SWISS DEMOCRACY PASSPORT - SwissInfo
←
→
Page content transcription
If your browser does not render page correctly, please read the page content below
SWISS DEMOCRACY
PASSPORT
GUIDE
TO MODERN REPRESENTATIVE DEMOCRACY
WITH INITIATIVE AND REFERENDUM
MY SWISS DEMOCRACY PASSPORT Name Contact Info I am an Eligible Citizen of the Municipality of The District/Region/Province of Name of Country (or Countries) Name of Transnational Entity Name of other Political Entity Unsure about your own citizenship status? Check your (travel) passport or national ID card or consult with an information officer in your hometown/province or country.
WELCOME
Switzerland—A Modern Representative Democracy
with Strong Direct Democratic Rights
These are some of the numbers of the participating voters at large
making up a federal republic in and the majority of voters in a ma-
the heart of Europe neighbored by jority of states ('double majority')
Liechtenstein, Austria, Italy, France behind them.
and Germany. Switzerland is a “na- Welcome to this first edition of
tion of will” convening different the Swiss Democracy Passport. This
cultures, religions and languages. publication, edited by Bruno Kauf-
The laws of the land are made by mann and published by the Swiss
the Swiss themselves—in a way Democracy Foundation in cooper-
which very much fulfills Art. 21.1. ation with co-authors and partners,
of the Universal Declaration of Hu- offers Swiss Democracy Passport
man Rights: holders from all across the world
alike a brief and concise introduc-
41,285 KM2 “Everyone has the right
to take part in the
tion into how a modern represent-
ative democracy can become even
8.6 MILLION PEOPLE government of his country, more representative if citizens are
directly through freely continuously involved in the agen-
4 NATIONAL LANGUAGES chosen representatives” da-setting and decision-making of
26 STATES The Swiss elect their representa-
a political community.
This Passport informs about
2100 MUNICIPALITIES tives in regularly held elections. the principles, procedures and
And they are also involved in the practices on all political levels in
business of law- and constitution- Switzerland—and is designed to
making—on three political levels. become a useful and informative
The modern state was established companion for everybody interest-
by referendum in 1848 and since ed in the future of democracy—
then all amendments to the feder- and in Switzerland as an interesting
al constitution have had a majority and fascinating case.
5
CONTENT
Iceland
My Swiss Democracy Passport 3
Editorial:
Faroe Island
Switzerland—A Modern Representative Democracy 5
Welcome by the Swiss Minister of Foreign Affairs 8
Finland Map: A Country with Four Official Languages 10
Norway The Fascinating Interplay of Direct and Indirect Democracy 12
Sweden Estonia Popular Initiatives—Valves and Negotiations 16
Russia
Latvia The Implementation of Accepted Popular Initiatives 25
Denmark
Ireland
Lithuania Why Do the Swiss Trust their National Government? 26
United Netherlands
Kingdom Russia
Belarus
175 Years of Swiss Popular Votes: Facts and Findings 32
Germany Poland
Wide Variety of Topics at the Ballot Box 34
Belgium
Luxembourg The Developing Rules of the Game
Czech Republic Ukraine
in Swiss Direct Democracy 40
Switzerland Liechtenstein Slovakia
France Austria
Moldova Initiatives and Referendums on the Local
Hungary and Regional Level 44
Slovenia Romania
Italy Croatia Lucerne—a World Democracy City 46
Monaco
Portugal Bosnia Serbia
Andorra San Marino & Herzegovina
Bulgaria Building an International League of Democracy Cities 49
Vatican Montenegro Kosovo
Spain Swiss Democracy Foundation:
Albania North
Macedonia Supporting Participation Worldwide 50
Greece Turkey
Welcome to the 2022 Global Forum
on Modern Direct Democracy 51
Northern Europe About the Editors and Authors of
Eastern Europe Malta the Swiss Democracy Passport 54
South Europe
Western Europe
6 7
WELCOME TO SWITZERLAND
Welcome to the Swiss Democracy Passport
There is no doubt that reaching decisions in a democracy The Swiss experience in direct democ-
can be time-consuming, laborious, slow and difficult. racy is not without its own challenges,
As Winston Churchill is often referenced to have said: in particular when it comes to foreign policy. Domestic and
democracies are the worst form of government—except foreign policies are more than ever closely intertwined. While
for all the others. new instruments of international regulation (e.g. soft law) of-
fer opportunities by allowing swift responses to new global
Direct democracies are even more complex than representa- challenges, they raise legitimate questions regarding dem-
tive ones. As a consequence, a stable form of direct democra- ocratic participation in their elaboration. A balance must be
cy cannot come into existence overnight. And a system of di- struck. While governments need to remain capable to safe-
rect democracy must be carefully and continually nurtured in guard key foreign policy interests in a dynamic international
order to make it work. Given the particularities of every state environment, it is important to ensure a more effective dem-
and society, institutions of direct democracy cannot simply ocratic participation in foreign policy issues.
be copied, but must be shaped in their specific context. There is no doubt direct democracies have the neces-
As a longstanding direct democracy and multi-cultural sary strength needed to tackle these challenges and remain a
society, the case of Switzerland highlights what direct de- model fit for the 21st century. As a natural reference point for
mocracy can achieve. It increases popular support for polit- modern direct democracy, Switzerland, in accordance with its
ical decisions. It also forces all stakeholders to compromise constitutional mandate to promote democracy globally, will
in order to assure popular majorities on specific issues. At the continue to actively support citizens’ participation in political
same time, direct democracy favors the inclusion of minori- decision-making.
ties, especially through its combination with federalism and This makes Switzerland also a natural host country for
the rule of law. This combination ensures that minorities are the 9th Global Forum on Modern Direct Democracy to take
heard and protected at the institutional and political level. place September 21–25, 2022 in Lucerne and other parts of the
Direct democracy cannot flourish under all conditions. The country. I am convinced that through exchanges such as at
Swiss experience underlines the importance of a shared cul- this forthcoming world conference we will be able to success-
ture of debate and informed responsibility of citizens. Such fully overcome challenges in today’s world.
