Role of the Prime Minister and Cabinet From sofa government to cabinet government From Prime Ministerial to Presidential Joy Johnson

Andrew Marr (part of his documentary series) DblY DblY Powerful Prime Minister brought down by her own Ministers and MPs – she had become an electoral liability Europe was the catalyst but the poll tax riots in the streets of London the reason for the masses

British Prime Minister flanked by his Chancellor and Deputy PM

ric_moments/newsid_ / stm ric_moments/newsid_ / stm Tony Blair leaves to cheers from his Ministers and MPs but he was forced to stand down before his time

Role of the Prime Minister Key texts Morrison Public Affairs for Journalists Peter Dorey Policy Making in Britain Anthony King The British Constitution Andrew Rawnsley The End of the Party Steve Richards Whatever it Takes David Laws 22 Days in May Hugo Young One of Us

Power of the Prime Minister and the relationship with the cabinet Prime Ministers are ‘inter pares’ – first among equals No 10 Downing Street Official residence Chequers Elected as MP with the responsibilities that entails Leader of the party Becomes Prime Minister (we don’t elect a PM) Recent powerful (but still limited) PMs have led to the accusation that the system has become more presidential

Royal prerogative (PM has authority by the sovereign) Keep the sovereign informed Declare war and peace Recommend passage of Bills to Royal Assent Recommend dissolution and prorogation of Parliament Draw up Queen’s speech (usually from contents of the manifesto) Recommend appointments Recommend honours Answer for policies at PMQ’s, make statements to the House and so on

PM other roles Has the distinct title of Minister for Civil Service (serviced by the Cabinet Office) Permanent Secretary (the most senior civil servant) is the Cabinet Secretary First Lord of the Treasury

Role of the P)M Appoints a cabinet (Political juggling acts) Chairs meetings of the Cabinet

Margaret Thatcher & her Cabinet Broke with tradition Respectful of tradition and cabinet government she was according to King p 324 she was more concerned with outward form than their inner meaning. “She suffered defeats in early years of her premiership, but, once the Tory wets and other tiresome dissidents were out of the way, her style became progressively more imperious and less collegial”.

Thatcher’s style of govering According to one of her most fervent admirers Nicholas Ridley; “She was Prime Minister, she knew what wanted to do, and she didn’t believe her policies should be subject to being voted down by a group she had selected to advise and assist her”. King p 325

Tony Blair – decisions made outside Cabinet Blair’s first Cabinet secretary Robin Butler said; “From the start the proceedings were very informal. Tony Blair wasn’t interested in setting an agenda and working through the items...cabinet ministers were not encouraged to raise issues themselves.” Rawnsley p 64

Chilcot inquiry – evidence from Lord Prescott – Blair’s sofa government

Chilcot hears evidence Chilcot finished their public inquiry but later recalled witnesses again in public escott-last-witness-chilcot-inquiry

Trusted confidantes as opposed to collective responsibility Kitchen Cabinet Sofa government Not always Ministerial colleagues i.e. For Blair, Alistair Campbell (Press Secretary), (had to leave when he became the story); Jonathan Powell, Chief of Staff Thatcher, Charles Powell Foreign Adviser; Bernard Ingham, Press Secretary (close but not as close as recent communication chiefs) Ministers bound by collective responsibility if they disagree traditionally resign i.e. Robin Cook former Labour Foreign Secretary over the war in Iraq

Trusted confidantes (spin doctors) Cameron, Andy Coulson, Press Secretary (had to leave when he became the story), Craig Oliver new Press Secretary; Steve Hilton, Director of Strategy Not restricted to these positions

Tensions can exist

Presidential style By-passing and or downgrading the role of the Cabinet in devising policy Announcing policies to the media before announcing them to Parliament Ignoring popular opinion and protest Grandstanding on the international stage

Holding the PM to account PM have great power and need to be held to account Public (elected as an MP) Press (allies and foes) Parliament (question time) also twice yearly Commons Liaison Committee made up of chairs of the select committee question the PM – Blair’s backbenchers frequently rebelled (the official opposition was weak) Votes of No Confidence (James Callaghan Labour PM was defeated in 1979 on a no confidence vote) (fixed terms P’ment would still allow for vote of no confidence) Party (Thatcher always had the support of her party, Blair did not)

