Professional Documents
Culture Documents
Franz-Ludwig Knemeyer
Polizei
173
174
Franz-Ludwig Knemeyer
Polizei
175
p. 182 No. 3 79).' 5 Two Nuremberg Council Decrees from the years
1482 and 1492, as well as the constitution imposed on the town of
Bingen in 1488 by the Kurfurst Berthold von Henneberg of Mainz,
employ the word 'Polizei' in connection with the word 'Regiment'
(Baader, 1861, pp. 46, 56). Berthold made the freemen swear 'to
be obedient in affairs and orders relating to the Regiment and
Polizei of that town' (Segall, 1914, p. 17).6 At the end of the
1485 Territorial Regulations of the Baden Markgrafschaft it was
stated that 'regulations had been established and should be followed
for the sake of 'guter policei' and the common good' (Carlebach,
1906, Vol. I. p. 117). 7 It can also be read in the Reichspolizeiordnung of 1530 that while order and Policey were necessary, this
had met with no real fulfilment (Neue und vollstandigere . . .,
1747, Vol. 2 p. 333). 8 A Cleves law of 1534 was directed against
the 'disorder of policyen' (Scotti, 1826, p. 86 No. 39). A Wiirttemberg mandate in the year 1535 directed against the Minister
Anabaptists talked of 'good Christian Polizei' (cited in Schmucker,
1958, p. 4).
Laws were promulgated all over Germany in the seventeenth
century as well whose object was the establishment and/or maintenance of good order in the community. Thus for example the
Wiirttemberg Code (Landrecht) or 1610 contained regulations
aimed at 'the maintenance of good Policey1 (Riecke, n.d., 5). A
Saxonian law was promulgated in 1612 'so that good Policey,
morals and respectability'could be maintained (Lunig, 1724, Vol. I.
p. 1453).9 In 1616 a law of Nassau-Catzenellenbogen declared that
the welfare of the country rested among other things on good
Polizei (von derNahmer, 1831, Vol. I. p. 115ff.). In a Kreisabschied
from Upper Saxony in 1654 it was stated that 'all good order is
gone to ruin, and instead of good Policey, morals, and respectability the most disgraceful disorder rules' (Moser, 1747, p. 141). 10
It can be read in a Brandenburg law of 1688 that without the fear
of God a peaceful life could not be led, nor good Policey instituted
or maintained (Mylius, 1714, Pt. 3 p. 6).
In all these examples, and in the further cases that can be found
in Zobel and Knemeyer11 the word 'Polizei' has the meaning of a
condition of order in the community although the word is often
only used once, and then mostly in a preamble (Maier, 1966a,
p. 120).
During the eighteenth century the same thing was in part understood by the term 'Polizei' (Knemeyer, 1967, p. 158). Dithmar,
one of the iirstPolizeiwissenschaftler, defined 'Policei''as consisting
'in the good order and constitution of the persons and affairs of
a state'(1745, p. 134). 12
b) 'Polizei'= 'Polizeigesetz' (= duties laid down by authority). A
176
Franz-Ludwig Knemeyer
Polizei
177
178
Franz-Ludwig Knemeyer
Polizei
179
180
Franz-Ludwig Knemeyer
Polizei
181
182
Franz-Ludwig Knemeyer
If the extent of the concept 'Polizei' at the beginning of the eighteenth century is considered (and at the same time disregarding
nuances and the diverse construals of the term) the slogan 'establishment and maintenance of order' can be used, albeit crudely, to
characterise the meaning of the term up to that date. 'Good order'
here referred both to protection from danger and to concern with
matters of welfare. Since these two concerns lie at the heart of
domestic administration, a conceptual equivalence emerged
between 'Polizei' and 'domestic administration'. This all-embracing
conception which had been valid for over three hundred years
underwent, however, at the beginning and then principally during
the century a shift and restriction in meaning which presages the
foundations for the present-day conception. This alteration can be
seen at work initially in the introduction of an institutional
meaning of 'Polizei'.
2. The Development of an Institutional and Formation of a Formal
Concept of 'Polizei'
Polizei
183
184
Franz-Ludwig Knemeyer
Polizei
185
186
Franz-Ludwig Knemeyer
Polizei
187
188
Franz-Ludwig Knemeyer
While it can be seen that security here has priority, a special role
is reserved for the function of supervision, in particular the supervision of communes and corporations. If then security is in the
foreground in terms of public peace, security and order 'Polizei'
does then however include a number of tasks appropriate to internal
administration. In those spheresin which the tasks of'Polizei' are
performed by authorities not named as 'Police' the execution of
responsibility for protection of the public and furtherance of
well-being become especially confused. Since this does not merely
concern the delineation of spheres of competence for the disposition of legal measures, it must be emphasised that in the first half
of the nineteenth century it was not in practice possible to separate
'Polizei' from the rest of the business of internal administration.