attributes cannot develop overnight but are fostered by a
practice with initiatives and referendums. Ignazio Cassis, Federal Counsellor
Head of the Federal Department of Foreign Affairs FDFA
8 9
Schaffhausen
GERMANY
MAP OF SWITZERLAND
Basel-Stadt
Thurgau
Basel-Landschaft
Jura Zürich Appenzell Ausserrhoden
Solothurn Aargau Appenzell Innerrhoden
French 23%
St. Gallen
Luzern Zug AUSTRIA
LIECHTENSTEIN
Global Forum on Modern Direct
Democracy 21–25 September 2022 Schwyz
Neuchâtel
FRANCE Glarus
Nidwalden
Bern Obwalden Graubünden
Uri
Fribourg
Vaud
Romansh 0.5%
Ticino
Valais
Italian 8%
Genève
Other Languages 25%
of which 5.7% English, 3.5% Portuguese and
3.3% Albanian and 12.5% other languages.
(Swiss-)German 62%
(Swiss-)German 62% For 25 percent of the population, their mother
French 23% tongue is not one of Switzerland’s national
Italian 8% languages. Many people state that they have
ITALY Romansh 0.5% two main languages—they are bilingual.
10
SWITZERLAND’S FASCINATING INTERPLAY Between 1900 and 2020, in 26 Countries
BETWEEN DIRECT AND INDIRECT DEMOCRACY Worldwide, a Total of 621 Citizen-initiated
Popular Votes on the National Level were held
No other country offers as extensive The Swiss political system com- 46 10
participatory and direct democrat- bines these two ideas: the major- in 17 other countries Hungary
ic rights as Switzerland. But that ity of the political work is done
11 11
does not make Switzerland a direct by elected representatives. The
Latvia Lithuania
democracy as such. Instead, the citizens in turn are bringing new
popular initiative and issues onto the po- 14
Slovakia
referendum are not litical agenda (pop-
constituent elements ular initiative) or
but make the rep- The Swiss system control the legisla- 23
resentative system ture by voting on San Marino
is a fine-tuned
more representative. laws passed by the
combination of 356 621
The Swiss sys- representatives (ref- 21
two different Switzerland Popular Votes
tem is a fine-tuned erendum). Uruguay
answers to the between
combination of two It is important to note
basic political 1900–2020 63
different answers to that the represent-
question who Liechtenstein
the basic political ative and the par-
should rule.
question who should ticipatory elements
rule. The elitist an- are not directed 66
Italy
swer emphasizes the merits of de- against each other but linked in a
cisions by political representatives very sophisticated way. It is their
who have the expertise and nec- interplay as checks and balances
essary time to decide on complex that guarantees the stability of the Switzerland 356 Slovenia 9
political questions. Swiss political system. Italy 66 Palau 6
According to the participatory Liechtenstein 63 New Zealand 5
Uruguay 21 Micronesia, Ukraine, Taiwan—each 4 12
answer, political decisions made San Marino 23 Bulgaria 3
by all citizens are more legitimate Slovakia 14 Germany 2
and have a broader argumentative Lithuania 11 Philippines, Bolivia, Colombia, Peru,
basis. Latvia 11 Georgia, Netherlands, North Macedonia,
Hungary 10 Malta, Croatia—each 1 9
12 13
Referendums and the Elected Representatives— Optional Mandatory
a Successful Combination Referendum Referendum
Since the introduction of the op- Not only the small share of option- The optional referendum can be initiated Constitutional amendments and member-
tional referendum in 1874, the al referendums, but also the high by collecting 50,000 signatures during ship of international organizations passed
a period of 100 days after a law that was by parliament must be put to a popular
national parliament has passed number of accepted mandatory
passed by parliament is published. In vote. These laws pass only when the major-
more than 3200 laws. Only 198 referendums seems to indicate this case, it is decided at the ballot box ity of the people as well as the majority of
of them have been questioned a high degree of agreement whether the parliamentary decision should the cantons agree.
by referendum (6%). Of these between citizens and repre- stand or not.
referendums, 84 were success- sentatives: In only about one- The mandatory referendum exists since
ful. Thus, 97.4% of all decisions fourth of the 198 mandatory ref- The optional referendum was introduced in 1848. Between then and mid-2021, a total
1874. Between then and mid-2021, a total of 198 were voted on, of which 148 were
taken by the representatives are erendums voted on, the majority
of 198 were voted on, of which 84 were successful (75%), meaning the people and
legitimized directly (unsuccess- of citizens hold a different opin- successful (42%), meaning they repealed the cantons ratified them.
ful referendum) or indirectly (no ion from parliament. But what the law.
demand for a referendum) by the happens if the integration of
people. important forces is not success-
Paradoxically, the optional ful? After all, there have been
referendum—although used so 84 optional and 50 mandatory
rarely—is partly responsible for referendums in the last nearly
successful veto disagree
this high success rate. Because 150 years in which parliamentary law passed agree
the optional referendum hangs decisions have been rejected by
over each legislative process like the citizens. 60
60 6060
the sword of Damocles, the rep- Here the interplay between direct 50
50 5050
resentatives make every effort to and indirect democracy is nicely
include the important interests that demonstrated. With the rejection at 40
40 4040
could take part in a referendum in a the ballot box, the citizens play the 30
30 3030
legislative decision. Sometimes the ball back to parliament. A “No” vote
20 2020
mere threat by a party or a group does not usually mean a shamble, 20
to start a referendum leads to their but rather a mandate to the au- 10
10 1010
interests being taken into account. thorities to rethink the proposed
00 00
The low number of referendums reform—also with the help of an
18
19
19
19
19
18
18
19
19
19
19
20
19
19
20
suggests that this inclusion is suc- interpretation of the arguments dis-
74
01
21
41
61
48
74
21
41
61
81
01
81
01
01
–1
–1
–1
–1
–2
–2
–1
–1
–1
–2
–1
–1
–1
–1
–2
cessful in most cases. cussed during the voting campaign.
