Norwegian Life / An Account of Past and Contemporary Conditions and Progress in Norway and Sweden

by Unknown

CHAPTER VII

GOVERNMENT AND POLITICS OF NORWAY AND SWEDEN

Only for the past three years has Norway had an independent political life, and so few changes in local government have so far been made under the new king that it will be profitable, in this chapter, to take up the government and political life as it existed under the united Constitutional Monarchy of Norway and Sweden. In fact, it is no different than at that time, except that each has its separate king. In internal rule, the two countries were always separate, except in matters that pertained to the common weal of both. Thus, the Swedish Minister of Foreign Affairs had charge of the United Kingdoms, and, as previously stated, this was the rock on which the Union finally split.

The constitution of Norway, like that of the United States, invests all power in the people, who are represented by their legislature and their judiciary, with the king as an executive to administer the laws passed by the one, and enforce the decrees of the other. When the two houses of Parliament disagree upon a measure, they sit in joint session, when it requires a vote of two-thirds to enact it, and the approval of the king is necessary. He is also required to promulgate all the acts of the legislature. Many Norwegian statesmen assert that the king has no veto power, but merely temporary authority to suspend a law pending the action of the people. If three successive parliaments, after three successive elections, pass a bill in exactly the same terms, it does not require the sanction of the king when it is passed the fourth time. Thus the people may exercise their sovereignty.

All edicts of the executive, all decisions of the court, and all resolutions of the legislature are proclaimed in the king's name, but the ministry is responsible to the legislature for the acts of the king, and if they are not approved, as in England, the ministry must resign and a new one be organized in sympathy with a majority of the parliament. The king may choose his own ministers, but they must represent the will of the people. They are called counsellors of state, are eight in number. Before the disunion, two of these eight counsellors were without portfolios, and resided alternately at Stockholm, while the other members presided over six executive departments in Christiania.

A record is kept of the meetings of the ministry by a permanent secretary, and the constitution requires that each minister shall express his opinion upon all questions brought up for consideration. He who remains silent is counted in the affirmative. No matter of business can be determined by the king without the advice of the ministry, unless an emergency demands a prompt decision, when he must take the responsibility of securing a ratification of his act. In the same manner the king may issue edicts of a provisional character in matters of commerce, finance, industrial activity, customs dues, police and military affairs during a recess of the parliament, subject to its approval within a limited time after reassembling.

The minister may act in the king's name in cases of emergency or during his absence from the country, subject to his approval. These conditions were adopted in earlier times, when the Norwegian legislature sat only once in three years and some such power was necessary, but now that there are annual and often semi-annual sessions, and they have a king of their own residing always in Norway, it is very seldom necessary for the executive power to exercise such responsibility.

The king appoints all the officials of the executive part of the government, all the officers of the army and navy, and all the clergymen in the established church, but exercises this power through his ministers. Dissenting congregations are not subject to government control, and may choose their own clergymen, although the latter are required to register an oath of allegiance and a pledge to obey the laws of the nation and fulfill their duties with fidelity and conscientiousness.

The king is the head of the established church, which is the Lutheran. He is also commander-in-chief of the army and navy, but can not increase or decrease the military establishment without the approval of the parliament. He has the right to declare war and conclude peace, but can not expend money for military purposes, not even for the national defense, without the consent of the legislature. The Norwegian constitution is silent concerning his authority to conclude treaties with foreign powers, and the question has never been raised. He conducts negotiations through his ministers and submits the result of their labors for the approval of parliament. He has the power to suspend the collection of customs duties temporarily until the parliament can meet to consider the matter, but it has very rarely been exercised.

The parliament is called the storthing, and is composed of one hundred and fourteen representatives, thirty-eight from the towns and seventy-six from the rural districts. It divides itself into two sections, known as the odelsthing and the lagthing. The members are elected for three years by an indirect and complicated system which is nearly the reverse of our own. The voters of each parish, which forms an election district, assemble at a given place and time and select delegates to a convention which chooses their representatives in the storthing, and, when the storthing meets, its one hundred and fourteen members select one-fourth of their own members, generally the most experienced and distinguished men, to constitute a senate, or upper chamber, called the lagthing, which exercises a sort of supervisory power over legislation.

