Prime ministers

A prime minister, premier or chief of cabinet is the head of the cabinet and the leader of the ministers in the executive branch of government, often in a parliamentary or semi-presidential system. Under those systems, a prime minister is not the head of state, but rather the head of government, serving under either a monarch in a democratic constitutional monarchy or under a president in a republican form of government.

In parliamentary systems fashioned after the Westminster system, the prime minister is the presiding and actual head of government and head/owner of the executive power. In such systems, the head of state or their official representative (e.g., monarch, president, governor-general) usually holds a largely ceremonial position, although often with reserve powers.

Under some presidential systems, such as South Korea and Peru, the prime minister is the leader or most senior member of the cabinet, not the head of government.

In many systems, the prime minister selects and may dismiss other members of the cabinet, and allocates posts to members within the government. In most systems, the prime minister is the presiding member and chairman of the cabinet. In a minority of systems, notably in semi-presidential systems, a prime minister is the official appointed to manage the civil service and execute the directives of the head of state.

Today, the prime minister is often, but not always, a member of the legislature or its lower house, and is expected with other ministers to ensure the passage of bills through the legislature. In some monarchies the monarch may also exercise executive powers (known as the royal prerogative) without the approval of parliament.

As well as being head of government, being prime minister may require holding other roles or posts—the prime minister of the United Kingdom, for example, is also First Lord of the Treasury and Minister for the Civil Service. In some cases, prime ministers may choose to hold additional ministerial posts (e.g. when the portfolio is critical to that government's mandate): during the Second World War, Winston Churchill was also Minister of Defence (although there was then no Ministry of Defence). Another example is the Thirty-fourth government of Israel , when Benjamin Netanyahu at one point served as the prime minister and minister of Communications, Foreign Affairs, Regional Cooperation, Economy, Defense and Interior.

Etymology

The term "prime minister" is attested in 17th Century sources referring to Cardinal Richelieu, after he was named ''premier ministre'' to head the French royal council in 1624. The title was used alongside the '' principal ministre d'État'' ("chief minister of the state") more as a job description. After 1661, Louis XIV and his descendants refused to allow one of their ministers to be more important than the others, so the term was no longer in use.

In the 18th century in the United Kingdom, members of parliament disparagingly used the title in reference to Sir Robert Walpole (whose official title was First Lord of the Treasury). During the whole of the 18th Century, Britain was involved in a prolonged conflict with France, periodically bursting into all-out war, and Britons took outspoken pride in their "Liberty" as contrasted to the "Tyranny" of French Absolute Monarchy; therefore, being implicitly compared with Richelieu was no compliment to Walpole. Over time, however, the title became honorific and remains so in the 21st century.

History

Origins

The monarchs of England and the United Kingdom had ministers in whom they placed special trust and who were regarded as the head of the government. Examples were Thomas Cromwell under Henry VIII; William Cecil, Lord Burghley under Elizabeth I; Clarendon under Charles II and Godolphin under Queen Anne. These ministers held a variety of formal posts, but were commonly known as "the minister", the "chief minister", the "first minister" and finally the "prime minister".

The power of these ministers depended entirely on the personal favour of the monarch. Although managing the parliament was among the necessary skills of holding high office, they did not depend on a parliamentary majority for their power. Although there was a cabinet, it was appointed entirely by the monarch, and the monarch usually presided over its meetings.

When the monarch grew tired of a first minister, he or she could be dismissed, or worse: Cromwell was executed and Clarendon driven into exile when they lost favour. Kings sometimes divided power equally between two or more ministers to prevent one minister from becoming too powerful. Late in Anne's reign, for example, the Tory ministers Harley and Viscount Bolingbroke shared power.

Development

In the mid 17th century, after the English Civil War (1642–1651), Parliament strengthened its position relative to the monarch then gained more power through the Glorious Revolution of 1688 and passage of the Bill of Rights in 1689. The monarch could no longer establish any law or impose any tax without its permission and thus the House of Commons became a part of the government. It is at this point that a modern style of prime minister begins to emerge.

A tipping point in the evolution of the prime ministership came with the death of Anne in 1714 and the accession of George I to the throne. George spoke no English, spent much of his time at his home in Hanover, and had neither knowledge of, nor interest in, the details of English government. In these circumstances it was inevitable that the king's first minister would become the ''de facto'' head of the government.

