Hostname: page-component-848d4c4894-nr4z6 Total loading time: 0 Render date: 2024-06-08T17:00:44.691Z Has data issue: false hasContentIssue false

Reinforcing managerial prerogative in the Australian Public Service during the COVID-19 pandemic

Published online by Cambridge University Press:  01 January 2023

Cameron Roles*
Affiliation:
Australian National University, Canberra, Australia
Sukanya Ananth
Affiliation:
Industrial Officer, Australian Workers Union, Australia
Michael O’Donnell
Affiliation:
The University of New South Wales, Canberra, Australia
*
Cameron Roles, College of Law, Australian National University, Fellows Road, Acton, Canberra 2601, ACT, Australia. Email: cameron.roles@anu.edu.au

Abstract

Over several decades Liberal-National Governments have encouraged Australian Public Service (APS) employers to uphold managerial prerogative by offering individual employment arrangements to employees. During the period of the COVID-19 pandemic, the Morrison Liberal-National Government’s Workplace Bargaining Policy reinforced this agenda. In place of collective bargaining, APS agency heads were encouraged to determine pay rises and new employment conditions for employees using Section 24 of the Public Service Act (PS Act) 1999. Workplace determinations did not need to be negotiated with public sector unions and some 85,500 employees across 57 APS agencies, or approximately 63% of the APS workforce, had accepted pay increases via workplace determinations by 31 December 2020. The widespread adoption of workplace determinations in the APS poses significant challenges for public sector unions and for the future of APS collective bargaining.

Type
Themed collection: Public sector employment relations in turbulent times
Copyright
Copyright © The Author(s) 2022

