Finland Legislature
The Eduskunta, Finland's parliament, in session
Courtesy Embassy of Finland, Washington
The Eduskunta is the country's highest governing body
by
virtue of its representing the people, who possess
sovereign
power. Its main power is legislative, a power it shares
with the
country's president. It also has extensive financial
powers, and
its approval is required for the government's annual
budget and
for any loans the government wants to contract. Although
the
president is dominant in the area of foreign policy,
treaties
must be ratified by the Eduskunta, and only with its
consent can
the country go to war or make peace. This chamber also has
supervisory powers, and it is charged with seeing that the
country is governed in accordance with the laws it has
passed. To
enforce its will, the Eduskunta has the power to hold the
government to account, and to call for the impeachment of
the
president.
The Eduskunta is closely tied to the president and to
the
Council of State. Neither the president nor the cabinet is
able
to carry out many executive functions without the support
of the
Eduskunta, and the cabinet must resign if it is shown that
it has
lost the chamber's confidence. Strong links between the
Eduskunta
and the Council of State result, too, from the
circumstance that
most cabinet ministers are members of parliament. On the
other
hand, the Eduskunta is subordinate to the president in
that he
may dissolve it and call for new elections. Despite its
legislative powers, it actually initiates little
legislation,
limiting itself mainly to examining the government bills
submitted to it by the president and the council. In
addition,
all legislation passed by the Eduskunta must bear the
president's
signature and that of a responsible minister in order to
go into
effect. The Eduskunta need not approve the legislative
proposals
submitted to it, however, and can alter or reject them.
As stipulated by the Parliament Act of 1928, the
Eduskunta's
200 members are elected by universal suffrage for
four-year
terms. All citizens twenty years of age and older, who are
able
to vote, and who are not professional military personnel
or
holders of certain high offices, have the right to serve
in the
Eduskunta. A wide variety of the country's population has
served
in this body, and its membership has changed often.
Sometimes as
many as one-third of the representatives have been
first-term
members, as occurred in the 1987 national elections.
Finnish election laws emphasize individual candidates,
which
sometimes has meant the election of celebrities to the
body. Most
members, however, have begun their political careers at
the local
level. In the late 1980s, about one-third of the
representatives
were career politicians. The professions were overly
represented
at the expense of blue-collar workers; about 40 percent of
the
members, compared with only 3 percent of the population as
a
whole, had university degrees. By the 1980s, farmers and
businessmen were no longer so prevalent as they once had
been,
while there were more journalists and managers. The number
of
female representatives had also increased, and by the
1980s they
made up one-third of the chamber. In the 1987 election,
women won
63 of the 200 seats.
Article 11 of the 1928 Parliament Act states that
members are
to vote as their consciences dictate. A delegate is not
legally
bound to vote as he or she promised, in a campaign for
example.
In the late 1980s, however, party discipline was strict,
and
delegates usually voted as directed by their party.
The four-year term, or legislative period, of the
Eduskunta
is divided into annual sessions beginning in early
February, with
vacation breaks in the summer and at Christmas. The first
business of a yearly session is the election of a speaker,
two
deputy speakers, and committee chairmen. Those elected
make up
the speaker's council, which is representative of the
party
composition of the Eduskunta and arranges its work
schedule. The
speaker, by tradition of a different party from the prime
minister, presides over the chamber, but the speaker
neither
debates nor votes.
Also chosen in the first days of a new session are
those,
from either within or outside the parliament, who
supervise the
pension institute and television and radio broadcasting;
and five
auditors who monitor compliance with the government's
budget and
oversee the Bank of Finland (BOF). Among the most
important posts
to be filled by the Eduskunta for its four-year term are
those of
the parliamentary ombudsman and the six members of the
Eduskunta
who make up half of the High Court of Impeachment.
Parliament approves legislation in plenary sittings,
but it
is in the committees that government bills are closely
examined.
In the late 1980s, there were thirteen committees in all:
five
permanent committees--constitutional, legal affairs,
foreign
affairs, finance, and bank--and eight regular ad hoc
committees--
economy, law and economy, cultural affairs, agriculture
and
forestry, social affairs, transportation, defense, and
second
legal affairs. Committee membership reflects the political
composition of the Eduskunta. Members usually serve for
the whole
legislative period, and they commonly have seats on
several
committees, often of their own choosing. Members who have
served
on a given committee for a number of terms often develop
considerable expertise in its area of responsibility.
Legislative proposals also pass through the
forty-five-member
Grand Committee. Only the budget, which is not a
legislative
proposal in Finland, escapes its review. The committee,
adopted
as a compromise in 1906 between those who advocated a
bicameral
legislature and those who preferred the unicameral body
finally
established, was conceived as a safeguard against the
measures of
a perhaps too radical parliament. It therefore examines
proposals
for their legal soundness and propriety. Yet, according to
the
British scholar David Arter, the Grand Committee has only
occasionally altered the proposals sent to it, and, as a
consequence, it has lost prestige within the Eduskunta.
Its
members are generally newly elected representatives.
