywords. policy capacity, policy analysis, Quebec. travaillent pour développer et formuler des politiques publiques. Mots clefs. capacité politique, analyse des politiques, Québec. This article completes the work of Howlett and his col- presents the Quebec portion of a set of pan-Canadian sur- leagues on the capacity of Canadian governments to elabo- veys on policy capacity in governments. It completes the rate public policies.1 While there is a large literature on the analysis by presenting the results obtained by a poll of Que- role of public policy analysts in national governments, few bec officials. We are interested, more precisely, in under- large scale surveys exist on the subject and even fewer at the standing the university education and later training received level of sub-national or provincial governments. Moreover by those officials who participate in the creation and formu- these works only rarely deal directly with the capacity of lation of public policies. In an epoch where financial pres- governments to create policies (Howlett and Newman 2010). sures on governments limit their ability to develop new In the 1980s and 1990s, new public management reforms policies and where existing policies often must be adapted to took their spirit from the idea that improved service delivery cover new challenges, whether officials have the training, to the population was necessary. Certain authors like time and resources necessary to develop policy is a key ques- Metcalfe underlined that, at the time, the state often neglect- tion. ed management and favoured the provision of “strategic” Unfortunately, it is not possible to know exactly how policy advice. The state was often seen to be interested in many Quebec officials work on the development of public policy and not management. After decades of research on policy or to identify policy workers in Quebec government efficiency, however, have we pushed too far in the other from publically available sources as the method used to direction? Do public administrations have the capacity to classify jobs does not allow this. To overcome these prob- formulate effective public policies? Have those charged with lems, we first sent our survey to the Secrétariat du Conseil developing policy adequate training to do so? This article du Trésor who responded that they too did not have a list 282 Canadian Political Science Review, Vol. 6, No. 2-3, 2012, 281-285 allowing the identification of those officials who worked in Who is involved with public policy-making this area. We then worked with members of research and and where? intelligence units with relative success. Depending on the minister, members of such units could be responsible for The officials and functionaries who responded are classified policy but they could also work in communications. We also in Table 2. Certain officials in what is referred to as “class 4” wrote to all Deputy Ministers who relayed our request to can be described as senior officials. Many experts said they their subordinates. In the end we had 86 persons completing were at the “18th level”. The first column in Table 2 sets out the survey and 44 partial completions. Three hundred and the original responses obtained and the second our reclassi- twenty six people in total visited the survey website. This fication. Among those who answered this question there can’t be described as a scientific survey sample in the classi- were 49 professionals and 18 officials. Seventy-two men and cal sense but the results are nevertheless very interesting. 36 women responded to the survey or, respectively, 67 and They permit the comparison of the situation in Quebec with 33 percent of respondents. results already published on the other Canadian govern- These officials all worked in Quebec except one who was ments. based in Manitoba. Seventy-five percent had never worked The presentation of results below follows the order of the outside the country, 54 percent never outside the province. questions in the survey itself. As is shown in Table 1, the Eighty-five percent worked daily in the capital and 13 per respondents to the survey were unequally divided across cent in Montreal. Between 80-90 percent never went to ministries. It is interesting in a qualitative sense to determine another region than Montreal. how our request was treated, which allows for the contextual- ization of the responses. One official of the Treasury Board Table 2. Job Classifications Secretariat told us by e-mail that it was impossible to respond to the questionnaire. In another e-mail another at the Minis- try of Revenue told us that he did not make public policy. These varied interpretations of what constitutes a public policy are interesting in-themselves. The classic definition of a public policy given by Thomas Dye is that it is what a gov- ernment decides to do or not to do about a problem brought to its attention. In this sense all the ministers and organiza- tions that generated responses make public policy, even the Treasury Board Secretariat where public service human resources policy is decided such as, for example, how to de- velop exams in which applicants from ethnic communities can become officials. As is shown in the table below, no one in the Executive Contrary to the situation with service delivery, then, public Council responded to the poll but a respondent who worked policy work is done at the centre. However, 65 percent of on the aboriginal policy file and eleven on intergovernmental respondents dealt with the federal government at least once relations can be thought of as operating at the centre, rather a year and 24 percent on a monthly basis. As for the other than, for example in ministries like agriculture. We present provincial governments, 49 percent dealt with them annually our findings below and then comment on these in the con- and 11 percent on a monthly basis. Two hundred and thirty- clusion. five respondents had contacts with foreign governments. And 51 percent took part in interministerial or intergovern- Table 1. In Which Ministry do you Work? mental committees. Not all of these respondents were young: 43 percent were over 51 years of age. Only 29 percent were less than 40. Eighty-four percent worked in a unit charged with develop- ing public policy. They also had experience: 64 percent had worked on policy issues for at least five years and 42 percent for more than 10 years. They worked in all sectors in which the Quebec government was involved. Ninety-two percent were employed fulltime. They were quite stable in their organizational locations: 60 percent having worked six years or more in their existing agency while 43 percent anticipated still working there in six years or more time. They did not think the retirement situa- tion would much affect their units in future years. These units were small : 78 percent counting ten employees or less. Canadian Political Science Review, Vol. 6, No. 2-3, 2012, 281-285 283 The Nature of Policy Formulation Work Recruitment and Training The terms “advisors” or “analysts” best describe most policy Among Quebec officials who had experience in formulating formulation work.