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

References

Andrews, R, Van de Walle, S (2013) New Public Management and citizens’ perceptions of local service efficiency, responsiveness, equity and effectiveness. Public Management Review 15(5): 762783.CrossRefGoogle Scholar
Attorney-General’s Department (2016) Attorney-General’s Department Enterprise Agreement 2016. Available at: https://www.ag.gov.au/sites/default/files/2020-03/Attorney-generals-department-enterprise-agreement-2016.PDF (accessed 2 January 2022).Google Scholar
Aulich, C, O’Flynn, J (2007) John Howard: The great privatiser? Australian Journal of Political Science 42(2): 365381.CrossRefGoogle Scholar
Australian Electoral Commission (AEC) (2016) Australian Electoral Commission Enterprise Agreement 2016–2019. Available at: https://www.aec.gov.au/about_aec/Publications/enterprise-agreement/index.htm (accessed 14 January 2022).Google Scholar
Australian National Audit Office (ANAO) (2020) Management of the Australian Public Service’s Workforce Response to COVID-19. Canberra, ACT: Commonwealth of Australia. Available at: https://www.anao.gov.au/work/performance-audit/management-the-australian-public-service-workforce-response-to-covid-19 (accessed 14 January 2022).Google Scholar
Australian Public Service Commission (APSC) (2015) Workplace bargaining policy. Available at: https://legacy.apsc.gov.au/australian-government-public-sector-workplace-bargaining-policy (accessed 14 January 2022).Google Scholar
Australian Public Service Commission (APSC) (2018) Workplace Bargaining Policy. Canberra, ACT: Commonwealth of Australia. Available at: https://legacy.apsc.gov.au/workplace-bargaining-policy-2018 (accessed 14 January 2022).Google Scholar
Australian Public Service Commission (APSC) (2020) Public Sector Workplace Relations Policy. Canberra, ACT: Commonwealth of Australia. Available at: https://www.apsc.gov.au/initiatives-and-programs/workplace-relations/public-sector-workplace-relations-policy-2020 (accessed 14 January 2022).Google Scholar
Australian Public Service Commission (APSC) (2021a) Australian Public Service Remuneration Report 2020. Chapter 9: Employment Instruments and Individual Flexibility Agreements. Canberra, ACT: Commonwealth of Australia. Available at: https://www.apsc.gov.au/remuneration-reports/australian-public-service-remuneration-report-2020 (accessed 17 January 2022).Google Scholar
Australian Public Service Commission (APSC) (2021b) APS Employment Data 30 June 2021. Canberra, ACT: Commonwealth of Australia. Available at: https://www.apsc.gov.au/employment-data/aps-employment-data-30-june-2021 (accessed 14 January 2022).Google Scholar
Australian Public Service Enterprise Award (2015) Available at: https://awardviewer.fwo.gov.au/award/show/MA000124 (accessed 14 January 2022).Google Scholar
Australian Taxation Office (ATO) (2011) ATO enterprise agreement 2011. Available at: https://www.ato.gov.au/assets/0/104/1907/1908/686e3ea6-dd22-4469-93fd-aca33886d329.pdf (accessed 14 January 2022).Google Scholar
Bach, S (2016) Deprivileging the public sector workforce: Austerity, fragmentation and service withdrawal in Britain. Economic and Labour Relations Review 27(1): 1128.CrossRefGoogle Scholar
Bach, S, Bordogna, L (2013) Reframing public service employment relations: the impact of economic crisis and the new EU economic governance. European Journal of Industrial Relations 19(4): 270294.CrossRefGoogle Scholar
Bach, S, Givan, RK (2011) Varieties of new public management? The reform of public service employment relations in the UK and USA. International Journal of Human Resource Management 22(11): 23492366.Google Scholar
Baines, D, Cunningham, C (2015) Care work in the context of austerity. Competition & Change 19(3): 183193.CrossRefGoogle Scholar
Barton, R (2002) Internationalising telecommunications: Telstra. In: Fairbrother, P, Paddon, M, Teicher, J (eds) Privatisation, Globalisation & Labour: Studies from Australia. Annandale, NSW: Federation Press, 5177.Google Scholar
Bajkowski, J (2014) Human services postpones pay vote, shrinks offer. Government News. Available at: https://www.governmentnews.com.au/human-services-postpones-pay-vote-shrinks-offer/ (accessed 15 September 2021).Google Scholar
Barzelay, M (2001) The New Public Management: Improving Research and Policy Dialogue. Berkeley, CA: University of California Press.Google Scholar
Bordogna, L (2008) Moral hazard, transaction costs and the reform of public service employment relations. European Journal of Industrial Relations 14(4): 381400.CrossRefGoogle Scholar
Bray, M, Waring, P (2006) The rise of management prerogative under the Howard Government. Labour & Industry 32(1): 4561.Google Scholar
Brown, W (1999) Individualisation and union recognition in the 1990s. In: Deery, S, Mitchell, R (eds) Employment Relations: Individualisation and Union Exclusion: An International Study. Sydney, NSW: The Federation Press, 153170.Google Scholar
Colley, LK (2012) Weathering the storm: Australian public sector employment security during decades of public management reform and the recent economic downturn. Review of Public Personnel Administration 32(1): 87101.CrossRefGoogle Scholar
Community and Public Sector Union (CPSU) (2021) Submission to the Inquiry into the Current Capability of the Australian Public Service (APS): Services Australia. NSW: Community and Public Sector Union (PSU Group). Available at: www.rssfeeds.aph.gov.au (accessed 14 January 2022).Google Scholar
Cooper, R, Ellem, B (2008) The neoliberal state, trade unions and collective bargaining in Australia. British Journal of Industrial Relations 46(3): 532554.CrossRefGoogle Scholar
Cooper, R, Ellem, B, Briggs, C, et al. (2009) Anti-unionism, employer strategy, and the Australian state, 1996–2005. Labor Studies Journal 34(3): 339362.CrossRefGoogle Scholar
Crouch, C (2015) The paradoxes of privatisation and public service outsourcing. Political Studies Quarterly 86(1): 156171.CrossRefGoogle Scholar
Department of Agriculture, Fisheries and Forestry (DAFF) (2011) Enterprise Agreement 2011-2014. Agreement Number AE890178. Print Number PR517979. Melbourne: Fair Work Commission.Google Scholar
Department of Agriculture, Water and the Environment (DAWE) (2020) Benefits and Conditions. Available at: https://www.awe.gov.au/about/jobs/conditions (accessed 14 January 2022).Google Scholar
