The Prime Minister and Cabinet

Powers of the PM

Patronage

The power of an individual to appoint someone to an important position.

The most significant power is the power to appoint government ministers.

The power of patronage has been reduced as they used to have the power to make judicial and ecclesiastical appointments.

The Honours System = the PM role in the honours system has also been reduced.

Appointing Cabinet Ministers

The PMs power to appoint and dismiss government ministers, particularly at cabinet level, provides a crucial advantage over colleagues.

The governing party gives its leader a free hand in appointing cabinet ministers.

In theory, PMs can create a cabinet in their own image.

Authority in the Cabinet System

The PM has many powers and roles in the cabinet.

The PM: Chairs cabinet meetings; Manages the agenda of cabinet meetings; Directs and sums up cabinet decisions; Creates cabinet committees and appoints their members; Holds bilateral meetings; Appoints senior civil servants; and Organising the structure of government.

Agenda setting

The PM can determine the agenda of cabinet meetings by:

Controlling information presented to ministers by determining which issues and papers should be brought before the cabinet.

Key Concepts

Prime Minister - The first or leading minister the head of government.

Cabinet - Group of around 20-25 senior ministers who meet regularly, usually weekly. The cabinet is chaired by the PM and is the key decision-making body in UK government.

Primus inter pares - Latin term meaning first among equal. In respect of the PM, it implies he or she is the most important member of the cabinet, yet they govern in a collective manner.

Confidence and supply - An arrangement whereby one party, in this instance the DUP, agrees to support the governing party on key votes of no confidence. It is different to a more formal coalition deal when the coalition parties share government and ministerial roles.

Core executive - Policy-making network that includes the PM, senior ministers, cabinet committees and top civil servants.

Cabinet committees - Specialist subdivisions of the cabinet comprising fewer members who focus on particular policy areas.

Party Leadership

The leader of the largest party in the HoC is the PM.

Strengthens the authority of the PM.

This legitimises their position.

Public standing

The PM is the main spokesperson for the nation and in many contexts such as international meetings act on behalf of the head of state.

As such he has unique access to the media. The PM's press office holds a key position.

Key roles of the core executive

Making Policy

It is the role of the executive first to set political priorities and then decide upon policy often at cabinet meetings or in cabinet committees.

The administrative part, the civil service, has the job of implementing these policies and running the state on a day-to-day basis.

Passing legislation

Major acts are first discussed and approved at cabinet level and then sent to parliament for debate and the final decision.

Most of the time this is relatively straightforward due to the PM's party having a Commons majority, but on occasion it is more problematic.

Financing

A key role of the executive is to make decisions on taxation and government spending.

There is usually much discussion and negotiation between different ministers and departments over where and how taxpayers' money is spent.

These decisions are normally announced in the annual budget.

Cabinet can be the forum where arbitration takes place, overseen by the PM.

Being the national first responder

In times of national emergency the executive is requires quickly and efficiently to put together emergency measures to deal with the threat as best it can, and reassure the public and calm fears.

Many of these situations require swift and crucial cooperation between departments and ministers. For example, the handling of the COVID-19 crisis.

Powers of the Core Executive

Many executive powers derived from the royal prerogative, powers once held by the monarch but now in the hands of the government.

Key powers are:

The appointment (and dismissal) of ministers by the PM, and other patronage powers.

The deployment of UK armed forces overseas.

Relations with international powers and international diplomacy.

Making and ratifying treaties.

The organisation and structure of the Civil Service.

Issuing directives and statements during national crisis and emergencies.

Other powers derive from the ability of the executive to get its legislative agenda through parliament and to control the parliamentary timetable.

All policy statements and executive decisions have to be lawful and covered by legislation to avoid 'arbitrary government', a characteristic of dictatorships and authoritarian governments, not liberal democracies.
E.g. during the COVID-19 pandemic, PM Johnson instructed people to stay at home except for a few exceptions, however for these guidelines to have any force, such as fines for those who defy them, parliament had to pass the Coronavirus act 2020.

How significant are the prerogative powers of the executive?

The opportunity to deploy the Armed Forces overseas is clearly important however, by convention all recent military action overseas has been put before a vote in the Commons.

