Conceptualising advisers' policy work: The distinctive policy roles of ministerial advisers in the Keating government, 1991-96

The role of ministerial advisers in policy-making in Australia is a subject that has not received enough detailed attention. While advisers are often described as influential in policy-making, we do not have a full understanding of the policy roles that they play. Much research focuses on advisers' work in promoting political control through their work with departments. This paper conceptualises advisers' distinctive policy-making roles, based on recent empirical research on ministerial advisers in the Keating years (1991-96). How active advisers were varied significantly. The paper describes the policy roles of 'very active' advisers. Based on their own descriptions of their work and using examples, the paper outlines five distinctive policy roles: agenda-setting; linking ideas, interests and opportunities; mobilising; bargaining; and 'delivering'. In these roles advisers believed they could make a real difference to policy outcomes, even though they were not decision-makers.