Article contents
Decision Arenas in Executive Decision Making: Cabinet Committees in Comparative Perspective
Published online by Cambridge University Press: 27 January 2009
Extract
Decision making in political executives is an oddly neglected subject in political science. The roles played by both formal institutions and less formal mechanisms in arriving at decisions in political executives are surprisingly understudied. There have been some important comparative studies of political executives but these have tended to focus on the role of the head of the political executive – the president or prime minister. The distinctive nature of cabinet systems as against presidential systems has been well brought out but a comparative framework for the analysis of variations among cabinet systems in the role of decision arenas other than the full cabinet has not been developed. Blondel in his wide-ranging survey of government structures gives only a passing mention to cabinet committees. Accordingly, in seeking to place the roles of cabinet committees in perspective, we have found it necessary to develop our own framework of decision arenas in cabinet systems.
- Type
- Articles
- Information
- Copyright
- Copyright © Cambridge University Press 1984
References
1 See especially Rose, Richard and Suleiman, Ezra, eds, Presidents and Prime Ministers (Washington, DC: American Enterprise Institute, 1980).Google Scholar
2 Rose, Richard, ‘Government against Sub-governments: a European Perspective’Google Scholar, in Rose, and Suleiman, , eds, Presidents and Prime Ministers, pp. 284–347.Google Scholar
3 Blondel, Jean, The Organization of Governments: a Comparative Analysis of Governmental Structures (London and Beverly Hills: Sage, 1980), p. 223.Google Scholar
4 These countries are Australia, Austria, Belgium, Canada, Denmark, Finland, Iceland, Ireland, Israel, Italy, Japan, Luxembourg, the Netherlands, New Zealand, Norway, Sweden, Switzerland, the United Kingdom and West Germany. Our original intention was simply to explore the extent to which these countries made information about cabinet committees easily available, and in particular whether Britain was unusually secretive. Our finding was that Britain is much more secretive than other countries, though the announcement of the names and chairmanship of four standing committees in 1979 marked a greater though still limited degree of openness; see House of Commons Debates, 24 05 1979Google Scholar. We asked the embassies or high commissions of the countries concerned whether they had cabinet committees and, if so, to provide us with a list of them. Almost all of them provided this information willingly, and in a number of cases provided us with considerable additional information. It was this which led us to tackle the more ambitious project of comparison of the composition and operation of cabinet committees. For fuller information on the composition of cabinet committees see the tables in Mackie, Thomas T. and Hogwood, Brian, ‘Cabinet Committees in Executive Decision-Making: a Comparative Perspective’ (Glasgow: University of Strathclyde, Centre for the Study of Public Policy, Studies in Public Policy, No. 111, 1983)Google Scholar. The data on which this article is based are patchy, with full information available on some aspects for one set of countries and information on other aspects for a different set of countries. In particular lack of information means that we do not attempt to cover the roles of cabinet committees consisting only of officiais or of a mixture of ministers and officials such as exist in the United Kingdom and Canada. Similarly the important roles of cabinet secretaries are not covered in this paper.
5 A table setting out cabinet committee structure in Australia, Belgium, Canada, Denmark, Finland, West Germany, Israel, Japan, the Netherlands, New Zealand, Switzerland and the United Kingdom is available from the authors.
6 Herman, Valentine, ‘Comparative Perspectives on Ministerial Stability in Britain’, in Herman, Valentine and Alt, James, eds, Cabinet Studies: a Reader (London: Macmillan, 1975), p. 64.Google Scholar
7 Vinde, Pierre and Petri, Gunnar, Swedish Government Administration, 2nd revised edn (Stockholm: Swedish Institute, 1978), p. 30.Google Scholar
8 Kellas, James, The Scottish Political System, 2nd edn (Cambridge: Cambridge University Press, 1975), p. 46.Google Scholar
9 See Franklin, Mark and Browne, Eric, ‘Aspects of Coalition Payoffs in European Parliamentary Democracies’, American Political Science Review, LXVII (1973), 453–69.Google Scholar
10 Mallory, James R., The Structure of Canadian Government (New York: St Martin's Press, 1971), p. 96.Google Scholar
11 Van Hassel, Hugo, ‘Organising Belgian Cabinets: Governments in a Turmoil’, Res Publica, XXIII (1981), 277–306.Google Scholar
12 Aitkin, Donald and Jinks, Brian, Australian Political Institutions (Carlton, Victoria: Pitman Australia, 1980), p. 85.Google Scholar
13 See especially Walker, Patrick Gordon, The Cabinet, revised edn (Glasgow and London: Fontana/Collins, 1972), pp. 119–20Google Scholar and Kaufman, Gerald, How to be a Cabinet Minister (London: Sidgwick and Jackson, 1981), p. 72Google Scholar. Although it is generally true that the appointment of a committee chairman is particularly important in the British system, a strong minister can still have considerable influence in full cabinet. Such a minister can sometimes obtain the sympathy of ministers normally ideologically or personally opposed. For example, Tony Benn was able to persuade cabinet colleagues towards his view on worker co-operatives.
