Diagonal Accountability
#2Key Findings
Denmark falls into the top group internationally (rank 2) in the category of diagonal accountability.
Freedom of speech and freedom of the press are strongly protected, with limits carved out for libel and racism. The media is independent of government influence. Newspapers often lean conservative or liberal, but provide balanced coverage. Public media are required to ensure diversity and fairness in their programming.
Civil society organizations are influential, often with ties to political parties. Trade unions, and employers regularly collaborate with the government, providing information and contributing to policy discussions through both formal and informal channels. Tripartite negotiations are often used to resolve labor market issues.
Welfare-focused associations are active in public debates and policy formation. Environmental groups are also consulted via “green” tripartite negotiations aimed at finding solutions that support climate goals and the green transition while maintaining competitiveness.
Freedom of speech and freedom of the press are strongly protected, with limits carved out for libel and racism. The media is independent of government influence. Newspapers often lean conservative or liberal, but provide balanced coverage. Public media are required to ensure diversity and fairness in their programming.
Civil society organizations are influential, often with ties to political parties. Trade unions, and employers regularly collaborate with the government, providing information and contributing to policy discussions through both formal and informal channels. Tripartite negotiations are often used to resolve labor market issues.
Welfare-focused associations are active in public debates and policy formation. Environmental groups are also consulted via “green” tripartite negotiations aimed at finding solutions that support climate goals and the green transition while maintaining competitiveness.
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Graph View
To what extent are the media free from government influence and able to act independently?
10
9
9
There are no disincentives, by law or in practice, for the media to criticize the government and public officials.
8
7
6
7
6
Existing disincentives, by law and in practice, pose no significant obstacles to the media in criticizing the government and public officials.
5
4
3
4
3
Existing disincentives, by law and in practice, pose some significant obstacles to the media in criticizing the government and public officials.
2
1
1
Existing disincentives, by law and in practice, pose various significant obstacles to the media in criticizing the government and public officials.
Denmark is a liberal democracy, and Article 77 of the constitution protects the freedom of speech: “Any person shall be at liberty to publish his ideas in print, in writing and in speech, subject to his being held responsible in a court of law. Censorship and other preventive measures shall never again be introduced.” Freedom of speech includes freedom of the press.
The penal code sets two limits to the freedom of speech: libel and racism. Independent courts interpret the boundaries of these exceptions. In December 2023, the Danish parliament endorsed a law to prevent the burning of religious texts, including the Quran (Bologna 2023). Technically, the law was enacted as an amendment to the penal code (Straffeloven 2023). The debate surrounding the enactment of the law has been intense because the law stipulates that it extends to artistic products. The law is so new that there is no information on how the legal system interprets potential transgressions.
Denmark was ranked third out of 180 countries in the Global Press Freedom Index for 2023. A recent report from Roskilde University found that a strong norm of noninterference and acceptance of media independence supports media freedom in Denmark (Schrøder et al. 2021).
There have been various reports indicating harassment of journalists, but self-censorship has not been identified as an issue. Furthermore, the Danish press holds both nationally and locally elected politicians and civil servants accountable.
Citations:
Bologna. 2023. “Folketinget stemmer ja til omstridt koranlov.” DR December 7. https://www.dr.dk/nyheder/politik/folketinget-stemmer-ja-til-omstridt-koranlov
Ministry of Cultural Affairs. 2020. “Media Development in Denmark.” https://mediernesudvikling.kum.dk/fileadmin/user_upload/dokumenter/medier/Mediernes_udvikling/2020/ Overblik_og_perspektivering/Summary_and_discourse_2020.pdf
Straffeloven 2023. https://www.retsinformation.dk/eli/lta/2023/1554
Schrøder, K. C., Blach-Ørsten, M., and Eberholst, M. K. 2021. “Denmark.” In N. Newman, R. Fletcher, A.
Schulz, S.,. Andi, C. T. Robertson, and R. K. Nielsen, eds. 2021. Reuters Institute Digital News Report 2021.
(pp. 74-
75). Reuters Institute for the Study of Journalism. https://reutersinstitute.politics.ox.ac.uk/digital-newsreport/
Reporters Without Borders. 2021. (https://rsf.org/en/ranking/2021)
Reporters Without Borders. “World Press Freedom Index.” https://rsf.org/en/ranking
Zahle, Henrik. 2001. Dansk Forfatningsret 1.
https://rsf.org/en/2023-world-press-freedom-index-journalism-threatened-fake-content-industry
The penal code sets two limits to the freedom of speech: libel and racism. Independent courts interpret the boundaries of these exceptions. In December 2023, the Danish parliament endorsed a law to prevent the burning of religious texts, including the Quran (Bologna 2023). Technically, the law was enacted as an amendment to the penal code (Straffeloven 2023). The debate surrounding the enactment of the law has been intense because the law stipulates that it extends to artistic products. The law is so new that there is no information on how the legal system interprets potential transgressions.
