Leaders, Politics and Institutional Change: The Decline of Prime Ministerial Accountability to the House of Commons, 1868–1990

Abstract

In the Westminster system the prime minister's active participation in parliamentary proceedings is a key mechanism for ensuring the accountability of the executive. We survey the evolution of the four main prime ministerial activities across the period 1868–1990. There has been a long-term decline in prime ministers' speeches in the Commons, a stepped decline in debating interventions and a significant decrease in question-answering from the late nineteenth century to the 1950s. But prime ministerial statement-making increased after 1940, ebbing away again in the 1980s. And the downward drift in question-answering was halted by procedural innovations since the 1960s, which standardized the frequency of prime ministers' appearances and lead to the dominance of ‘open’ questions. We trace the varied impacts of institutional changes and shorter-term political or personal influences. The direct accountability of the prime minister to Parliament has undoubtedly declined, a trend probably paralleled by decreasing indirect accountability. These findings raise fundamental questions about executive-legislature relations in the United Kingdom