The development of the South Australian Civil Service 1836-1916

Abstract

The South Australian Civil Service began in I836 as a 'formed' bureaucracy. It was, for example, classified in a rudimentary fashion, duties were defined and pluralities were few. In the period before responsible government (1836), though not remarkably inefficient, the Service came under strong attack from colonial politicians as it grew in size and cost, for it was regarded as a creature of the Governor. Colonists asserted their right to be informed about the work of the government departments, and regulating Acts of 1832 and 183^- arose directly from this situation. Most colonists knew little of the workings of the Service, and were suspicious of it, but the selfesteem of officials grew throughout the early years as they emphasized the importance of their contribution to the young colony. In the period 1837-7^ a close relationship grew up between the heads of departments and a small Ministerial 'elite' owing to the conservative and cautious instincts of both groups, their feeling of mutual dependence and the developing ideas of 'service' and 'duty' at the top of the Service. The heads were mostly young men who had risen quickly to the top through a combination of fortuitous circumstances and the gap separating them from their subordinates, in terms of salary and social status, was wide. They were eager to conserve the status quo and the development of the colony in these years was steady rather than spectacular. Ministers also, having made some early financial reforms and having brought a number of boards into the departmental structure, were intent on running a going concern. Barring scandal or corruption, the heads had absolute control over the personnel practices of their departments, and the Service was small enough to permit informal consultation between them on related matters. They were not restricted by staff organizations and so those in a position formally to regulate the Service were not interested in doing so. A Civil Service Act of 187^- was no more than an unenthusiastic attempt to alleviate discontent in the lower ranks of the Service, mixed with a feeling of obligation towards subordinate officers and a realization that the Act could be ignored at any time (as it soon was). After 187^ fresh economic pressures, the arrival of new men at the top of politics and administration and a rapid expansion of governmental functions (especially in railways and public works) after twenty years of consolidation broke down the comfortable relationship between Ministers and senior officials. The Civil Service was in a less privileged position, certain of its financial rights were revoked, it had to adapt itself to new tasks and the status of its members in the community declined. Partly because of this the Civil Service Association, consisting almost exclusively of senior officials, was formed (l884) to gain from governments concessions that had previously been granted informally and as a matter of course. Economic troubles and dissension within the Service itself, however, ensured that legislative and public attention was directed towards cutting the cost of the Service, and politicians proposed a Civil Service Board to effect this. The proposal drew support from the early notions that the Service should be open to public inspection, although initially the Board was seen as playing only a narrow financial role. Senior officials feared that a Board would trench upon their own powers if instituted and their fears were confirmed when a Royal Commission (l888-9l), set up to advise on retrenchment, instead recommended a Board of wide powers. However, this went too far for the legislators, whose flagging interest rendered the too-energetic Reports of the Commission ineffective for more than twenty years, a situation which the Association did its best to make permanent. But it could not raise the declining financial and social position of officers and, having failed to restore the old administrative ethos, was forced gradually to widen its membership to remain in existence. During the 1890s a number of internal battles were fought between the old guard and lower grade employees dissatisfied with their lot, with piecemeal reforms, and with the efforts of the Association. This latter group turned to the discarded idea of an independent Board to manage the Service and urged its adoption after gaining control of the Association. Neither press, Parliament nor public displayed interest in the matter - partly because the Service itself had for too long been divided about it - but the example of other states and the need to integrate servicemen into government employment eventually precipitated acceptance of the proposal for an independent personnel authority in the Public Service Act of 1916. Show more