First Secretary of State
The First Secretary of State is a senior ministerial office in the Government of the United Kingdom, ranking immediately below the Prime Minister and signifying precedence over other Secretaries of State without assigning a specific departmental portfolio.[1][2] The role, established ad hoc by the Prime Minister to denote a deputising function and policy coordination duties, often overlaps with positions such as Deputy Prime Minister, Chancellor of the Exchequer, or Foreign Secretary, enabling the holder to stand in for the Prime Minister during absences and drive cross-government initiatives.[1][3] Introduced in July 1962 by Prime Minister Harold Macmillan, the office was first held by R. A. Butler, who was tasked with relieving the Prime Minister of responsibilities in home and overseas affairs amid a crowded cabinet.[4][5] Subsequent holders, including George Brown under Harold Wilson (1964–1966, combined with First Secretary of the Department of Economic Affairs) and Michael Heseltine under John Major (1995), exemplified its use to empower influential figures in economic planning, cabinet coordination, and crisis management.[6] More recently, appointments such as William Hague (2010–2015), George Osborne (2015–2016), and Dominic Raab (2021–2022) highlighted its role in bolstering key allies during periods of political turbulence, though the position remains undefined by statute and subject to the Prime Minister's discretion, leading to debates on its constitutional clarity.[2][7][6]Constitutional Framework
Legal Basis and Precedence
The office of First Secretary of State lacks any statutory definition within the United Kingdom's unwritten constitution, deriving instead from the royal prerogative exercised by the Prime Minister in appointing senior ministers to Cabinet positions.[8] This prerogative enables the creation of titles that signal internal hierarchy without requiring parliamentary legislation, allowing flexibility in denoting a deputy-like role amid the absence of a formal Deputy Prime Minister position in law.[1] As such, the title functions as a conventional marker of precedence rather than conferring independent legal powers or obligations. In terms of precedence, the First Secretary of State ranks immediately below the Prime Minister but above all other Secretaries of State in the ministerial order, a convention reflected in Cabinet listings and protocol.[1] [6] The role carries no dedicated departmental responsibilities, fixed salary, or dedicated vote in the Estimates; remuneration and substantive duties stem from any concurrent Cabinet portfolio, such as the Home Secretary or Chancellor of the Exchequer, underscoring its status as an adjunct honorific rather than a standalone office.[4] This arrangement was first operationalized in 1962 to provide hierarchical clarity during administrative coordination needs, illustrating the prerogative's utility in adapting executive structure without legislative rigidity.[6]Relation to Prime Minister and Cabinet
The First Secretary of State functions as a deputy to the Prime Minister, assuming responsibilities for coordinating Cabinet meetings and government business during the Prime Minister's temporary absence, such as overseas travel or illness.[1][9] This deputising role, evident in instances like William Hague's tenure from 2010 to 2014 where he acted in David Cameron's stead, operates without statutory entitlement to automatic succession upon the Prime Minister's permanent vacancy or resignation, distinguishing it from more rigid hereditary or elective systems elsewhere.[1] Instead, any assumption of Prime Ministerial duties in such scenarios depends on ad hoc designation by the monarch or party mechanisms, reflecting the UK's reliance on convention over codified law.[9] The office integrates with the Cabinet Office to facilitate policy oversight across departments, enabling the holder to drive implementation and advise on strategic priorities, yet this authority derives primarily from the Prime Minister's personal conferral rather than inherent legal mandate.[2] Causal power thus hinges on the incumbent's influence within the Cabinet and alignment with the Prime Minister, rather than formalized independence, which mitigates risks of divided executive authority in the UK's unitary system.[1] The title's precedence—ranking immediately below the Prime Minister but above other Secretaries of State—signals this seniority without implying bureaucratic autonomy, as empirical patterns show the role's effectiveness tied to the Prime Minister's trust rather than structural entitlements.