Prime Minister, Cabinet and Ministers

What is the traditional view on the role of the PM?

- Bagehot 'prunus inter pares' which means 'first among equals'. - 'First' in the sense that they are the primary representatives of government, both in relation to the monarch and through the right to be consulted about all significant policy issues. - 'Among equals' in the sense that all members of the cabinet had an equal influence over decisions.

Reasons for government/cabinet reshuffles

- Because a minister or ministers leave office for whatever reason and the subsequent movements to fill vacancies become a reshuffle. - Because the PM is dissatisfied with the performance of particular ministers. - To provide a progressive route for talented backbenchers. - To safeguard the PM. - To change direction. - To rebalance the political forces in the cabinet.

What is cabinet government?

- Cabinet government is one of the key constitutional principles within the UK political system. Cabinet government has 3 central features: 1) The cabinet 'fuses' the executive and legislative branches of government, as its members head government departments but are also drawn from and are accountable to Parliament. 2) The cabinet is the senior executive organ. It controls the policy-making process and makes all major government decisions. 3) Within cabinet, policy is made democratically with each member's views carrying equal weight. The PM is therefore merely 'first among equals'.

What is collective ministerial responsibility?

- Collective responsibility is a convention that define relationships between the executive and Parliament and between ministers and the cabinet. It has two main features: 1) It implies that the government is collectively responsible to Parliament, in the sense that it rests on the confidence of the HofC. 2) It implies that all ministers are obliged to support official government policy in public and in Parliament.

How was Cameron's policy influence limited in the coalition government?

- Commissions and reviews: In relation to the range of topics over which there was disagreements, independent commissions or policy reviews were set up to develop compromise proposals. Such devices prevented the PM, or any other senior minister, from taking personal control over controversial issues. - Formal rules: One of the important features of a coalition is a greater need for formalised decision making to maintain trust and transparency between coalition partners. - Coalition committee: A formal cabinet committee was set up to consider issues related to the coalition. It was co-chaired by the PM and the deputy PM, and contained equal numbers of conservatives and Lib Dems. - The Quad: In the case go higher level strategic and policy differences between the coalition partners, Cameron used what came to be called the Quad- meetings between Cameron, Clegg and their two closest senior cabinet colleagues. The Quad operated as a kind of 'inner' cabinet and ensured a significant measure of collegiality at the highest levels within the coalition. - Deputy Prime Minister: Some have argued that Clegg's 'deputy' role within this relationship was misleading as, to keep the coalition on track, the two had to function as equals. This was especially the case, as Clegg's support was both crucial to the formation of the coalition in the first place and remained vital to its continued existence.

What are the main aspects of the role of cabinet?

- Formal Policy Approval. Even though meaningful debate and the formulation of policy decisions effectively takes place elsewhere, these must be approved by the cabinet in order to become official government policy, However, there is no guarantee that major policy decisions will not be made by the PM, sometimes without consulting the cabinet. - Policy Coordination. The cabinet serves to ensure that ministers know what is going on in other departments and helps to 'join up' government at its most senior level. - Resolve Disputes. Most differences between ministers and departments are resolved at a lower level. However, disagreements that can't be solved can be taken to the cabinet. - Forum For Debate. The cabinet can be used by the PM and other ministers as a sounding board to raise issues and to stimulate discussion. - Party Management. In considering policy, the cabinet also takes into account the views and morale of the parliamentary party. This is why the chief whip attends cabinet meetings. - Symbol of Collective Government. Regular cabinet meetings where major policies are approved maintain the 'face' of UK government.

What is evidence of growing Presidentialism in the UK?

- Growth of 'spatial leadership': This is the tendency of PMs to distance themselves from their parties and governments by presenting themselves as 'outsiders'. - Tendency towards 'populist outreach': This is a tendency of PMs to try and 'reach out' directly to the public by claiming to articulate their deepest hopes and fears. The PM also speaks for the nation more than they ever did before. - Personalised election campaigns: The mass media increasingly portrays elections as personalised battles between the PM and the leader of the opposition. - Personal Mandates: This is the trend for PMs to claim popular authority on the basis of their electoral success. PMs therefore become the ideological consciences of their party or government. - Wider use of special advisors: PMs increasingly rely on hand-picked political advisers rather than on cabinets, ministers, and senior civil servants. - Strengthened cabinet office: the size and administrative resources available to the cabinet office have grown, turning it into a small scale PMs department responsible for coordinating the rest of Whitehall.