Prime Ministers enjoy unlimited choice over who joins and leaves their government. Unlike the US president, who must submit their cabinet nominations for formal approval from the Senate, there is no similar requirement in the UK. However, PMs are constrained in their choice of ministers. They must appoint a cabinet that not only has some diversity in background but also includes individuals from a broad spectrum of the governing party. E.g. Theresa May had to include both Remainers and Brexiteers in her cabinet. Few cabinet members come from the Lords.

In times of national crisis, the executive and above all the Prime Minister delivers broadcasts, speeches and messages via social media to inform and reassure the public. However, the executive and particularly the PM must also rely and parliament to pass relevant legislation such as anti-terror laws.

The executive plays a crucial part in negotiating treaties and agreements with other nations in areas such as trade and defence, without these normally being subject to direct parliamentary approval. However, the government is indirectly influenced by parliament, the media and public opinion.

Changing role of the PM

Relationship with the cabinet

Some critics argue that the traditional model of a cabinet government has ceased to exist which demonstrates how the office of the PM has become presidential.

The example of Theresa May suffering two crushing defeats in January and March 2019 over her proposed Brexit deal demonstrates how the office of PM has not become more presidential.

Leadership style

Blair government often accused of preferring a 'sofa government' which is informal chats with 2 or 3 ministers.
Thatcher's styles was often criticised for being intolerant and overbearing; her cabinet was often depicted as being comprised of 'wets' and 'dries', dissenters and supporters, with the wets increasingly marginalised from positions of real influence.
These are examples of how the office of the PM has become more presidential.

Following a growing impatience with their styles of leadership, both Thatcher and Blair were forced out of office due to criticism and divides within their own party.
Loyalty on the backbenches is never guaranteed.
These are both examples of how the role of the PM has not become more presidential.

Special advisors

Recent PMs relying too much on SpAds.
Often colourful figures: Blair's chief of staff and press secretary Alastair Campbell, who said "we don't do God" when Blair was questioned about his Christian faith in an interview.
Clare Short’s resignation speech 2003 said Labour’s problems in their 2nd term of office were partly down to the “centralisation of power in the hands of the Prime Minister and an increasingly small number of advisers who make decisions in private without proper discussion”
Examples of the Pm becoming more presidential.

The power of special advisers remains unclear. The tendency to appoint and listen to them can be the result of a feeling that the civil service is too set in its ways, and often has its own agenda.
The best way for ministers to get along is to work alongside others, listen and liaise, and refuse to be captive of small clique.

How policy is made

The factors affecting policy-making come from a variety of sources and situations.

Manifesto pledges and promises.

Personal convictions of the PM/party leader, although these are usually reflected in the point above.

Outcome of referendums.

Results of deals with minority/other coalition parties.

Mounting pressure from the public and media.

Responses to national crises and emergency situations, including economic, foreign affairs and medical.

Changing social and cultural attitudes.

For example: Manifesto pledge - Extending free childcare, Theresa May 2017. Conservatives promised to offer working parents of 3 and 4 years olds 30 hours of free childcare a week instead of 15 hours. To increase the number of parents in work who might otherwise not be able to afford the cost of additional childcare. The scheme was rolled out and in operation by September 2017, but only those earning less than £100,000 would be eligible.

For example: Outcome of a referendum - Brexit, David Cameron, 2016. David Cameron promised in 2015 to hold a referendum on the UK’s continued membership of the EU.
This went ahead in 2016, resulting in a 52%-48% victory for those who wanted to leave the EU.
Cameron duly resigned and Theresa May was left with the challenge of implementing this decision.
The referendum result was very unusual as the outcome represented support for a policy that was personally opposed by the PM and a large majority of the MPs.
May pledged to uphold the referendum result.
Her policy-making was the opposite of a ‘conviction’ approach, and largely about democratic duty.

The power of the PM and Cabinet to dictate events and determine policy-making

PMs and their cabinets only have partial control over events and decisions about policies, and there are many occasions when the executive has little or no control over either events or policy. There are however, some clear exceptions that clearly demonstrate how a PM/cabinet can dictate events and policy decisions.

The introduction of the poll tax in 1990

There was a strong desire to spread the burden of payment for local services such as schools and refuse.

The new tax proved very unpopular in Scotland when it was introduced.

Major poll tax riots broke out in London and elsewhere in March 1990.

The poll tax was difficult to collect.

The poll tax story shows us that powerful PMs clearly have the power to push through policy.

It highlights the very real dangers that can ensue from rejecting the advice of political allies and natural supporters.