The storthing sits for about six months every year. The members are paid $3 a day during the session and their traveling expenses. The presiding officer is chosen every four weeks, and can not succeed himself without an interval. The committees are appointed by a "selection committee" elected by ballot, and each committee chooses his own chairman. There is a rather novel rule requiring bills referred to committees to be assigned for consideration to the several members in rotation. Any member may introduce a bill modifying the constitution, but all other classes or measures must proceed from the government and the members of the lower house. Members of the upper house, or lagthing, are not permitted to propose ordinary legislation, on the theory that they should remain unprejudiced so as to exercise a judicial revision. Thus, bills must originate in the odelsthing, which, having passed them, sends them to the lagthing for its approval.

The financial officers of the government and the directors of the national bank are elected by the storthing, which appoints a committee every six months to revise and audit the accounts of officials who have to do with the disbursement or collection of money. When an irregularity or improper expenditure is discovered, the legislature is asked to decide whether the minister in charge of the department shall repay the sum from his own pocket and repair the damage that has been caused by one of his subordinates.

In the same manner the storthing regulates all loans, on the theory that the money belongs to the people. The members of the ministry may be impeached by the odelsthing for a violation of the constitution and tried before the lagthing and the supreme court.

The following eight executive departments are in charge of ministers:

1. For ecclesiastical matters and public instruction, which also has charge of charities, insurance companies, and matters relating to the relief of the people.

2. The department of justice.

3. The department of the interior, which has jurisdiction over everything that is not under the other departments.

4. The department of agriculture.

5. The department of public works.

6. The department of finances and customs.

7. The department of defense.

8. The revision of public accounts department.

For administrative purposes, Norway is divided into twenty districts, viz.: The cities of Christiania and Bergen and eighteen "Amts" or provinces, which coinside with the diocese of the church, and there is a very close relation between the ecclesiastical and the civil authorities. The chief magistrate in each of the counties, nominated by the king, is known as an "Amtmand." His duties are similar to those of the French prefects, although the theory of home-rule and self-government is carried into each county and each municipality and parish, where every magistrate is responsible to a council elected by the people from among their own number. They make the laws for the magistrate to administer. There are few countries in which the theory of self-government is carried to such an extent as in Norway. The sovereignty of the people is absolute and their rights are jealously guarded. Norway is divided into ecclesiastical parishes, which are the voting districts, as in England, and are governed in a similar way.

The Norwegian constitution of 1814, based upon the principle of popular self-government, declared these municipalities completely independent in the management of their own affairs, placing the administrative authority, with the power of taxation and the disbursement of revenues in the hands of the taxpayers and householders, so that they could not be coerced by the national government, if there ever was any disposition in that direction.

This authority is exercised through a council called a "bystyre," composed of from twelve to forty-eight members, according to the population of the parish, who are elected for terms of three years, and serve gratuitously. The council elects from its own number a chairman who is the head of the whole municipal organization, and is known as an ordförer. He corresponds to the German burgomaster and the mayor of the American city.

In addition to the popular council there is a magistrate representing the royal government, who, with the consent of the council, may be admitted to their deliberations, but is not allowed to vote. He is also ex-officio a member and often chairman of the municipal departments or commissions, such as the board of public works, the school board, the harbor commission. In this way he becomes a connecting link between the national authority at Christiania and the municipal councils throughout the kingdom, because certain measures of local interest are subject to restrictions by the national parliament, particularly those involving finances.

Under the direction of the council are permanent executive departments similar to those found in the United States, pertaining to public highways, the public buildings, the public health, the relief of the poor, the fire department, police department, etc. These in every case are managed by permanent officials under the supervision of committees of the council. Every year a budget is made up of the income and expenditures expected; each department being permitted to submit its own estimates, which are approved or amended by the council, and the amount is raised by taxation of houses, lands, personal property, and incomes, with fees for licenses to transact business. The entire system of local taxation is similar to our own, and the methods of assessment are the same. In order to meet the expense of unusual undertakings for the benefit of the municipality, such as waterworks, tramways, docks, etc., funds are raised in the usual manner by the issue of interest bearing bonds, which are usually in small denominations in order to permit people of limited means to invest in them. They are redeemed, as a rule, in forty annual instalments, the bonds to be canceled being selected by lot. In this system of local government women now participate upon an equal basis with men.