[1] In contrast to the Leader of the House of Commons, who manages legislative scheduling and government whips' operations within Parliament, the First Secretary prioritizes executive coordination over parliamentary procedure.[1] It also differs from the Lord President of the Council, a position with ceremonial duties like presiding over the Privy Council and often bundled with the Leader of the House of Lords role, lacking the First Secretary's emphasis on Cabinet-level deputising.[10] The infrequent standalone creation of the office—typically merged with substantive departmental portfolios—avoids additive layers in Cabinet operations, preserving efficiency in a system where roles evolve pragmatically to meet contingent needs without entrenching redundant hierarchies.[1]Historical Development
Creation in 1962 and Early Macmillan Government
The office of First Secretary of State was created on 16 July 1962 when Prime Minister Harold Macmillan appointed Richard Austen Butler to the position during a major cabinet reshuffle, subsequently known as the "Night of the Long Knives." This innovation addressed the need for a senior ministerial role to coordinate complex policy areas, particularly economic planning and colonial affairs, without establishing additional departments or reviving the contested title of Deputy Prime Minister, which had encountered royal reservations during earlier administrations.[6] Butler, previously Home Secretary, assumed responsibility for the Central Africa Office, established in March 1962 to manage the impending dissolution of the Federation of Rhodesia and Nyasaland amid rising African nationalist pressures and decolonization demands. Concurrently, he oversaw coordination with the National Economic Development Council (NEDC), formed in February 1962 to foster long-term economic growth through tripartite consultations between government, employers, and unions, aiming for a 4% annual growth target. These duties reflected pragmatic responses to post-war economic stagnation and imperial retrenchment, emphasizing senior oversight for accountability in multifaceted governance challenges.[11] Butler's tenure, lasting until Macmillan's resignation on 18 October 1963, involved advancing NEDC initiatives that contributed to modest tariff reductions in international trade negotiations and efforts to modernize industrial planning. However, the role drew parliamentary scrutiny for potential duplication of the Chancellor of the Exchequer's economic authority, highlighting tensions in delineating responsibilities within the Cabinet. Unlike prior informal deputyships, such as those under Churchill or Eden, the titled position introduced a formalized mechanism for seniority, marking an empirical evolution toward structured executive support amid mid-20th-century administrative strains.[6][4]Sporadic Usage from 1970s to 1990s
After Barbara Castle's tenure as First Secretary of State ended in 1970, the position remained vacant throughout the 1970s and 1980s. No appointments were made under Conservative Prime Minister Edward Heath (1970–1974) or during the subsequent Labour governments of Harold Wilson (1974–1976) and James Callaghan (1976–1979).[1] Similarly, Margaret Thatcher's administrations from 1979 to 1990 did not utilize the role, reflecting her preference for direct prime ministerial control without formal deputy structures that could fragment authority.[1] The position was revived under John Major in 1995 amid internal Conservative Party tensions. On 5 July 1995, following a leadership challenge where Michael Heseltine provided key support to Major, Heseltine was appointed First Secretary of State alongside the newly created role of Deputy Prime Minister.[12] This appointment, which lasted until the 1997 general election, served to bolster Major's position and ensure continuity during a period of political vulnerability, as the government faced declining popularity and parliamentary arithmetic challenges.[13] Such intermittent use—from prolonged absence to targeted revival—highlighted the role's ad hoc application, typically aligned with Conservative governments' needs for factional balance or stability during leadership strains, in contrast to Labour's 1970s emphasis on collective cabinet decision-making without elevated sinecure titles. The scarcity of appointments prior to 1997, with the position held by only a select few individuals since its 1962 inception, underscored its peripheral status in British constitutional practice rather than a routine fixture of governance.[6]Revival Under Blair, Cameron, and Subsequent Governments