90
92
94
96
98
87
90
96
98
00
02
00
92
94
02
0
0
0
0
0
3
0
0
0
0
0
0
0
1
1
14 15
Popular Initiatives—
Valves and Negotiations
Popular Initiative
Although this means a lot of extra The ongoing interplay between popular vote but not the majority of Citizens have the possibility to
work for government and parlia- indirect and direct-democratic el- cantons—and failed. propose an amendment to the con-
ment, a revised law with which a ements in the sense of cooperation Furthermore, the fact that only stitution. This proposition is voted
on when 100,000 citizens support a
large majority of citizens agree, and interaction between represent- 10 percent of popular initiatives formulated text and their signatures
gains legitimacy. atives and citizens, is even more were accepted once again sug- are collected within 18 months. A
Citizens in most democracies evident when we look at the insti- gests that there is no great divide popular initiative is adopted when
are calling for more participatory tution of the popular initiative. between the representatives and the majority of the people as well as
and direct democracy. One argu- The real idea of the popular in- the people. This is especially true the majority of the cantons agree.
ment is the fear that there is a grow- itiative is that minorities can bring because parliament itself had rec-
The popular initiative exists since
ing gap between representatives issues that are important to them ommended six of the 23 successful 1891. Between then and mid 2021,
and citizens, because parliamen- into the political arena. Normally, initiatives to be adopted. Moreover, a total of 223 were voted on, of
tarians have allegedly lost touch these are issues that are—from this 10 percent only refers to the 223 which 23 were successful (10%),
with the population and no longer the perspective of these minori- popular initiatives that have been meaning they were adopted by the
know where the shoe pinches. The ties—not sufficiently or not at all voted on since 1891. If we take the people and the cantons.
rather few cases in which citizens considered by the parliamentarian total of 346 initiatives that were
disagree with the parliament in majority. The initiative committees submitted, the 23 successful ones adopted
Switzerland are an indication that a therefore hope that citizens will correspond to 7 percent only. This declined
combination of direct and indirect evaluate their issues more favora- percentage would fall even fur- 50
100
democratic elements strengthen bly than the parliament and anchor ther if those initiatives that failed
the representative quality of the their concerns in the constitution. to pass the signature hurdle were 40
80
system and can bridge this gap. A glance at the sheer numbers also included in the bill. Approxi-
30
60
seems to suggest at first that popu- mately one in three of the initiatives
lar initiatives are a weak instrument launched do not take off at all. 20
40
and that direct democracy does not This does not mean, however,
have the expected significance: out that the popular initiative has no 10
20
of 223 popular initiatives voted on effect. On the contrary, the various
00
since 1891, only 23 were accepted at indirect effects attributable to the
18
19
19
19
19
19
20
the ballot box. complex interplay between rep-
91
01
21
41
61
81
01
–1
–1
–1
–1
–1
–2
–2
Two times—in 1955 and 2020— resentative and participatory ele-
90
92
94
96
98
00
02
0
0
0
0
0
0
1
an initiative got a majority of the ments are very impressive.
16 17
Negotiation and Integration Counterproposal—Direct and Indirect
Like the optional referendum, the cides “in dubio pro populo”, mean- Counterproposal Initiative Counterproposal Initiative
popular initiative can have an inclu- ing it leaves the final decision to adopted adopted refused refused
sive effect. If an important interest the people’s vote. If declared valid,
group or a party announces that an initiative must be discussed by
it considers launching a popular the parliament. Usually, the final
30
30
initiative on a particular issue, this decision is a recommendation to
25
issue may become more important the citizens to reject the initiative.
20
20
in parliament. More often, howev- However, normally at least a part of 15
er, initiatives are used to make de- the parliament supports the idea of 10
10
mands that are not heard at all in the initiative. 5
parliament. This often leads to lively parlia- 00
If an initiative committee has mentary debates in which numer- voted at the same time with initiative
successfully collected the neces- ous pros and cons are exchanged, voted without initiative
sary signatures, its request goes which, thanks to media coverage,
to parliament, where the matter is can also mobilize and expand pub-
discussed. The parliament is not lic debate. The parliament has the
allowed to change the proposal but option of formulating a so-called
has various possibilities to react to it. counterproposal.
The parliament can declare the In this case, a majority in parlia- The parliament can propose an alternative to If the initiative committee does not with-
initiative invalid if, for example, it ment at least shares the intention of a submitted popular initiative. draw its initiative, the direct counter-
proposal as well as the initiative are put to
infringes upon mandatory provi- the popular initiative idea but turns
The direct counterproposal is a proposition the vote.
sions of international law. So, it is it into a less extreme or more practi- of a different amendment to the constitution
parliament that decides whether an cable demand. This instrument can whereas the indirect counterproposal is the Since 1987, a third question—whether
initiative is valid or not, not a court. also be used for strategic reasons proposition of a law or law amendment, i.e. voters prefer the initiative or the counter-
This deliberately political rather when the parliament wants to take a non-constitutional amendment. proposal—decides in case both are approved
than legal process has resulted in the wind out of a popular demand’s at the ballot box. Before 1987 voting "Yes"
If the initiative committee withdraws its on both the initiative and the counterpro-
only four initiatives being declared sails. This shows very well that the
initiative, the direct counterproposal will posal was not allowed.
invalid (and one as partially invalid) indirect and direct elements of be voted on or the indirect counterproposal
so far (out of 346). In controversial modern representative democracy comes into force, as long as there is not Since 1891, 42 direct counterproposals have
cases, the parliament usually de- work together. enough support for an optional referendum. been voted on, 26 were accepted (62%).
