The appointment of a new secretary of PM&C demonstrates, perhaps better than anything else, the attitude of the prime minister, and the government as a whole, towards the public service. The secretary must form a close relationship with the PM, but must also recognise his or her key role in promoting the APS Values, including non-partisanship.

The appointment of Glyn Davis in 2022 revealed Anthony Albanese’s respect for the public service and his commitment to rebuild its capability. Davis had an impressive public sector career in state government and academia, including in top management and public administration research. He had been a key member of Malcolm Turnbull’s independent review of the APS led by David Thodey. While clearly sympathetic to a substantial role for government, Davis could not be accused of being partisan.

The contrast with the appointment of Phil Gaetjens in 2019 is clear. While he had served in various public service positions since 1977, Gaetjens was also known for his close personal relationship not only with Scott Morrison (as his chief of staff from 2015 to 2018, and then secretary of Treasury) but also with earlier Liberal Party leaders (as chief of staff to Peter Costello from 1997 to 2007, and as secretary of NSW Treasury under Mike Baird). Morrison evidently wanted someone with proven responsiveness to his conservative agenda, and someone who would convey that priority message across the APS.

In his IPAA valedictory talk in 2022, Gaetjens said, “I regard myself sometimes as a bit of a public service plant up in Parliament House rather than now a political plant in the public service”; not everyone was convinced.

Official process

Under the Public Service Act, the appointment is made by the governor-general on advice from the prime minister after receiving a report from the APS Commissioner. There is no requirement for the prime minister to adhere to any advice from the Commissioner, and no statutory process surrounding the Commissioner’s report, such as selection criteria or advertising.

I advised John Howard on Max Moore-Wilton’s replacement at the end of 2002. When I told Moore-Wilton that I planned to provide substantial advice on possible candidates, he advised that I should do so promptly and not wait until sending my formal report. I did so, identifying possible candidates amongst current secretaries and heads of premiers’ departments with brief information on their experience and strengths. Just as well, as a few weeks later, in early 2023, he rang me, telling me he had decided upon Peter Shergold, that Shergold was with him now in his office, and asking me to prepare my formal report. Fortunately, Shergold was one of the candidates I had canvassed (positively). Whether Howard was influenced by my advice, I do not know. How I would have responded to the prime minister if I had not provided the earlier advice, frankly I do not know either.

Criteria for the job

The role of PM&C secretary is to lead the co-ordination of the whole Commonwealth public sector, not just the APS, in both advice to the prime minister and Cabinet and in implementation of government programs and policies. This extends also to leading support for the National Cabinet (or COAG as I still prefer to call it).

This requires considerable experience and standing. The secretary must command widespread respect, among ministers (not just the prime minister), among portfolio secretaries and agency heads, among state and territory governments (and their political and bureaucratic leaders), and among leaders in civil society. Some respect will come automatically with the authority of the position, but it is far preferable that the secretary has earned such respect in previous roles.

The PM&C secretary should also have demonstrated skills in managing relationships, in getting the best from the capabilities available across the APS (and beyond) and ensuring decisions by the prime minister and Cabinet are properly informed. Relationships with Treasury and Finance, and with Defence and Foreign Affairs, are particularly critical but relationships across every portfolio and with states and territories are all important.

The relationship with the APS Commissioner is also vital, with the PM&C secretary well-positioned to lend support to the Commissioner, particularly on building the capability and integrity of the APS.

Other leadership criteria used for the SES are also important, but at a level beyond that of other agency heads – communication skills, shaping strategic thinking, achieving results and demonstrating integrity (including upholding and promoting the APS Values).

It is also, of course, vital that the secretary have the full confidence of the prime minister and have a personal approach which complements that of the prime minister. Albanese’s somewhat cautious, low-key and consensus style perhaps requires a secretary who is more of a quiet achiever than a crash-through reformer, though in a second term Albanese may need someone who encourages him to pursue more reform than in his first term.

There is a danger here if this consideration leads to a prime minister demanding a level of personal loyalty not always consistent with the APS Value of impartiality and non-partisanship. That in my view was the case with Gaetjens and Moore-Wilton. Shergold’s reference some years ago about serving his minister, but his minister not being his friend, is pertinent here. A balance is required. I hope Albanese takes care again, as he did with Davis’ appointment, to recommend to the governor-general someone who will command respect from across the APS as personally committed to the APS Values.

Implications for the role of the APS Commissioner

This risk, proven over recent decades to be real, adds weight to the case for strengthening the role of the APS Commissioner. Thodey suggested that role be designated “APS head of people”; I prefer “professional head of the APS”, with the PM&C secretary as “operational head” or “co-ordinator-general”. The Commissioner’s appointment should be subject to consultation with the leader of the Opposition (as Thodey recommended).

The Commissioner should have the lead role in advising on all secretary appointments, though still working with the PM&C secretary, and must take seriously the existing role in advising on the appointment of the PM&C secretary.

The views expressed in this article may or may not reflect those of Pearls and Irritations.