Response to interpellation 2022/23:380 on a broad evaluation of Swedish alcohol policy
Translated from Swedish by AI; the translation may contain errors. The Swedish text is the original.
Summary AI, written in advance
The debate concerns the evaluation of the Swedish alcohol policy. KD considers limited availability effective for reducing alcohol-related harm 1 and that extended opening hours on Saturdays are not appropriate 1. KD argues that alcohol causes harm even at low consumption 2 and that limited availability reduces consumption 3. KD wants to combine farm sales with safeguarding Systembolaget's monopoly 1 3 and adapt regulations based on new research 3 4. SD argues that today's opening hours lead to stockpiling behavior 5 and that the evaluation should focus on persons with alcohol problems without restricting the freedom of others 5. SD wants to introduce farm sales as soon as possible 6 and allow chilled drinks at Systembolaget 7.
Written by AI in advance and may contain errors. The numbers lead to the speech a statement builds on; check against the text below.
Socialministern Jakob Forssmed (KD)
Mr. Speaker! I have been asked when the government will act on the Riksdag's announcement regarding an evaluation of the Swedish alcohol legislation. Pontus Andersson has also asked me whether I and the government will let the Riksdag examine the issues of extended opening hours on Saturdays and expanded delivery windows for home delivery, given that the board of Systembolaget has expressed a desire for change in these matters. Finally, Pontus Andersson has asked me when I expect farm sales to become legal in Sweden.
In February 2022, the Riksdag announced to the government that the Committee on Health had proposed an evaluation of the alcohol policy. The Committee considered that the government should carry out a broad and thorough evaluation of the alcohol policy. According to the Committee, a broad and thorough evaluation was needed to seek answers on how effective the policy's various instruments are and how these function collectively, as well as to what extent the alcohol policy goal is being achieved (bet. 2021/22:SoU10 page 20, rskr. 2021/22:150 point 2). The current government took office in October 2022, and the matter is being prepared within the Government Offices.
Pontus Andersson asked me in November 2022 whether I and the government will let the Riksdag examine the issue of longer opening hours at Systembolaget. Now the question has been asked again, and my answer is the same as before.
Systembolaget holds the exclusive right in Sweden to the retail sale of spirits, wine, strong beer, and alcohol-like preparations. The exclusive right has a socio-political purpose, to limit the medical and social harmful effects of alcohol, which is a central part of the Swedish alcohol policy that the Riksdag has supported.
One of the most important means for achieving this purpose through the monopoly is the possibility to limit availability. Systembolaget is therefore, according to the Alcohol Act (2010:1622), not allowed to sell alcoholic beverages to persons under 20 years of age and, according to an agreement with the state, has control over store establishments and also opening hours within the framework of the guidelines determined by the Riksdag. Limiting the availability of alcohol is, according to the World Health Organization, WHO, one of the most effective measures to reduce alcohol-related harm.
Systembolaget has previously raised the issue of extended opening hours based on generally changed purchasing behaviors and the company's legitimacy. The question of an extension of opening hours must, however, be seen from the perspective of Swedish alcohol policy and its socio-political purpose, as such an extension would mean increased accessibility.
Sweden and several other Member States have informed the EU that the reference levels for private import are too high and should therefore be adjusted downwards in the matter of import, smuggling, and cross-border trade. The Government is focused on tackling the illegal import of alcohol.
Against this background, it is not appropriate at this time to take the initiative to have Systembolaget's opening hours on Saturdays extended.
Finally, regarding Pontus Andersson's question on farm sales: The report of the Farm Sales Inquiry (S 2020:15) A possibility for small-scale farm sales of alcoholic beverages (SOU 2021:95) has been referred for consultation, and a large number of referral bodies have responded to the referral. The usual work of preparing the referral bodies' views is ongoing. In this work, among other things, the complexity of the question and conceivable consequences need to be considered. The Government views positively the possibility of enabling small-scale farm sales of alcoholic beverages on the condition that the retail monopoly is protected.
PONTUS ANDERSSON (SD)
Mr. Speaker! On February 17, 2022, the Riksdag voted for a motion to the then Social Democratic government regarding a broad evaluation of Swedish alcohol policy. Neither the then government nor the one that took office in the autumn has yet had the opportunity to address it. If or when the government acts on the Riksdag's motion, it should, however, aim at how we can act politically to reach those who have the greatest alcohol problems without restricting the freedom of the broad majority of consumers, that is, low- and medium-consumers.
Systembolaget's social policy objective, to reduce the medical and social harmful effects of alcohol, is something that I can absolutely stand up for. Alcohol abuse is a problem. But the problems with today's opening hours at Systembolaget, that one cannot buy chilled drinks or that home delivery takes at least eight days, rather lead to a stockpiling behavior among consumers which forces people to increase the availability of alcohol in their homes.
If I, as a low- or medium-consumer, want to be able to spontaneously invite friends over for dinner and a bottle of wine on a Saturday when the clock strikes 15:01, I must have wine at home. When the sun comes out and I stand by the grill and feel that it would have been good to have a cold beer, I must have beer standing in the fridge – and I do have that, because I always plan my purchases. An evaluation of the Swedish alcohol policy, something that the Riksdag has voted for, would have given us answers to the question of whether today's alcohol policy actually reaches people with real alcohol problems or if it rather restricts the freedom and accessibility for low- and medium-consumers.