18 19Valve
Switzerland
without an army
To be clear, the majority of all in- cally bypassing parliament. A wel- popular initiatives in Switzerland,
itiatives submitted are rejected by come side effect is that this chan- there are numerous examples of
the parliament without a counter- neled and institutionalized way of how a demand first constitutes a
proposal and voted on unchanged letting off steam should lead to a breach of taboo, the correspond-
at the ballot box. And lasting pacification ing initiative is rejected at the bal-
in the vast majority of of political dissatis- lot box by a large majority, but the
cases, these popular faction. topic is then repeatedly discussed
initiatives do not find This is especially true and society becomes more open to
a majority in the vot- because the author- it, and finally, after the necessary
ing population either. Institutionalized ities are obliged to period of time, it is incorporated
Does this mean that organization of deal with the frus- into legislation.
popular initiatives are political frus- tration that is packed This can also be called the
In Switzerland, military service
only effective if they tration is one into an initiative, take catalyst function of the popular is compulsory for male Swiss
are at least partially of the reasons it seriously and argue initiative. In these cases, too, it is citizens.
supported by parlia- why mass against it. important that these demands are
ment? demonstrations This institutionalized not simply ridiculed but must be The armed forces were considered
Not necessarily, and, above all, organization of polit- treated seriously by the political a “sacred cow” in Switzerland
since the Second World War and
for at least two rea- violent political ical frustration is one elite in an institutionally secured
during the Cold War.
sons arising from the actions hardly of the reasons why manner.
so-called valve func- ever take place mass demonstrations While both the release of frus- Slaughtering this cow was the aim
tion of an initiative. in Switzerland. and, above all, violent tration and the breaking of taboos of the initiative for a Switzerland
First, a popular political actions hard- have no direct effect in the sense without an army.
initiative can help to ly ever take place in of a changed law, they do initiate
Although the initiative was
reduce political frus- Switzerland. discussions in an institutionalized
rejected in November 1989, the
tration. A minority that receives Second, a popular initiative can manner that may, over time, lead surprisingly high 35.6% vote in
little or no attention in the parlia- break taboos. Often it is an to social changes and political re- favor opened the door to very
mentary arena for an issue that is avant-garde minority that brings forms. comprehensive army and security
important to them can try to get it a completely new topic onto the Popular initiatives can thus policy reforms in Switzerland.
directly from the electorate, practi- political agenda. In the history of help to deal more seriously with
20 21The Minaret-Ban Direct Democracy
and Party Success
emotionally charged political is- ting and discussing an initiative
sues in the long term. during a voting campaign is that
What is crucial is that it is not media attention normally increas-
up to the elected representatives es. Thus, especially before upcom-
to decide what is important and ing elections, the parties hope to
what is being negotiated. achieve an advertizing effect by
If a matter passes the signa- activating direct-democratic in-
ture hurdle, it is considered im- struments.
Between 1990 and 2011, the Swiss
portant—regardless of which po- On the other hand, however, People’s Party (SVP) more than
litical minority has put it forward. this also helps voters because it doubled its voter share.
In this case this means that taboos shows them what the central con-
and frustration cannot simply be cerns of a party standing for elec- This is also due to its transformation
ignored but must be debated. tion are. from a conservative to a conserva-
tive-populist party, which is illus-
trated by their use of popular votes
Canvassing initiated by citizens initiatives.
The third effect of the popular in- Numerous popular initiatives of
The minaret initiative to ban the itiative, which can also provide a the SVP were accompanied by con-
construction of new minarets in the link between participatory dem- troversial campaigns in which the
federal constitution was adopted party’s logo was always visible.
in November 2009 with 57.5% of
ocratic and indirect arenas, is the
yes-votes. role in canvassing ahead of an The party has both gained in
election. presence and integrated into the
The result was interpreted as Often, it is a political party that representative system by using
reaction to the terrorist attacks not only wants to use an initiative direct democratic tools.
in the USA and Europe and gave to make itself heard in parliament
islamophobic sentiment a vent.
on an issue that is important to it,
While the ban remains in effect the but also to be remembered by its
public dialogue between Muslim voters.
associations and other parts of the A welcome effect for political
Swiss public has been strengthened. parties when launching, submit-
22 23The Long Road to Parental Leave The Implementation of Accepted Popular
Initiatives—the Interplay goes on
As mentioned, 23 popular initia- of the adopted popular initiative.
tives so far have been approved The idea is that a body representing
at the ballot box. It is important the population—the parliament—
to note that the interplay between should discuss and decide what the
direct and indirect democracy in voters might have meant.
the representative system does not The sovereignty of definition
end at this stage. An accepted pop- is deliberately not left to the initi-
ular initiative “merely” represents ative committee, even though the
a constitutional amendment. For committee often does not agree
an adopted popular initiative to be with the dilution of its goals: It
effective, it must be specified and was not the committee that voted,
implemented in a law. And this is but the entire electorate. It should
where parliament comes into play be noted, however, that the imple-
again. mentation of the initiative at the
Along with considerations on legislative level, as proposed by
how to best combine the new regu- Parliament, can again be revoked
lations with existing laws, the par- by an optional referendum.
liament has to interpret the simple Again, the interplay between
“Yes” to the initiative at the ballot direct and indirect democracy is
box. a never-ending story in a modern
It took no less than 60 years and almost 20 But only in 2004,—60 years later—did the Which arguments were impor- representative democracy like the
attempts before a parental insurance was citizens adopt a law implementing the idea tant during the voting campaign? Swiss one.
legally regulated in Switzerland. of the constitution. In 1974, 1984, 1987, Should the arguments of the No-
and 1999 different propositions did not minority also be taken into account?
In fact, in 1945, a direct counterproposal find support from the people. Also, the
Such an implementation pro-
was adopted by a majority of 76.3 percent numerous proposals in the parliament did
and a maternity protection was enshrined not find a majority for decades. And finally, cess can sometimes take a long time
in the constitution. in 2020, a paternity leave was adopted by and often leads to a significant cur-
60 percent of the voters. tailment of the original objectives
24 25Why Do the Swiss Trust their
National Government?
