5 Conclusion
55. We welcome the intention behind the compilation
and publication of the draft Cabinet Manual. A document which
collects together in one place the laws, conventions, rules and
other practices under which Whitehall operates will make government
work better. It will primarily be of value to senior civil servants
advising their ministers about the extent of their powers and
how to conduct the business of government. This will include
their relationship with other bodies and institutions. To this
extent it is a welcome addition to the canon of guidance available.
It cannot be construed as the start of a written constitution.
56. We firmly expect the Cabinet Manual to evolve
over time. To this end we recommend three main improvements:
i. It should be clear about its aim—this
is primarily a document by the executive for the executive. Benefits
around greater transparency and public education are valuable
but incidental to this main purpose.
ii. The document must be fully and comprehensively
referenced. The Cabinet Office should consider the addition of
a second volume to include guidance not already documented elsewhere;
and
iii. It should distinguish more fully and clearly
the nature and status of the individual propositions in the Manual.
57. It follows that we do not consider that the Cabinet
Manual should be endorsed by either the Cabinet or Parliament.
It is strictly a guidance document for ministers and civil servants.
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