With the exception of the British parliament, the Swedish riksdag is the oldest legislative body in the world. The kingdom of Sweden has maintained its integrity for not less than four thousand years. So far back as the anthropologists can trace the history of Swedish people, the boundaries of their land have remained the same. The Duchy of Finland was subject to Swedish sovereignty at one time, and at different times Sweden has been united with Norway and Denmark under the same ruler, but Sweden has been Sweden ever since human beings inhabited its territory, and it is the only nation in Europe that has never been conquered or had its boundaries changed by foreign powers. Since the beginning of history, home rule has prevailed among the people and has been defended and recognized as their right. The parishes have always controlled their own affairs, and since the Reformation their government has been in the hands of a board or council elected by the people, of which the pastor of the church is chairman. Everybody who pays taxes, men and women alike, may vote at the election of the council. The burgomaster serves for life, and is usually required to abstain from all other business except that which pertains to the public weal. The parishes are consolidated into twenty-four provinces, similar to our states, each having a certain independence and government of its own, although the governor-general, who also serves for life on good behavior, is appointed by the king. The city of Stockholm is an independent jurisdiction like the District of Columbia, with a governor appointed by the king. The riksdag was formerly composed of four distinct bodies,—nobles, clergymen, burghers, peasants,—representing the different classes of the community, and all laws required their approval. In 1866, however, this clumsy arrangement was abolished and the national legislature was consolidated into two bodies known as the first and second chamber, similar to our Senate and House of Representatives. The two chambers are equal in every respect, except that the second chamber, or lower house, has the advantage of numbers when a deadlock arises and the question in dispute is decided by a joint ballot. Then, unless there should be an overwhelming difference of opinion, the second chamber usually has its will, which is perfectly right, because it represents the people. The king must approve all legislation to make it effective, and his veto is final, except in matters concerning taxation and the expenditure of public money. The diet has the sole power to levy taxes and make appropriations with or without his consent.

The first chamber, which corresponds to our Senate, is composed of one hundred and fifty members, elected for terms of nine years by the provincial councils and by the city councils in towns of more than 25,000 inhabitants. As the councils are elected by the taxpayers, both men and women, the members of the first chamber may be regarded as the representatives of the property-owning portion of the community. To be eligible to the first chamber a candidate must be thirty-five years old, own property assessed at $21,000, or pay taxes upon an income of not less than $1,100. Rank does not count. The qualification is pecuniary entirely, and so evenly is property distributed in Sweden that only ten thousand people in the entire kingdom are eligible to the first chamber of the diet.

The members of the second chamber, two hundred and thirty in number, are elected for three years, of whom eighty are elected by the towns and one hundred and fifty by the rural districts. Each must have property worth $270, or have leased $1,600 worth of land for five years, or pay taxes on an income of $214. These are also the qualifications for voting for members of the parliament.

There is very little of politics in Sweden. There are three parties, known as the conservatives, the liberals, and the socialists. The conservative party is comprised of the aristocracy, the church, the agricultural classes and people of conservative sentiment generally. The liberal party is composed of progressive elements, the theorists, the artisans, the machinists, and the thinking men among the laboring element, who advocate a reduction of the tariff on imported merchandise and free trade so far as possible; a separation of church and state on the theory that no man should be taxed to support a religious faith that he does not believe in; a reduction in the army and navy and other official expenses; the modification of the election laws as above stated; rotation in office, so that all shall have a chance, and they oppose the general tendency to centralization in the government.