The institutionalized and dy- emotional nature. In this sense, referendum or reformed by popu- to the practice of direct democra-
namic balance between elected direct democracy even forces in- lar initiative makes it much easier cy. Although participation as such
representatives and eligible stitutionalized integration of frus- to accept it for the time being. In may not make people happier, it
citizens in the Swiss political tration, which can be recognized such a fine-tuned representative has a significant impact on satis-
system have two mayor effects: early and must be taken seriously. democracy we find “humble win- faction with the political system
integration and legitimation. ners” and “happy losers”. and trust in institutions and polit-
Legitimation Of course, the possibility of be- ical actors. By international com-
Integration ing able to influence political deci- parison, the political trust of Swiss
The feeling of being able to make sions directly not only increases the citizens is very high.
Integration means that demands a difference or at least being tak- legitimacy of a specific decision,
from outside the representative en seriously by political decision but of the entire political system as Economic Impacts
institutions can enter the political makers is a central prerequisite such.
arena more easily thanks to the for granting legitimacy to politi- There is further empirical evidence
direct democratic elements. Thus, cal decisions. The inclusion of as Impact on Society that the referendum in particu-
political minorities that usually many interests as possible in a de- lar has a braking effect. Although
have very limited access to polit- cision also makes it more widely This higher level of legitimacy has the referendum is accompanied
ical power have institutionalized accepted. interesting social consequences. by a status quo bias and hinders
opportunities to make their voices The likelihood of accepting a There is strong evidence that a innovation, it has positive effects
heard. Furthermore, the constant decision even if one is not in favor modern participatory represent- on the national budget. Compari-
threat of a referendum—the Sword of it and is therefore in a minority ative democracy increases the sons of Swiss cantons suggest that
of Damocles—forces integration position increases with the num- sense of belonging, because peo- government spending and public
of all important political interests ber of participation possibilities. ple take part in the decision-mak- debt are lower in cantons with a
during the decision-making pro- Thanks to modern direct democ- ing process together and discuss well-developed financial referen-
cess. Finally, the instruments of di- racy—and in contrast to purely different issues when voting. Mod- dum: Where the population has a
rect democracy force the actors of indirect representative democra- ern direct democracy also increas- say in the budget thanks to direct
the representative institutions to cies—, depending on the issue, es civil society involvement in the democracy, the actors in the rep-
take a stand on issues that would each citizen is at least occasion- sense of “social capital”. resentative system appear to have
otherwise not be discussed or at ally in the majority. Furthermore, Studies furthermore indicate greater spending discipline.
least not discussed on a broad- just knowing that an unpopular that political information and even
er scale because of their taboo or decision could be questioned by life satisfaction are greater thanks
26 27Trust in the National Government What are the Weaknesses of
0% 20% 40% 60% 80% 100%
the Swiss Political System?
Switzerland
Indonesia
Luxembourg
India In view of all these positive effects, legitimacy of decisions taken is
Norway the question arises as to whether higher that in many other countries.
Netherlands
New Zealand Swiss style representative democ- After all, social changes can usually
Denmark racy has any weaknesses at all. It only take place slowly and are only
Ireland
Canada
goes without saying that Switzer- accepted when large majorities
Germany land is far from being a perfect can be convinced of the change in
Finland political system. In this context a lengthy discussions. The question
Portugal
South Africa
series of issues are emphasized: arises, however, as to whether more
Turkey efficiency, transparency and eli- rapid solutions might not be need-
Austria gibility. ed to solve complex and, above all,
Sweden
Costa Rica global problems such as migration
Australia An Efficient System? or climate change.
Russia
Belgium
Poland Modern direct democracy has a Limited Integration
Israel price. The more interests are in-
Czech Republic volved, the weaker the influence Modern direct democracy forces
United Kingdom
Estonia of the individual actors becomes. the inclusion of all important polit-
Korea Political parties and elected indi- ical interests. Which political inter-
Hungary
Japan
viduals that are strong in purely ests are considered “important” re-
France representative systems, but also in- mains an open question, however.
Iceland stitutions like parliament and gov- The history of Switzerland
Slovak Republic
Chile
ernment, experience more power and the use of direct democracy
Lithuania competition in Switzerland because show quite impressively that it is
USA they have to involve strong associa- considered “important” who can
Mexico
Spain tions and the population. This slows credibly threaten with a referen-
Colombia down the decision-making process dum. In Swiss political science, it is
Slovenia which may impact the efficiency of conventional wisdom that Switzer-
Italy
Latvia the system. land's transformation from a tradi-
Brazil At the same time this slowness tional confrontational democracy
Greece also has a positive side: the political (with one government party and
28 29Authors of Referendums and Initiatives Turnout at the
This group of excluded people Ballot-Box
include young people under the
60
60
60
60 60
80 age of 18 and residents without a
50
50
70
50 Swiss passport. Thus, one third of
50
50
60 the population of Switzerland is
40
40 40
50
excluded from institutionalized de-
30 30 40
40
30 40
cision-making. In some cities this
30
20
20 20 share is almost 50%.
20 30
30
10
10 10
10
00 00 The Late Introduction of 20
20
Universal Suffrage
19
18
18
19
19
19
19
18
18
19
19
19
20
20
20
20
20
75
92
20
40
70
90
75
92
20
40
70
90
00
05
10
15
20
–1
–1
–1
–1
–1
–2
–1
–1
–1
–1
–1
–2
In a modern direct democracy non-
89
91
93
96
98
01
89
91
93
96
98
01
1
9
9
9
9
6
1
9
9
9
9
6
Authors of optional referendums (left) and popular initiatives (right) in % per period eligible groups of people do face
high hurdles to become eligible.
