Select Committee on Public Administration Third Report


  1. As the Ministerial Code explains, the employment of special advisers on the one hand adds a political dimension to the advice available to Ministers, and on the other provides Ministers with the direct advice of distinguished experts in their professional field, while reinforcing the political neutrality of the permanent Civil Service by distinguishing the source of political advice and support (paragraph 50).

  2. Special advisers are employed to help Ministers on matters where the work of Government and the work of the Government Party overlap and it would be inappropriate for permanent civil servants to become involved. They are an additional resource for the Minister providing advice from a standpoint that is more politically committed and politically aware than would be available to a Minister from the Civil Service.

  3. The sorts of work a special adviser may do if their Minister wants it are:

      (i)  reviewing papers going to the Minister, drawing attention to any aspect which they think has Party political implications, and ensuring that sensitive political points are handled properly. They may give advice on any aspect of departmental business, including giving advice to their Minister when the latter is taking part in Party political activities;

      (ii)  "devilling" for the Minister, and checking facts and research findings from a Party political viewpoint;

      (iii)  preparing speculative policy papers which can generate long-term policy thinking within the Department, including policies which reflect the political viewpoint of the Minister's Party;

      (iv)  contributing to policy planning within the Department, including ideas which extend the existing range of options available to the Minister with a political viewpoint in mind;

      (v)  liaising with the Party, to ensure that the Department's own policy reviews and analysis take full advantage of ideas from the Party, and encouraging presentational activities by the Party which contribute to the Government's and Department's objectives;

      (vi)  helping to brief Party MPs and officials on issues of Government policy;

      (vii)  liaising with outside interest groups including groups with a political allegiance to assist the Minister's access to their contribution;

      (viii)  speechwriting and related research, including adding Party political content to material prepared by permanent civil servants;

      (ix)  representing the views of their Minister to the media including a Party viewpoint, where they have been authorised by the Minister to do so;

      (x)  providing expert advice as a specialist in a particular field;

      (xi)  attending Party functions (although they may not speak publicly at the Party Conference) and maintaining contact with Party members;

      (xii)  taking part in policy reviews organised by the Party, or officially in conjunction with it, for the purpose of ensuring that those undertaking the review are fully aware of the Government's views and their Minister's thinking and policy.

Status and conduct as temporary civil servants

  4. Special advisers are temporary civil servants appointed under Article 3 of the Civil Service Order in Council. They are exempt from the general requirement that civil servants should be appointed on merit and behave with political impartiality and objectivity so that they may retain the confidence of future governments of a different political complexion. They are otherwise required to conduct themselves in accordance with the Civil Service Code, attached at A. Their appointment ends at the end of the Administration which appointed them.

  5. Special Advisers should conduct themselves with integrity and honesty. They should not deceive or knowingly mislead Parliament or the public. They should not misuse their official position or information acquired in the course of their official duties to further their private interests or the private interests of others. They should not receive benefits of any kind which others might reasonably see as compromising their personal judgement or integrity. They should not without authority disclose official information which has been communicated in confidence in Government or received in confidence from others. The principles of public life set down by the Committee on Standards in Public Life, attached at B, provide a framework for all public servants.

  6. Special Advisers should not use official resources for Party political activity. They are employed to serve the objectives of the Government and the Department in which they work. It is this which justifies their being paid from public funds and being able to use public resources, and explains why their participation in party politics is carefully limited. They should act in a way which upholds the political impartiality of civil servants and does not conflict with the Civil Service Code. They should avoid anything which might reasonably lead to the criticism that people paid from public funds are being used for Party political purposes. They stand outside the departmental hierarchy. They should not be responsible for budgets or for the line management of permanent civil servants including their recruitment and matters covered by their contract of employment such as their appraisal, reward, discipline and promotion.

  7. Article 3(3) of the Civil Service Order in Council allows the Prime Minister to appoint up to three special advisers in No.10 who are not subject to the general restriction that their role is to provide advice to a Minister.

Contacts with the media

  8. Special advisers are able to represent Ministers' views on Government policy to the media with a degree of political commitment that would not be possible for the permanent Civil Service. Briefing on purely Party political matters should however be handled by the Party machine.

  9. All contacts with the news media should be authorised by the appointing Minister and be conducted in accordance with the Guidance on the Work of the Government Information Service (GWGIS), issued on behalf of the Prime Minister. Departmental Heads of Information are responsible for managing press and publicity operations in their department, and should be kept informed of Special Advisers' contacts with the news media not only to ensure consistency of briefing, but also to ensure that contacts are recorded. Heads of Information are the department's source of advice on the GWGIS.

  10. Special Advisers must not take public part in political controversy whether in speeches or letters to the Press, or in books, articles or leaflets; must observe discretion and express comment with moderation, avoiding personal attacks; and would not normally speak in public for their Minister or the Department.

Relations with the Government Party

  11. Special Advisers provide advice on the development of Government policy and its presentation. It is in these two areas of activity that Government and Party may overlap.