Most administrations, as Putter showed, wove together the business
of security, order and welfare. Attempts to separate them remained
for a long time simply legal academic exercises without practical
implications. As Scupin clearly states:
If 'Polizei' is understood as the upholding of security and order
as a general aspect of internal administration, then virtually all
administration becomes Polizei administration insofar as it
independently assumes responsibility for the protection of its
objects of administration. (1970, p. 71.)
It must on the other hand be emphasised that the distinction
between the promotion of welfare and the maintenance of order
served in the final analysis to limit the police powers of the state
through the invocation of legal regulation.
This tendency was represented by liberals after 1815. The
widely-read Staatsrecht der constitutionellen Monarchic of 1839
argued that:
No governmental power is more dangerous to freedom than that
of Polizei not simply the so-called superior or secret police,
but the so-called welfare 'Polizei' above all. The prime function
of the state should be solely to secure the domination of Law.
According to basic constitutional principles there is only one
possible place for Polizei, and that is the responsibility for
security and order in the state; What is known as welfare
'Polizei' (especially surveillance and welfare 'Polizei') is nothing
but open interference with the freedom of the citizen, (von
Aretin / von Rotteck, 1839, Vol. 2 p. 165).
This typifies the attitude of liberals to welfare 'PoIizeP. Aretin's
appreciation of 'higher' or 'secret' police is representative of all
liberal-bourgeois writing before 1848; the concept and form of
the secret State police had been copied from the French example
during the Napoleonic period. It is quite understandable that the
Polizei
189
190
Franz-Ludwig Knemeyer
Polizei
191
192
Franz-Ludwig Knemeyer
Polizei
193
Notes
1. This article first appeared in O. Brunner et. al. (eds.) Geschichtliche
Grundbegriffe Vol. 4 (Ernst Klett Verlag, Stuttgart 1978) pp. 875-97.
2. This refers to the federal structure of the Bundesrepublik and is taken up
later in the article (Trans.).
3. 'pollitzey und regirung . . . in allen Sachen ordnen, setzen, und frnemen.'
Original STA Nuremberg: D-Laden-Urk.Nr.491. See also Chmel, 1838, p. 415
(no. 4097), although somewhat inexact.
4. 'dise stat mit vil loblichen polliceien und guten ordnunge verselien'.
5. 'Gebot der gemeynen verlewmutten frawen der kleydung und ander
gezird halben'; 'uff pollicey und wesentlichkeyt unser stat Wurtzpurg ein
vleissigs aufsehen zu haben.'
6. 'in Sachen und' Geboten derselben Stadt Regiment und Polizei berhrende
gehorsam zu sein'.
7. 'ordnungen . . . ufgericht, gehandthabt und den nachgevolgt werde, wie
sich zu guter policei und gemeinem nutze . . . gebret und not ist'.
194
Franz-Ludwig Knemeyer
References
Anon. (1735) Verhltnis der Polizei zur
Religion.
von Aretin, J.C.A.M. and von Rotteck, C.
(1839) Staatsrecht der constitutionellen
Monarchie Vol. 2, second ed. Leipzig.
Baader, J. (ed.) (1861) Nmberger Polizeiverordnungen aus dem 1315 Jabrbundert,
Stuttgart.
Polizei
Berner, G. (1952) 'Zur Neuordnung der
Polizeiorganisation in Bayern', Die Neue
Polizei Vol. 6 Nos. 4 and 5.
Berner, G. (1957) 'Wandlungen des
Polizeibegriffs seit 1945', Deutsche
Verwaltungsbltter Vol. 72.
Bckenfrde, E.-W. (1958) Gesetz und
gesetzgebende Gewalt, Berlin.
Bornhak, C. (1884) Geschichte des preuischen Verwaltungsrechts Vol. 1, Berlin.
Brockhaus (1817) Conversations-Lexicon
fr die gebildete Stnde Vol. 7, fourth
edition.
Brockhaus (1854) Conversations-Lexicon
(new series) Vol. 12, tenth edition.
Carlebach, R. (1906) Badische Rechtsgeschichte Vol. 1, Heidelberg.
Chmel, J. (1838) Regesta chronologicadiplomatica Friderice IV. Romanorum regis
(imperatoris III.), Auszugaus den Registraturbchem zu Wien, Pt. 1, Vienna.
Damkowski, W. (1969) Die Entstebung
des Verwaltungsbegriffes. Eine Wortstudie,
Cologne.
Dithmar, J. C. (1745) Einleitung in die
oeconomische Policei- und CameralWissenschaften, Frankfurt a.O.
Entscheidungen des kniglichen Oberverwaltungsgerichts Vol. 9 (1883) Berlin.
Erichsen, H.-U. (1971) Verfassungs- und
verwaltungsgeschichtliche Grundlagen der
Lehre vom feblerhaften belastenden
Verwaltungsakt und seine Aufbebung im
Proze, Frankfurt.