government party association One powerful expression of mean turnout / entitled to vote
non government party committee mean turnout / whole population
this dilemma is the late introduc-
tion of women’s voting rights in
Switzerland: In a first vote (1959),
several opposition parties) to a campaigning for votes is relatively the majority of Swiss men denied representation and direct democ-
conversational democracy (with a expensive, and, thus, not all mi- women political rights. 12 years racy which contribute greatly to
broad coalition of governing par- nority interests can afford to go to later however, in 1971, two-thirds of peaceful stability, cohesion, politi-
ties) is due to the referendum: Par- the ballot box or make themselves the Swiss men finally accepted the cal confidence, and satisfaction in
ties that blocked decisions became sufficiently heard in the voting introduction of universal suffrage. Switzerland. Indeed, if the promise
part of the government over time. campaign. In this context the lack Like any other political sys- of modern democracy is a conver-
However, a referendum can only of transparency rules is a hotly dis- tem, the balance between indirect sation that never ends, Switzer-
be organized by interest groups cussed issue. and direct-democratic elements in land's participatory political sys-
that have the necessary resources. A further critical feature is Switzerland is never complete and tem offers ideal conditions, while
In fact, there are very few exam- eligibility. While most—around is continuously reformed. there is still much potential to be
ples of referendums or initiatives 90%—eligible citizens are partici- Thinking of further reforms, explored, especially with regard to
taken by committees that were not pating at least once every year—a it will be important to carefully financial disclosure and further ex-
supported at least by parties or significant share of the resident preserve the advantages, namely pansion of eligibility of young peo-
associations. Active direct democ- population remains excluded from the integrative and legitimizing ple and residents without a Swiss
racy from collecting signatures to having a formal say. effect of the interplay between passport.
30 31FINDINGS, FACTS AND FIGURES AFTER
175 YEARS OF SWISS VOTES
Since 1848, the Swiss have voted on rate, or luckiest, collecting was done
more than 650 proposals on the fed- for an initiative that was voted on
eral level to change a law or the con- in 2008 and aimed at installing full
stitution. Looking into this rich and local autonomy on how to organ-
diverse history provides us with in- ize the naturalization of foreign-
sights on how direct democracy in ers, which handed in 100,038 valid
Switzerland has been functioning. signatures, i.e. a mere 0.04 percent
The following paragraphs present above the threshold of 100,000. The 2008 right-wing initiative 1933 poster against lowering
some crucial facts, selected records Similarly, an optional referen- “for democratic naturalizations” state employees’ salaries
and curious cases from the history dum against the extension of the was signed by 100,038 citizens
of Swiss votes. transalpine railway network in 1992
met the threshold of 50,000 by only submitted over 390,000 signatures Yet another possibility to excel is
51 excess signatures (0.1 percent). In for their initiative for a health reform by collecting the signatures as fast
Collecting the Required
both cases, the initiators ended up in 1985 (almost 4 times the required as possible. The all-time record in
Signatures—or much more
not being supported by a majority threshold). In 1933, a coalition of this discipline is held by the paci-
Apart from the mandatory referen- of the electorate in the popular vote.1 trade unions collected over 325,000 fist initiators of a 1993 initiative that
dums, an issue is put to vote only if In contrast, other actors have signatures for a referendum against aimed at preventing the acquisition
the required number of signatures overly exceeded the legal require- lowering state employees’ salaries, of new fighter jets. After a mere 34
are collected. Between 1980 and ments. In doing so, they used the i.e. almost 11 times the then-thresh- days, they handed in over 180,000
2021, at least 130 popular initiatives, signature collection to demonstrate old which at the time was 30,000 signatures, which also makes for a
including some by large political the widespread support for their signatures. While the 1933 referen- record 5,300 signatures per day.
parties, failed to collect the required issue, to build a broad base of sup- dum was successful in bringing After a fierce voting campaign,
number of signatures in the set porters already in a pre-stage of the down the contested law, the 1992 the initiative was eventually reject-
time. Those initiatives were thus not campaign, or simply to manifest initiative was clearly defeated in the ed. Nonetheless, the impressive
put to a vote. their political power. Thus, a coali- popular vote, regardless of its record demonstration of the antimilita-
In the other cases, the initiators tion of health insurance companies number of collected signatures.2 rists’ mobilizing power was conse-
usually content themselves with quential in that the authorities have
meeting the legal threshold plus 1
w ww.swissvotes.ch/vote/532.00 2
w ww.swissvotes.ch/vote/117.00 since put all their air force acquisi-
some safety margin. The most accu- www.swissvotes.ch/vote/382.00 www.swissvotes.ch/vote/373.00 tion projects to a popular vote.
32 33Wide Variety of Topics Frequency of Votes by Policy Field, 1848–2020
State organization
Popular votes in Switzerland can The picture looks slightly different
touch on any policy area, and in- if we consider popular initiatives
Social policy
Transport & infrastructure
Public finance
deed citizens have been called to only, excluding mandatory and
vote on the whole range of policies. optional referendums: Popular ini-
Environment
Security policy
Economy
This being said, some policy areas tiatives have most frequently dealt
Education and research
200
002
have been at the center of popular with social policy (77), state organ-
Culture, religion, media
Foreign policy
votes more often than others. ization (63) and environmental
Agriculture
150
051
Most frequently, citizens have policy (54).
voted on proposals concerning This mirrors the fact that so-
100
001
state organization (198 votes), so- cial and environmental concerns
Energy
cial policy (188 votes) and public have often been put on the polit-
finance (127 votes). ical agenda by organizations who 50
05
did not get their positions through
in the representative institutions 0
0
and who therefore resorted to the 198 188 127 123 101 82 62 58 43 30 30 27
direct-democratic arena.
By contrast, issues of state
organization and public finance
were more often tabled by the au- Initiatives Referendum
thorities themselves. State organization 63 State organization 135
Social policy 77 Social policy 111
Public finance 30 Public finance 97
Economy 38 Economy 85
Environment 54 Environment 47
Security policy 29 Security policy 53
Transport & infrastructure 19 Transport & infrastructure 43
Agriculture 15 Agriculture 43
Foreign policy 15 Foreign policy 28
Education and research 9 Education and research 21
Energy 15 Energy 15
Culture, religion, media 6 Culture, religion, media 21
34 35A Constitutional Amendment to Regulate Cows’
and Goats’ Horns?
