Nick Clegg and David
Cameron’s press conference in the Rose Garden at 10 Downing Street was the
image which characterised the start of the current coalition in May 2010.
However, at that time many people believed that the
government was unlikely to last the full parliamentary term. Now, past the
halfway mark, most think that it probably will.
History is on the side of the coalition
surviving to the end. The Lloyd George coalition lasted for six years, in war
and peace, from 1916 to 1922. The National Government lasted nine years from
1931 to 1940 and the most recent example, Churchill’s all-party Second World
War coalition, lasted five years from 1940 to 1945.
Assuming that it does last, how could the current coalition be brought to a
neat conclusion, so that the parties do not end up fighting each other in an
election campaign, while still in government together? The example of the Caretaker
Government at the end of the last coalition in1945 offers a precedent.
Although Germany had been defeated, Labour leader Clement Attlee, was
willing to continue in coalition with the Conservatives and Liberals until
October 1945, when the new electoral register was due to be published.
Churchill made a counter offer for the coalition to last just until victory
over Japan was achieved, but the Labour Party decided instead to withdraw from
the coalition in May. Churchill then formed a Caretaker Government of
Conservative and allied Liberal National ministers for the two months leading
up to an election in July, with the Liberal and Labour parties leaving to campaign
on their own separate programmes.
Despite the rather different circumstances, the 1945 Caretaker Government could
provide a useful model for 2015. If the Liberal Democrats parted company from
the Conservatives before the election campaign started, the parties would be
seen to be offering their own independent manifestos, without an unseemly
squabble within the coalition. It could offer an advantage to the Conservatives
and Liberal Democrats in the campaign, as the Labour Party would find it
difficult to attack a coalition that no longer existed. Voters could also more
easily see that the Liberal Democrats were free to form a coalition with the
Labour Party after the next election, if Labour became the largest party but
without an overall majority.
There is another aspect of the Caretaker Government which David Cameron
might find tempting. The departure of the 25 Liberal Democrat ministers would
create openings in the cabinet and other ministerial ranks for more
Conservatives to be rewarded with office, however brief. For an overlooked
Conservative backbencher, two months in office might seem much better than
none. It would give David Cameron some incentives which he could offer to calm
some dissenting voices in his fractious party.
The Caretaker Government was slightly smaller than a normal administration,
comprising 88 ministers (the 1945 Labour government had 99).
For 13 of its 88 members, the Caretaker
Government gave them their only ministerial office. These ministers included
the appropriately named, Ronnie Tree, son of Arthur Tree and Ethel Field, who was
appointed as a junior minister in the Department of Town and Country Planning. Thelma
Cazalet-Kier’s one term of ministerial office was as Parliamentary Secretary at
the Department of Education in the Caretaker Government. She was one of two
female ministers: the other being Florence Horsbrugh, who later went on to
serve as Minister of Education in 1951.
The Caretaker Government contained two future prime ministers, Anthony Eden
and Harold Macmillan, and the sons of three former premiers. The 6
th
Earl of Rosebery, a former first class cricketer and son of the former Liberal
prime minister, was Secretary of State for Scotland. Richard Law, son of Andrew
Bonar Law, served as Thelma Cazalet-Keir’s boss at Education and Gwilym Lloyd
George, son of former Liberal prime minister David Lloyd George, served as
Minister for Fuel and Power. For Gwilym Lloyd George, still nominally a
Liberal, the Caretaker Government provided a stepping stone in his defection to
the Conservative Party, which was completed when he was elected as Conservative
MP for Newcastle North in 1951. He went on to become Conservative Home
Secretary in 1954.
Cabinet minutes show
that the Caretaker Government dealt with issues ranging from the constitutional
position of India to the illegal occupation of two houses in Brighton. Foreign
affairs naturally dominated most of the agendas, as the war in Europe had only
recently ended and Japan was still fighting. Clement Attlee, as Leader of the
Opposition, was consulted on a list of uncontroversial legislation which would
be enacted before the election and was shown papers on major issues of foreign
affairs and strategy.
The most
politically-sensitive issue during the Caretaker Government concerned whether the
Conservative Party should make an announcement on progress towards setting up
the National Health Service. A plan for the NHS had been outlined by the
wartime coalition in a white paper in February 1944. The Conservative ministers
were keen to show that they were working on the plans and did not want to be left
open to accusations that their party would withhold or delay the introduction
of the NHS. Aside from this, most of the other issues before the cabinet were
short-term and managerial, rather than long term and strategic or political.
No reshuffle took
place during the Caretaker Government’s term of office. Attendance at the,
more-or-less weekly, cabinet meetings fluctuated. Many ministers, including
Churchill, missed meetings because of official commitments, Anthony Eden was
ill with a duodenal ulcer and the Home Secretary, Donald Somervell, was absent
for a time after the death of his wife.
Overall, the 1945
Caretaker Government proved to be a useful firewall between an effective
coalition and a divisive election campaign. The Labour Party won the 1945
election by a large margin, but the main reasons for this stemmed back well
before the Caretaker Government. Attlee and the Labour ministers had proved
themselves competent administrators of domestic policy during the war, the
public wanted a brave new world and the Conservatives still carried the label
of ‘Guilty Men’ over their role in pre-war appeasement.
Churchill did make a
major blunder in the 1945 election campaign with his claim that the Labour Party
would set up a form of gestapo if they were elected, but this self-inflicted
problem did not cost him the election. Opinion polls, an innovation started
during the war, suggested that the Conservative Party was on course to lose the
election anyway.
Historians and commentators
tend to overlook the 1945 Caretaker Government, but perhaps it is time to
revisit it. For some politicians it was the highlight of their career.
The idea could be
resurrected by David Cameron in the run up to the 2015 election. If it is, we could
see another Rose Garden event to mark the end of the coalition in, say, March
2015 with a business-like handshake between Nick Clegg and David Cameron and an
acknowledgement that they had managed to maintain a good working relationship,
despite their political differences. The coalition would be finished. However, this
time another might well be on the cards after the election.