Life in the shadows: political exempt staff in Canadian cabinet government

This paper examines the recruitment, characteristics, motivation and functions of "political exempt staff in Canadian government. These potentially influential individuals, free from the political restrictions on public servants, tend to operate in the shadows cast by senior elected officeholders. As a result, too little is known of their characteristics or activities, although they have been the subject of some research. An important aim of this paper is to determine whether political exempt staff, by working closely with prime ministers, premiers or cabinet ministers, have significant influence on public policy-making. Thus, researching the origins, attributes, motivations and roles of these unelected political acolytes may yield useful information concerning the operation of Canadian democracy. Since public office, elected or otherwise, forms part of our social system, a large number of questions may be raised. What are the socio-economic and educational characteristics of exempt staff? How and from where are they recruited? What is it about political life which attracts their interest and helps to fulfill their aspirations? What motivates such individuals? How do such persons influence public policy? In terms of the democratic process, what is the nature and relative importance of the function performed by political exempt staff? For example, how are their duties and responsibilities determined and delimited? To what extent are their activities partisan in orientation? Do they tend to have an appreciable influence on government policies and programs? Further, what degree of control do exempt staff exercise over access to elected officials? To what extent do they shape public office-holders' opinions and decisions? If they act as "gate-keepers" and confidants, do they constitute effective targets for professional lobbyists and others seeking to influence government action? This paper seeks to address these and other questions through analysis of data derived from interviews with 33 former exempt staff who served as political assistants and advisers, primarily in the federal government. The purpose is to gain useful operational insights into a unique position in our governmental system. The findings of this study suggest that political exempt staff play an important role in sustaining a government's "political impulse", the policy momentum it gains from an election mandate. The exempt staff also constitute a valuable point of contact for persons or organizations seeking information, support or a favourable decision from government.Business, Sauder School ofGraduat