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BRITISH POLITICS

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MASTERING. BRITISH POLITICS

F. N. FORMAN

MMACMILLAN

© F. N. Forman 1985

All rights reserved. No part of this publicationmay be reproduced or transmitted, in any form orby any means, without permission

First published 1985

Published byMACMILLAN EDUCATION LTDHoundmills, Basingstoke, Hampshire RG21 2XS and LondonCompanies and representativesthroughout the world

British Library Cataloguing in Publication DataForman, F. N.Mastering British politics.-(Macmillan Master series)1. Great Britain-Politics and government-1979-1. Title II. Series320.941 JN231

ISBN 978-0-333-36651-6 ISBN 978-1-349-17778-3 (eBook)

DOI 10.1007/978-1-349-17778-3

To the memoryof my father

ACKNOWLEDGEMENTSThe author and publishers wish to thank the following who have kindlygiven permission for the use of copyright material:-

Cambridge University Press for figures from The Machinery of Justice inEngland by R. M. Jackson.

The Controller of Her Majesty's Stationery Office for an extract fromThe Government's Expenditure Plans 1984-5 and 1986-7 (Cmnd 9143).

F. W. S. Craig for a table from Britain Votes 3 published by ParliamentaryResearch Services.

The BBC and Mr Speaker for the front cover photograph showing theHouse of Commons Debating Chamber.

CONTENTSPreface xiiList of Tables and Diagrams xiii

I THE POLITICAL AND ELECTORAL CONTEXT 1

1 British political culture 1.1 Key characteristics 31.2 Other significant features 71.3 Conclusion 9

2 The living constitution 2.1 Key characteristics 112.2 Views of the constitution 142.3 The scope for change 172.4 Conclusion 20

3 The electoral system 3.1 The system today 223.2 Criteria of assessment 263.3 Conclusion 29

4 Voting behaviour 4.1 Groups in the electorate 324.2 Main influences on voting 374.3 Future uncertainties 424.4 Conclusion 46

II SOURCES OF POWER, PRESSURE AND OPINION 49

5 The political parties 5.1 Ideological principles 515.2 Political functions 575.3 National organisation 595.4 Constituency activities 685.5 Conclusion 73

6 Pressure groups 6.1 Main functions 776.2 Organisation and power 806.3 Involvement in politics 856.4 Conclusion 90

7 The media 7.1 The current situation 937.2 The influence of the press 997.3 The power of broadcasting 1037.4 Conclusion 108

CONTENTS

8 Public opinion 8.1 The composition of opinion 1118.2 The formation of opinion 1148.3 The effects of opinion 1168.4 Conclusion 120

flI PARLIAMENT 123

9 The Monarchy 9.1 Powers and functions 1259.2 The Monarchy and the public 1339.3 Conclusion 136

10 The House of Lords 10.1 Composition of the Lords 14010.2 Powers and functions 14210.3 Proposals for change 14910.4 Conclusion 150

11 The House of Commons 11.1 Composition of the Commons 15311.2 Principal powers 15711.3 Main functions 15911.4 Prospects for reform 16411.5 Conclusion 167

IV CENTRAL GOVERNMENT 171

12 Prime Minister and Cabinet 12.1 The machinery of Cabinetgovernment 174

12.2 The power of the PrimeMinister 181

12.3 The role of the Cabinet 18612.4 Conclusion 191

13 Policy- and decision-making 13.1 Stages in the process 195

13.2 Key aspects 203

13.3 Possible improvements 208

13.4 Conclusion 210

14 Ministers and Departments 14.1 The work of central 214Government 218

14.2 The role of Ministers14.3 The problems of central 223

Government 22514.4 Conclusion

IS The Civil Service 15.1 Composition and functions 22815.2 Key aspects 23315.3 Methods of control 23815.4 Possible future developments 24115.5 Conclusion 246

ix

V OTHER PUBLIC INSTITUTIONS 249

16 The public sector 16.1 Public corporations 25216.2 Methods of control 25616.3 Fringe bodies 25916.4 Other public bodies 26116.5 Future prospects 26416.6 Conclusion 266

17 Local government 17.1 Structure and composition 26917.2 Powers and functions 273

17.3 Relations with centralGovernment 276

17.4 Methods of central control 27817.5 Future possibilities 28417.6 Conclusion 288

18 The law and the judiciary 18.1 Criminal justice 29218.2 Civil justice 29518.3 Judicial appeal 29918.4 Citizens and the state 30218.5 Administrative law 30718.6 Conclusion 314

VI DEMOCRACY IN BRITAIN 319

19 British politics compared 19.1 Political culture 32119.2 Electoral systems 32319.3 Patterns of government 32419.4 Role of the bureaucracy 32519.5 Role of Parliament 32719.6 Legal systems 32819.7 Conclusion 330

20 British Parliamentary 20.1 The conditions of democracy 333

democracy 20.2 Essential characteristics 335

20.3 Other significant features 337

20.4 Some unresolved issues 340

20.5 Conclusion 342

Index ofsubjects 344Index ofauthors and politicians 356

PREFACEThis book is a general introduction to British politics. It is an attempt toconvey clear information about every significant aspect of the subject andto facilitate an adequate understanding of the British political system as awhole. However, within the compass of a brief introductory text it is notpossible to provide a detailed description or analysis of all the topicscovered. Readers who wish to delve more deeply into any particular aspectof the subject should turn to the suggestions for further reading at the endof each chapter.

