British Public Affairs (JN805)

British Public Affairs (JN805) Prime Minister, Cabinet and Government

Lecture Outline 1. Office of Prime Minister 2. Cabinet and Government 3. Collective Responsibility and Ministerial Code 4. Civil Service 5. Executive Agencies and Quangos 6. Coalition Agreement

1. Office of Prime Minister • Office only arose with need to chair Cabinet with German-speaking George I in 1714. • First PM Sir Robert Walpole. • http://www.theguardian.com/uk-news/2014/aug/01/george-300th-anniversary-hanoverian-british-throne • Office only publicly popularised at start of 20th century.

1. Office of Prime Minister • Powers of PM: • Appoint cabinet members and fellow ministers • Chair Cabinet meetings • 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.

1. Office of Prime Minister Prime Ministers are ‘inter pares’ – first among equals. Elected as MP with the responsibilities that entails. Leader of the party. Becomes Prime Minister (we don’t elect a PM). Recent more ‘presidential’ status of position. Also has titles of First Lord of the Treasury and Minister for Civil Service (serviced by the Cabinet Office).

1. Office of Prime Minister • 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.

1. Office of Prime Minister PM has great power and needs 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 Votes of No Confidence (James Callaghan Labour PM was defeated in 1979 on a no confidence vote) Party (Tory 1922 Committee).

1. Office of Prime Minister “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)

1. Office of Prime Minister • Enhancing power • Large parliamentary majority • Unified cabinet • Recent 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 • Recession/economic crisis • International crisis, poorly-handled • Strong, credible Opposition • Party • Press • public • (From Dorey – Policy Making in Britain)

1. Office of Prime Minister The Prime Minister’s Office Policy unit only established 1974. Provides PM with independent source of policy advice. Staffed by about 100 people. Works in conjunction with Cabinet Office – indicative of growing executive government. Blair in 1997 introduced Strategic Communications Unit to co-ordinate media relations of departments and ministers.

2. Cabinet and Government • Cabinet is sub-set of government, comprised of senior ministers (usually 20-25). • Cabinet ministers generally referred to as Secretaries of State. • http://www.bbc.co.uk/news/uk-politics-19475248

2. Cabinet and Government The Cabinet is made up of the senior members of government. Every Tuesday during Parliament, members of the Cabinet (Secretaries of State from all departments and some other ministers) meet to discuss what are the most important issues for the government. Cabinet committees – chaired by PM or senior Cabinet ministers.

2. Cabinet and Government Cutting the deficit - coalition partnership of Osborne and Alexander Prime Minister and his Chancellor

2. Cabinet and Government Power of Cabinet has declined in recent decades. 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.”

2. Cabinet and Government • More power located in informal collections of close, sometimes unelected (special advisers – spin doctors), colleagues: kitchen cabinets, sofa government. • For Blair, Alistair Campbell (Press Secretary)and Jonathan Powell, (Chief of Staff who played significant role in Good Friday agreement) • For Thatcher , Charles Powell (Foreign Adviser) and Bernard Ingham, (Press Secretary)

2. Cabinet and Government • For Cameron, Andy Coulson, Press Secretary (had to leave when he became the story), Craig Oliver current Director of Communications; and Steve Hilton, Director of Strategy (went to US but still in touch). • http://www.independent.co.uk/voices/commentators/andrew-grice/andrew-grice-relations-between-the-pms-two-closest-aides-go-from-bad-to-worse-2187950.html

2. Cabinet and Government Cabinet Office – civil service of the Cabinet https://www.gov.uk/government/organisations/cabinet-office Cabinet Secretariat – group of about 30 seconded senior civil servants. Secretariat made up of six separate departmental secretariats, including Economic and Domestic Affairs Secretariat, European Secretariat, Intelligence Support Secretariat.

2. Cabinet and Government Governments can number between 80 and 100 plus ministers. Most junior ministerial post is parliamentary under-secretary, ranking below secretaries of state and ministers. Parliamentary private secretaries are junior posts often ascribed to ambitious MPs who aspire to become Ministers. Gordon Brown brought in outsiders and made them peers to join the government - undemocratic

2. Cabinet and Government Government departments crucial area of government – headed by ministers with civil servant permanent secretary who provides policy advice and in charge of the daily work of the department. Ministers make policy and civil servants implement policy. New Labour introduced idea of ‘joined-up government’ with greater co-ordination between departments and agencies, private and voluntary sectors, and public.

