Ministers as Strategic Anchors

In Canada’s system of responsible government, Ministers stand at the political–administrative interface. As elected officials, they are both accountable to Parliament and responsible for providing direction to the public service. While Deputy Ministers oversee departmental operations, it is the Minister’s leadership that sets the tone for transformation, particularly in times of policy change, modernization, or crisis.

Effective ministerial leadership requires more than policy vision. It demands clarity of purpose, courage in setting expectations, and consistent modeling of accountability. Ministers must balance the competing pressures of political imperatives, media scrutiny, and bureaucratic realities. How Ministers navigate this balance determines not only the outcomes of specific initiatives but also the culture of accountability across the public service.

The Ministerial Role in Transformation

Transformation within government—whether digital modernization, regulatory reform, or new service delivery models—cannot succeed without active Ministerial engagement. Research in public governance emphasizes that ministerial clarity and accountability are central to ensuring that the administrative machinery moves decisively (Savoie, 2019; Bakvis, 2012).

Ministers play three vital roles in transformation:

1. Championing the Vision – Ministers provide the “why” behind change, connecting policy initiatives to broader societal goals.
2. Signaling Accountability – Through public statements, direction to Deputies, and visible ownership of outcomes, Ministers reinforce the importance of accountability throughout the system.
3. Modeling Courage – In a risk-averse public service, ministerial courage to own positive and negative outcomes creates the conditions for Deputies and DGs to act decisively.

Accountability as Leadership Currency

Accountability is more than a constitutional formality; it is the currency of ministerial leadership. In Westminster systems, Ministers are responsible to Parliament for their departments, even if they cannot manage day-to-day decisions themselves (Aucoin & Jarvis, 2005).

This accountability must be demonstrated in practice, not just asserted in principle. Ministers reinforce accountability by:

• Making clear to Deputies what they expect in terms of results and cultural tone.
• Owning policy risks publicly, creating space for senior officials to make decisions within their delegated authority.
• Defending the department’s performance in Parliament while addressing internal issues directly.

As one senior Deputy observed in an OECD case study:

“When the Minister accepted responsibility for difficult outcomes, it freed us to act decisively, knowing the tone from the top supported ownership.”

Navigating Political and Administrative Tensions

A Minister’s authority is both political and symbolic. The challenge is to avoid micromanaging operations while remaining sufficiently engaged to guide transformation. Research shows that Ministers who rely solely on Deputies to drive transformation risk diluting accountability and slowing change (Savoie, 2019; Bourgault, 2016).

Key practices for effective Ministerial engagement include:

• Framing transformation as a political priority: This signals to the public service that change is not optional.
• Maintaining disciplined communication: Clear, consistent messaging avoids ambiguity that can stall transformation.
• Balancing scrutiny with trust: Oversight is necessary, but constant second-guessing undermines initiative-taking by public servants.

Ministerial Courage in a Risk-Averse System

The Canadian public service is designed to minimize risk, often at the expense of agility. Ministers who demonstrate courage—by publicly owning risks and supporting Deputies’ operational decisions—change the culture.

Courageous ministerial leadership includes:

• Accepting responsibility for policy setbacks instead of deflecting blame to the public service.
• Encouraging Deputies to take decisive actions aligned with the Minister’s vision.
• Advocating for resources or legislative changes necessary to enable transformation.

Leadership literature underscores that ministerial courage creates the psychological safety required for innovation within the bureaucracy (Denhardt & Denhardt, 2015; OECD, 2020).

Case Example: Ministerial Leadership in Digital Transformation

During the Government of Canada’s digital service modernization push, a Minister faced repeated concerns from the media about delays. Rather than distancing themselves, the Minister acknowledged the complexity, reaffirmed their accountability, and emphasized the importance of innovation despite risks.

This public stance reinforced the Deputy Minister’s ability to pursue bold approaches without fear of political fallout. The result: the department delivered several high-impact services online within the year, ahead of comparable jurisdictions.

The lesson is clear—when Ministers embody accountability, Deputies and DGs act with confidence, and transformation accelerates.

Shaping Culture Through Ministerial Decisions

Ministerial decisions ripple throughout the bureaucracy. When Ministers act decisively and own outcomes, they send a cultural signal that accountability is expected at all levels. Conversely, when Ministers deflect blame or appear indecisive, risk aversion intensifies.

In short:

• Strong accountability at the Ministerial level cascades downward.
• Ministerial indecision cascades hesitation.

This dynamic highlights why ministerial leadership is not only about policy direction but also about shaping the administrative culture.

Independent Insight for Ministers

Independent advisory insight can help Ministers:

• Identify where cultural bottlenecks in the public service undermine transformation.
• Ensure accountability frameworks align with strategic intent.
• Build trust with Deputies by clarifying expectations and boundaries.

By engaging external perspectives, Ministers avoid being trapped within the same cultural dynamics they are seeking to change.

Conclusion: Ministers as Catalysts of Transformation

In Canada’s Westminster model, transformation cannot succeed without active Ministerial leadership. By modeling accountability, demonstrating courage, and signaling clarity of intent, Ministers empower the public service to act decisively.

The lesson for today’s Ministers is straightforward yet profound: every decision, every public statement, and every act of ownership sends a signal. That signal shapes the culture of the public service—and, ultimately, determines whether transformation succeeds or stalls.

What’s Next?

Institute X partners with Ministers to provide independent insight and coaching that strengthens leadership effectiveness, clarifies accountability, and accelerates transformation across government.

References

• Aucoin, P., & Jarvis, M. (2005). Modernizing Government Accountability. Canada School of Public Service.
• Bakvis, H. (2012). “Ministerial Responsibility and Accountability in Canada.” Canadian Public Administration, 55(2), 185–208.
• Bourgault, J. (2016). “Deputy Ministers and the Politics–Administration Interface.” Canadian Public Administration, 59(2), 145–164.
• Denhardt, J. V., & Denhardt, R. B. (2015). The New Public Service: Serving, Not Steering. Routledge.
• OECD (2020). Leadership for a High-Performing Civil Service. OECD Publishing.
• Savoie, D. J. (2019). Democracy in Canada: The Disintegration of Our Institutions. McGill-Queen’s University Press.