For the first time in eight years, Sweden has received a bourgeois government, this time with the support of SD. Together with the Center Party, the Tidö parties form a clear majority in the Riksdag that usually takes a positive stance toward various forms of liberalization of alcohol policy.
An example of our common view is the previously mentioned announcement regarding an evaluation of the alcohol policy. Another is the proposal on farm sales, which, after many years of debate, will hopefully soon become a reality, albeit in a limited scope.
In the interpellation, I asked the question to Jakob Forssmed as to when the government will act on the Riksdag's announcement regarding an evaluation of the alcohol legislation. I can state that the question is being prepared within the Government Offices. That is positive.
I asked the question whether the Minister and the Government will let the Riksdag examine the issues of extended opening hours on Saturdays and expanded delivery windows for home delivery, on the grounds that the Board of Systembolaget has expressed a desire for this. Here is the answer, which is the same as when I previously asked a written question, that this is not something the Government intends to implement. It is sad to hear.
I finally asked when the minister expects farm sales to become legal in Sweden. Regarding this issue, the answer is that the government, despite it being five years since the announcement and over two years since the proposition was submitted, is still not sure if this can be implemented without affecting the monopoly. That is how I interpret the answer, but I did not really get any answer to the question of when.
I understand that the question is complex, that consequences must be considered and that the government wants to protect the monopoly. But when will we know if we can proceed with the issue of farm sales in Sweden? When could this be introduced?
Socialministern Jakob Forssmed (KD)
Mr. Speaker! I thank the interpellor Pontus Andersson for the questions and the opportunity to have this exchange here in the chamber of the Riksdag.
Naturally, the government will prepare the question of conducting a broad review according to the Riksdag's wishes. We will return when we have an announcement to make. The announcement came in February 2022, and since then we have had a change of government. It takes some time to get such things in place. But of course, it is interesting and important to evaluate and see which alcohol policy restrictions and tools have the greatest effect and can influence this.
It is a serious societal problem, not just in terms of abuse, as Pontus Andersson says. Today, it is also increasingly known. Alcohol leads to damage even at lower consumption levels. This applies in particular to increased cancer risk, and other things.
There is a real need to constantly improve and develop the trade-offs we need to make between different types of limitations and opportunities that should exist in society. This should be done in a wise and reasonable way, of course, based on different parameters.
I want to point out that in the Investigation on nitrous oxide and certain issues within the alcohol and tobacco area, there are, among other things, assignments to assess the scope for and the need for relaxations in the regulations for obtaining a serving permit. One should also consider whether the requirements can be modernized, simplified, and clarified without compromising the protective interest. This also applies to several other points regarding the alcohol law specifically.
It is, of course, not a broad review in the sense that the Riksdag has requested. Nevertheless, work is ongoing on a number of issues. There, one can make just clarifications and simplifications to make better trade-offs between the different interests that exist in the matter.
When it comes to the issue of farm sales of alcoholic beverages - direct sales is perhaps a better name, as it is not just about farms - the government is working on the issue with some intensity, not least to clarify the EU-law complex issues. Our ambition remains; we want to carry this out, provided that we can protect Systembolaget's retail monopoly.
PONTUS ANDERSSON (SD)
Mr. Speaker! Thank you, Minister, for the answer!
At least since the 1400s, those in power have in various ways introduced different restrictions regarding Swedes' alcohol habits. At that time, among others, Sten Sture the Elder prohibited the sale of spirits in Stockholm. From 1917-1955, strong beer was prohibited in Sweden. In 1919, the counter-booking system was introduced, and in 1982, Systembolaget closed on Saturdays.
The legislation has, however, been liberalized over the last 30 years – slowly, but still. The first self-service store opened in 1991 on a trial basis, but it was not until as late as 2014 that all Systembolag were self-service stores. Saturday opening was introduced at all Systembolag in 2001. And the Riksdag voted, as mentioned, in 2018 for a motion regarding the introduction of farm sales in Sweden. My hope is that it will be introduced as soon as the government is finished with the investigation that is currently underway.
In the January agreement, which the previous government had together with Miljöpartiet and Centerpartiet, the proposal for the introduction of farm sales was included, and the bill that we are now discussing was put forward. One could call the proposal a minimum implementation of farm sales. I would have gladly gone even further than what is proposed, but it is clearly a step in the right direction.
By minimum implementation, I mean that with this proposal we do indeed get farm sales, but one is forced to go on a tour or attend a lecture in order to buy one's bottle of wine. The tour should then preferably not take place on a Saturday after 15:00. In that case, one will not be able to buy one's bottle until Monday at 10:00, because sales according to the proposal may only take place during the same time that Systembolaget is open. If one goes to a brewery, one can buy a maximum of three liters of beer, after having gone on a tour and before 15:00, of course.