Denmark was ranked third out of 180 countries in the Global Press Freedom Index for 2023. A recent report from Roskilde University found that a strong norm of noninterference and acceptance of media independence supports media freedom in Denmark (Schrøder et al. 2021).
There have been various reports indicating harassment of journalists, but self-censorship has not been identified as an issue. Furthermore, the Danish press holds both nationally and locally elected politicians and civil servants accountable.
Citations:
Bologna. 2023. “Folketinget stemmer ja til omstridt koranlov.” DR December 7. https://www.dr.dk/nyheder/politik/folketinget-stemmer-ja-til-omstridt-koranlov
Ministry of Cultural Affairs. 2020. “Media Development in Denmark.” https://mediernesudvikling.kum.dk/fileadmin/user_upload/dokumenter/medier/Mediernes_udvikling/2020/ Overblik_og_perspektivering/Summary_and_discourse_2020.pdf
Straffeloven 2023. https://www.retsinformation.dk/eli/lta/2023/1554
Schrøder, K. C., Blach-Ørsten, M., and Eberholst, M. K. 2021. “Denmark.” In N. Newman, R. Fletcher, A.
Schulz, S.,. Andi, C. T. Robertson, and R. K. Nielsen, eds. 2021. Reuters Institute Digital News Report 2021.
(pp. 74-
75). Reuters Institute for the Study of Journalism. https://reutersinstitute.politics.ox.ac.uk/digital-newsreport/
Reporters Without Borders. 2021. (https://rsf.org/en/ranking/2021)
Reporters Without Borders. “World Press Freedom Index.” https://rsf.org/en/ranking
Zahle, Henrik. 2001. Dansk Forfatningsret 1.
https://rsf.org/en/2023-world-press-freedom-index-journalism-threatened-fake-content-industry
To what extent is a plurality of opinions in the media ensured?
10
9
9
There are no barriers, by law or in practice, to a pluralistic media landscape that represents all existing political perspectives in society.
8
7
6
7
6
Existing barriers, by law and in practice, pose no significant obstacles to the media in representing all relevant political perspectives in society.
5
4
3
4
3
Existing barriers, by law and in practice, pose some significant obstacles to the media in representing all relevant political perspectives in society.
2
1
1
Existing barriers, by law and in practice, pose various significant obstacles to the media in representing all relevant political perspectives in society.
Denmark has roughly 35 daily newspapers. This includes six national dailies (Politiken, Jyllands-Posten, Berlingske, Børsen, Kristeligt Dagblad and Information), two main tabloids (BT and Ekstra Bladet), several smaller regional newspapers and an increasing number of online news sites. The dailies Jyllands-Posten (right-wing/liberal) and Politiken (social democratic/liberal) are managed by the same publishing house, but maintain independent editorial policies and are owned by separate foundations. Only one local paper, Skive Folkeblad, is owned by a political party, the Social Liberal Party.
Most newspapers tend to be either conservative or liberal in their political philosophies. Left-wing views are often underrepresented on editorial pages. Additionally, newspapers are facing financial pressure due to declines both in advertisements and paying subscriptions. It is also challenging to convince users to pay for news published online. As some newspapers disappear, the media landscape is becoming more concentrated. However, in practice, Danish newspapers maintain a high degree of pluralism in opinions. In their news reporting, most newspapers deliver fairly wide-ranging, balanced and diverse coverage. Private media, including the main newspapers, are open to all parties and candidates, regularly including letters to the editor that do not reflect the paper’s own views. A vibrant civil society contributes to this.
Public media outlets – Denmark’s Radio and TV2 – are independent, have editorial freedom, and are required by law to meet diversity and fairness criteria in their programming. All political parties planning to take part in elections have the right to equal programming time on radio and television. Satellite and cable TV are increasingly creating more competition for public media. Additionally, a number of locally oriented radio channels exist.
Internet access is widespread and not restricted. With 98.8% of individuals in Denmark having internet access in 2023, the country ranks among the European nations with the highest share of connected households (Eurostat, 2024). All newspapers are active online and are increasingly moving toward paid content. Danes are increasingly getting their information digitally via social media platforms such as Facebook, Instagram, Twitter and Snapchat. Specific interest groups are also producing their own online outlets. Although print media readership has declined substantially in recent years, these media and TV still play an important role in public debate and serve as a check on elected officials and authorities.
