Cabinet of New Zealand

Swearing-in of ministers by Governor-General Dame Patsy Reddy, 26 October 2017. Cabinet members are first appointed as executive councillors before receiving warrants for their ministerial portfolios.

Cabinet is not established by any statute or constitutional document but exists purely by long-established constitutional convention.[2][3] This convention carries sufficient weight for many official declarations and regulations to refer to Cabinet, and a government department—the Department of the Prime Minister and Cabinet—is responsible for supporting it. Although Cabinet lacks any direct legislative framework for its existence, the Cabinet Manual has become the official document which governs its functions, and on which its convention rests.[3][4]

The structure of Cabinet has as its basis the formal institution known as the Executive Council, the body tasked with advising the governor-general in the exercise of his or her formal constitutional functions (i.e. the Governor-General in Council).[5] Most ministers hold membership of both bodies, but some executive councillors—known as "ministers outside Cabinet"—do not attend Cabinet. The convention of members of the Executive Council meeting separately from the Governor began during Edward Stafford's first tenure as premier (1856–1861).[6] Stafford, a long-time advocate of responsible government in New Zealand, believed the colonial government should have full control over all its affairs, without the intervention of the Governor. Because the Governor chaired the Executive Council, Stafford intentionally met with his ministers without the Governor present, thus reducing the Executive Council to its formal role.[6]

A meeting of Cabinet in 1972. At this time, Cabinet members were usually Pākehā and male; Whetu Tirikatene-Sullivan (seated second from the centre) was the only female Cabinet minister.

The lack of formal legislation establishing Cabinet leaves the powers of its members only loosely defined. Cabinet generally directs and controls policy (releasing government policy statements), and is responsible to the House of Representatives (the elected component of Parliament). It also has significant influence over lawmaking. Convention regarding Cabinet's authority has considerable force, and generally proves strong enough to bind its participants. Theoretically, each minister operates independently, having received a ministerial warrant over a certain field from the Crown. But the governor-general can dismiss a minister at any time, conventionally on the advice of the prime minister, so ministers are largely obliged to work within a certain framework.[3]

The 1993 referendum in New Zealand resulted in a number of structural changes to Cabinet. The change to the MMP system ultimately led to a larger number of political parties in Parliament, as under the proportional representation system any political party can enter Parliament if they received five percent of the party vote or won one electorate seat.[15] The increased representation resulted in the need to form coalitions between parties, as no single party has received a majority of votes and seats under MMP.[16]

In order to govern in a coalition under MMP, it is likely that a major party will have to relinquish and offer Cabinet positions to members of a minority party. The aftermath of the first MMP election in 1996 highlighted the changes resulting from the new proportional parliament. New Zealand First received 13.4% of the party vote, giving them 17 total seats in the House of Representatives (in contrast to 8.5% in the 1993 general election, conducted under the plurality voting system).[17] This ultimately resulted in the National–New Zealand First coalition as the National Party, who received 33.8% of the party vote, translating to 44 seats in the House, could not govern alone.[18]

Negotiations forming the new government took nearly two months however the ultimate result being that New Zealand First were to have five ministers inside Cabinet and four outside. This translated to having 36.4% of representation in the new government.[19] The Prime Minister following the 1996 election, Jim Bolger, was forced to tell his caucus during negotiations with New Zealand First, that he would not be able to satisfy all ambitions of the caucus, due to the forced inclusion of the minority party into the governmental framework, thus highlighting one of the challenges that came with MMP.[19]

The result of MMP on Cabinet structure in New Zealand is also highlighted below under the § Members heading. In the coalition deal following the election New Zealand First leader Winston Peters was given the position of deputy prime minister, and New Zealand First were given a number of ministerial portfolios including foreign affairs, infrastructure, regional economic development, and internal affairs.[20]

Photograph taken before the first meeting of the Cabinet of the Sixth Labour Government of New Zealand, Beehive, 26 October 2017

Members of Cabinet meet on a regular basis, usually weekly on a Monday,[21] to discuss the most important issues of government policy.[22] The meetings are chaired by the prime minister or, in the prime minister's absence, the next most senior minister in attendance, usually the deputy prime minister. Ministers outside Cabinet may occasionally be invited for the discussion of particular items with which they have been closely involved.[n 2] All Cabinet meetings are held behind closed doors, and the minutes are kept confidential.[2] However, usually shortly after the weekly meeting the prime minister holds a press conference to discuss important national issues.[23]

The Cabinet offices, including the room where Cabinet meets, are located on the top floor of the Beehive (the Executive Wing of Parliament Buildings).[24] Also attending meetings are the Cabinet secretary and deputy secretary, who are public servants leading the Cabinet Office.[25] The secretary and deputy secretary are not political appointments or members of Cabinet; their role at Cabinet meetings is to formulate and record the Cabinet's decisions and advise on procedure, not to offer policy advice.[26]

The prime minister assigns roles to ministers and ranks them in order to determine seniority. A minister's rank depends on factors such as "their length of service, the importance of their portfolio and their personal standing with the prime minister".[14] The deputy prime minister is the second-highest ranked, after the prime minister.[27] Under MMP, there are three categories of minister: ministers within the 'core' Cabinet, ministers outside Cabinet, and ministers from support parties (i.e. minor parties which have agreed to support a government party during confidence and supply votes).[14][28] The size of Cabinet has grown over time. In the 1890s, for example, there were seven Cabinet ministers.[29] The number of ministers within Cabinet increased in the period up until the 1970s, but has plateaued at 20 since 1972; this despite increases in the number of members of parliament. By contrast, the numbers of ministers outside Cabinet has grown, especially since the introduction of MMP.[28]

All ministers are formally styled "The Honourable",[30] except for the prime minister who uses the style "The Right Honourable" (abbreviated to "The Rt. Hon.").[31] Formerly some other senior ministers used "The Right Honourable" by virtue of membership of the Privy Council of the United Kingdom, but appointments were discontinued in 2000.[29]

A Cabinet Committee comprises a subset of the larger Cabinet, consisting of a number of ministers who have responsibility in related areas of policy. Cabinet committees go into considerably more detail than can be achieved at regular Cabinet meetings, discussing issues which do not need the input of ministers holding unrelated portfolios. Cabinet committee terms of reference and membership are determined by the Prime Minister and the exact number and makeup of committees changes with the Government. As of December 2020, there are 10 Cabinet committees:[34]

• Cabinet Appointments and Honours Committee (APH)
• Cabinet Business Committee (CBC)
• Cabinet Priorities Committee (CPC)
• Cabinet Economic Development Committee (DEV)
• Cabinet Environment, Energy and Climate Committee (ENV)
• Cabinet External Relations and Security Committee (ERS)
• Cabinet Government Administration and Expenditure Review Committee (GOV)
• Cabinet Legislation Committee (LEG)
• Cabinet Māori Crown Relations: Te Arawhiti Committee (MCR)
• Cabinet Social Wellbeing Committee (SWC)

Cabinet committees will often discuss matters under delegated authority or directly referred to them by Cabinet, and then report back the results of their deliberation. This can sometimes become a powerful tool for advancing certain policies, as was demonstrated in the Lange government. Roger Douglas, Minister of Finance, and his allies succeeded in dominating the finance committee, enabling them to determine what it recommended to Cabinet. The official recommendation of the finance committee was much harder for his opponents to fight than his individual claims in Cabinet would be. Douglas was able to pass measures that, had Cabinet deliberated on them itself rather than pass them to committee, would have been defeated.

• List of New Zealand governments
• Category:Members of the Cabinet of New Zealand

• Cabinet Manual 2017 - DPMC