PM power – support and constraints Dorey – Policy making in Britain Enhancing power Large parliamentary majority Unified cabinet Recent gen election victory High opinion poll ratings Competence and integrity of ministerial colleagues Clear objectives and strategy Supportive media Strong, stable economic situation International crisis, well handled Weak, ineffective Opposition Constraining power Small parliamentary majority Divided cabinet Division among backbenchers Mid term blues Low opinion poll ratings Incompetence or scandals involving ministerial colleagues Limited grasp of policy details Media hostility Recession/economic crisis International crisis, poorly-handled Strong, credible Opposition

Variables of PM power “ His or her power varies from time to time according to the extent their Cabinet colleagues permit them to have that power, depending on whether the Cabinet is split, depending also on the strength of the Government majority in the House of Commons and also popular opinion in the electorate and attitudes in the Party”. (Sir Richard Wilson former Cabinet Secretary giving evidence to the Public Accts Committee 2002 as quoted in Dorey)

TV debates during general election Adds to Presidential style

Cabinet ranking Cabinet – 3 great offices of state: Chancellor of the Exchequer; Foreign Secretary; Home Secretary Deputy PM ( Thatcher made Howe Dep PM but this was demotion from Foreign Secretary; Blair had Prescott as link to the Labour Party; Cameron and Clegg perhaps more meaningful but Clegg very much the jnr partner) Generally referred to as Secretaries of State

Relationship that matters Prime Minister and his Chancellor

Chancellor and his Chief Secretary Cutting the deficit the coalition partnership – Osborne and Alexander

Cabinet Office Ministers Close to the PM even though not secretaries of state Francis Maude Oliver Letwin

Government Gordon Brown brought in outsiders and made them peers to join the government Peter Mandelson peerage – Business secretary in the cabinet Others commonly known as GOATS government of all the talents!

Government departments 3 great offices of state as before Ministry of Justice (Kenneth Clarke - Lord Chancellor and Secretary of State for Justice) Education Business and Industry Defence Health Work and Pensions and so on

Cabinet & Ministers Ministers without Portfolio Chancellor of the Duchy of Lancaster Leader of the House Chief Whip Ministers of State Parliamentary Under Secretaries (Parliamentary Private Secretary PPS unpaid )

Civil Service Professional civil service serve the government - political neutrality - non partisan, does not change with change of government Cabinet Secretary Permanent Secretaries – serve his/her secretary of state Collective term for the administrative structure Also known as ‘Whitehall’ Permanent Secretaries also known as ‘Mandarins’

Close confidantes When Labour achieved its landslide victory in 1997 Mr Powell, along with Mr Campbell, was given unprecedented powers to issue orders to civil servants. It was a move sanctioned by cabinet secretary Sir Robin Butler but caused much resentment in Whitehall.

Civil servants relationship with PM and ministers Need to work together but the relationship can be tense New Labour suspicious of the Civil Service Were wary of civil servants who had prospered under the preceding Conservative government (British Constitution, King p 222)

Top civil servant and new coalition government

interdependency Civil servants resources Anonymity Experience Expertise Knowledge Permanence Time Whitehall network Minister’s resources Access to Cabinet Access to media Alternative source of advice Authority Political alliances Political support/legitimacy Prime Ministerial backing

Close to the Prime Minister and Secretaries of State Special advisers (SPADS) - Blair Head of Policy Devolution Economy Foreign Affairs Health and Social Services Home Affairs Inequality and social exclusion Trade and Industry Transport Welfare (inc. Children, the elderly and women) Spads – party animal Spads have loyalty to their boss – party appointment If the Cabinet minister resigns or is sacked the Spad goes as well Civil servants permanent – non partisan

Executive Agencies Delivery not policy formulation Examples Single biggest agency – Jobcentre Plus HM Revenue and Customs Criticism is that Ministers don’t accept responsibility (when HMRC lost data the Chief Exec resigned not the Chancellor of the Exchequer) (Morrison Public Affairs for Journalists p 115/116)

Quangos Quangos are often confused with executive agencies Quasi authonomous non governmental organisations (hence quangos) Examples Arts Council, Primary care trusts and strategic health authorities (being abolished re Health and Social Care Bill)

Bonfire of the quangos

Draft cabinet manual /cmselect/cmpolcon/writev/734/cicm 08.htm /cmselect/cmpolcon/writev/734/cicm 08.htm Looks at monarchy, government, parliament, devolved institutions Written by Sir Gus O’Donnell House of Lords select committee hearing evidence – January/February 2011

Issues Tensions within the Coalition Draft Cabinet manual Written constitution Return to Cabinet government Wholesale reform of the government departments for example Health, Education, Justice, Home Office Reform within Business and Industry Bonfire of the Quangos