The general idea of Switzerland’s now and then called to vote on is- new monetary system (rejected
legislative system is to have citi- sues that appear curious or irrele- in 2018) or the initiative for an
zens vote on the most important vant to outside observers. unconditional basic income for
questions (constitu- A recent example is every resident (rejected in 2016).
tional amendments the so-called “horn- In 1895, voters were called to
and contested laws), cow initiative”: In vote on whether the right to pro-
while parliament and 2018, voters decided duce matches should be reserved
government deal with
The general idea whether farmers who to the state. Absurd as this idea
the less important of Switzerland’s abstain from remov- may appear from a contempora-
issues. However, who legislative system ing their cows’ and neous viewpoint, the advocates
is to decide which is to have citi- goats’ horns should of the proposal deemed this step
issues are important zens vote on the get additional state necessary in order to ensure that given that only four minarets had
and which are not? most important subsidies. the workers in match factories been built in all Switzerland so far.
The popular initia- questions (consti- One might think that are decently protected against the However, the initiative sparked
tive ensures that as tutional amend- it is absurd to have risks of phosphor. After a fierce a public debate on topics that
long as it does not ments and a national vote on voting campaign, the citizens de- went far beyond a few edifices,
breach mandatory contested laws), such an issue, and cided to reject the state monopoly. touching symbolic and emotional
provisions of inter- while parliament indeed the initiative An initiative whose relevance questions such as intercultural re-
national law nor the and government was rejected by the was contested was even adopted lations, women’s rights in Islam, or
requirements of in- deal with the less majority. However, it by a popular majority in 2009: A terrorism.
ternal formal and ma- important issues. did not only get over citizens’ initiative demanded to
terial consistency3, 1 million of Yes votes ban the construction of new min-
any question which (45%), but also man- arets in Switzerland.
is backed by a sufficient number aged to stimulate a broad public The opponents of the initiative
of signatures is put to a vote. As a discussion about mass livestock not only appealed to the freedom
consequence, citizens are every farming and the dignity of an- of religion and the core values of an
imals. Similar recent examples open society, but also referred to
3
Federal Constitution of Switzerland, are the “sovereign money initia- the fact that the practical relevance
Art. 139 para. 3. tive” that aimed at introducing a of the initiative was negligible,
36 37As Close and Clear as it gets
tember 2020, a 50.14% majority of
voters approved a credit of CHF 6
billion to acquire new fighter jets
for the armed forces.
On the other side of the spec-
trum, the very clearest voting re-
sults are less recent. The largest Yes
share resulted in 1915. Remarkably,
it signified the popular approval
of a new tax. In the context of the
rejected First World War, the introduction of
accepted
a temporary “war tax” did not meet Only 8% of the voters were
50.05% of voters rejected a VAT increase for the pension insurance in 2017, any opposition in parliament nor convinced by this 2015 initiative
with a Yes majority in the west of the country and a No majority in the east. by any political party, and 94.3% of for an ecological tax reform
the voters said Yes.
The history of Swiss popular votes Similarly, a wafer-thin majority of Circumstances were less fa- fin, and they did so with a share of
has seen many close races as well 50.08% accepted a controversial vorable for an initiative that aimed 97.3% No votes. The same day, they
as resounding victories. Remark- change in the fees for the public at reforming the state subsidies for accepted the counter-proposal.
ably, the top three closest votes broadcast company in 2015, and grain production in 1929. After the In 2015, an initiative that actu-
have all taken place in the new in 2002 a mere 50.09% defeated government and the parliament ally had organized support took a
millennium. In 2017, a tiny major- a popular initiative to heavily re- had presented a counter-proposal battering that was almost as harsh.
ity of 50.05% voted against raising strict the access to asylum in Swit- to solve the issue, even the initi- The Eco-Liberal Party proposed to
the value-added tax to finance zerland (a majority of the cantons ators preferred the latter and no do away with the value-added tax
the pension system. With over 2.5 would have approved that initia- longer supported their own initia- and to introduce a tax on energy
million votes cast, the margin for tive). Even more recently, in Sep- tive. However, in those days it was consumption instead. The idea was
the No side was a mere 2,361 votes not allowed to withdraw an initi- also supported by the Green Par-
which is way less than the number
4
T o be precise, the tax raise would also ative once it had been handed in. ty, but a mere 8.0% of voters were
have required a majority of the cantons
of invalid ballots (8,000) and empty It was thus up to the voters to put ready for such a far-reaching re-
which was missed more clearly
ballots (26,000) in that vote.4 (9,5 Yes against 13,5 No). the final nail in the initiative’s cof- modelling of the tax system.
38 39Developing Rules of the Game
Swiss direct democracy has needed that an initiative and a counter-pro- indeed received a majority of the
to mature and evolve over time, not posal were put to a vote, there was votes.5
only with regard to the possibility no clear understanding among the The chaos of 1920 had main-
to withdraw an initiative but even authorities on how to count the ly been caused by the question of
with regard to things as basic as votes correctly. It took more than a how to proceed with ballots that
counting the votes. year, three recounts contained Yes votes for both the
In the very first and several lengthy initiative and the counter-propos-
national vote of decrees by the fed- al. The government then affirmed
modern Switzerland, eral government and that such “double Yes” votes were
when the new federal the parliament until to be treated as invalid. Any single
constitution was put It was not before the government fi- voter could thus only accept either
to a vote in 1848, one 1987 when a nally determined the of the proposals or reject both of This right-wing campaign in 2010
canton simply count- more balanced result. them, but not approve both of them. recommended to accept their initia-
ed all absentees as system was It declared the in- Whenever the parliament de- tive for criminal foreigners’ deporta-
Yes votes. introduced that itiative to have been cided to devise a counter-proposal, tion and to reject the somewhat milder
In 1920, the vot- correctly mirrors accepted while the the status quo had thus a system- counter-proposal.
ers could choose the voters’ counter-proposal was atic advantage against any reform.
between, on the one preferences. rejected. The gov- This disadvantage was probably voters’ preferences. A “double Yes”
hand, a popular initia- A “double Yes” is ernment had to con- decisive in defeating reforms for is now possible, and the voters are
tive that demanded a now possible. cede that the exact health insurance, protection of ten- asked in an additional tie-breaker
general ban on com- numbers of Yes and ants and public cultural funding in question which option they prefer if
mercial gambling, No votes could not the 1970s and 1980s.6 both options get a Yes majority.
and, on the other be established any- It was not before 1987 when a Since 1987, there have been
hand, a counter-proposal by the more since some local authorities more balanced system was intro- three votes about initiatives and
parliament that wanted to allow had meanwhile destroyed a part of duced that correctly mirrored the counter-proposals, but in none of
gambling as long as it served char- the ballots. Nevertheless, the gov- these cases was the tie-breaker
5
ww.swissvotes.ch/vote/82.10
w
itable objectives and respected the ernment was confident that there 6
w ww.swissvotes.ch/vote/245.10 question of practical importance
common welfare. However, since it was “not only a high probability, www.swissvotes.ch/vote/270.10 because there was no double Yes
was the first time in Swiss history but certainty” that the initiative had www.swissvotes.ch/vote/339.10 majority.