The legal framework surrounding media is rather vague and is based on two laws: the law on Radio and TV (Lov om Radio- og Fjernsynsvirksomhed) and the law on media subsidies (Lov om Mediestøtte). The first law sets the framework for TV, while the second law regulates media subsidies.
The Radio and TV law stipulates that the Danish Broadcasting Company has full independence and is run by a board to which political parties appoint members. The law on media subsidies requires that to obtain subsidies, media organizations must have their own editor in chief and permanent staff equivalent to at least three full-time positions annually. Additionally, the media must provide news to a broad, nonspecialized audience and cannot be owned by trade associations or political parties. Finally, the media must release a product to the market at least 10 times per year.
Citations:
Lov om mediestøtte. https://www.retsinformation.dk/eli/lta/2013/1604
Lov om radio- og fjernsynsvirksomhed: https://www.retsinformation.dk/eli/lta/2022/1595
Eurostat. 2024. “Digital economy and society statistics - households and individuals.” https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Digital_economy_and_society_statistics_-_households_and_individuals
Most newspapers tend to be either conservative or liberal in their political philosophies. Left-wing views are often underrepresented on editorial pages. Additionally, newspapers are facing financial pressure due to declines both in advertisements and paying subscriptions. It is also challenging to convince users to pay for news published online. As some newspapers disappear, the media landscape is becoming more concentrated. However, in practice, Danish newspapers maintain a high degree of pluralism in opinions. In their news reporting, most newspapers deliver fairly wide-ranging, balanced and diverse coverage. Private media, including the main newspapers, are open to all parties and candidates, regularly including letters to the editor that do not reflect the paper’s own views. A vibrant civil society contributes to this.
Public media outlets – Denmark’s Radio and TV2 – are independent, have editorial freedom, and are required by law to meet diversity and fairness criteria in their programming. All political parties planning to take part in elections have the right to equal programming time on radio and television. Satellite and cable TV are increasingly creating more competition for public media. Additionally, a number of locally oriented radio channels exist.
Internet access is widespread and not restricted. With 98.8% of individuals in Denmark having internet access in 2023, the country ranks among the European nations with the highest share of connected households (Eurostat, 2024). All newspapers are active online and are increasingly moving toward paid content. Danes are increasingly getting their information digitally via social media platforms such as Facebook, Instagram, Twitter and Snapchat. Specific interest groups are also producing their own online outlets. Although print media readership has declined substantially in recent years, these media and TV still play an important role in public debate and serve as a check on elected officials and authorities.
The legal framework surrounding media is rather vague and is based on two laws: the law on Radio and TV (Lov om Radio- og Fjernsynsvirksomhed) and the law on media subsidies (Lov om Mediestøtte). The first law sets the framework for TV, while the second law regulates media subsidies.
The Radio and TV law stipulates that the Danish Broadcasting Company has full independence and is run by a board to which political parties appoint members. The law on media subsidies requires that to obtain subsidies, media organizations must have their own editor in chief and permanent staff equivalent to at least three full-time positions annually. Additionally, the media must provide news to a broad, nonspecialized audience and cannot be owned by trade associations or political parties. Finally, the media must release a product to the market at least 10 times per year.
Citations:
Lov om mediestøtte. https://www.retsinformation.dk/eli/lta/2013/1604
Lov om radio- og fjernsynsvirksomhed: https://www.retsinformation.dk/eli/lta/2022/1595
Eurostat. 2024. “Digital economy and society statistics - households and individuals.” https://ec.europa.eu/eurostat/statistics-explained/index.php?title=Digital_economy_and_society_statistics_-_households_and_individuals
Graph View
To what extent are citizens able to freely form or join independent political and civic groups, openly raise and discuss political issues, and assemble without restrictions?
10
9
9
There are no barriers, by law or in practice to creating an engaged society and civil society organizations that are free to operate.
8
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6
7
6
Existing barriers, by law and in practice, pose very few or no significant obstacles to creating an engaged society and civil society organizations that are free to operate.
5
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3
4
3
Existing barriers, by law and in practice, pose some significant obstacles to the creation of an engaged society and civil society organizations that are free to operate.
2
1
1
Existing barriers, by law and in practice, pose various significant obstacles to the creation of an engaged society and civil society organizations that are free to operate.
