THE GOTHENBURG SYSTEM.
The Scandinavian licensing system has, during the last few years, received considerable attention from reformers in many lands; and rightly so. Whatever may be its faults, there is probably no other plan of liquor legislation of which it can be said that it has, in a comparatively short time, reduced the traffic in spirits by about three-quarters, without seriously discommoding the moderate drinkers, and without creating any illegal trade worth mentioning. There seems every likelihood that the system will, in a few years, spread far beyond the land of its inception. It satisfies the demand for increased State control, promises abundant revenue, and yet discourages the sale of liquor. A small body of public men in England are eager to have it adopted here; and acute observers in America declare that (provided no clauses in the State Constitutions are held to render it unlawful) it is almost certain to be tried there before long. A Bill has already been brought before the Massachusetts Legislature for the purpose of permitting such a trial, and has met with the approval of a considerable section of the people.
Less than half a century ago, Sweden was the most drunken civilised country in the world. Its laws permitted almost free trade in the manufacture and sale of spirits, and even the poorest peasants could obtain as much brandy as they wanted. All the horrors that ever follow habitual intemperance were to be seen throughout the land. The poverty of the people was great; social and moral degradation were prevalent; insanity and crime were dangerously on the increase; and there was a general air of hopeless desolation over the country. The average consumption of spirits has been variously estimated at from a little under six to ten gallons per head yearly; and the stuff, being home-manufactured, was of the crudest and most injurious quality.
Patriotic Swedes soon began to look about for a remedy for the national curse. Dr. Weiselgren commenced a crusade against spirit-drinking with most remarkable results; and before long a hundred thousand persons had enlisted themselves under his banner in a league voluntarily abstaining from spirits. A still more general movement shortly afterwards took place, when people from all parts of the country petitioned Parliament to take some steps to check intemperance. In response, a law was passed in 1855 abolishing domestic and small stills, and giving rural localities the control of the traffic, and the option of either having drink shops, or sweeping them away altogether. Where it was decided to still permit the sale of drink, the local authorities were authorised to limit the hours of sale, and the number of public-houses.
The people at once made considerable use of their newly acquired powers. There had been over 33,000 distilleries in 1853; the same year as the Act passed they were reduced to between 3000 and 4000. The greater number of country districts elected to go under complete prohibition; and whereas formerly spirits could be bought in nearly every peasant’s house, there were now in the country districts less than 600 retail licences. The wholesale trade was not dealt with by the law.
There were no two opinions as to the beneficial effects of the new measure in the country; but it was found that the towns did not share equally in these benefits. It had been considered inadvisable to extend the option of prohibition to towns, and before long the great mass of public-houses became centred in urban districts. In 1856, though the towns contained only twelve per cent. of the people, three-quarters of the total public-houses were to be found in them, and eight townsmen were convicted of drunkenness to every one countryman.
The knowledge of these facts stirred the authorities up to see if nothing more could be done. In 1865 the Municipal Council of Gothenburg appointed a committee to inquire into the causes of pauperism. The committee reported that, “The worst enemy of the morals and well-being of the working classes in this community is brandy. Yet it is not the intoxicating liquor only and its moderate consumption which cause demoralisation and poverty; it is the disorder, evil example, temptations, and opportunities for every kind of iniquity with which public-house life abounds, that contribute mainly to this unhappy state of things. Neither local enactments nor police surveillance can do much so long as public-houses are in the hands of private individuals, who find their profit in encouraging intemperance, without regard for age or youth, rich or poor.”[8] The committee recommended that the trade should be taken out of the control of the publicans, and managed by a company for the good of the community. A philanthropic company was formed, in consequence of this report, by a score of the leading inhabitants of the place, for the purpose of taking over the trade. It was specially stipulated that neither shareholders nor managers should be pecuniarily interested in pushing the sales, and the company was to receive no profits except 6 per cent. on the paid-up capital, all receipts beyond this going to the town treasury. The amount of paid-up capital required has been under £7000.
The company commenced its work on 1st October, 1865; and the way it has since fulfilled its obligations is worthy of the highest praise. It has shown an honest desire to carry out the sale of spirits in such a way as, while meeting the legitimate wants of the moderate drinkers, shall discourage excess in every possible way. It has consistently attempted to restrict rather than to encourage the trade in liquor. The magistrates have granted it sixty-one licences, but of these it only uses nineteen (although the population of the place is considerably over a hundred thousand) and allows the remainder to lie in abeyance. The law permits public-houses to be open till 10 at night, but the company closes its establishments at from 7:30 to 9 o’clock, according to the season of the year. It has opened five coffee-houses and reading-rooms, where no spirits are sold, and four eating-houses, where none are obtainable except the customary dram at meals. Generally it has shown a wise and patriotic disregard of that policy which would sacrifice everything for a favourable balance sheet.
Each public-house is placed under the charge of a manager, who is expressly ordered not to encourage drinking in any way, and is warned that if he does so he will be dismissed. The company at first employed several of the old licensed victuallers and barmen; but before long it had to get rid of all of them, for they were so accustomed to encouraging tippling among their customers that they could not understand a system which forbade their doing it. The managers derive no direct or indirect profits from the sale of spirits beyond their stated salaries; and they have directions not to supply strong drink to young people, to those who show any signs of intoxication, or to those who require several drams in succession, or who pay repeated visits to the public-houses at short intervals for the purpose of drinking. They are not allowed to give any credit for liquor. Besides selling drink, each house has to keep a supply of good hot and cold food, temperance drinks, cigars, and the like. Inspectors are appointed whose sole duty is to see that the managers conduct the trade properly.
The four eating-houses at which spirits are sold only with meals are large, well conducted, and very popular. They cater almost exclusively for working men, and sell food at rates which put to shame even our own Lockharts and Pearces. A dinner of a large slice of pork, a sausage, four potatoes and gravy, costs under twopence halfpenny. When these houses were first opened nearly every customer took a dram with his meals, but now not more than half of them do so. The eating-houses do not quite pay their way, but are run at a loss of a little over £200 a year. The company regards the money as well spent, for the places have a most beneficial effect in promoting temperance. The five free reading-rooms maintained by the company, in which no intoxicants (except small beer) are sold, cost between £600 and £700 a year to maintain. They are well supplied with papers and books, and visitors can obtain light refreshments of various kinds.