Constraints on the PM: Pressure of Events

- In many ways, the problem of 'events' is a structural one and not merely a question of random surprises. This occurs in three main ways; 1) PMs only control top-level decisions: The implementation of decisions is in the hands of bodies and actors over whom PMs have very little direct control. 2) The growth of presdentialism has over-shretched the PMs breadth of interests: PMs are now expected to speak out on all important questions, domestic and international, and they are also held responsible for blunders and mistakes wherever they may occur, therefore present PMs have an endless range of 'events' they need to respond to. 3) Prime ministerial power may be counter-productive: The ability of PMs to react appropriately to political events may be impaired v=by their increasing reliance on close confidantes and advisers. This means that PMs may not be fully exposed to a wide range of views, and as a result the PM may loose their political 'touch'.

What is individual ministerial responsibility?

- Individual responsibility is the convention that defines the relationship between ministers and their departments. It has two main features: 1) It implies that ministers are responsible to Parliament for the policies and actions of their departments. 2) It implies that civil servants are responsible to their ministers. This suggests that civil servants should be loyal and supportive of whatever minister or government is in office.

What does the core executive model tell us about executive power?

- It emphasises that prime ministerial power is not only constrained by cabinet collegiality (sense of solidarity), but also by the need to operate within a complex of organisations and procedures. - It highlights that power within the executive is more about building relationships with key bodies and actors than simply being a matter of 'command and control'.

What does the prime ministerial government model tell us about executive power?

- It highlights the undoubted growth in prime ministerial power, particularly since 1945. - It acknowledges that the cabinet is no longer the key policy making body.

What does the cabinet government model tell us about executive power?

- It provides a reminder that, despite the growth in prime ministerial power, no PM can survive if he or she loses the support of the cabinet. - It is kept alive by the fact that the PM's authority is linked to the backing he or she receives from the 'big beats' of the cabinet, some of whom may enjoy such widespread support within the government and party that they are effectively 'unsackable'.

What does the presidentialisation thesis tell us about executive power?

- It stresses the growth of personalised leadership and draws attention to the importance of the direct relationship between the PM and the people. - It highlights the growing political significance of the mass media in affecting power balances within the executive and within the larger political system.

What are the key aspects of the modern role of the PM?

- Making Governments. Although the PM is formally appointed by the Queen, it is he or she who then appoints all other members of the government. - Directing Government Policy. The PM sets the overall direction of government policy and it defines its strategic goals. In so doing, the PM can interfere in any aspect of policy. - Managing The Cabinet System. The PM chairs cabinet meetings, determines their number and their length, and also sets up and staffs cabinet committees. - Organising Government. This involves setting up, reorganising and abolishing government departments, as well as being responsible for the civil service. - Controlling Parliament. As leader of the largest party in the HofC, the PM effectively controls the lower chamber and, through it, Parliament itself. - Providing National Leadership. This is most important in times of crisis, war or in response to major events.

How did the coalition government affect prime ministerial power?

- One of the first things they did was commit to the idea of fixed term parliaments which were translated into legislation in 2011. - This introduction was significant as it meant that the PM had effectively surrendered a key power, the ability t dissolve parliament and to call a general election. - This is one of the prerogative peers that the PM, by convention, exercise on behalf of the Crown. - Although commonly seen to have diminished prime ministerial power, the introduction of fixed-term parliament may nevertheless have strengthened Cameron as it allowed the coalition a full five years to bring about economic recovery.

Constraints on the PM: The Party

- PMs can count on the support of their party, both inside Parliament and beyond. However, this support is conditional. Party leadership is a responsibility as well as a source of power. - In particular, parties look the the PM to provide leadership that will help maintain party unity and ensure the party's success. They failure to do so can bring the PMs downfall. - One example is the fall of Blair, who faced the largest backbench rebellion against any government in over 100 years, due to his decision on the Iraq war in 2003. This also lead to a mood of restiveness and unease amongst a proportion of Labours backbenchers that lasted the rest of his premiership.

What three qualifications must a politician fulfil to become PM?