From 1721, this was the Whig politician Robert Walpole, who held office for twenty-one years. Walpole chaired cabinet meetings, appointed all the other ministers, dispensed the royal patronage and packed the House of Commons with his supporters. Under Walpole, the doctrine of cabinet solidarity developed. Walpole required that no minister other than himself have private dealings with the king, and also that when the cabinet had agreed on a policy, all ministers must defend it in public, or resign. As a later prime minister, Lord Melbourne, said, "It matters not what we say, gentlemen, so long as we all say the same thing."

Walpole always denied that he was "prime minister", and throughout the 18th century parliamentarians and legal scholars continued to deny that any such position was known to the Constitution. George II and George III made strenuous efforts to reclaim the personal power of the monarch, but the increasing complexity and expense of government meant that a minister who could command the loyalty of the Commons was increasingly necessary. The long tenure of the wartime prime minister William Pitt the Younger (1783–1801), combined with the mental illness of George III, consolidated the power of the post. The title "prime minister" was first referred to on government documents during the administration of Benjamin Disraeli but did not appear in the formal British Order of precedence until 1905.

The prestige of British institutions in the 19th century and the growth of the British Empire saw the British model of cabinet government, headed by a prime minister, widely copied, both in other European countries and in British colonial territories as they developed self-government. In some places alternative titles such as "premier", "chief minister", "first minister of state", "president of the council" or "chancellor" were adopted, but the essentials of the office were the same.

Modern usage

In the late 20th century, many of the world's countries had prime ministers or equivalent ministers, holding office under either constitutional monarchies or ceremonial presidents. The main exceptions to this system include Switzerland and the United States, as well as the presidential republics in Latin America, such as Chile and Mexico, modelled on the U.S. system in which the president directly exercises executive authority.

Bahrain's former prime minister, Sheikh Khalifah bin Sulman Al Khalifah, occupied the post for about 50 years, from 1970 to November 2020, making him the longest serving non-elected prime minister.

Overview of the Office

In monarchies and in republics

The post of prime minister may be encountered both in constitutional monarchies (such as Belgium, Denmark, Japan, Luxembourg, the Netherlands, Norway, Malaysia, Morocco, Spain, Sweden, Thailand, Canada, Australia, New Zealand, and the United Kingdom) and in parliamentary republics, in which the head of state is an elected official (such as Bangladesh, Finland, the Czech Republic, France, Greece, Hungary, India, Indonesia (1945–66), Ireland, Nigeria (1960–66), Pakistan, Portugal, Montenegro, Croatia, Bulgaria, Romania, Serbia, Turkey (1923–2018) and Italy). See also "First Minister", "Premier", " Chief Minister", "Chancellor", "Taoiseach", "Minister of State (''Statsminister'')", "President of the Government", "President of the Council of Ministers" and " Secretary of State": alternative titles usually equivalent in meaning to, or translated as, "prime minister". Both Indonesia and Nigeria lost their positions as prime ministers in 1966. Brazil, Iran, the Philippines and Turkey also lost their positions as prime ministers. Chile, Mexico, Switzerland and the United States never had positions as prime ministers.

This contrasts with the presidential system, in which the president (or equivalent) is both the head of state and the head of the government. In some presidential and all semi-presidential systems, such as those of China, France, Russia, South Korea or Ukraine, the prime minister is an official generally appointed by the president but usually approved by the legislature and responsible for carrying out the directives of the president and managing the civil service. The premier of the Republic of China (Taiwan) is also appointed by the president, but requires no approval by the legislature.

Appointment of the prime minister of France requires no approval by the parliament either, but the parliament may force the resignation of the government. In these systems, it is possible for the president and the prime minister to be from different political parties if the legislature is controlled by a party different from that of the president. When it arises, such a state of affairs is usually referred to as (political) cohabitation.

Entry into office

In parliamentary systems a prime minister may enter into office by several means.

