C. Parkinson: Parkinson's Law and Other Studies in Administration

For at this point of cabinet development (between 20 and 22 members) the whole committee suffers an abrupt organic or chemical change. The nature of this change is easy to trace and comprehend. In the first place, the five members who matter will have taken to meeting beforehand. With decisions already reached, little remains for the nominal executive to do. And, as a consequence of this, all resistance to the committee’s expansion comes to an end. More members will not waste more time; for the whole meeting is, in any case, a waste of time. So the pressure of outside groups is temporarily satisfied by the admission of their representatives, and decades may elapse before they realize how illusory their gain has been. With the doors wide open, membership rises from 20 to 30, from 30 to 40. There may soon be an instance of such a membership reaching the thousand mark. But this does not matter. For the cabinet has already ceased to be a real cabinet, and has been succeeded in its old functions by some other body.

Five times in English history the plant has moved through its life cycle. It would admittedly be difficult to prove that the first incarnation of the cabinet— the English Council of the Crown, now called the House of Lords— ever had a membership as small as five. When we first hear of it, indeed, its more intimate character had already been lost, with a hereditary membership varying from 29 to 50. Its subsequent expansion, however, kept pace with its loss of power. In round figures, it had 60 members in 1601, 140 in 1661, 220 in 1760, 400 in 1850, 650 in 1911, and 850 in 1952.

At what point in this progression did the inner committee appear in the womb of the peerage? It appeared in about 1257, its members being called the Lords of the King’s Council and numbering less than 10. They numbered no more than 11 in 1378, and as few still in 1410. Then, from the reign of Henry V, they began to multiply. The 20 of 1433 had become the 41 of 1504, the total reaching 172 before the council finally ceased to meet.

Within the King’s Council there developed the cabinet’s third incarnation— the Privy Council— with an original membership of nine. It rose to 20 in 1540, to 29 in 1547, and to 44 in 1558. The Privy Council as it ceased to be effective increased proportionately in size. It had 47 members in 1679, 67 in 1723, 200 in 1902, and 300 in 1951.

Within the Privy Council there developed the junto or Cabinet Council, which effectively superseded the former in about 1615. Numbering 8 when we first hear of it, its members had come to number 12 by about 1700, and 20 by 1725. The Cabinet Council was then superseded in about 1740 by an inner group, since called simply the Cabinet. Its development is best studied in tabular form. This is shown in Table I.

TABLE I— GROWTH OF THE ENGLISH CABINET

1740 5

1784 7

1801 12

1841 14

1885 16

1900 20

1915 22

1935 22

1939 23

1945 16

1945 20

1949 17

1954 18

From 1939, it will be apparent, there has been a struggle to save this institution; a struggle similar to the attempts made to save the Privy Council during the reign of Queen Elizabeth I. The Cabinet appeared to be in its decline in 1940, with an inner cabinet (of 5, 7, or 9 members) ready to take its place. The issue, however, remains in doubt. It is just possible that the British cabinet is still an important body.

Compared with the cabinet of Britain, the cabinet of the United States has shown an extraordinary resistance to political inflation. It had the appropriate number of 5 members in 1789, still only 7 by 1840, 9 by 1901, 10 by 1913, 11 by 1945, and then— against tradition— had come down to 10 again by 1953. Whether this attempt, begun in 1947, to restrict the membership will succeed for long is doubtful. All experience would suggest the inevitability of the previous trend. In the meanwhile, the United States enjoys (with Guatemala and El Salvador) a reputation for cabinet-exclusiveness, having actually fewer cabinet ministers than Nicaragua or Paraguay.

TABLE II - SIZE OF CABINETS

No. of Members

6 Honduras, Luxembourg

7 Haiti, Iceland, Switzerland

9 Costa Rica, Ecuador, N. Ireland, Liberia, Panama, Philippines, Uruguay

10 Guatemala, El Salvador, United States

11 Brazil, Nicaragua, Pakistan, Paraguay

12 Bolivia, Chile, Peru

13 Colombia, Dominican R., Norway, Thailand

14 Denmark, India, S. Africa, Sweden

15 Austria, Belgium, Finland, Iran, New Zealand, Portugal, Venezuela

16 Iraq, Netherlands, Turkey

17 Eire, Israel, Spain

18 Egypt, Gt. Britain, Mexico

19 W. Germany, Greece, Indonesia, Italy

20 Australia, Formosa, Japan

21 Argentina, Burma, Canada, France

22 China

24 E. Germany

26 Bulgaria

27 Cuba

29 Rumania

32 Czechoslovakia

35 Yugoslavia

38 USSR

How do other countries compare in this respect? The majority of non-totalitarian countries have cabinets that number between 12 and 20 members. Taking the average of over 60 countries, we find that it comes to over 16; the most popular numbers are 15 (seven instances) and 9 (seven again). Easily the queerest cabinet is that of New Zealand, one member of which has to be announced as “Minister of Lands, Minister of Forests, Minister of Maori Affairs, Minister in charge of Maori Trust Office and of Scenery Preservation.” The toastmaster at a New Zealand banquet must be equally ready to crave silence for “The Minister of Health, Minister Assistant to the Prime Minister, Minister in Charge of State Advances Corporation, Census, and Statistics Department, Public Trust Office and Publicity and Information.” In other lands this oriental profusion is fortunately rare.

A study of the British example would suggest that the point of ineffectiveness in a cabinet is reached when the total membership exceeds 20 or perhaps 21. The Council of the Crown, the King’s Council, the Privy Council had each passed the 20 mark when their decline began. The present British cabinet is just short of that number now, having recoiled from the abyss. We might be tempted to conclude from this that cabinets — or other committees — with a membership in excess of 21 are losing the reality of power and that those with a larger membership have already lost it. No such theory can be tenable, however, without statistical proof. Table II on the preceding page attempts to furnish part of it.

Should we be justified in drawing a line in that table under the name of France (21 cabinet members) with an explanatory note to say that the cabinet is not the real power in countries shown below that line? Some comitologists would accept that conclusion without further research.

Others emphasize the need for careful investigation, more especially around the borderline of 21. But that the coefficient of inefficiency must lie between 19 and 22 is now very generally agreed.

What tentative explanation can we offer for this hypothesis? Here we must distinguish sharply between fact and theory, between the symptom and the disease. About the most obvious symptom there is little disagreement. It is known that with over 20 members present a meeting begins to change character. Conversations develop separately at either end of the table. To make himself heard, the member has therefore to rise. Once on his feet, he cannot help making a speech, if only from force of habit. “Mr. Chairman,” he will begin, “I think I may assert without fear of contradiction — and I am speaking now from twenty-five (I might almost say twenty-seven) years of experience — that we must view this matter in the gravest light. A heavy responsibility rests upon us, sir, and I for one…” Amid all this drivel the useful men present, if there are any, exchange little notes that read, “Lunch with me tomorrow — we’ll fix it then.”