- PMs must be MPs. By convention, all PMs sit in the House of Commons. - They must be a party leader. Many PMs are appointed as a result of being elected as leader of their parties, but others are removed when they lose the leadership. - His or her party usually has majority control of the HofC. Most PMs come to power as a result of general election victory, and most leave office as a result of election defeats. However, coalitions can be formed e.g. In 2010 when the Queen asked Cameron to form a government.

Powers of the PM: Party Leadership

- Party leadership increases the PMs authority within the cabinet and government, as other ministers recognise that party loyalty focuses on the person of the PM and not on any other minister. - It allows the PM to control Parliament through commanding a disciplined majority in the HofC. - More widely, party members recognise that the party's fortunes are closely linked to the PM's personal standing. This tends to discourage party splits and public criticism of the PM. HOWEVER: - Party loyalty can evaporate quickly if the PM is viewed as an electoral liability, and if the government become unpopular. - No PM can survive without the support of his or her party.

What are the 3 traditional principles civil servants are supposed to abide by?

- Permanence: civil servants remain in post as ministers and governments come and go. - Neutrality: civil servants are expected to be loyal and supportive of any minister and any government, whatever its political views. - Anonymity: civil servants are 'nameless' in the sense that they are not public figures.

Why do ministers resign?

- Policy disagreements: Linked to collective responsibility, ministers may resign if they feel unable to support government policy. However, such resignations are rare, as dissenting minsters are usually willing to keep their policy reservations to themselves. - Ministerial blunders: Individual responsibility has been narrowed in the sense that ministers are noe only prepared to resign in the event of blunders for which they are personally responsible for. - Personal scandals: The most common ground for ministerial resignations is revelations about the personal behaviour or conduct of a minister, particularly when these attract negative media coverage and threaten to destabilise the workings of government.

What is prime ministerial government?

- Prime ministerial government is usually seen as the principle alternative to the theory of cabinet government. It suggests that the PM has displaced the cabinet as the apex of the executive. This thesis has three features: 1) The PM 'fuses' the legislative and executive branches of government, in that he/she is drawn from and accountable to Parliament and also, as chief executive, controls the administrative machinery of government. 2) The PM dominates the policy-making process. He or she makes major government decisions and exerts influence over all policy areas. 3) The cabinet is a subordinate body. It is no longer a meaningful policy-making organ, but rather, a source of advice and support for the PM.

What is the ministerial hierarchy?

- Secretaries of State. These are cabinet ministers in charge of gov. Departments. - Ministers of State. These are junior to Secretaries of State but senior to other minsters and PPSs; they are not usually in the cabinet. - Parliamentary Under-Secretaries of State. These are junior to ministers of state and not members of the cabinet, although they may serve on cabinet committees. - Parliamentary Private Secretaries (PPSs). These are the unpaid 'eyes and ears' for senior ministers; officially they are not members of government.

Powers of the PM: Hiring and Firing

- The PM can ensure the appointment and promotion of loyal supporters and especially of politicians who share his or her political or ideological preferences. By the same token, rival, critics or ideological opponents can be either kept out of government or be restricted to junior positions. - The fact that the PM controls their political careers ensures that both ministers and the majority of backbenchers remain loyal and supportive. They understand that they serve under the PM. - HOWEVER, in hiring and firing ministers the PM has to take into account the following considerations: - All ministers must be MPs or Peers - All ministers must come from the majority party - Party unity requires and ideological and political balance within the cabinet. - Opponents must be less dangerous inside government than outside.

Powers of the PM: Cabinet Management

- The PM chairs cabinet meetings, manage their agendas and discussions, and sum up decisions. - They convene cabinet meetings and decide how often they will be called and how long they will last. - PM's also decide the number and nature of cabinet committees, sub-committees and ministerial groups and appoint their members and chairs.

Two powers of the Prime Minister

- The PM has the power of patronage, which covers appointments to Cabinet, head of the civil service, peerages and honours, and senior levels of the judiciary and clergy. - The PM also possesses the power to declare war. In 2003 there was a vote in the HofC before the Baghdad invasion.