3. Collective Responsibility and Ministerial Code Ministers are bound by collective responsibility – they publicly endorse Cabinet decisions after debate and decisions taken (even if they disagree). Sometimes, disagreements are too strong and Minister resigns. Robin Cook former Labour Foreign Secretary resigned over the war in Iraq. http://www.youtube.com/watch?v=I0f8NBlmwwE Coalition agreement allows for some Cabinet dissent between Conservatives and Lib Dems in some areas.

3. Collective Responsibility and Ministerial Code Ministerial responsibility doctrine – Ministers should resign if serious error or scandal occurs in their Departments. Occurs less so now. Jeremy Hunt defied calls for resignation as Culture Secretary about News Corp’s takeover bid for BSkyB. But Liam Fox resigned as Defence Secretary in 2011 over links with his friend and corporate lobbyist Adam Werritty. http://www.bbc.co.uk/news/uk-politics-15300751

3. Collective Responsibility and Ministerial Code Ministerial code redrafted in Coalition agreement. https://www.gov.uk/government/publications/ministerial-code Principles include: Provision of accurate and truthful information to Parliament, require no conflict between public duties and private interests, must not accept gifts or hospitality that compromises their judgement, not use government resources for party political purposes, etc. Register of Members’ Financial Interests: http://www.publications.parliament.uk/pa/cm/cmregmem.htm http://www.telegraph.co.uk/earth/greenpolitics/planning/10031082/Shareholding-not-recorded-in-the-Ministerial-List-of-Interests.html

4. Civil Service • Professional civil service serve the government - political neutrality - non partisan, does not change with change of government • Cabinet Secretary – Sir Jeremy Heywood • Permanent Secretaries – serve his/her secretary of state or minister. Senior civil servants known as ‘mandarins’. • Collective term for the administrative structure • Also known as ‘Whitehall’

4. Civil Service In 2009 total civil service staff numbered just under 490,000. Their numbers have declined from 735,000 in 1979. Contra Whitehall image, only about 16% of UK-based civil servants work in London. New chief executive role: http://www.theguardian.com/politics/2014/oct/02/first-civil-service-chief-executive-john-manzoni Crisis with new Civil Service chief executive: http://www.theguardian.com/politics/2014/oct/30/civil-service-chief-step-down-second-job-sabmiller-drinks-firm

4. Civil Service Politicians and civil servants need to work together but the relationship can be tense. http://www.theguardian.com/politics/2013/sep/05/universal-credit-iain-duncan-smith New Labour were suspicious of the Civil Service. They were wary of civil servants who had prospered under the preceding Conservative government. Special advisers are party appointments and not civil servants. They leave position if Minister resigns or sacked.

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

4. Civil Service Public sector lack of diversity: http://www.theguardian.com/society/2014/sep/11/public-sector-uk-lacks-diversity-study-trevor-phillips Recent government attempts to influence civil service: http://www.thetimes.co.uk/tto/news/politics/article4230261.ece http://www.thetimes.co.uk/tto/news/politics/article4230261.ece

5. Executive Agencies and Quangos Executive agencies are subsets of government departments that focus on delivery of policy rather than formulation of policy. Can allow Ministers to escape ministerial responsibility. Biggest executive agency is Jobcentre Plus. Now employs about 100,000 staff with annual budget of £4 billion.

5. Executive Agencies and Quangos Quangos(Quasi autonomous non governmental organisations)are often confused with executive agencies. They are non-departmental public bodies. Examples: Arts Council England. Comparatively high levels of autonomy (with criticisms of lack of accountability) http://www.parliament.uk/business/publications/research/key-issues-for-the-new-parliament/decentralisation-of-power/quangos/ http://www.telegraph.co.uk/news/politics/8063628/Quango-reform-full-list.html http://www.theguardian.com/news/datablog/2009/jul/07/public-finance-regulators

6. Coalition Agreement 2010 election resulted in hung parliament with no single party emerging with an overall majority in the House of Commons, for the first time since 1974. Coalition Agreement https://www.gov.uk/government/publications/the-coalition-documentation Mid-term Review: http://midtermreview.cabinetoffice.gov.uk Mid-term review press conference: https://www.youtube.com/watch?v=nl-xX25JFP8

6. Coalition Agreement Fragile state of Coalition and strategic differentiations before next election: http://www.theguardian.com/politics/2013/sep/17/no-lib-dem-split-tories-danny-alexander http://www.theguardian.com/politics/2014/nov/04/norman-baker-constant-battle-theresa-may-home-office

British Public Affairs (JN805)