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Historiska institutionen Master Programme in Early Modern Studies – Northern Europe 1450 – 1850 Royal Power and Bureaucracy. The Function of the Högste Ombudsman in the Last Phase of the Great Northern War. Author: Simon Carpels Supervisor: dr. Peter Ericsson Master Thesis, VT 2012 Seminar: May 28, 2012 Seminar tutors: Prof. dr. Maria Ågren & dr. Mikael Alm 2 Abstract The power struggle between the Charles XII and his bureaucracy after the crushing defeat in Poltava (1709) mainly concerned the unwillingness of the latter to raise a new army that could be shipped to Pomerania. In reaction to this disobedience the king reformed his bureaucracy. Among other things, the Carolinian reforms introduced the högste ombudsman . The office was to enforce the law and supervise all civil servant and military officers. This thesis deals with the question of how the högste ombudsman functioned within this power struggle. The source material consists of the correspondence between the högste ombudsman and various bureaucratic institutions from every level of society. By consistently prosecuting civil servants and military officers and enforcing the law, he was able to guarantee the functioning of the bureaucracy and at the same time fulfilled an important ideological function. He showed Swedish society that the bureaucracy was controlled and that disobedience was not tolerated regardless of social standing. This is especially apparent in his activities with the central and regional authorities. The latter were strictly controlled as they were instrumental in the supervision of the local authorities. However, as a side effect of the Carolinian reforms, the högste ombudsman had to answer many requests from local authorities that not always directly related to the main objectives of his office. Moreover, this indicates that the priority of the högste ombudsman lied with the supervision of the central and regional authorities. By setting examples to the bureaucracy and society that criminal activities and disobedience was not tolerated, he fulfilled his duty as royal instrument of coercion. He helped to the king pursue the Swedish war effort against the will of the bureaucracy. This thesis provides an enhanced understanding of the royal policy of Charles XII and delivers a valuable account of how an autocratic monarch attempted to regain control over his bureaucracy. 3 Acknowledgements This master thesis would not have been possible without the support of many people. First and foremost, I wish to express my sincere gratitude to my supervisor, dr. Peter Ericsson, who continuously encouraged me during this process. Without his guidance this thesis would not have been materialized. I also owe my deepest gratitude to the History Department of the University of Uppsala, for admitting me into this stimulating master program. The assistance and encouragements of dr. Gudrun Andersson, dr. Erik Lindberg and dr. Henrik Ågren have been instrumental in the completion of this master thesis. I would also like to show my greatest appreciation to Tulla Wisén, who introduced me to the Swedish language. Without her help, the Swedish language would have forever stayed an even greater mystery to me. Moreover, I want to thank all my professors and class mates for creating an inspiring atmosphere during classes. Special thanks go to Chris Thompson, who took the time and effort to read through the drafts of this thesis and correcting the many spelling mistakes. Ett stort tack till alla. Zunächst gebührt mein Dank Frau Prof. Dr. Dagmar Freist (Institut für Geschichte, Carl von Ossietzky Universität Oldenburg), die mich während meines Studiums in Oldenburg herausragend beraten hat. Mein Dank gilt auch meinen vielen guten Freunden in Deutschland, insbesondere Sophie, Chrissi, André, Peggy und Martin. To all my friends especially here in Uppsala, for supporting me during the writing of this thesis. Special thanks go to Davide, Pieter, Frida and Stina. Ik ben natuurlijk ook ontzettend veel dank verschuldigd aan mijn ouders. Zij hebben mij de mogelijkheid gegeven om te studeren wat ik wou en vooral waar ik wou. Ze hebben mij bovendien altijd onvoorwaardelijk blijven steunen. Daarnaast moet ik ook mijn beide broers vermelden voor hun steun en door gewoon de beste broers te zijn die ik mij kan wensen. For its shortcomings, I alone am responsible. Uppsala, May 2012 Simon Carpels 4 Table of Contents Abstract .......................................................................................................................................................... 3 Acknowledgements ...................................................................................................................................... 4 Table of Contents ......................................................................................................................................... 5 Introduction .................................................................................................................................................. 6 1. Research Questions ......................................................................................................................... 6 2. The Inner Mechanisms of Bureaucracies and their Relation with Monarchs ......................... 8 3. The Swedish Administration under the Influence of the Great Northern War ................... 11 4. Method ............................................................................................................................................ 15 Chapter 1: Empirical Study on the Royal Instructions and the Correspondence of the Högste Ombudsman ................................................................................................................................................... 19 1. Introduction .................................................................................................................................... 19 2. Interpretation of the Royal Instructions ..................................................................................... 19 3. The Correspondence to and from the Högste Ombudsman ........................................................ 23 4. The Annual Reports to the King ................................................................................................. 26 5. Conclusion ...................................................................................................................................... 27 Chapter 2: Analysis of the Correspondence between the Högste Ombudsman and Charles XII. ...... 29 1. Introduction .................................................................................................................................... 29 2. The Högste Ombudsman as Supervisor of Civil Servants and Military Officers ...................... 29 3. The Högste Ombudsman as Guardian of Law and Order ............................................................ 35 4. Conclusion ...................................................................................................................................... 38 Chapter 3: The Högste Ombudsman and the Central Authorities ........................................................... 40 1. Introduction .................................................................................................................................... 40 2. The Council .................................................................................................................................... 40 3. The kollegier ...................................................................................................................................... 43 4. Ombudsråd Fahlström ..................................................................................................................... 46 5. Conclusion ...................................................................................................................................... 48 Chapter 4: The Högste Ombudsman and the Regional Authorities ........................................................ 49 1. The Högste Ombudsman and the Landshövdingar ........................................................................... 49 2. The Högste Ombudsman and the Landsfiskaler ............................................................................... 53 3. The Uppsala Konsistorium and the Högste Ombudsman ................................................................ 58 4. Conclusions..................................................................................................................................... 62 Chapter 5: The Involvement of the Högste Ombudsman with the Local Authorities .......................... 64 1. Introduction .................................................................................................................................... 64 2. City Councilors ............................................................................................................................... 64 3. Priests ............................................................................................................................................... 66 3.1. The Högste Ombudsman and the Supervision of the Clergy ............................................... 67 3.2. Infractions against Church Law .......................................................................................... 70 3.3. Financial Hardship among the Clergy ................................................................................ 71 4. Conclusions....................................................................................................................................