Beginnings of the Prime Minister's party leadership

The modern Prime Minister is the leader of a major political party with millions of followers. In the general election of 1997, for example, 13.5 million people voted for the Labour Party led by Tony Blair; 9.6 million for the Conservative Party, led by John Major, the previous Prime Minister; and, 5.2 million for the Liberal Democrat Party led by Paddy Ashdown. Generally agreeing on policies, party leaders and their supporters suppress their differences of opinion at the polls for the sake of gaining a majority of seats in the Commons and being able to form a government.

Political parties first appeared during the Exclusion Crisis of 1678–1681. The Whigs, who believed in limited monarchy, wanted to exclude James Stuart from succeeding to the throne because he was a Catholic. The Tories, who believed in the "Divine Right of Kings", defended James' hereditary claim. These parties dominated British politics for over 150 years, with the Whigs evolving into the Liberal Party and the Tories into the Conservative. Even today, Conservatives are often called "Tories".

Political parties were not well organised or disciplined in the 17th century. They were more like factions with "members" drifting in and out, collaborating temporarily on issues when it was to their advantage, then disbanding when it was not. A major deterrent to the development of opposing parties was the idea that there could only be one "King's Party" and to oppose it would be disloyal or even treasonous. This idea lingered throughout the 18th century. Nevertheless, it became possible at the end of the 17th century to identify Parliaments and Ministries as being either "Whig" or "Tory" in composition.

Cabinet

The modern Prime Minister is also the leader of the Cabinet. A convention of the constitution, the modern Cabinet is a group of ministers — usually 22 — who formulate policies. As the political heads of government departments, Cabinet Ministers ensure that policies are carried out by permanent civil servants. Although the modern Prime Minister selects Ministers, appointment still rests with the Sovereign. With the Prime Minister as its leader, the Cabinet forms the executive branch of government.^[18]

The term "Cabinet" first appears after the Revolutionary Settlement to describe those ministers who conferred privately with the Sovereign. The growth of the Cabinet met with widespread complaint and opposition because its meetings were often held in secret and it excluded the ancient Privy Council from the Sovereign's circle of advisers, reducing it to an honorary body.^[19] The early Cabinet included the Treasurer and other department heads who sat on the Treasury bench as it does today. However, it might also include individuals who were not members of Parliament such as household officers (i.e. the Master of the Horse) and members of the royal family. The exclusion of non-members of Parliament from the Cabinet was essential to the development of ministerial accountability and responsibility.

Both William and Anne appointed and dismissed Cabinet members, attended meetings, made decisions, and followed up on actions. Relieving the Sovereign of these responsibilities and gaining control over the Cabinet's composition was an essential part of evolution of the Premiership.

This process began after the Hanoverian Succession. Although George I (1714–1727) attended Cabinet meetings at first, after 1717 he withdrew because he did not speak English and was bored with the discussions. George II (1727–1760) occasionally presided at Cabinet meetings but his grandson, George III (1760–1820), is known to have attended only two during his 60 year reign. Thus, the convention that Sovereigns do not attend Cabinet meetings was established primarily through royal indifference to the everyday tasks of governance. The Prime Minister became responsible for calling meetings, presiding, taking notes, and reporting to the Sovereign. These simple executive tasks naturally gave the Prime Minister ascendancy over his Cabinet colleagues.^[20]

Although the first three Hanoverians rarely attended Cabinet meetings, they insisted on their prerogatives to appoint and dismiss ministers and to direct policy even if from outside the Cabinet. It was not until late in the 18th century that Prime Ministers gained control over Cabinet composition (see section Emergence of Cabinet Government below).