Civil society organizations have a strong presence in Denmark. The country has a long tradition of voluntary groups, including social organizations, that pursue specific interests and objectives. Most Danes are members of one or several such organizations, including unions and various other associations. Contributions and donations to charitable associations are tax-deductible up to a total cap of DKK 17,700 in 2023. Municipalities are required to support associations financially by providing meeting rooms and other resources.
One explanation for Denmark’s comparatively rich associational life is the historical fact that the country’s major political parties have long been connected to civil society organizations (Pedersen 1989). Although the strong formal ties between these organizations and political parties have weakened substantially, civil organizations remain influential. Many still have a clear voice in the political process.
There are two major sources of bias in associational life in Denmark. First, citizens with low socioeconomic status are considerably less likely to be part of civil society organizations, probably due to costs. Second, immigrants participate in associations less frequently than do native Danes (Medborgerskabsundersøgelsen 2023).
Citations:
Medborgerskabsundersøgelsen 2023. https://integrationsbarometer.dk/t al-og-analyser/medborgerskab-ligebehandling-og-selvbestemmelse
Pedersen, M.N. 1989. “En kortfattet oversigt over det danske partisystems udvikling.” Politica.
One explanation for Denmark’s comparatively rich associational life is the historical fact that the country’s major political parties have long been connected to civil society organizations (Pedersen 1989). Although the strong formal ties between these organizations and political parties have weakened substantially, civil organizations remain influential. Many still have a clear voice in the political process.
There are two major sources of bias in associational life in Denmark. First, citizens with low socioeconomic status are considerably less likely to be part of civil society organizations, probably due to costs. Second, immigrants participate in associations less frequently than do native Danes (Medborgerskabsundersøgelsen 2023).
Citations:
Medborgerskabsundersøgelsen 2023. https://integrationsbarometer.dk/t al-og-analyser/medborgerskab-ligebehandling-og-selvbestemmelse
Pedersen, M.N. 1989. “En kortfattet oversigt over det danske partisystems udvikling.” Politica.
To what extent do civil society organizations (CSOs) have the capacity to actively participate in the co-creation of relevant policies?
10
9
9
All the major CSOs active in the field have the capacity to shape public policies.
8
7
6
7
6
Most of the major CSOs active in the field have the capacity to shape public policies.
5
4
3
4
3
Few of the major CSOs active in the field have the capacity to shape public policies.
2
1
1
None of the major CSOs active in the field have the capacity to shape public policies.
In a comparative perspective, with a trade union density of nearly 65% in 2021, the degree of unionization in Denmark is very high (Statistics Denmark, 2021). There is a long tradition of involving economic and social actors at all stages of the policy cycle, sometimes even in the implementation phase. Both formally and informally, there are valuable contacts between the government and main interest organizations (e.g., trade unions, employers, various business organizations and NGOs) as well as heads of major companies. Interest organizations provide important information for politicians and civil servants. Corporatism still plays a role, although its nature has changed over the years. Danish governments gain information and create legitimacy for adopted policies through the tripartite negotiations.
Tripartite negotiations between social partners (employee and employer organizations) are frequently used to settle labor market issues. This was most recently evident during the COVID-19 crisis, where a large number of tripartite agreements demonstrated the system’s flexibility and adaptability. Other examples of recent tripartite cooperation include initiatives to improve immigrant integration into the labor market and expand lifelong learning programs.
The cooperative approach is also formalized through the Economic Council, established in 1962, which includes representatives from large organizations, the administration, the central bank and independent experts. The Council operates independently, continuously analyzing and commenting on economic developments, economic policies and structural issues in specific policy areas.
Union membership is voluntary (fees are tax-deductible up to a cap, which in 2023 was DKK 6.000) and is not required for unemployment insurance. While membership has been on a declining trend over the long term, there has recently been a small rise. Collective agreements cover most of the labor market and thus also include workers who are not union members.
Citations:
Statistics Denmark. 2021. “Stigende antal fagforeningsmedlemmer i 2022.” https://www.dst.dk/da/Statistik/nyheder-analyser-publ/nyt/NytHtml?cid=46006
Tripartite negotiations between social partners (employee and employer organizations) are frequently used to settle labor market issues. This was most recently evident during the COVID-19 crisis, where a large number of tripartite agreements demonstrated the system’s flexibility and adaptability. Other examples of recent tripartite cooperation include initiatives to improve immigrant integration into the labor market and expand lifelong learning programs.
The cooperative approach is also formalized through the Economic Council, established in 1962, which includes representatives from large organizations, the administration, the central bank and independent experts. The Council operates independently, continuously analyzing and commenting on economic developments, economic policies and structural issues in specific policy areas.