Department of Agriculture and Water Resources (DAWR) (2017) Department of Agriculture and Water Resources Enterprise Agreement 2017-2020. Available at: https://www.agriculture.gov.au/sites/default/files/sitecollectiondocuments/about/jobs/ea2017-20/ea2017-2020.pdf (accessed 14 January 2022).Google Scholar
Department of Employment and Workplace Relations (2008) Revision to the Australian Government Employment Bargaining Framework and Supporting Guidance. Canberra: Commonwealth of Australia.Google Scholar
Department of Human Services (DHS) (2017) Agreement 2017-2020. Agreement Number AE425884 Print Number 597154. Melbourne: Fair Work Commission.Google Scholar
Dunlop, CA, Ongaro, E, Baker, K (2020) Researching COVID-19: A research agenda for public policy and administration scholars. Public Policy and Administration 35(4): 365383.Google Scholar
Fair Work Commission (FWC) (2016) CPSU, the Community and Public Sector Union v The Commonwealth of Australia (Acting Through and Represented by the Australian Electoral Commission and/or the Minister Assisting the Prime Minister for the Public Service) [2016] FWC 2615.Google Scholar
Fair Work Commission (FWC) (2019) Commonwealth of Australia as Represented by the Department of Home Affairs [2019] Decision issued 11 January. FWCFB 143.Google Scholar
Fox, A (1974) Beyond Contract: Work, Power and Trust Relations. London, UK: Faber & Faber.Google Scholar
Freeman, RB, Han, E (2012) The war against public sector collective bargaining in the US. Journal of Industrial Relations 54(3): 386408.Google Scholar
Gill-McLure, W, Thornqvist, C (2018) Reconstructing resistance and renewal in public service unionism in the twenty-first century: lessons from a century of war and peace. Labor History 59(1): 314.CrossRefGoogle Scholar
Hansen, NW, Seip, AA (2018) Government employers in Sweden, Denmark and Norway: the use of power to control wage and employment conditions. European Journal of Industrial Relations 24(1): 7389.CrossRefGoogle Scholar
Hood, C (1991) A public management for all seasons? Public Administration 69(1): 319.Google Scholar
Lewin, D, Keefe, JH, Kochan, TA (2012) The new great debate about unionism and collective bargaining in US state and local governments. ILR Review 65(4): 749778.Google Scholar
Marsden, D (2004) The role of performance-related pay in renegotiating the ‘effort bargain’: the case of the British public Service. Industrial and Labor Relations Review 57(3): 350370.Google Scholar
Mustchin, S (2017) Public sector restructuring and the re-regulation of industrial relations: the three-decade project of privatisation, liberalisation and marketisation in Royal Mail. Industrial Relations Journal 48(4): 294309.CrossRefGoogle Scholar
O’Brien, , O’Donnell, M (2002) Individualism, union organisation and management prerogatives in the Australian Public Service 1983-2000. Labour & Industry 12(3):103122.CrossRefGoogle Scholar
O’Brien, J, O’Donnell, M (2008) Retrospect and prospects for collective regulation in the Australian Public Service. Journal of Industrial Relations 50(4): 630645.CrossRefGoogle Scholar
O’Donnell, M, O’Brien, J, Junor, A (2011) New public management and employment relations in the public services of Australia and New Zealand. International Journal of Human Resource Management 22(11): 23672383.Google Scholar
O’Sullivan, M, Turner, T, Lavelle, J, et al. (2020) The role of the state in shaping zero hours work in an atypical liberal market economy. Economic and Industrial Democracy 41(3): 652671.CrossRefGoogle Scholar
O’Sullivan, M, Lavelle, J, Turner, T, et al. (2021) Employer-led flexibility, working time uncertainty, and trade union responses: The case of academics, teachers and school secretaries in Ireland. Journal of Industrial Relations 63(1): 4972.CrossRefGoogle Scholar
Pollitt, C (1993) Managerialism and the Public Services: Cuts or Cultural Change in the 1990s? Oxford, UK: Blackwell.Google Scholar
Pollitt, C, Bouckaert, G (2017) Public Management Reform: A Comparative Analysis. Oxford, UK: Oxford University Press.Google Scholar
Prime Minister (2020) Prime Minister’s Direction under Subsection 21(1) – 2020 (No. 1). Public Service Act 1999. Available at: https://www.legislation.gov.au/Details/C2019C00057 (accessed 1 February 2022).Google Scholar
Public Service (Terms and Conditions of Employment) (General Wage Increase Deferrals during the COVID-19 Pandemic) Determination 2020. Available at: https://www.legislation.gov.au/Details/F2020L00418 (accessed 14 January 2022).Google Scholar
Rasmussen, E, Foster, B, Farr, D (2016) The battle over employers’ demand for ‘more flexibility’: attitudes of New Zealand employers. Employee Relations 38(6): 886906.Google Scholar
Ritson, NH (2019) Purposive derecognition? Empirical evidence of managerial strategy. Labor History 60(6): 593605.CrossRefGoogle Scholar
Roles, C, O’Donnell, M (2013) The Fair Work Act and Worker Voice in the Australian Public Service. Adelaide Law Review 34(1): 93118.Google Scholar
Roles, C (2014) Work and employment: are APS disciplinary processes ahead of the game? Amendments to the APS Code of Conduct (2014) Australian Journal of Administrative Law 21: 5761.Google Scholar
Sansom, M (2017) Centrelink, Medicare and child support staff step up strikes. Government News. Available at: https://www.governmentnews.com.au/26832/ (accessed 17 September 2021).Google Scholar
Schmidt, W, Müller, A, Ramos-Vielba, I, et al. (2019) Austerity and public sector trade union power: Before and after the crisis. European Journal of Industrial Relations 25(2): 129145.CrossRefGoogle Scholar
Services Australia(2020) Public Service (Terms and Conditions of Employment) (Services Australia—Non-SES Employees) Determination 2020.Google Scholar
Sinclair, A (1989) Public service culture: managerialism or multiculturalism. Australian Journal of Public Administration 48(4): 382397.CrossRefGoogle Scholar
Szabo, I (2018) Trade unions and the sovereign power of the state. A comparative analysis of employer offensives in the Danish and Irish public sectors. Transfer 24(2): 163178.CrossRefGoogle Scholar
Towell, N (2016) Not even close: department of human services workplace offer smashed. Sydney Morning Herald. Available at: https://www.smh.com.au/public-service/not-even-close-department-of-human-services-workplace-offer-smashed-20161114-gsomew.html (accessed 14 January 2022).Google Scholar
Williamson, S, O’Donnell, M, Roles, C (2016) Bargaining over Australian public service cuts: do forcing change strategies work? Economic and Labour Relations Review 27(1): 4663.CrossRefGoogle Scholar