The decision to invade Iraq in 2003 by Tony Blair

Blair justified Uk involvement on the moral grounds of the removal of weapons of mass destruction and discredited intelligence reports that these could be launched within 45 minutes.

A series of official reports after the war, such as the 2004 report by Lord Butler and the 2016 Chilcot Report, were highly critical of government actions, especially those taken by Blair personally.

The legacy of this successful military venture can be seen in the reluctance of subsequent UK governments to deploy rounds forces in further Middle East conflicts, such as Syria.

Blair's preference for informal 'sofa government' meant there was little by way of informed collective discussion and decision-making.

The decision to call an early election in 2017 by Theresa May

The calling of a snap election for June 2017.

May reversed her promise not to call a snap election on 18 April 2017, when she announced that she would e calling an early election, effectively challenging Labour leader Jeremy Corbyn.

The gamble did not pay off.

May was convinced that she needed her own mandate to push through Britain's exit from the EU following the 2016 referendum.

The outcome of this fatally flawed decision was that although she remained in No.10, the rest of May's premiership was undertaken in straitened circumstances,

Relationship between PM and Cabinet

The powers and resources of the PM

Institutional powers of the PM

Appointing and dismissing ministers and undertaking cabinet reshuffles.

Chairing weekly meetings of the cabinet and setting the agenda.

Arranging and sometimes chairing cabinet committees.

Dictating policy priorities.

The Cabinet Office.

As party leader, usually being able to command a Commons majority to get legislation through.

Issuing honours such as life peerages.

Personal and political powers of the PM

The momentum and political capital that comes from leading their party to victory in the previous election, which enables them to persuade and lead more effectively.

Effective management of colleagues both in cabinet and on the backbenches.

Personal qualities as an effective communicator and national leader.

The ability (or otherwise) to unite and rally their own party.

Skill in managing the economy and handling unexpected challenges faced in office.

Context to the powers of the PM

Opinion poll ratings, and the results of more recent elections such as by-elections and local council elections.

Personalities in their cabinet and party at the time.

Potential leadership challenges.

The strength and threat posed by the main opposition party.

Patronage powers & the cabinet

Limitations of patronage powers, PMs need to be careful to maintain a balance within the cabinet. E.g. Theresa May had to include both Leave and Remain supporters in her cabinets.
PMs must be careful who and how many they sack from their cabinets. An ex-minister on the backbenches can result in damaging consequences. E.g. Thatcher's demotion of former foreign secretary Geoffrey Howe in 1989 and his subsequent resignation a year later triggered a leadership challenge from another ex-cabinet minister, Michael Heseltine, which would lead to her downfall.

The ability to appoint individuals to key offices. It is arguably one of the most important prerogative powers.

Authority over the cabinet

They dictate when and where it meets.

They decide the agenda and formally chair proceedings.

All members of the cabinet and indeed all ministers are required to support cabinet decisions, a concept known as collective responsibility.

Collective responsibility - Requirement that all members of the cabinet and government must support the PM and government policy in public, enabling a united common front to be presented to the public and the media.

Arranging & chairing cabinet committees

PMs are at liberty to order and structure cabinet committees at whim.

They are partly designed to reduce the burden on the full cabinet by allowing smaller groups of ministers to take decisions on specific policy areas.

Dictating policy priorities

A parliamentary majority is vital for a PM to dictate policies.

Manifesto pledges and constrained by unfolding developments.
An economic recession, for example, can easily derail plans to boost public spending or lower taxes.

The Cabinet Office

The Cabinet Office was created in 1916 to provide support for the cabinet system.
Around 2,050 civil servants work in the department. Its role is defined as its 'support the PM and ensure the effective running of government'.

Individual prime ministers often tweak the priorities and roles of the Cabinet Office to reflect current issues. For example, during the coronavirus pandemic, the Cabinet Office set up the Rapid Response Unit to deal with misinformation about the virus by working with social media platforms such as Facebook to block ‘false narratives’.

Party Leader

The PM enjoys additional resources. This usually guarantees that their policies and legislation get through parliament, given the governing party's overall majority.
The leader is elected by their MPs and party members, which confess a strong degree of legitimacy to their authority.

The party can also influence a leader's policy - Conservative rebellions over Europe led David Cameron to promise an in/out referendum on continued EU membership.

Dispensing honours

As part of their prerogative powers, PMs can award life peerages to former MPs or party supporters. This is often used as a means of altering the balance of the HoL for party advantage.

