The development of the SES—from humble beginnings

The concept of an integrated, top-level policy advising and management group—a ‘senior executive service’—was first developed in 1983–84, however, as we have seen the evolution of the APS leadership group dates from federation.

The Public Service Act 1902 provided for the APS to be divided into four Divisions—the Administrative (including all Secretaries and other senior positions), Professional, Clerical, and General Divisions. Senior employees immediately below Secretaries were placed in the Clerical Division.

In 1920 the McLachlan Royal Commission on Public Service Administration recommended that a new ‘second division’ be established which:

…should include officers who, under Permanent Heads or Chief Officers, are required to exercise executive functions in directing the work of more important and distinctive branches of the Service.⁷

This was the first singling out and recognition of a small group of senior employees and the important role they played in supporting their agency heads and Ministers.

The Public Service Act 1922 formalised the creation of the second division with new classification structures. It also resulted in the general acceptance of the term ‘assistant secretary’. In 1928, the second division contained a total of 27 employees comprising 0.3% of the APS.

Following World War II, there were several attempts to introduce a more coordinated approach to the management of the second division. This recognised that the role of government, and therefore the APS and its leadership group, was growing more complex and demanding. Some of the proposals included introducing more rigorous selection methods and advanced training programs specific to this group.

However, successive governments generally opted to allow the second division to gradually develop over the next forty years, rather than formally legislate any new arrangements.

The only significant change to occur during this period was in 1964, when the former Public Service Board in a review of occupational categories, concluded that:

… policy advising and top management is a distinctive and integrated function and even where a top management position does have a professional or technical content the choice of occupant should, in a high degree, be on the basis of administrative and/or managerial abilities.⁸

As a result, the second division was reduced to six classifications standardised across departments at branch, division and deputy secretary levels, and included only positions with policy advising and top management responsibilities (while recognising that some also had professional and technical responsibilities).

Next: The creation of the SES—a quiet revolution