Under Tony Blair's Labour government, the First Secretary of State role gained renewed prominence, with John Prescott appointed to the position on 8 June 2001 while retaining his Deputy Prime Minister title from 1997 and oversight of the Department for Environment, Transport and the Regions until its 2001 restructuring into the Office of the Deputy Prime Minister.[14][15] This appointment supported New Labour's emphasis on cross-departmental coordination for sustainable development and regional policy implementation amid economic modernization efforts. Prescott held the role until 27 June 2007, bridging Blair's and Gordon Brown's administrations, though Brown did not immediately reappoint a successor, briefly utilizing Peter Mandelson as First Secretary in 2009 for strategic advisory functions during economic crisis management.[1] The Conservative-Liberal Democrat coalition under David Cameron revived the title for William Hague from May 2010 to May 2015, concurrent with his roles as Leader of the House of Commons and, initially, Foreign Secretary, to facilitate legislative coordination and coalition stability following the 2010 hung parliament.[2] George Osborne succeeded Hague, serving as First Secretary alongside Chancellor of the Exchequer until July 2016, emphasizing fiscal policy alignment post the 2015 majority election. Under Theresa May, Damian Green held the position briefly from June to October 2017, acting as a senior coordinator amid post-Brexit referendum turbulence, while David Lidington later functioned in a de facto deputy capacity without the formal title from 2018 to 2019.[2] Boris Johnson's 2019 government appointed Dominic Raab as First Secretary of State upon taking office on 24 July 2019, alongside Foreign Secretary duties, to manage Brexit delivery and provide continuity during high-stakes negotiations and the subsequent COVID-19 response, with Raab deputizing for Johnson in cabinet and international forums until September 2021. Rishi Sunak's premiership from October 2022 avoided appointing a First Secretary, relying instead on departmental secretaries for coordination amid economic pressures and internal party challenges. Keir Starmer's Labour government post-2024 election named Angela Rayner as Deputy Prime Minister and First Secretary of State, tasked with leveling-up and housing agendas, but she resigned on 5 September 2025 after the Prime Minister's ethics adviser determined she breached the ministerial code by not seeking tax advice on a property transaction, leaving the role vacant as of October 2025.[16][17][18] This post-1997 pattern indicates increased reliance on the First Secretary during periods of political fragmentation, such as coalitions or crises like Brexit, enabling prime ministers to delegate oversight without creating a statutory deputy, thereby maintaining executive flexibility. Empirical evidence from appointment timings correlates with minority or unstable majorities, as in 2010 and 2019, suggesting utility in load-sharing for decisive policy execution, a view aligned with conservative analyses favoring streamlined governance over fragmented mandates. Critics, however, contend the role risks unaccountable power concentration, as holders influence without specific electoral endorsement, potentially exacerbating perceptions of elite detachment in Westminster systems.[1][3]Responsibilities and Functions
Formal Duties and Advisory Role
The First Secretary of State holds no statutory duties defined by legislation, operating instead under conventions outlined in Cabinet Office protocols and the Cabinet Manual, which emphasize collective ministerial responsibility without assigning unique legal powers to the role.[19] The position's formal obligations center on advising the Prime Minister on the formulation, development, and execution of government policy across departments, ensuring alignment with overarching objectives.[2] This advisory function supports the Prime Minister in evaluating policy impacts and coordinating responses to emergent challenges, drawing on the incumbent's seniority to facilitate informed decision-making without independent authority to override departmental heads.[19] In the Prime Minister's absence, the First Secretary assumes the responsibility to chair cabinet committees and sub-committees, advancing agenda items and resolving inter-departmental disputes to sustain governmental momentum.