14 Page, Bruce, ‘The Secret Constitution’, New Statesman, 21 07 1978, p. 74.Google Scholar
15 SirPliatzky, Leo, Getting and Spending: Public Expenditure, Employment and Inflation (Oxford: Basil Blackwell, 1981), p. 178Google Scholar, emphasis added.
16 Hennessy, Peter, ‘How Bevin saved Britain's bomb’, The Times, 30 09 1982.Google Scholar
17 An exception to this generally applicable rule in Britain was when between 1976 and 1979 the Prime Minister James Callaghan allowed his deputy, Michael Foot, to reopen the question of public sector pay on a number of occasions, even though it had been settled in cabinet committee and even in previous full cabinet meetings.
18 See for example, SirWilson, Harold, The Labour Government 1964–70 (London: Weidenfeld and Nicolson/Michael Joseph, 1971)Google Scholar; Crossman, Richard, The Diaries of a Cabinet Minister, Volumes 1–3 (London: Hamish Hamilton/Jonathan Cape, 1975, 1976 and 1977)Google Scholar; and Castle, Barbara, The Castle Diaries 1974–76 (London: Weidenfeld and Nicolson, 1980).Google Scholar
19 Kogan, Maurice, ed., The Politics of Education: Edward Boyle and Anthony Crossland in Conversation with Maurice Kogan (Harmondsworth, Middlesex: Penguin, 1971), p. 160–1.Google Scholar
20 Kogan, , The Politics of Education, p. 105.Google Scholar
21 Jenkins, Roy ‘On being a minister’, Sunday Times, 17 01 1981Google Scholar (reprinted in Alt, Hermanand, eds, Cabinet Studies, pp. 210–20).Google Scholar
22 Butler, Lord and Crowther-Hunt, Lord, ‘Reflections on Cabinet Government’, Listener, 16 09 1965, pp. 407–11Google Scholar (reprinted in Herman, and Alt, , eds, Cabinet Studies, pp. 193–209).Google Scholar
23 Gallagher, Michael, ‘The Composition of Government in the Republic of Ireland, 1959–1980’, paper presented to the European Consortium for Political Research Workshop on the Composition of Governments in Parliamentary Regimes, Florence, 03 1980, p. 2, fn. 2.Google Scholar
24 See especially Walker, Gordon, The Cabinet, pp. 44–5Google Scholar and Jones, George, ‘Development of the Cabinet’ in Thornhill, W., ed., The Modernization of British Government (London: Pitman, 1975).Google Scholar
25 Blondel, , The Organization of Governments, p. 152.Google Scholar
26 Jones, , ‘Development of the Cabinet’, p. 42.Google Scholar
27 See, for example. Rose, , ‘Government against Sub-governments’, pp. 335–8Google Scholar and Walker, Gordon, Cabinet Government, pp. 88, 116.Google Scholar
28 Vinde, and Petri, , Swedish Government Administration.Google Scholar
29 Olsen, Johan, ‘Governing Norway: Segmentation, Anticipation and Consensus Formation’Google Scholar in Rose, and Suleiman, , eds, Presidents and Prime Ministers, p. 238.Google Scholar
30 Pliatzky, , Getting and Spending, pp. 36–7.Google Scholar
31 See for example Barnett, Lord, Inside the Treasury (London: André Deutsch, 1982), p. 41Google Scholar and Kaufman, , How to be a Cabinet Minister, p. 71.Google Scholar
32 Smith, R. F. I., ‘Australian Cabinet Structures and Procedures’, Report of the Royal Commission on Australian Government Administration, Appendix 4, 1976, p. 209.Google Scholar
33 Yeend, Geoffrey, ‘The Department of the Prime Minister and Cabinet in Perspective’Google Scholar, address to the Australian Capital Territory Branch of the Royal Australian Institute of Public Administration (1979).
34 Walker, Gordon, The Cabinet, p. 44Google Scholar and Kaufman, , How to be a Cabinet Minister, p. 611.Google Scholar
35 Walker, Gordon, The Cabinet, p. 119.Google Scholar
36 See fn. 13.
37 Walker, Gordon, The Cabinet, p. 119.Google Scholar
38 Butler, and Crowther-Hunt, , ‘Reflections on Cabinet Government’, p. 194.Google Scholar See also Kaufman, , How to be a Cabinet Minister, pp. 69, 72.Google Scholar