Part I deals with the political and electoral context within which theprocess of British politics takes place. Chapter 1 considers British politicalculture which is defined as the historical, cultural and attitudinal settingwithin which British political institutions have to operate. Chapter 2considers the living constitution by describing the key characteristics andanalysing some of the main interpretations of constitutional developmentsin Britain. Chapter 3 describes the electoral system and assesses its strengthsand weaknesses in the eyes of academics and politicians alike. Chapter 4deals with voting behaviour by identifying the most significant groups inthe electorate, the main influences on voting and some notable uncertain­ties about the future.

Part II considers the sources of power, pressure and opinion within theBritish political system. Chapter 5 deals principally with the two majorpolitical parties by considering their ideological principles, political func­tions, national organisation and constituency activities. It also takesaccount of the other parties and the prospects for political change nowthat there are more than two viable contenders for power at national level.Chapter 6 deals with the main functions, organisation and power of pres­sure groups and analyses the nature of their involvement in the policy- anddecision-making process. Chapter 7 looks at the role of the media andassesses the nature and extent of their influence within the politicalsystem. Chapter 8 considers public opinion by seeking to clarify, its com­position, the process by which it is formed and its effects upon the rest ofBritish politics.

Part III describes the activity and significance of the three institutionswhich constitute Parliament in Britain. Chapter 9 considers the Monarchyby examining not only its powers and functions but also its relationshipwith the British public. Chapter 10 on the House of Lords describes thecomposition, powers and functions of that ancient institution and goes onto review briefly the various proposals for its reform. Chapter 11 on the

xi

House of Commons also begins by describing its composition, powers andfunctions before going on to review briefly the prospects for its reform.

Part IV deals with the main components of central Government inBritain. Chapter 12 describes the machinery of Cabinet government andgoes on to consider the power of the Prime Minister and the role of theCabinet. Chapter 13 looks at the policy- and decision-making process byidentifying the main stages and analysing some of the key aspects andpossible improvements. Chapter 14 describes the work of central Govern­ment Departments, considers the role of Ministers and reviews some ofthe key problems which arise in Whitehall. Chapter 15 deals with the civilservice, describing its composition and functions and considering thevarious methods of controlling the bureaucracy, as well as some possiblefuture developments.

Part V is concerned with the other public institutions in the Britishpolitical system. Chapter 16 deals with the public sector, notably theproblems posed by the public corporations and the continuing argumentabout how best to control them. The chapter also deals with fringe bodies(often known as Quasi-Autonomous Non-Governmental Organisations orQUANGOs) and other public bodies, such as the Water Authorities and theHealth Authorities. Chapter 17 describes the structure and composition,powers and functions of local government before going on to consider itsrelations with central Government and the various methods of centralcontrol. It also discusses some of the ways in which the balance betweencentral power and local autonomy might be changed in the future. Chapter18 on the law and the judiciary deals briefly with criminal justice, civiljustice and judicial appeal before examining the politically more signi­ficant issues of civil rights and administrative law.

Part VI considers some more philosophical questions about the natureand limits of democracy in Britain. Chapter 19 compares certain keyaspects of British politics with those of the United States, France and WestGermany. Chapter 20 concludes the book with a few broader observationsabout the essence of British Parliamentary democracy.

Many people have helped in the preparation of this book. I wouldparticularly like to thank the following for having given valuable time toread and comment upon various parts: Clifford Boulton, Kenneth Bradshaw,Keith Britto, Dr David Butler, Rt Hon. James Callaghan MP, John Cole,Professor Ivor Crewe, Bryan Davies, Charles Douglas-Home, Frank FieldMP, Robin Grove-White, John Hanvey, Rt Hon. Edward Heath MP, Hon.Douglas Hogg MP, Lord Hunt of Tanworth, Peter Kellner, David Lipsey,Dr Edmund Marshall, Peter McGregor, Dr David Menhennet, Dr JanetMorgan, Dr Roger Morgan, Chris Patten MP, William Plowden, Rt Hon.Enoch Powell MP, John Roper, John Sainty, Jack Straw MP, Alan Taylorand David Walter. I should also like to thank Dermot Englefield, Geoffrey

PREFACE

Lock and John Palmer in the Library of the House of Commons. Indeed,all the staff of that excellent institution have been unfailingly courteousand helpful in providing me with background material and advice.

Colleagues in the House of Commons and friends everywhere areasked to forgive the unintentionally pretentious title of the book. This wasmade necessary by the standard format of the Macmillan Masters series inwhich it is being published. Any insights achieved owe a great deal to thehelp and advice which I have received from those already mentioned andmany others with whom I have discussed aspects of British politics overthe years. Any errors of fact or opinion are, of course, entirely my ownresponsibility.

London, November 1983 F. N. Forman

TABLES AND DIAGRAMS1.1 Map of the British Isles 52.1 Classic liberal view of the constitution 152.2 Governmental view of the constitution 162.3 Empirical view of the constitution 183.1 Voting by party.Tune 1983 254.1 Profiles of some typical voters 375.1 Conservative party organisation 605.2 Labour party organisation 635.3 Liberal party organisation 675.4 Social Democratic party organisation 696.1 Pressure group involvement in politics 867.1 Main national newspapers 957.2 Structure of television and radio 978.1 The flow of public opinion 1129.1 Functions of the Monarchy 133

10.1 Functions of the House of Lords 14411.1 Functions of the House of Commons 16412.1 The structure of Cabinet committees 17713.1 The policy-and decision-making process 19514.1 The structure of central Government 21515.1 Civil service numbers to 1.4.1988 23016.1 The composition of the public sector 25117.1 The structure of local government in the United Kingdom 27017.2 The distribution of local authority powers and functions 27418.1 The system of Courts exercising criminal jurisdiction 29318.2 The system of Courts exercising civil jurisdiction 297