The Prime Minister & Executive

The UK Executive is the branch of government responsible for the implementation and administration of laws and policies. It is headed by the Prime Minister and is comprised of several interconnected bodies and roles.

The Structure of the Executive

Prime Minister (PM): The head of government, responsible for leading the Executive and setting its overall direction.

The Cabinet: The principal decision-making body within the Executive, consisting of senior ministers (usually heads of key government departments) appointed by the Prime Minister.

Junior Ministers: Ministers who serve under Cabinet ministers and take responsibility for specific aspects of departmental work or policies.

Government Departments: Administrative units, each headed by a Secretary of State, overseeing areas such as health, education, defence, and foreign affairs.

Main Roles of the Executive

The UK Executive has three main roles within the government system:

Proposing Legislation: The Executive is responsible for drafting and introducing most of the bills considered by Parliament. These may include government bills addressing manifesto commitments, responses to emerging situations, or technical legislative requirements.

Proposing a Budget: The Executive, primarily through the Chancellor of the Exchequer, proposes the annual budget, setting out taxation and public spending plans, subject to parliamentary approval.

Policy Decisions within Laws and Budget: The Executive makes significant policy decisions within the framework of existing legislation and the budget, implementing government priorities and responding to events.

Main Powers of the Executive

The UK Executive possesses several important powers, allowing it to govern effectively:

• Royal Prerogative Powers: Traditional powers originally exercised by the monarch, but now largely exercised by ministers on the monarch’s behalf. These include the powers to deploy armed forces, make treaties, grant pardons, and issue passports.
• Initiation of Legislation: The Executive controls the majority of parliamentary time and sets the legislative agenda, determining when and how bills are introduced and debated.
• Secondary Legislative Power: The Executive can make secondary (or delegated) legislation, enabling ministers to fill in details of primary legislation through statutory instruments. This speeds up decision-making and implementation but is subject to parliamentary scrutiny.

The Concept of Ministerial Responsibility

Ministerial responsibility is a cornerstone of the UK’s constitutional system, ensuring government accountability to Parliament and, by extension, to the public.

Individual Ministerial Responsibility

This principle holds that each minister is responsible for the actions and performance of their department. If a serious error occurs, even without the minister’s direct involvement, they are expected to take responsibility, which may include resigning. For example, Sir Thomas Dugdale resigned as Minister of Agriculture in 1954 over the Crichel Down affair, even though he was not personally involved.

Collective Ministerial Responsibility

Under this convention, the Cabinet acts as a single body, collectively responsible for government decisions and policies. All ministers must publicly support Cabinet decisions, regardless of their personal views. If a minister cannot abide by a decision, they are expected to resign. This maintains the impression of government unity and coherence.

The Prime Minister and the Cabinet

The Prime Minister is primus inter pares (first among equals) in the Cabinet but has powers that set them apart from their colleagues.

The Power of the Prime Minister and Cabinet

• Agenda-setting: The PM controls Cabinet meetings, sets the agenda, and determines the frequency and length of meetings.
• Appointment and Dismissal: The PM appoints and removes ministers, granting them significant influence over the Cabinet’s composition and loyalty.
• Cabinet Committees: The PM establishes committees (often chaired by themselves or trusted allies) to make key decisions, sometimes bypassing the full Cabinet.
• Patronage and Honours: The PM can reward loyalty and service with honours, further consolidating authority.

Factors Governing the Prime Minister’s Selection of Ministers

When forming a Cabinet, the Prime Minister considers several factors:

• Ability and Experience: Selecting competent ministers who can effectively manage departments.
• Political Loyalty: Rewarding allies and ensuring Cabinet solidarity.
• Political Balance: Balancing representation from different party factions, regions, and social groups to maintain party unity and broaden appeal.
• Public Image: Appointing ministers who enhance the government’s reputation and respond well in the media.
• Parliamentary Support: Rewarding key MPs or factions to secure loyalty and votes in Parliament.

Factors Affecting the Relationship between Cabinet and Prime Minister

The balance of power between the PM and Cabinet is not fixed; it evolves due to both internal and external pressures:

• Prime Ministerial Leadership Style: Strong, charismatic PMs may dominate Cabinet; more consensual leaders may share power.
• Party Unity: Divided parties can reduce PM control (e.g., Boris Johnson’s final year).
• Parliamentary Majority: A large majority strengthens PM authority; a small or no majority can empower Cabinet or backbenchers (e.g., Theresa May after 2017).
• Events and External Crises: Major crises (wars, pandemics, financial crashes) can enhance or undermine the PM’s position depending on their response (e.g. Gordon Brown during the financial crisis in 2008).
• Personal Popularity and Media: Media image and public support can influence the PM’s standing within the Cabinet.

Changes in the Balance of Power

The balance of power between the Prime Minister and Cabinet has shifted over time. For example, Harold Wilson skilfully managed Cabinet divisions in the 1960s, whereas Margaret Thatcher’s dominance in the 1980s led to the perception of ‘presidential’ prime ministerial government until Cabinet resistance contributed to her downfall. Tony Blair, post-1997, further centralised decision-making, often relying on a close group of advisors and ‘sofa government.’

The Powers of the Prime Minister and Cabinet to Dictate Events and Determine Policy

A strong Prime Minister with support from a loyal Cabinet and a significant parliamentary majority can dictate the government’s legislative and policy agenda and respond decisively to events. However, Cabinet unity, party discipline, media scrutiny, and unforeseen crises can constrain their power.

Prime Ministers in Focus

Margaret Thatcher (1979–1990): 

Control: Thatcher transformed the UK’s political and economic landscape, implementing radical free-market reforms, privatising national industries, and curbing trade union power. She dominated Cabinet through a clear vision and by promoting loyalists, famously dismissing dissenters (“the men in grey suits”).

Lack of Control: Her domineering style eventually undermined her position; growing Cabinet and party discontent over issues such as the poll tax led to her resignation in 1990, illustrating the limits of prime ministerial power.

Tony Blair (1997–2007): 

Control: Blair exercised strong control over policy and Cabinet, centralising power in Downing Street and relying on a close circle of advisors. He implemented far-reaching constitutional reforms, including devolution and the Human Rights Act. His government enjoyed substantial parliamentary majorities, enabling him to pass significant legislation.

Lack of Control: Despite his dominance, Blair’s authority was diminished by divisions over the Iraq War, Cabinet resignations, and declining party loyalty, highlighting the constraints on the Executive, even for a powerful Prime Minister.

Summary

The UK Executive, led by the Prime Minister and Cabinet, wields significant power over government policy and decision-making. However, constitutional conventions, intra-party dynamics, parliamentary arithmetic, and public opinion ensure that neither the Prime Minister nor Cabinet holds unchecked authority. The balance of power in the Executive is continually shaped by personalities, events, and political context.