[2] This deputizing role extends to representing the government in high-level engagements where continuity is required, though it does not confer automatic succession rights to the premiership or veto powers over cabinet proceedings.[19] The Cabinet Manual notes that such responsibilities adapt to specific circumstances, prioritizing operational efficiency in large-scale administrations over rigid protocols.[19] Unlike substantive departmental roles, the First Secretary of State lacks a dedicated budget, policy secretariat, or dedicated civil service staff, relying instead on shared resources from concurrent appointments—typically as a secretary of state for a major portfolio.[2] This overlap enables the promotion of cross-cutting initiatives, such as economic coordination during crises, but introduces risks of divided focus between departmental priorities and broader advisory mandates, as evidenced by precedents where incumbents balanced multiple remits without formalized safeguards against conflicts.[19] Accountability remains tied to collective cabinet responsibility under the Ministerial Code, requiring the holder to uphold standards of conduct without bespoke enforcement mechanisms.Informal Powers and Departmental Overlaps
The First Secretary of State exercises informal powers that function as a de facto deputyship to the Prime Minister, such as representing the government in public forums, chairing ad hoc cabinet committees, and coordinating inter-departmental responses during crises, though these derive entirely from the Prime Minister's discretionary trust rather than any statutory entitlement.[1][20] This arrangement allows the holder to step in during the Prime Minister's absences—due to travel, illness, or other commitments—facilitating continuity in leadership without formal acting-Prime-Minister protocols. Empirical patterns across appointments indicate that such influence peaks when the First Secretary enjoys close personal rapport with the Prime Minister, enabling proactive agenda-setting, but wanes in cases of strained dynamics, underscoring the role's reliance on relational capital over structural authority.[21] Departmental overlaps occur when the First Secretary concurrently holds a major portfolio, amplifying their sway through cross-cutting authority but intertwining their efficacy with the specific department's outcomes. For example, George Osborne's tenure as First Secretary from 11 May 2015 to 13 July 2016, alongside his ongoing role as Chancellor of the Exchequer, enabled him to direct economic policy integration across cabinet, including oversight of fiscal coordination with entities like the Department for Business, Innovation and Skills during austerity implementation from 2010 onward.[22] This dual remit, appointed by David Cameron post-2015 election, facilitated expedited Treasury-led initiatives but rendered Osborne accountable for macroeconomic fluctuations, such as GDP growth averaging 2.2% annually from 2013 to 2015 amid deficit reduction targets.[23] Similar overlaps, as with holders combining the position with the Foreign or Home Office, extend informal leverage into policy domains like security or international affairs, yet expose the role to departmental-specific risks without insulating mechanisms.[6] Historical data reveals these configurations enhance operational clout in merit-aligned pairings but yield inconsistent results when mismatched with the holder's expertise or Prime Ministerial priorities.[19]Office Holders and Tenures
List of First Secretaries of State
The position of First Secretary of State has not been held continuously since its creation in 1962, with significant periods without an appointee, including 1968–1995 and post-2021. Seven Conservative governments have utilized the role across six major appointments, compared to three under Labour, reflecting its occasional deployment as a deputy-like position rather than a fixed office. The following table enumerates verified holders, including terms, party affiliations, appointing prime ministers, and key concurrent roles, drawn from official records and government announcements.[2][6]| No. | Name | Term of office | Party | Prime Minister | Concurrent positions |
|---|---|---|---|---|---|
| 1 | R. A. Butler | 13 July 1962 – 18 October 1963 | Conservative | Harold Macmillan Alec Douglas-Home | Deputy Prime Minister Minister without Portfolio[6][5] |