The socialists go a little farther. They are not so radical as those who go by the same name in Germany, France, and other European countries. They are very moderate in their views. They favor most of the planks in the liberal platform, and, in addition, advocate the adoption of socialistic reforms, the loaning of public money without interest to the poor, public pensions to the helpless, sweeping reforms in the labor laws, and the purchase and maintenance by the state of all public enterprises that affect public welfare, such as the street-car lines, the insurance companies, the banks, etc. The peasants in the country are protectionists and belong to the conservative party. The mechanics in the cities are generally socialists. Politics, however, is not very exciting. The tariff, labor questions, and other propositions are always discussed, and of late years the most interesting issues have been the appropriation of money for national defense, the increase of the term of military service from ninety to three hundred and sixty days for every citizen, the modification of the electoral law, and the regulations of the forests.

Peasants have been members of parliament for more than five hundred years, and now constitute more than half the membership of the second chamber—intelligent, well-educated mechanics and farmers, who take a deep interest in the affairs of the government and generally are on the right side. The agricultural peasants are invariably loyal supporters of the king. The mechanics from the city are usually opposed to him.

The annual session of the riksdag opens immediately after the holidays with a great deal of pomp and ceremony. It is one of the most imposing functions in all Europe. The members of both houses meet at their respective halls, attend divine service at the cathedral, where they receive the sacrament and listen to a sermon of admonition. Then they march in a body to the royal palace, where they are received by the king's ministers with great formality, and escorted to what is known as the throne room. As they enter, each man bows reverently to a silver throne which stands upon a dais at the other end of the apartment. The members of the first chamber are seated on the right side of the great hall, and those of the second upon the left.

When the sound of trumpets is heard, all rise, and the master of ceremonies enters in gorgeous apparel, followed by four pages in dress of the sixteenth century. Behind them is a squad of trumpeters, then the grand marshal of the court, preceded by four heralds and followed by the assistant marshals, the grand chamberlain, the lord steward, the master of the horse, and other officers of the royal household, the eighteen judges of the supreme court, the archbishop and bishops, and the members of the king's cabinet.

Then follows a guard of honor, composed of the highest nobles of the kingdom in glittering uniforms and carrying old-fashioned weapons, such as were once used in actual warfare. They surround the king, who wears his royal robes, and, as he enters, the band plays the favorite air of the people, "From the Depths of the Swedish Heart." He wears the crown of state and a purple robe bordered and lined with crimson the two corners of which are carried by chamberlains Upon the right side of the king walks the prime minister of Sweden. Following the king walk his sons, the princes of the royal house.

When the king has reached the center of the room, he stops, turns with great dignity and bows first to one chamber and then to the other, and then to the queen, who has taken her position in the balcony, attended by the princesses and other members of the royal family and the officers of the court. Then he proceeds slowly until he ascends the dais and seats himself upon the throne, his minister of state occupying a position on his right. Before the separation of the Union, the Norwegian minister of state sat upon his left.

The grand marshal steps forward and strikes the floor three times with a long staff of silver, tipped with jewels. At this signal all arise again except the king. In old-fashioned Swedish the heralds command silence. The king, seated upon his throne, reads his speech, which always begins, "Good gentlemen and Swedish men." The prime minister then reads a review of the acts of state since the adjournment of parliament, which he skims over as rapidly as possible, because the printed copy will be placed in the hands of every person present as soon as the ceremony is over. The presiding officers of the two houses of parliament step forward and make speeches of congratulation, and reassure their sovereign of their loyalty and respect. The king then rises, bows first to the queen, and to each house in turn, and slowly leaves the chamber accompanied by the procession that followed him in.

The courts of Sweden are conducted upon the French plan, and no jury is ever impaneled except in cases concerning the liberty of the press. When a newspaper is accused of libel or sedition, the complainant, whether he be a member of the police or any other official of the government, chooses three jurymen, the defendant three, and the court three. These nine men hear and decide the merits of the case without application of such strict rules of evidence as prevail in the legal practice of the United States. All judicial procedure in Sweden is based upon the assumption that the court is sufficiently intelligent and impartial to determine the reliability of witnesses and to judge of the application of facts laid before it. All judges and judicial magistrates are appointed for life on good behavior, but they can be impeached by processes similar to those authorized by the Constitution of the United States.[g]