Fichte (1970) Grundlage des Naturrechts
nach Principien der Wissenschaftslehre
(1797), Gesamtausgabe Vol. 4.
Friedliebe, C. W. (1614) Prudentia politica
Christiana, Goslar.
Gnner, N. T. (1805) Deutsches Staatsrecht Pt. 2, Augsburg.
Gosch, J. L. (1789) Philosophische Aphoristnen ber Staatswirtschaft, Copenhagen.
Gtz, V. (1973) Allgemeines Polizei- und
Ordnungsrecht, second edition, Gottingen.
Grimm, J. and W. (1889) Deutsches
Wrterbuch Vol. 7.
Hegel (1928) Rechtsphilosophie, Smtliche
Werke Vol. 7.
Hoffman, H. (ed.) (1955) Wrzburger
Polizeistze, Gebote und Verordnungen
des Mittelalters 1125-1495, Wrzburg.
Hufeland, G. (1798) Institutionen des
gesammten positiven Rechts oder systematische Encyklopadie der smmtlichen
allgemeine Begriffe und unstreitigen
Grundstze aller in Deutschland geltenden
Rechte, Jena.
Jablonski, J. T. (1748) Allgemeines
Lexicon der Knste und Wissenschaften,
Vol. 2, second edition.
von Justi, J. H. G. (1756) Grundstze der
Polizey-Wissenschaft in einem vernnftigen,
auf den Endzweck der Polizey gegrndeten,
Zusammhange und zum Gebrauch Academischer Vortesungen abgefasset,
Gottingen.
von Justi, J. H. G. (1760) Die Grundfeste
195
zu der Macht und Glckseligkeit der
Staaten, Vol. 1, Knigsberg.
Klber, J. L. (1822) ffentliches Recht
des Teutschen Bundes und der Bundestaaten second edition, Frankfurt.
Knemeyer, F.-L. (1967) 'Polizeibegriffe in
den Gesetzen des 15, bis 18. Jahrhunderts.
Kritische Benerkungen zur Literatur ber
die Entwicklung des Polizeibegriffes'
Archiv des ffentlichen Rechts Vol. 92.
Knemeyer, F.-L. (1975) 'Deutsches
Polizeirecht', Die ffentliche Verwaltung
Vol. 28.
Krnitz, J. G. (1810) Oeconomische
Encyclopdie oder allgemeines System der
Land-, Haus- und Staatswirthschaft
Vol. 114.
Ladendorf, O. (1906) Historisches Schlagwrterbuch, Straburg.
Lieberich, H. (1969) 'Die Anfnge der
Polizeigesetzgebung des Herzogtums
Baiern', in D. Albrecht et al. Festschrift
Max Spindler, Munich,
von Loen, J. M. (1750) Entwurf einer
Staatskunst, worinnen die natrlichste
Mittel entdeckt werden, ein Land mchtig
reich und glcklich zu machen, Leipzig.
Lnig, J. C. (ed.) (1724) Codex Augustaeus
oder Neuvermehrtes corpus juria Saxonici
Vol. 1, Leipzig.
Maier, M. (1966a) Die ltere deutsche
Staats-und Verwalhngslebre, Neuwied.
Maier, H. (1966b) ltere deutsche Staatslebre und wesentliche politische Tradition, Tbingen.
Majer, B. J. C. (1775) Teutsches weltliches
Staatsrecht Vol. 1, Leipzig.
Manz (publ.) (1848) Allgemeine Realencyclopdie oder Conversations-Lexicon
fr das katholische Deutschland Vol. 8.
Maunz, T., Drig, G., Herzog, R. (1959f)
Grundgesetz, Kommentar.
Mayer, A. (1952) 'Die Polizeiliche Generalklausel als Problem der kommenden
Polizeigestzgebung in Bayern', Die neue
Polizei Vol. 6 No. 11.
Mayer, F. (1958) Die Eigenstndigkeit des
bayerischen Verwaltungsrechts, dargestellt
an Bayerns Polizeirecht, Munich.
Meyer, H. J. (1889) Neues KonversationsLexicon fr alle Stnde Vol. 13, fourth
edition.
Moser, J. J. (1747) Teutsches Staats-Recht
Pt. 32, Leipzig.
Mylius, C. O. (1714) Corpus constitutionum
Magdeburgicarum novissimarum Pt. 3,
Magdeburg.
Mylius, C. O. (1740) Corpus constitutionum
marchicarum, Berlin.
von der Nahmer, W. (1831) Handbuch des
Rheinischen Rechts Vol. 1, Frankfurt.
Neue und vollstndigere Sammlung der
Reichs-Abschiede (1747), Frankfurt.
Pierer, A. H. (1844) Encyclopdisches
Wrterbuch des Wissenschaften, Knste
und Gewerbe Vol. 2, second edition.
Policey-Ordnung im Lande Stemberg
(1537) (1751).
196
Franz-Ludwig Knemeyer