The Building of the Scandinavian States: Establishing Weberian Bureaucracy and Curbing Corruption from the Mid-Seventeenth to the End of the Nineteenth Century

Abstract The Scandinavian states are universally seen as very well-functioning bureaucracies with some of the lowest levels of corruption in the world. In scholarly debates on state building, Francis Fukuyama has used the Scandinavian countries and the phrase ‘getting to Denmark’ as a metaphor for the apparent mystery of how states can come to be governed by well-developed bureaucracies and highly functioning state institutions. This chapter presents a study of state institutions and bureaucracy in Denmark–Norway and Sweden over a 250-year period from the mid-seventeenth to the end of the nineteenth century. The study demonstrates how bureaucracies conforming to Weber’s later model were gradually established in the Scandinavian monarchies in this period. The chapter also presents the results of three empirical studies of Denmark, Norway and Sweden, which indicate how the level of corruption in the state administration had been limited by the middle of the nineteenth century. In Denmark, the institutional framework set up after the establishment of the absolute monarchy in 1660, along with continuing reforms to improve the administration in the period of absolutism between 1660 and 1849, came to form an important basis for an administrative culture based on the rule of law. In Sweden the rule shifted between absolutism and constitutionalism, but both the Danish–Norwegian and the Swedish monarchies saw the establishment of strong and comprehensive state hierarchies with a king at the top level who set out to guarantee the rule of law and attempted to be merciful to his subjects. Lutheranism played a decisive and durable role as moral backbone in Scandinavian societies and in the establishment of a shared political culture. These elements, in combination with the establishment of Weberian-type bureaucracy, had, by the end of the nineteenth century, worked to limit corruption in the state administration of the Scandinavian countries.