The Council substantially in its present form came into existence with the Constitution of 1848; the first election of its members taking place in November of that year. The election, therefore, which occurred on the 13th of December, 1887, was the fourteenth triennial renewal of the Council, and covered a period of thirty-nine years. During this period the complete roster of the members embraces only twenty-seven names; even this small ratio of change resulted in seven cases from death, and eleven from voluntary retirement; leaving only two who failed to be re-elected on the avowed ground of political divergence. This most remarkable conservatism on the part of the Assembly, in retaining the members of the Council by repeated re-elections, has survived important issues of public policy, including several revisions of the constitution, upon which there was a wide diversity of opinion in the Council; some of whom actively participated in the discussions, antagonizing the views of a majority of the Assembly; the Assembly to which they owed their election and upon which they relied for their retention in office. Their periodical re-election, though seemingly pro forma, carries with it a salutary sense of accountableness. This sure tenure of service in the Federal Council makes those chosen look upon it as the business of their lives. Without this permanence attached to the position, such men as now fill it could not be induced to do so. They are men trained to vigorous personal and intellectual exertion, who often surrender pursuits yielding a much more profitable return. Precariousness of tenure in responsible positions discourages one from engaging in those measures of long-sighted policy or those plans of necessarily slow accomplishment, in which he might be so shortly interrupted, and his labors rendered abortive and unavailing. Political science, the science of wise government, is perhaps that department of intellectual exertion which requires the greatest powers of mind and the intensest application. Its facts are multifarious and complicated, often anomalous and contradictory, and demanding the guidance of clear perceptions. Its principles are many of them abstruse, and to be developed by long and close processes of reasoning; and the application of these principles requires the sagacity of quick observation and long experience. It is a business which requires as long and arduous preparation as any profession which can be named; and as entire devotion to it, with freedom from all other serious or momentous occupation, when its duties are once undertaken, as the calling of a lawyer, a physician, a merchant, or an engineer. One chief reason why there are so many needless, blundering, crude, mischievous, and unintelligible actions in public life, is that men have not dedicated themselves to its requirements as a separate study or profession; but have considered it to be a business which might be played with in their hours of leisure from more serious pursuits.
A member of the Federal Council cannot, during his term, “occupy any other office in the service of the Confederation or a Canton, or follow any other pursuit, or practise any profession.” He devotes his entire time and attention to his department, and not a mere casual, intermitting, and brief attention; or merely giving the refuse of his time and abilities in passing judgment on what others have devised and executed. He is obliged to attend to the routine, the detail, and all the technical niceties of its daily administration.
The salaries paid to these distinguished officials are not relatively higher than the wages of the people at large; and are very insignificant when compared with the compensation accorded for like services in other countries. Each of the seven members receives an annual salary of 12,000 francs or $2316; the President of the Council is given 1500 francs additional, making his salary $2605. This increase of salary to the President is made under the head of “expenses of representation,” understood to mean entertainments and kindred purposes devolving upon this official. The entire annual appropriation made for the maintenance of the executive department will not exceed $17,000.[36]
The business of the Federal Council is distributed among seven departments, as follows:
1. Foreign Affairs.
2. Interior.
3. Justice and Police.
4. Military.
5. Finance and Customs.
6. Industry and Agriculture.