Union membership is voluntary (fees are tax-deductible up to a cap, which in 2023 was DKK 6.000) and is not required for unemployment insurance. While membership has been on a declining trend over the long term, there has recently been a small rise. Collective agreements cover most of the labor market and thus also include workers who are not union members.
Citations:
Statistics Denmark. 2021. “Stigende antal fagforeningsmedlemmer i 2022.” https://www.dst.dk/da/Statistik/nyheder-analyser-publ/nyt/NytHtml?cid=46006
To what extent do civil society organizations (CSOs) have the capacity to actively participate in the co-creation of relevant policies?
10
9
9
All the major CSOs active in the field have the capacity to shape public policies.
8
7
6
7
6
Most of the major CSOs active in the field have the capacity to shape public policies.
5
4
3
4
3
Few of the major CSOs active in the field have the capacity to shape public policies.
2
1
1
None of the major CSOs active in the field have the capacity to shape public policies.
Since the welfare state is responsible for providing most welfare services – including child care, education, healthcare and old-age care – the role of associations is to represent citizens and voice their needs and demands. For instance, there are nationwide associations like Ældre Sagen (association for seniors) and associations for specific groups of patients with particular illnesses. These associations are generally quite visible in public debates, and actively propose policies and participate in the policy formulation process.
Nevertheless, there is increasing attention being paid to co-creation and coproduction of social welfare, prompted by concerns that a small workforce, along with rising demand for social welfare, will strain the welfare state (Andersen et al. 2020). Additionally, worries about the welfare state’s future capacity to manage an increasing number of older people have sparked a debate on whether civil society can assume greater responsibility, allowing professionals more time to focus on core activities.
Citations:
Andersen, SC, et al. 2020. “How to Increase Citizen Coproduction: Replication and Extension of Existing Research.” International Public Management Journal 23 (5): 696-712.
Nevertheless, there is increasing attention being paid to co-creation and coproduction of social welfare, prompted by concerns that a small workforce, along with rising demand for social welfare, will strain the welfare state (Andersen et al. 2020). Additionally, worries about the welfare state’s future capacity to manage an increasing number of older people have sparked a debate on whether civil society can assume greater responsibility, allowing professionals more time to focus on core activities.
Citations:
Andersen, SC, et al. 2020. “How to Increase Citizen Coproduction: Replication and Extension of Existing Research.” International Public Management Journal 23 (5): 696-712.
To what extent do civil society organizations (CSOs) have the capacity to actively participate in the co-creation of relevant policies?
10
9
9
All the major CSOs active in the field have the capacity to shape public policies.
8
7
6
7
6
Most of the major CSOs active in the field have the capacity to shape public policies.
5
4
3
4
3
Few of the major CSOs active in the field have the capacity to shape public policies.
2
1
1
None of the major CSOs active in the field have the capacity to shape public policies.
There is an increasing number of NGOs and associations dealing with environmental issues. Naturfredningsforeningen (The Danish Society for Nature Conservation) has a long tradition and has in recent years become more vocal on environmental issues. Eighteen green organizations have formed a forum – det grønne kontakudvalg – which coordinates and cooperates on environmental issues and participates in the debate and political process. CONCITO – the green think tank – aims to provide information on climate and policies to accelerate the green transition.
In the tradition of tripartite negotiations, the government recently initiated “green” tripartite negotiations to identify broad-based long-term solutions that would allow for the achievement of climate goals and the green transition while maintaining a competitive food-producing sector.
As part of the Economics Council, there is also the Environmental Economic Council (since 2007), which has 24 members representing the chairmanship (an independent group of academics), unions, employers, NGOs, the Danish government and independent economic experts. The members of the Environmental Economic Council meet once a year to discuss a report prepared by the chairmanship.
Citations:
Concito. https://concito.dk
Danish Society for Nature Conservation. https://www.dn.dk/home/english-page/
In the tradition of tripartite negotiations, the government recently initiated “green” tripartite negotiations to identify broad-based long-term solutions that would allow for the achievement of climate goals and the green transition while maintaining a competitive food-producing sector.
As part of the Economics Council, there is also the Environmental Economic Council (since 2007), which has 24 members representing the chairmanship (an independent group of academics), unions, employers, NGOs, the Danish government and independent economic experts. The members of the Environmental Economic Council meet once a year to discuss a report prepared by the chairmanship.
Citations:
Concito. https://concito.dk
Danish Society for Nature Conservation. https://www.dn.dk/home/english-page/