Leading questions: Francisco Cardona, OECD

The senior adviser on civil service reform gives his views on fraught relations between politicians and civil servants
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Francisco Cardona, OECD
Francisco Cardona is a senior adviser for civil service reform at the Organisation for Economic Co-operation and Development. Photograph: guardian.co.uk

What do you do for Sigma, within the Organisation for Economic Co-operation and Development?

Sigma is a joint initiative of the OECD and the European Commission to provide technical assistance in public administration reform to countries in central and eastern Europe.My fields of expertise include civil service reform, HR management and anti-corruption policies. Sienna

How do different governments compare when it comes to the relationship between politicians and civil servants?

In all countries, relationships between politicians and civil servants are problematic; most are politicised. In many countries, reformist forces are struggling to professionalise their civil services, which is often likened to de-politicisation.

Legal predictability and accountability, impartiality, professional integrity, meritocracy and political neutrality should be enshrined in law and reflected in civil servants' attitudes and management practice.

In certain countries, creating a senior civil service corps is seen as a way to improve professionalism. However, this should not be encouraged in little-developed administrations, where the politicisation of upper levels remains too high.

The UK government is commissioning a review of overseas administrations. How would your perfect government be constructed?

The 14th century Siena frescoes by Lorenzetti defined good government as one seeking concord among various disparate and conflicting social interests. Concord can only be achieved if the government is presided over by justice. Today we are still struggling with the idea of equality as a component of good government.

What happened in Serbia to cause the civil service 'brain drain' there?

The dismantling of the communist state and emergence of a private sector in Serbia drew a lot of talent from the state towards business. The priority was creating a private sector, but the government neglected simultaneously to build a robust state able to regulate it. International institutions encouraged the privatisation of public assets and a business-like approach to the management of the public administration, as propounded by the Washington consensus and the new public management movement. The private business sector, often resulting from foreign investments, proposed attractive remuneration packages, while the public administration salaries were frequently frozen or directly reduced.

What three lessons have taught you most during your career?

• The approaches to reform of public administration need to be modest and should be made only when really necessary. Do not propose changes only because you are enticed by them, intellectually or otherwise.

• Communication is a tool for creating consensus about possible change strategies and goals, not to impose on others decisions already taken by you.

• It is crucial to embed change strategy into the cultural environment of a country or organisation. Neglecting the culture, for instance by overlooking traditional public service values, demotivates those willing to improve their capabilities to serve the public interest.

What has been your greatest achievement?

The one I am most satisfied with is the reform of Lithuania's civil service, which I assisted in designing in the aftermath of the Soviet Union collapse, and which has been sustained for more than 10 years. It has already created a critical mass of professionals in the country, sharing a professional culture of service orientation and impartiality.

What's your management style?

Responding to the needs of the countries in the Sigma programme requires flexibility, persistence, openness and commitment.

How do you relax?

Literature, walking, cinema


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