It is, however, a step in the right direction, despite everything. And considering the composition of the Riksdag today and the broad support in public opinion for the sale of farms, the government and other parties that wish to stand behind this should act as soon as possible.
When it comes to increased accessibility to alcohol, I spoke in my opening statement about the paradox that Systembolaget's deliberately chosen inaccessibility leads to: that people need to stockpile alcohol if they want to be sure they can have a spontaneous glass of wine or beer with their meal.
It is said that one should plan their purchases. This planning leads to increased availability of alcohol in the home rather than having good availability in the store. It leads to people who plan their purchases always having alcohol at home. It can increase spontaneous drinking, for example if one wants to have a cold beer in the sun while grilling. If that is the case, we can get answers when the government carries out the evaluation of the Swedish alcohol policy that the Riksdag has decided should be carried out.
I do not believe that those who have substance abuse problems will increase if Systembolaget closes later on Saturdays, has shorter delivery times, or for example offers its customers to buy chilled drinks. I do not believe either that it will be so if, after a tour of a vineyard, one is allowed to buy a bottle of wine to take with them.
What does Social Minister Jakob Forssmed think about this availability paradox? Can the poor availability in stores simply increase the availability at home, since people are encouraged to plan their purchases?
Socialministern Jakob Forssmed (KD)
Mr. Speaker! When it comes to accessibility, the interpellor presents an interesting argument. But according to at least the WHO, which has conducted extensive meta-analyses on this, limited accessibility regarding alcoholic beverages seems to lead to reduced consumption and not the other way around. This is therefore contrary to the interpellor's argument that reduced consumption would occur if accessibility is maximized and that no one would then plan their purchases but that everything would happen spontaneously.
There is probably relatively little that indicates reduced consumption through maximized availability. But it is always important to follow, research and study what are reasonable tools. And one may want to make other trade-offs, quite regardless of the consequences for consumption.
In Sweden, we have chosen to have a total consumption model, to try to reduce or at least hold back consumption and consumption increases in different ways but in a way that still meets trust and overall approval among the population. We can observe that there is broad support for Systembolaget and Systembolaget's monopoly. It is perceived as good service and a good selection while we can have these restrictions.
It is therefore important for the government to combine the authorization of farm sales of alcohol with safeguarding Systembolaget's retail monopoly. In the announcement that the Riksdag has directed to the government, it is also included that these are the conditions that apply. It shall be in a limited scope and with safeguarding of the monopoly.
It is a short comment from my side regarding these arguments. But I am always open to new knowledge and new research. We have also received that in recent years. It seems to point out that alcohol is more harmful than we previously thought. Those risk levels do not exist where it is more or less risk-free to drink alcohol. There is therefore reason to constantly follow the issues and adapt different types of regulatory frameworks.
PONTUS ANDERSSON (SD)
Mr. Speaker! Thank you again for the answer, Minister!
Yes, on some issues we must agree to disagree. But I still want to express my hope that the Tidö parties, together with the Center Party, which we have with us in many of these issues, can achieve some progress in this area during the mandate period.
Changes in the form of liberalizations can take time – I have nothing against that – especially so that we can guarantee that the consequences become as we desired. But it has now been 68 years since strong beer became permitted in Sweden. It has been 22 years since Systembolaget was allowed to have Saturday opening and 9 years since all Systembolag became self-service stores. It is time to take another step towards a somewhat freer Sweden.
We politicians all leave behind a legacy. If Jakob Forssmed wishes, he can be known as the one who allowed the sale of alcohol in stores in Sweden and the one who let our Scanian winegrowers make Skåne Northern Europe's best wine district.
The Minister also has the chance to be the one who, let's say during the spring of 2026 with implementation on June 30, 2026, allows chilled drinks to be sold at Systembolaget and who extends the opening hours on Saturdays. I believe the voters would appreciate that.
Do not underestimate people's longing for freedom. These are, after all, very small changes, but changes that affect people's everyday lives. The proposals are far from radical. It is about, for example, a few hours on Saturdays. They are small adjustments that would make life a bit smoother and, above all, more fun for many Swedes.
Socialministern Jakob Forssmed (KD)
Mr. Speaker! Many thanks to Pontus Andersson for the interpellation!
I am well aware of the interest that exists, for example, regarding farm sales, both from individuals who want to be able to take something home from a visit to a vineyard or a microbrewery and, naturally, also from the businesses to be able to sell their products in connection with those types of visits.
This is, therefore, not unknown to me in any way, and the government's ambition is to be able to carry this out while we safeguard Systembolaget's monopoly.
While the interpellator emphasizes the "funny" parts of this, it is clear that there is also a downside if this were to lead to Systembolaget being unable to exist. It would likely result in increased consumption with increased alcohol-related damages as a consequence, with people suffering in various ways in the form of increased violence and increased illness.
Therefore, one must carry both of these legs with them in the work, and both I and the government try to do that in order to safeguard a society where people can naturally exercise freedom in different ways, but where we also safeguard those who are vulnerable and those who are affected by the harmful effects of alcohol.
Source: The Swedish Parliament. The speeches come from the open data of the Riksdag, translated into English by AI, which may contain errors.