The practise of awarding honours is a way to reward the loyal and generous but used unwisely can lead to accusations of cronyism and 'cash for honours'.

Personal and political powers

They are important in helping the leader to dominate their cabinet and government, if only for a limited amount of time.

Enhanced political capital also enables PMs to shift the balance of power and policy positions within their cabinets over time, promoting loyalists and marginalising more critical voices. They must always be careful, though, to avert the creation of an 'echo chamber' in the Cabinet Room and to stay in touch with wider sections of the party.

Powers of the Cabinet

Policy

Most ministers run their own departments so they have a fair degree of autonomy over policy details.

PMs are unlikely and should be unwilling to micromanage all their senior ministers.

Many policies, such as the introduction of Universal Credit or organising the 2012 London Olympics, are complex and complicated.

PMs can set the tone and clarify expectations, but rarely get involved in policy minutiae.

Media

Ministers can have their own links to the media and to key pressure groups through their departments.

In extreme cases they can even leak information and brief journalists against policies that the PM wishes to pursue.

In 2019, defence secretary Gavin Williamson was sacked for allegedly leaking to the press details from a National Security Council meeting over the security threats posed by allowing Chinese tech giant Huawei a role in constructing Britain’s 5G network. The implication was that he had been critical of the plan and had deliberately leaked it to undermine the policy.

Refusal to move

In certain situations powerful ministers can refuse to be moved in a reshuffle.

January 2018, when then health secretary Jeremy Hunt refused to be moved from his post and ended up, after an hour of talks with Theresa May, being given an enhanced role and adding social care to his policy portfolio.

This also reflects the weakened power of a PM with shrunken political capital.

Cabinet Meetings

Cabinet meetings can involve real debate and discussion.


PMs often use such meetings as opportunities to gauge opinions and reflect before committing to a major policy initiative.

Resignation

Ministers in the cabinet can hand in their resignations of their own accord.

It is considered to be one of the biggest weapons that the cabinet ministers have.

Theresa May’s brief tenure as PM, and the negative impact of Brexit on establishing a strong and stable government. Large numbers of ministers resigning implies a weak and divided government.

Does cabinet government still exist?

Cabinet remains the key forum for high-level policy decsions

Too many cabinet resignations can be a sign of weakness not strength.

Government departments contain their own senior civil servants who provide ministers with policy support and expertise.

Cabinet ministers are appointed by the PM and must do their bidding. Those who resist or who are deemed poor parliamentary performers can be easily removed by means of sacking or demotion in a reshuffle.

Many decisions are made at cabinet committee level or in bilateral meetings.

Ministerial Responsibility

Individual responsibility - The Requirement that all ministers are responsible for their own actions while in public office. Where they fall short, they are expected to offer to resign.

Ministerial accountability - The convention that ministers must explain and justify their actions and decisions, particularly before parliament and its committees.

Accepting the blame for an error or injustice within their department by civil servants and officials.

Sir Thomas Dugdale 1954 - Sir Thomas Dugdale resigned as minister of agriculture when an independent inquiry criticised his department for mishandling the compulsory purchase and subsequent re-letting of 725 acres of farmland in Crichel Down, Dorset.

Unwillingness to accept collective responsibility over policy.

Robin Cook 2003 - Cook resigned over the Iraq War. He urged the government to work with the UN not the US which is not what happened.

An inability to deliver a policy promise in their own department

Sajid Javid 2020 - In February 2020 Javid as chancellor departed just 4 weeks away from delivering his first budget. He rejected the PM’s order to fire his team of aides, saying ‘no self-respecting minister’ could accept such a condition.

Personal misconduct

Priti Patel 2017 - She had failed to be honest with May about 14 unofficial meetings with Israeli ministers, businesspeople and a senior lobbyist undertaken while on a private holiday to Israel.
Under the terms of the Ministerial Code ministers must be open and honest about any such private meetings.

Political pressure

Andrew Mitchell 2012 - In September 2012, Andrew Mitchell, then chief whip, attempted to cycle out of Downing Street directly out of the main vehicle gates. But to Mitchell’s displeasure, he was told to dismount and walk his bike through a pedestrian entrance. He argued with the officer on duty and, according to the Officer’s account of the exchange, Mitchell said: ‘Best you learn your fing place - you don’t run this fing government- you’re f*ing plebs.’ This quickly became known as ‘Plebgate’ in the press.
Mitchell was forced to resign.