| 2 | George Brown | 16 October 1964 – 15 March 1968 | Labour | Harold Wilson | Secretary of State for Economic Affairs (1964–1966) Secretary of State for Foreign Affairs (1966–1968)[24] |
| 3 | Michael Heseltine | 5 July 1995 – 2 May 1997 | Conservative | John Major | Deputy Prime Minister President of the Board of Trade[25][26] |
| 4 | John Prescott | 8 June 2001 – 27 June 2007 | Labour | Tony Blair Gordon Brown | Deputy Prime Minister Secretary of State for the Environment, Transport and the Regions (until 2001)[14][15] |
| 5 | Peter Mandelson | 3 October 2008 – 5 November 2010 | Labour | Gordon Brown | Secretary of State for Business, Innovation and Skills[27] |
| 6 | William Hague | 12 May 2010 – 8 July 2014 (continued as First Secretary until 2015 in subsequent roles) | Conservative | David Cameron | Secretary of State for Foreign and Commonwealth Affairs (2010–2014) Leader of the House of Commons (2014–2015) First Secretary of State (2014–2015)[2] |
| 7 | George Osborne | 11 May 2015 – 13 July 2016 | Conservative | David Cameron | Chancellor of the Exchequer[2] |
| 8 | Damian Green | 13 July 2017 – 20 June 2017 | Conservative | Theresa May | Minister without Portfolio[2] |
| 9 | Dominic Raab | 24 July 2019 – 15 September 2021 | Conservative | Boris Johnson | Secretary of State for Foreign and Commonwealth Affairs (2019–2020) Lord Chancellor and Secretary of State for Justice (2021, briefly)[6][28] |
Timeline of Appointments and Resignations
The office of First Secretary of State was established on 13 July 1962, when Prime Minister Harold Macmillan appointed R. A. Butler to the role amid cabinet reshuffles following the Night of the Long Knives, positioning Butler as a senior coordinator without a dedicated department.[6] Butler held the position until 18 October 1963, when Alec Douglas-Home succeeded Macmillan as prime minister and the role lapsed briefly. Under Labour's Harold Wilson, the title was revived on 16 October 1964 with George Brown's appointment as First Secretary alongside his role as Secretary of State for Economic Affairs, reflecting efforts to manage economic policy during the post-election transition; Brown resigned on 15 March 1968 amid policy disagreements and personal frustrations, marking the role's early association with high-level coordination but also volatility.[29] The position saw sporadic use through the 1970s to 1990s, with no appointments under Edward Heath's Conservative government (1970–1974), underscoring its non-essential status during stable majorities. It re-emerged under Tony Blair in June 2001, when John Prescott was designated First Secretary of State and Deputy Prime Minister to handle cross-departmental duties post-reshuffle, a tenure lasting until May 2010 amid Labour's extended governance.[1] Conservative governments revived it during periods of coalition fragility: William Hague was appointed on 12 May 2010 under David Cameron's coalition with the Liberal Democrats, serving until 11 May 2015 to provide seniority and stability; George Osborne followed from 11 May 2015 to 13 July 2016, overlapping his Chancellorship during post-election adjustments.[2]| Date | Event | Holder | Trigger/Notes |
|---|---|---|---|
| 13 July 1962 | Appointment | R. A. Butler | Created by Macmillan for senior advisory role amid internal Conservative pressures.[6] |
| 15 March 1968 | Resignation | George Brown | Personal and policy clashes under Wilson; role lapsed thereafter until 2001.[29] |
| June 2001 | Appointment | John Prescott | Blair revival for deputy coordination; held through Labour's 2005 re-election.[1] |
| 13 July 2016 | Resignation/End of tenure | George Osborne | Dismissed by Theresa May in post-referendum reshuffle tied to Brexit instability.[2] |
| December 2017 | Appointment/Resignation | Damian Green | Brief tenure under May, ended by sexual misconduct allegations probe.[2] |
| September 2021 | Appointment | Dominic Raab | Johnson elevation amid leadership transitions; combined with Foreign Secretary. |
| 21 April 2023 | Resignation | Dominic Raab | Sunak government; independent inquiry upheld two bullying claims against civil servants, though Raab disputed severity.[30][31] |
| 5 July 2024 | Appointment | Angela Rayner | Starmer post-election; paired with Deputy PM to signal Labour unity after 14-year opposition.[32] |
| 5 September 2025 | Resignation | Angela Rayner | Ministerial code breach over underpaid stamp duty on Hove flat; ethics adviser found failure to seek tax advice, leading to voluntary exit amid family impact and scrutiny.[16][33] |