40 41Refusing Additional Holidays
One would expect that the vast vote even without a counter-pro- Campaigners therefore
majority of people would happily posal. The voting results proved need to convince a ma-
accept if they are given the choice they were right.7 jority that their posi-
to grant themselves more holi- These examples impressively tion corresponds to the
days. Swiss voters, however, ap- illustrate that direct democracy in common interest. As for the exam- system. But their workings and
pear to be different. Switzerland is more ple of the holiday initiatives, post- their impacts within the complex
Both in 1985 and in than just asking vot- vote polls showed that most voters system of indirect and direct dem-
2012, over 65% vot- ers about their in- were convinced by the opponents’ ocratic elements have been much
ers declined popular dividual short-term argument that additional holidays more complex, intricate and rich-
initiatives by trade Direct-democratic preferences. Rather, would be too expensive for enter- er than one might assume at first
unions that demand- instruments voters do consider prises, particularly for small ones. thought.
ed more holidays. In have been an the common good According to this argument, longer
1985, the initiators important factor (or what they believe holidays would hurt the economy It is worth a closer look!
wanted to raise the in Swiss politics it to be) when they and thus also conflict with em-
then legal minimum ever since their make up their minds. ployees’ own long-term interests.
of 2 weeks holidays introduction, and Votes about tenants’ More broadly speaking, expe-
per year to 4 weeks they have had issues are another rience has shown that both fears
for younger employ- far-reaching case in point: Even and hopes of the 19th century that
ees and to 5 weeks for consequences though a clear ma- introducing direct-democratic in-
older employees. In jority of Swiss are struments in Switzerland would
order to tackle the in- tenants rather than mean a break-through for specific
itiative, Parliament agreed to grant houseowners, several initiatives interests were greatly exaggerated.
4 weeks of holidays to everybody. to strengthen tenants’ rights have Direct-democratic instruments
That minimum of 4 weeks was still failed. have been an important factor
in force in 2012 when the next initi- in Swiss politics ever since their
ative demanded a raise to 6 weeks introduction, and they have had
per year. This time, authorities 7 w ww.swissvotes.ch/vote/329.00 far-reaching consequences in shap-
were confident enough to win the www. swissvotes.ch/vote/557.00 ing Switzerland’s peculiar political
42 43Initiatives and Referendums on the Local
and Regional Level in Switzerland
Switzerland is a federal country and most municipalities with more Your online tool to upcoming pop- reports, insights and opinions
with 26 sovereign states (cantons) than 10,000 inhabitants have elect- ular votes with real-time result re- around all ongoing, upcoming and
porting on decision days.Nationwide past initiatives, referendums, recalls
and more than 2,100 autonomous ed parliaments, while two smaller
ballots are scheduled for September and elections in Switzerland. As a
municipalities. These state and local cantons, and most smaller munici- 26 and November 28 in 2021—and unique feature SWI swissinfo.ch
governments most- palities also have as- for February 13, May 15, September hosts transnational ten-language
ly finance their own semblies in which all 25 and November 27 in 2022. public debates.
activities in fields eligible citizens can The App also offers popular
like health, educa- participate. vote archives for all nationwide and
tion and infrastruc- The forms of The most populous most state-wide (cantonal) votes in
participatory and Switzerland—in some cases back to
ture through direct cantons and cities 1831. Vote Info is provided by the
taxes and fees—and direct democracy like Zurich are the Federal Chancellery and the Federal
are in competition to are even more ones with the most Statistical Office. All information is Easyvote, an offer from the Feder-
provide efficient and developed on the developed forms of available in German, French, Italian ation of Swiss Youth parliaments,
good services to their local and region- direct democracy: and Romansh. explains Swiss politics in an easy-
al than on the to-understand and politically
citizens. The city of Zurich—
neutral way. According to the motto
The forms of par- national level in with a population of “from the youth for the youth” the
ticipatory and direct Switzerland. more than 400,000 information platform enables young
democracy are even people—is the most people to get involved in politics,
more developed on active jurisdiction without prior knowledge.
the local and regional level than on when it comes to modern direct de- Swissinfo is the international Easyvote prepares young people
service of the public-service Swiss for the voting-Sundays with 3-min-
the national level in Switzerland. It mocratic practice in Switzerland.
Broadcasting Company. Since 2015 ute explanatory clips and useful
is up to the cantonal constitutions SWI swissinfo.ch runs a “Global De- background information on all na-
to define the various forms of ini- mocracy Beat” covering participatory tional votes. With a comprehensive
tiatives and referendums at the re- and direct democratic stories in Swit- political dictionary, topic dossiers
gional level. zerland, Europe and around the world on the Swiss political system, teach-
As a result, the direct dem- in ten languages: English, Chinese, ing materials and the votenow-app,
Arabic, Spanish, Russian, Portu- easyvote provides comprehensive
ocratic forms of citizens' partic-
guese, French, German, Japanese information and supports young
ipation are very diverse across and Italian. SWI offers continues adults in forming their opinions.
www.stadt-zuerich.ch/portal/de/index/
Switzerland. There are differences politik_u_recht/abstimmungen_u_wahlen/
in representation too. All cantons politische_rechte.html
44 45You can also read
