The government

The British government normally consists of over a hundred ministers and other officials chosen from both Houses of Parliament, who are appointed by the monarch on the advice of the Prime Minister. They belong to the party which forms the majority in the Commons, and are collectively responsible for the administration of national affairs. The government can vary considerably in the number of ministers and departments set up by the Prime Minister.

The Prime Minister, who is appointed by the monarch and is normally the leader of the majority party in the Commons, possesses a great deal of patronage in choosing ministers and deciding on the composition of the government. The Prime Minister's power stems from majority support in Parliament; from the authority to choose and dismiss minister; from the leadership of the party in the country; and from a control over policy-making. The Prime Minister usually sits in the Commons, as do most of the ministers, where they may all be questioned and held accountable for government actions and decisions. The Prime Minister has historically been the connection between the monarch and parliamentary government. This convention continues today in the weekly audience with the monarch, at which the policies and business of the government are discussed.

The Prime Minister consequently has great power within the British system of government, and there are arguments which suggest that the office has become like an all-powerful presidency. But there are considerable checks on this power, both inside and outside the party and Parliament, which make the analogy less than accurate. However, it does seem that there is a greater emphasis upon prime ministerial government in Britain today, rather than the traditional constitutional notions of Cabinet government.

The Cabinet is normally composed of up to twenty senior ministers from the government, who are chosen and presided over by the Prime Minister. Examples are the Chancellor of the Exchequer (Finance Minister), the Foreign Secretary, the Home Secretary, the Minister of Defence, the Secretary of State for Education and Science, and the Secretary of State for Trade and Industry. The Cabinet structure originated historically in meetings that the monarch had with leading ministers in a small royal Cabinet, outside the framework of the Privy Council. As the monarch gradually ceased to play a part in active politics because of the growth of parliamentary government and party politics, the Royal Cabinet developed more authority and independence, and became a parliamentary body.

Constitutional theory has traditionally argued that the Cabinet collectively initiates and decides government policy. It has control of the government apparatus and ministries because it is composed of members of the majority party in the Commons. But the convention that government rule is Cabinet rule seems to have become increasingly weaker. Since the Prime Minister is responsible for Cabinet agendas and for the control of Cabinet proceedings, the Cabinet itself can become merely a 'rubber-stamp' to policies which have already been decided upon by the Prime Minister, or by a smaller group sometimes called the 'Inner Cabinet'. Cabinet government appears to have lost some of its original impetus, although there are frequent demands that more deliberative power should be restored to it.

Much depends upon the personality of Prime Ministers in this situation. Some are strong and like to take the lead. Others have given the impression of working within the traditional Cabinet structure. Much of our information about the operation of the Cabinet comes from 'leaks', or information divulged by Cabinet ministers. Although the Cabinet meets in private and its discussions are meant to be secret, the public is usually and reliably informed of Cabinet deliberations by the media.

The mass and complexity of government business today, and the fact that ministers are very busy with their own departments, suggest that full debate in Cabinet on every item of policy is impossible. But it is widely felt that, while all the details cannot be discussed, the broad outlines of policy should be more vigorously debated in Cabinet. Critics argue that the present system concentrates too much power in the hands of the Prime Minister; overloads ministers with work; allows too many crucial decisions to be taken outside the Cabinet; and consequently reduces the notion of collective responsibility.

Ministerial responsibility is still an important constitutional concept, although some doubt its applicability today. Collective responsibility is that which all ministers, including those outside the Cabinet, share for government actions and policy. It means that Cabinet and other ministers should be seen to act as one. All must support a government decision in public, even though some may oppose it during the private deliberations. If a minister cannot do this, he or she may feel obliged to resign.

In addition to collective responsibility, a minister also has an individual responsibility for the work of the relevant government department. This means that the minister is answerable for any mistakes, wrongdoing or bad administration which occur, whether personally responsible for them or not. In such cases, the minister may resign, although this is not as common today as in the past. Such responsibility enables Parliament to maintain at least some control over executive actions because the minister is answerable to Parliament. The shadow of the Parliamentary Commissioner for Administration also hangs over the work of a minister and civil servants.

Government departments (or ministries) are the chief instruments by which central government implements government policy. A change of government does not necessarily alter the number or functions of these departments. However, some governments have occasionally instituted programmes which have involved the reorganization, or replacement of existing ministries. Examples of government departments are the Foreign Office, the Ministry of Defence, the Home Office, the Department of Education and Science, and the Treasury (of which the Chancellor of the Exchequer is head). Most of these central departments are in London and are collectively known as Whitehall.

The government departments are staffed by the Civil Service, which consists of career administrators. Civil servants are employed by central government in London and throughout the country, and are involved in a wide range of government activities. They are responsible to the minister in whose department they work for the implementation of government policies. A change of minister or government does not require a change of civil servants, since they are expected to be politically neutral and to serve the sitting government impartially. Restrictions on political activities and publication are consequently imposed upon civil servants in order to ensure neutrality. There are some 600, 000 civil servants in Britain today. Nearly half of these are women, but few of them achieve top ranks in the service.

There have been frequent accusations about the efficiency of the Civil Service, and civil servants do not have a particularly good public image, in spite of attempts at reform. It is often alleged that the service imposes a certain mentality upon the implementation of government policies, which successive ministers have been unable to combat. There may be some areas of concern. But the stereotyped image of the typical civil servant is not reflected in many who do a thorough, independent job of serving their political masters. The Civil Service is also highly regarded in other countries for its efficiency and impartiality.