Constraints on the PM: The Cabinet

- The influence of the cabinet is most clearly reflected in the power of that can be wielded by leading individual ministers, the 'big beasts'. - The political 'weight' of a cabinet minister is determined by three factors: 1) The seniority of his or her office 2) His ir her standing within the party 3) His or her public profile - Examples of cabinets taking collective action against the PM is extremely rare. This is because the fate of the PM and of the government are so closely entwined. - One example is that Thatcher claims to have been ousted by her cabinet through a withdrawal of ministerial support once she had failed to secure re-election as party leader. But, Thatcher only lost the support of her cabinet once she lost the support of the parliamentary party.

Constraints on the PM: The Mass Media

- The mass maids coverage has become more difficult for the PMs to manage for the following reasons: - A tendency to 'hype': Increasingly intense commercial pressures force the media to make their coverage of politics 'sexy' and attention grabbing. A 'crisis' is more interesting than a 'problem'. - The blurring of facts and interpretation: The coverage of news and current affairs has change in recent years. Whereas once TV news, and the broadsheet press in particular, tried to distinguish clearly between news and comment, the difference between 'what happened' and 'what it means' is increasingly blurred by an attempt to define 'the story'. - Television increasingly follows the print media in its style of political and current affairs coverage: This means not only that TV stories are picked up from newspaper headlines, but that this has also affected the style of current affairs coverage on television.

Describe the two parts of the executive

- The political executive. This is composed of ministers and its job is to take overrall rrsponsibility for the direction and coordination of government policy. - The official executive, or bureaucracy. This is composed of civil servants and its job is to provide policy advice and to implement government policy.

Constraints on the PM: The Electorate

- The state of public opinion underpins all the other constraints on the PM. When PMs are popular and their governments are riding high in the polls, their authority over the cabinet and the party is assured. - However, when the government's popularity dips, and its chances of winning the next election are thrown into doubt, life becomes much more difficult for the PM as the electorate are the ultimate decision makers in power. - For example, Thatcher's vulnerability in the late 1980s coincided with declining poll ratings and early signs of improved support for Labour.

What is the core executive model?

- This model suggests that neither the PM nor the cabinet is and independent actor. - Each of them exercises influence in and through a network of relationships, formal and informal. This brings a range of other actors and institutions into the picture. - The balance of power within the core executive is affected by the resources available to its various actors. - Wider factors, such as economic and diplomatic developments, influence the workings of the core executive.

Powers of the PM: Access to the media

- the mass media strengthens prime ministerial power in 3 ways: 1) The growth of 'political celebrity' gives PMs and other party leaders the ability to appeal 'over the heads' of their senior colleagues, parties and gov institutions, directly to the public. 2) The medias obsession with personality and image guarantees that edit attention focuses primarily on political leaders, and especially on the PM. 3) Control over government communications means that PMs have been able to structure the flow of information to the public. This has given rise to an emphasis on 'spin' and 'news management'. This was particularly evident in the Thatcher period, through the work of her press secretary, Bernard Ingham.

Patronage in the coalition

Formal Arrangements: - The initial allocation of cabinet and other posts was agreed between the PM and the deputy PM - Future allocations would be approximately in proportion to the parliamentary strength of the two parties. - The PM, in consultation with the deputy PM, would make nominations for the appointment of ministers - The PM would nominate Conservative minsters and the deputy PM would nominate Lib Dem ministers - No Lib Dem minister or whip could be removed on the recommendation of the PM without full consultation with the deputy PM. > These amounted to an important constraint on what is usually though of as a key formal power of the PM. Cameron was unable to reshuffle the cabinet or remove Clegg, and he couldn't lead or instruct the Lib Dem ministers. > Moreover, the coalition meant that the power to hire and fire had to sometimes be exercised with greater care and sensitivity.

Differences between ministers and civil servants

MINISTERS: - elected politicians - party members - temporary - public figures - run departments - make policy - responsible to parliament CIVIL SERVANTS - appointed by officials - politically neutral - permanent - anonymous - work in departments - advise on policy - responsible to ministers

Powers of the PM: Institutional supports

The two most important bodies serving the PM are: 1) The Prime Minister's Office, which since 2002 has also included the policy unit. 2) The Cabinet Office, which has developed into the coordinating hub of the UK executive, helping to 'join up' the work of the Whitehall government departments. - The PM uses these to exert their power.