39 Britain 1982: An Official Handbook (London: HMSO, 1982), p. 47Google Scholar; emphasis added.
40 New Zealand Cabinet Office Manual, Chapter D, para. 4.1.
41 New Zealand Cabinet Office Manual, Chapter D, para 3·3; emphasis added.
42 Yeend, , ‘The Department of the Prime Minister and Cabinet in Perspective’, p. 11.Google Scholar
43 See Pliatzky, , Getting and Spending, pp. 140–1Google Scholar and Barnett, , Inside the Treasury, p. 18.Google Scholar
44 Barnett, , Inside the Treasury, p. 27.Google Scholar
45 Information about this important change relates specifically to the Labour Government which left office in 1979.
46 See The Economist, 24 04 1982, p. 27.Google Scholar
47 See The Times, 28 04 1982Google Scholar; emphasis added.
48 Walker, Gordon, The Cabinet, p. 90Google Scholar and Mackintosh, John P., The British Cabinet, 3rd edn (London: Stevens and Sons, 1971), pp. 24–5.Google Scholar
49 Walker, Gordon, The Cabinet.Google Scholar
50 Gowing, Margaret, Independence and Deterrence: Britain and Atomic Energy, 1945–52. Volume I: Policy Making (London: Macmillan, 1974), p. 20.Google Scholar
51 Gowing, , Independence and Deterrence, p. 21.Google Scholar
52 Walker, Gordon, The Cabinet, pp. 87–91.Google Scholar
53 Seymour-Ure, Colin, ‘The Distintegration of the Cabinet and the Neglected Question of Cabinet Reform’, Parliamentary Affairs, XXIV (1971), 196–207.Google Scholar
54 Jones, , ‘Development of the Cabinet’, p. 49.Google Scholar
55 See fn. 17.
56 Jones, , ‘Development of the Cabinet’, p. 31.Google Scholar
57 Kogan, , The Politics of Education.Google Scholar
58 Seymour-Ure, , ‘The Disintegration of the Cabinet’ p. 202.Google Scholar
59 Jones, , ‘Development of the Cabinet’, p. 31.Google Scholar
60 See Jones, , ‘Development of the Cabinet’, p. 33Google Scholar; and Seymour-Ure, , ‘The Disintegration of the Cabinet’, p. 202.Google Scholar
61 Jones, , ‘Development of the Cabinet’, p. 33Google Scholar; see also Seymour-Ure, , ‘The Disintegration of the Cabinet’, p. 202.Google Scholar
62 Vinde, and Petri, , Swedish Government Administration, p. 30.Google Scholar
63 Chubb, Basil, Cabinet Government in Ireland (Dublin: Institute of Public Administration, 1974, p. 145.Google Scholar
64 Christensen, Jørgen Grønnegård, ‘Growth by Exception: or the Vain Attempt to Impose Resource Scarcity on the Danish Public Sector’, Journal of Public Policy, 11 (1982), p. 13.Google Scholar
65 Solstad, Arve, ‘The Norwegian Coalition System’, Scandinavian Political Studies, IV (1969), p. 165.Google Scholar
66 Steiner, Kurt, Politics in Austria (Boston: Little, Brown, 1972), p. 254.Google Scholar
67 Solstad, , ‘The Norwegian Coalition System’, p. 164.Google Scholar
68 Engelmann, Fred, ‘Austria: The Pooling of Opposition’ in Dahl, R. A., ed., Political Opposition in Western Democracies (New Haven: Yale University Press, 1966), p. 270.Google Scholar
69 Calculated from data presented in Peter Gerlich, Ross, Georg and Stiefbold, Rodney, eds, Osterreichisches Wahlhandbuch (Vienna: Verlag für Jugend und Volk, 1968), pp. 195–203, Volume IV Nationalratswahl 1966.Google Scholar
70 Crisp, L. F., Australian National Government (Melbourne: Longman Cheshire, 1973), p. 394.Google Scholar
71 Smith, , ‘Australian Cabinet Structures and Procedures’, p. 202.Google Scholar
72 See Steel, David, A House Divided: The Lib-Lab Pact and the Future of British Politics (London: Weidenfeld and Nicolson, 1980)Google Scholar and Mitchie, Alistair and Hoggart, Simon, The Pact: the Inside Story of the Lib-Lab Government, 1977–1978 (London: Quartet Books, 1978).Google Scholar
73 See the Financial Times, 10 03 1982.Google Scholar
74 See Ridley, Fred, ‘Chancellor Government as a Political System and the German Constitution’, Parliamentary Affairs, XIX (1966), 446–61Google Scholar and Mayntz, Renate, ‘Executive Leadership in Germany: Dispersion of Power or “Kanzlerdemokratie”?’Google Scholar in Rose, and Suleiman, , eds, Presidents and Prime Ministers, p. 143.Google Scholar
75 Seymour-Ure, ‘The Disintegration of the Cabinet’.Google Scholar
76 See for example Richardson, Jeremy and Jordan, Grant, Governing under Pressure: the Policy Process in a Post-Parliamentary Democracy (Oxford: Martin Robertson, 1979).Google Scholar
- 8
- Cited by