John Hodgetts – författare

This book makes a new approach to Canadian politics, from the administrative side. It provides, first, a description of the evolution and structure of the administrative machine which, with few fundamental changes, still serves the Canadian nation, and in the process it attempts to acknowledge and appraise the hitherto unsung contributions of the public servant to the welfare of a pioneer community. A second objective is to disclose the presence in the pioneer public service of certain basic administrative issues which today still rise to perplex both the student and practitioner of public administration. And, finally, this study reveals a neglected aspect of the winning of responsible government in Canada—the author contends that the recognition of the constitutional principle on the political level, did not, in fact, coincide with its practical implementation at the administrative level.

As Dr. R. MacGregor Dawson points out in his Foreword, "Few students, on suspects, appreciate how great has been the influence of the permanent officials in the years before Confederation, nor do they have an adequate comprehension of the degree to which administrative decisions of those days, both by Ministers and officials, determined many of the present practices. An astonishingly large number of the problems, moreover, will be found to have remained substantially the same for the past hundred years. The scheme of departmental organization, the delegation of authority and the allotment of responsibility, the application of financial controls, the intricate give and take between the political non-technical Minister and the technically trained specialist—these in some aspect or another have been the constant concern of the administrator: a different time, a different place, has simply shifted the emphasis a little one way or the other."

Professor Hodgetts writes with humour and point; his book is a brilliant addition to the Canadian Government Series, in which it is the seventh volume to appear.

Confederation was a relief to legislators who had to ensure the uneasy union between Upper and Lower Canada; the dualism had demanded double-barrelled ministries and the rotation of the capital, after 1849, between Toronto and Quebec City every four years.

The year 1867 was therefore a watershed. The creation of the province of Ontario demanded that a civil service be put in place to support the new offices of the lieutenant-governor, Executive Council, and Legislative Assembly. However, the election of the Whitney government in 1905 is perceived by J.E. Hodgetts as an equally important dividing point in Ontario''s bureaucratic history. Before 1905 the province met the fairly rudimentary needs of a largely agrarian community by relying on local authorities and the assistance of private clientele and charitable associations. Thus administration was at arm''s length. It placed minimal demands on a miniscule staff and the simple structures of the emergent public service.

James Whitney''s arrival in 1905 coincided with the growth of natural resource industries in the north and the need to create agencies to deal with them. Developing urbanization and industrialization were accompanied by technological advances in communication and transportation, and these too required regulation. This prompted the hands-on administrative mode, and the hands increased in number with the creation of new organizational satellites, the expansion and consolidation of departments, and the emergence of central agencies to reform, coordinate, and control. These strands of economic development and parallel administrative bodies form the substance of Hodgetts''s history of the Ontario civil service from confederation until the beginning of the Second World War.

Hodgetts has analysed carefully the factors that led to the gradual enlargement of the government''s functions and the progressive tightening of the exercise of its authority.

The Canadian Public Service is now so large that it employs over ten per cent of Canada''s labour force, and among its many boards, commissions, and corporations there is a constant juggling of conventional departmental portfolios in an effort to keep pace with changing public priorities. As these bureaucracies penetrate our lives more and more, there is increasing need for a study which describes and explains them. This book is the first to offer the necessary clarification. It says nothing about public servants themselves; rather it focuses on the physiognomy and physiology of the structures in which they work and through which programmes are allocated, work distributed, and policy decisions made for all of Canada. It also examines the way in which environmental forces have helped to shape our so-called administrative culture, as well as the monumental difficulties that are involved in co-ordinating the administration of this vast country, three-quarters of whose public service concerns are located outside the capital.

It concludes that all of our public organizations, the public service has proven the most responsive to the forces of change, but that it has been so caught up in structural and managerial adaptation that its capacity to concern itself with substantive policy issues has been subverted.

This book makes a new approach to Canadian politics, from the administrative side. It provides, first, a description of the evolution and structure of the administrative machine which, with few fundamental changes, still serves the Canadian nation, and in the process it attempts to acknowledge and appraise the hitherto unsung contributions of the public servant to the welfare of a pioneer community. A second objective is to disclose the presence in the pioneer public service of certain basic administrative issues which today still rise to perplex both the student and practitioner of public administration. And, finally, this study reveals a neglected aspect of the winning of responsible government in Canada—the author contends that the recognition of the constitutional principle on the political level, did not, in fact, coincide with its practical implementation at the administrative level.

As Dr. R. MacGregor Dawson points out in his Foreword, "Few students, on suspects, appreciate how great has been the influence of the permanent officials in the years before Confederation, nor do they have an adequate comprehension of the degree to which administrative decisions of those days, both by Ministers and officials, determined many of the present practices. An astonishingly large number of the problems, moreover, will be found to have remained substantially the same for the past hundred years. The scheme of departmental organization, the delegation of authority and the allotment of responsibility, the application of financial controls, the intricate give and take between the political non-technical Minister and the technically trained specialist—these in some aspect or another have been the constant concern of the administrator: a different time, a different place, has simply shifted the emphasis a little one way or the other."

Professor Hodgetts writes with humour and point; his book is a brilliant addition to the Canadian Government Series, in which it is the seventh volume to appear.

Confederation was a relief to legislators who had to ensure the uneasy union between Upper and Lower Canada; the dualism had demanded double-barrelled ministries and the rotation of the capital, after 1849, between Toronto and Quebec City every four years.

The year 1867 was therefore a watershed. The creation of the province of Ontario demanded that a civil service be put in place to support the new offices of the lieutenant-governor, Executive Council, and Legislative Assembly. However, the election of the Whitney government in 1905 is perceived by J.E. Hodgetts as an equally important dividing point in Ontario''s bureaucratic history. Before 1905 the province met the fairly rudimentary needs of a largely agrarian community by relying on local authorities and the assistance of private clientele and charitable associations. Thus administration was at arm''s length. It placed minimal demands on a miniscule staff and the simple structures of the emergent public service.

James Whitney''s arrival in 1905 coincided with the growth of natural resource industries in the north and the need to create agencies to deal with them. Developing urbanization and industrialization were accompanied by technological advances in communication and transportation, and these too required regulation. This prompted the hands-on administrative mode, and the hands increased in number with the creation of new organizational satellites, the expansion and consolidation of departments, and the emergence of central agencies to reform, coordinate, and control. These strands of economic development and parallel administrative bodies form the substance of Hodgetts''s history of the Ontario civil service from confederation until the beginning of the Second World War.

Hodgetts has analysed carefully the factors that led to the gradual enlargement of the government''s functions and the progressive tightening of the exercise of its authority.

The Canadian Public Service is now so large that it employs over ten per cent of Canada''s labour force, and among its many boards, commissions, and corporations there is a constant juggling of conventional departmental portfolios in an effort to keep pace with changing public priorities. As these bureaucracies penetrate our lives more and more, there is increasing need for a study which describes and explains them. This book is the first to offer the necessary clarification. It says nothing about public servants themselves; rather it focuses on the physiognomy and physiology of the structures in which they work and through which programmes are allocated, work distributed, and policy decisions made for all of Canada. It also examines the way in which environmental forces have helped to shape our so-called administrative culture, as well as the monumental difficulties that are involved in co-ordinating the administration of this vast country, three-quarters of whose public service concerns are located outside the capital.

It concludes that all of our public organizations, the public service has proven the most responsive to the forces of change, but that it has been so caught up in structural and managerial adaptation that its capacity to concern itself with substantive policy issues has been subverted.