* The head of state appoints a prime minister, of their personal choice: Example: France, where the President has the power to appoint the Prime Minister of their choice, though the National Assembly can force a government to resign, they cannot nominate or appoint a new candidate.
:While in practice most prime ministers under the Westminster system (including Australia, Canada, New Zealand, Malaysia, India and the United Kingdom) are the leaders of the largest party or coalition in parliament, technically the appointment of the prime minister is de jure exercised by the head of state.
* The head of state appoints a prime minister who has a set timescale within which they must gain a vote of confidence: Example: Italy, Romania, Thailand
* The head of state appoints a formateur from among the members of Parliament, who then has a set timescale within which they must form a cabinet, and receive the confidence of Parliament after presenting the Cabinet Composition and Legislative Program to Parliament, and the formateur becomes Prime Minister once approved by parliament: Example: Israel
* The head of state appoints the leader of the political party with the majority of the seats in the Parliament as Prime Minister. If no party has a majority, then the leader of the party with a plurality of seats is given an ''exploratory mandate'' to receive the confidence of the parliament within three days. If this is not possible, then the leader of the party with the second highest seat number is given the exploratory mandate. If this fails, then the leader of the third largest party is given it and so on: Example: Greece, see Prime Minister of Greece
* The head of state ''nominates'' a candidate for prime minister who is then submitted to parliament for approval before appointment as prime minister: Example: Spain, where the King sends a nomination to parliament for approval. Also Germany where under the German Basic Law (constitution) the Bundestag votes on a candidate nominated by the federal president. In the Philippines under the 1973 Constitution as amended after martial law, the Prime Minister was elected by the Batasang Pambansâ (Legislature) upon nomination by the President. In these cases, parliament can choose another candidate who then would be appointed by the head of state (or, in the case of the Philippines, outright elect that candidate).
* Parliament ''nominates'' a candidate who the head of state is then constitutionally obliged to appoint as prime minister: Example: Ireland, where the President appoints the Taoiseach on the nomination of Dáil Éireann. Also Japan.
* Election by the Legislature: Example: the Philippines under the unamended 1973 Constitution, where the prime minister was supposed to be elected by the Batasang Pambansâ; these provisions were never used because the Philippines was under martial law at the time. Also Vanuatu.
* Direct election by popular vote: Example: Israel, 1996–2001, where the prime minister was elected in a general election, with no regard to political affiliation.
* Nomination by a state office holder other than the head of state or his/her representative: Example: Under the modern Swedish Instrument of Government, the power to appoint someone to form a government has been moved from the monarch to the Speaker of Parliament and the parliament itself. The speaker nominates a candidate, who is then elected to prime minister (''statsminister'') by the parliament if an absolute majority of the members of parliament does not vote no (i.e. he can be elected even if more MP:s vote ''no'' than ''yes'').

Exit from office

Most prime ministers in parliamentary systems are not appointed for a specific term in office and in effect may remain in power through a number of elections and parliaments. For example, Margaret Thatcher was only ever appointed prime minister on ''one'' occasion, in 1979. She remained ''continuously'' in power until 1990, though she used the assembly of each House of Commons after a general election to reshuffle her cabinet.

Some states, however, do have a term of office of the prime minister linked to the period in office of the parliament. Hence the Irish Taoiseach is formally ' renominated' after every general election. (Some constitutional experts have questioned whether this process is actually in keeping with the provisions of the Irish constitution, which ''appear'' to suggest that a taoiseach should remain in office, without the requirement of a renomination, unless s/he has clearly lost the general election.) The position of prime minister is normally chosen from the political party that commands majority of seats in the lower house of parliament.

In parliamentary systems, governments are generally required to have the confidence of the lower house of parliament (though a small minority of parliaments, by giving a right to block supply to upper houses, in effect make the cabinet responsible to both houses, though in reality upper houses, even when they have the power, rarely exercise it). Where they lose a ''vote of confidence'', have a ''motion of no confidence'' passed against them, or where they lose supply, most constitutional systems require either:

The latter in effect allows the government to appeal the opposition of parliament to the electorate. However, in many jurisdictions a head of state ''may'' refuse a parliamentary dissolution, requiring the resignation of the prime minister and his or her government. In most modern parliamentary systems, the prime minister is the person who decides when to request a parliamentary dissolution.

Older constitutions often vest this power in the cabinet. In the United Kingdom, for example, the tradition whereby it is the prime minister who requests a dissolution of parliament dates back to 1918. Prior to then, it was the ''entire'' government that made the request. Similarly, though the modern 1937 Irish constitution grants to the Taoiseach the right to make the request, the earlier 1922 Irish Free State Constitution

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