  12. The Civil Service has no monopoly of policy analysis and advice. The Government takes account of views from many sources of which the Government Party is legitimately one. Although public funds and resources must not be used to support the contribution of such views, the Government may need to liaise with the Party, as it does with others, to obtain a full and accurate understanding of the Party's policy analysis and advice.

  13. The Government needs to present its policies and achievements to the public in order to aid understanding and so maximise the effectiveness of its policies, and this is a legitimate use of public funds and resources. It would be damaging to the Government's objectives if the Party took a different approach to that of the Government, and the Government therefore needs to liaise with the Party to make sure that Party publicity is factually accurate and consistent with Government policy. To secure this consistency, the Government will also want to make sure that Party MPs and officials are briefed on issues of Government policy.

  14. In providing a channel of communication in these areas of overlap, special advisers paid from public funds have a legitimate role in support of the Government's interest, which they can discharge with a degree of party political commitment and association which would not be permissible for a permanent civil servant. In all contacts with the Party, special advisers must observe normal Civil Service rules on confidentiality unless specifically authorised, in a particular instance, by their appointing Minister.

  15. Special advisers must not take part in the work of the Party's national organisation; and although they may continue, during Elections, to give specialist or political advice to their Ministers they must be careful not to take any active part in the campaign going beyond the provision of such advice.

  16. Where a special adviser wishes to undertake work for a political Party which does not arise out of government business they may do this either in their own time, outside office hours, or under a separate contract with the Party, working part-time for the government. Detailed rules on their involvement in political activities are set out below.

Involvement in politics in a private capacity: national political activities

  17. Special Advisers must not take part in national political activities, which are: holding, in a party political organisation, office which impinges wholly or mainly on party politics in the field of Parliament, the Scottish Parliament, the National Assembly for Wales, the Northern Ireland Assembly or the European Parliament; speaking in public on matters of national political controversy; expressing views on such matters in letters to the Press, or in books, articles or leaflets; being announced publicly as a candidate or prospective candidate for Parliament, the Scottish Parliament, the National Assembly for Wales, the Northern Ireland Assembly or the European Parliament; and canvassing on behalf of a candidate for the institutions or on behalf of a political party.

  18. In particular:

      (i)  if Special Advisers are publicly identified as a candidate or prospective candidate for Parliament, the Scottish Parliament, the National Assembly for Wales, the Northern Ireland Assembly or the European Parliament, either by adoption by a political party or in any other way, they must resign their appointment[3];

      (ii)  if they wish to take part in a General, European or by-election campaign, or to help in a Party headquarters or research unit during such a campaign, they must first resign their appointment. If they wish their appointment to carry on during a campaign, they may continue to give specialist or political advice to their Minister as before, but they must be careful not to take any active part in the campaign going beyond the provision of such advice. They should not, for example, take part in public meetings.

      (iii)  if, with the approval of their Minister, they wish to assist with other party political matters such as a leadership campaign, they may do so while on paid or unpaid leave or at times which do not interfere with their normal duties, for example, out of office hours.

Involvement in politics in a private capacity: local political activities

  19. With the approval of their Minister, Special Advisers may undertake, or continue to undertake, all forms of local political activity, but not local activities in support of national politics. They must comply with any conditions laid down by their Department.

  20. Local political activities are: candidature for, or co-option to, local authorities; holding, in a party political organisation, office impinging wholly or mainly on party politics in the local field; speaking in public on matters of local political controversy; expressing views on such matters in letters to the Press, or in books, articles or leaflets; and canvassing on behalf of candidates for election to local authorities or a political organisation.

  21. If Special Advisers take part in local political activities, they must at all times observe discretion, take care to express comment with moderation and avoid personal attacks. In particular, if they serve on a local authority they must adhere to the following points:

      (i)  they should not speak publicly or in the Council, or vote, on matters for which their Minister has responsibility;

      (ii)  they should not serve on any committee considering such matters;

      (iii)  they should not take part in deputations or other representations to Ministers;

      (iv)  they should declare an interest in relation to any case or application which comes before the Council in which their Department is involved;

      (v)  they should observe discretion in relation to policies for which other Ministers are responsible, in order to avoid causing them embarrassment;

      (vi)  they should not disclose to the Council privileged information obtained in the course of their duties.


  22. Any civil servant who believes that the action of a special adviser goes beyond that adviser's authority or breaches the Civil Service Code should raise the matter immediately with the Secretary of the Cabinet or the First Civil Service Commissioner, directly or through a senior civil servant.

3   The Servants of the Crown (Parliamentary, European Parliamentary, National Assembly for Wales, New Northern Ireland Assembly and Scottish Parliament Candidature) Order 1999 states that civil servants (apart from those in the "politically free" group) must not issue an address to electors or in any other manner publicly announce themselves or allow themselves to be publicly announced as candidates or prospective candidates for election to Parliament or the European Parliament. Therefore, civil servants must resign from the Civil Service on their formal adoption as a Parliamentary candidate or prospective candidate by a political party. Back

previous page contents next page

House of Commons home page Parliament home page House of Lords home page search page enquiries index

© Parliamentary copyright 2001
Prepared 18 December 2001