The Eduskunta has an elaborate procedure for handling
government bills sent to it by the president, after
discussion
and approval in the Council of State. This procedure was
adopted
with the idea of preventing the enactment of radical
measures,
and it is an indication of the Eduskunta's essentially
conservative nature. Proposals are usually first discussed
in a
plenary session, then directed by the speaker to an
appropriate
committee, where they are carefully scrutinized in closed
hearings. After committee review and report, proposals are
returned to the plenary session for the first reading,
where they
are discussed but no vote is taken. The next step is the
Grand
Committee review. Working from the Grand Committee report,
the
second reading in plenary session is a detailed
examination of
the proposal. If the Grand Committee report is not
accepted in
its entirety, the proposal must be returned to the Grand
Committee for further discussion. Once the proposal is
back again
at the plenary session, for the so-called continued second
reading, the Eduskunta votes on the changes recommended by
the
Grand Committee. There is no discussion in the final and
third
reading; the proposal is simply approved or rejected.
Votes may
be taken at least three days after the second reading or
the
continued second reading. Once approved by the Eduskunta,
bills
require the signature of the president within three months
to go
into effect. This requirement gives the president the
power of
suspensive veto. This veto, rarely used, can be overridden
if the
Eduskunta approves the bill with a simple majority
following new
national elections.
Only the government's budget proposal is exempted from
the
above parliamentary procedure, because the budget is not
considered a legislative proposal in Finland. Instead, the
budget
proposal is handled in a single reading, after a close
review by
the largest and busiest parliamentary committee, the
twenty-one
member Finance Committee. Government bills connected with
the
budget and involving taxation, however, must pass through
the
three plenary session readings and the Grand Committee
review.
This reinforces the Eduskunta's budgetary control.
The Eduskunta's elaborate legislative procedure can be
traversed in a few days if there is broad agreement about
the
content of a bill. Qualified majority requirements for
much
legislation, most commonly that touching on financial
matters and
property rights, enable a small number of representatives
to stop
ratification in a plenary session and to oblige the
government to
ascertain a bill's probable parliamentary support before
submitting it to the Eduskunta. Qualified majority
requirements
for legislation involving taxation for a period of more
than one
year require the approval of two-thirds of the body.
Sixty-seven
members can hold such legislation over until after a new
election
and can thus effectively brake government programs.
Because there
is no time limit on a member's right to speak, filibusters
can
also slow the progress of a bill through the Eduskunta,
although
this tactic has seldom been employed. Government care in
the
crafting of bills is reflected in the unimpeded passage
through
parliament of most of them.
Legislation altering the Constitution is subjected to
more
rigorous requirements. Constitutional changes may be
approved by
a simple majority, but before they go into effect, they
must be
approved again by a two-thirds majority in a newly elected
Eduskunta. If the changes are to go into effect within the
lifetime of a single Eduskunta, the legislation
implementing them
must be declared "urgent" by five-sixths of the body and,
in a
subsequent vote, approved by a two-thirds majority. This
requirement means that a vote of one-sixth against a
proposed
economic measure regarded as being of a constitutional
nature,
such as some incomes policy legislation, can prevent its
enactment during a single parliamentary term. These same
majorities are required for an unusual feature of Finnish
parliamentary procedure that permits the passage of laws
that are
temporary suspensions of, or exceptions to, the
Constitution, but
that leave it intact. Since 1919 about 800 of these
exceptional
laws have been passed, most involving only trivial
deviations
from the Constitution.
Members of the Eduskunta may initiate legislation by
submitting their own private members' bills and financial
motions
relating to the budget. Several thousand of these are
submitted
each year, but 95 percent are not even considered, and
only a
handful are accepted. Members also may submit proposals
connected
to government bills, or may petition for certain actions
to be
taken. The main point of these procedures is often a
delegate's
desire to win the approval of his constituents by bringing
up an
issue in the Eduskunta.
The Eduskunta has other means of exerting pressure on
the
government, in addition to refusing to approve its
legislative
proposals. Its members may address questions to ministers
either
orally or in writing, and in either case a quick response
is
required. Potentially much more serious is an
interpellation,
possible if twenty members desire it, in which case the
government can fall if it fails to survive a vote of
confidence.
Few governments fall in this way, however, as they are
allowed to
remain in power as long as a lack of support is not shown.
Interpellations have been used principally as a means of
drawing
attention to a particular question, and press coverage
usually is
intense.
An important instrument of Finnish parliamentary
control is
the right and duty of the Constitutional Committee to
examine
government bills with regard to their constitutionality.
Finland
has no constitutional court, and suggestions for its
establishment have foundered because the Eduskunta has
refused to
cede this important review power to a court that would be
outside
parliamentary control. Although the committee's seventeen
members
come from parties with seats in the Eduskunta, the
committee has
strived for impartiality, has sought the opinions of legal
specialists, and has let itself be bound by precedents. As
evidence that it takes its responsibilities seriously,
committee
members representing both the far left and the far right
have
agreed with 80 percent of its judgements over a long
period of
time.
The Eduskunta also exercises control of the executive
through
the Responsibility of Ministers Act, which can be used
against
the government or an individual minister if a
parliamentary
committee, the parliamentary ombudsman, or five members of
the
Eduskunta so decide. The Eduskunta's ability to control
the
government is also apparent in its duty to comment on the
annual
report of the government's actions submitted in May, and
the
Foreign Affairs Committee's review of the frequent
Ministry of
Foreign Affairs reports detailing the government's conduct
in the
field of foreign relations.
Data as of December 1988
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