Modified from Irving L. Jensen's excellent work "Jensen's Survey of the NT"

LET EVERY PERSON (soul) BE (continuously) IN SUBJECTION TO THE GOVERNING AUTHORITIES: Pasa psuche exousiais huperechousais (PAPFPD) hupotassestho (3SPPM): (Deuteronomy 17:12; Ephesians 5:21; Titus 3:1; 1 Peter 2:13-17; 2 Peter 2:10,11; Jude 8)

Ray Pritchard writes that...

It has been often said that God only established three institutions--the home, the church, and the state. In so doing, he gave us explicit instructions on how all three were to operate. Most Christians know a great deal about what God has to say about the home and church. We know much less about what God says about the state and how we should relate to it. (Romans 13:1-7: How to be a Godly Rebel)

In this section Paul tells us how the citizens of the Kingdom of God are to relate to human kingdoms and governments, so that we can be the kind of citizens and "lighthouses" (cf Mt 5:16) God wants us to be.

“Let every soul put himself habitually in subjection to authorities”  (Wuest)

In reading Romans 13 it is important to keep the historical context in mind. The political situation in Rome was difficult to say the least. The Roman Emperor Claudius had earlier expelled the Jews because of a dispute involving a certain “Chrestus” (i.e., Christ), and though the Jews had returned, the political situation was still potentially volatile. Moreover, Paul may have also been concerned about the possible influence of a group of Jews known as Zealots, (or here) who held a  revolutionary attitude toward the government of Rome. Paul therefore will give practical instructions  on how a believer should live under an unfriendly government. On the other hand Paul does not directly instruct believers on what we ought to do when a government departs from the role God has given it and does not specifically explain what to do when our government is committing a moral wrong (e.g., as in Nazi Germany). Neither are we told what to do in the midst of revolution. Furthermore, Paul does not hold up one form of government (theocracy, monarchy, democracy, dictatorship, etc) over another (e.g., "When Jesus comes back, He won’t be riding an elephant or a donkey” He’s an Independent and He has the only vote that counts!). He is speaking in broad, general terms about all human government anywhere in the world. The institution of government comes from the hand of God. So keep these thoughts in mind as you study Romans 13, so that you will avoid the interpretative danger of trying to read into Paul's treatise something that he did not intend. 

"Every" (3956) (pas) means "all" without exception. Without the Greek definite article (as in this verse) pas means "every" (of every kind and variety), "each and every one", both individually and collectively. So literally Paul is saying "every soul" which was a Hebraism (i.e., the Hebrews said "every soul" whereas we would say "every one"). Furthermore, "every soul" is emphatic in the Greek, being strategically place first in sentence for emphasis! Paul's point is that there are no exception clauses! This is a universal duty. Christians included for in fact they ought to be the best citizens of all! A believer's submission and dedication to God nor their citizenship in His Kingdom, does not negate or replace his responsibility to the secular authorities. As "aliens and strangers" we are charged to be exemplary subjects to our secular authorities.

Believers then (when Rome ruled with an iron fist) and now might be tempted to feel that since we are "aliens and strangers" (see notes on 1 Peter 2:11) in this present world and are citizens of the Kingdom of God (Kingdom of Heaven) (see study of the beatitudes and the Sermon on the Mount) (see note on Php 3:20) (Heb 12:22), we do not need to submit to wicked rulers. We are citizens of heaven, journeying through time on earth. So although heaven is our home, Spirit filled (controlled) believers must be subject to authorities.. Why? Paul says because that authority is established by God.

Be in subjection (5293) (hupotasso) (4 times in Romans: Ro 8:7,8:20, 10:3, 13:5, cf Jesus' example Lu 2:51, cf also Js 4:7) (click in depth study of hupotasso) was a military term that meant to line up under, to place or rank under or to subordinate to. It represented a logistical term which described the arrangement of military implements on a battlefield for effective warfare. “To arrange [troop divisions] in a military fashion under the command of a leader”.

Hupotasso focuses on function, not essence. In non-military use, it was "a voluntary attitude of giving in, cooperating, assuming responsibility, and carrying a burden". The central idea is to be under the authority of some authority.

Stated another way submission means to voluntarily follow the direction of those in authority over you. Submission is not the same as obedience, though the two are related. Obedience relates to outward performance, while submission touches the attitude of the heart toward those who are over you. This distinction is critical because you may not always be able to obey those who are over you, but you can always have a heart attitude of submission.

Submission is believing that God is able to accomplish His will in your life through those He has placed in authority over you. This definition focuses the attention on God, not on the person over you.

As Ray Pritchard explains...

We’ll all have to contend at times with unsaved husbands, mean-spirited parents, cranky bosses, and teachers who can’t wait for the end of the semester. Sometimes we’ll work for people we can’t stand. Or live with people who treat us cruelly. Or suffer under a government that consistently promotes evil. What do you then? Actually, you have many options. You can rebel. You can fight back. You can suffer in silence. You can complain to others. You can get angry and try to get even. You can appeal to the authority over you asking for a redress of your grievances. The most important thing is the attitude of your heart. You must submit to the one in authority in the sense that you must believe that God has put that person in your life for a purpose and that God’s will is somehow being done in your through that person even if you don’t see it and don’t understand it. God says, “By me kings reign.” He takes responsibility for raising up one leader and pulling down another. He stands behind the ballot box and behind the armies that march and the navies that sail. He is Unseen Hand at work in the nations of the world.  (Romans 13:1-7: How to be a Godly Rebel)

In Ephesians Paul instructs the believers to...

be subject (perfect tense pictures this as a permanent attitude) to one another in the fear of Christ. (see notes on Ephesians 5:18-21)

Note that Paul is addressing the Spirit controlled man or woman, for ultimately our flesh does not desire to be subject to any authority. We need the Spirit's empowerment.

Writing to Titus who was ministering on the isle of Crete which had many rebellious men, empty talkers and deceivers, especially those of the circumcision, Paul instructed Titus to...

Remind (present imperative) them (the believers) to be subject (hupotasso) to rulers, to authorities, to be obedient, to be ready for every good deed - (see notes on Titus 3:1)

Submission (Webster's 1828 writes that submission means "yield, resign or surrender to the power, will or authority of another") is an act of faith. When we subject ourselves to an authority, we are trusting God to direct in our lives and to work out His purposes in His time (Ep 1:11 see notes Romans 8:28). After all, there is a danger in submitting to authority -- they might take advantage of us! There is but one limitation to the believer’s obligation under the Lord to willing and complete submission to civil authority: namely, any law or command that would require disobedience to God’s Word (eg., see Ex 1:17-20, Acts 4:18-20; 5:29).

Regardless of the failures of government—many of which are immoral, unjust & ungodly—Christians are to pray (1Ti 2:1-3) and live peaceful lives that influence the world by godly, selfless living, not by protests, sit ins, and marches, much less by rebellion.

Every believer is to be continuously (present tense) subject to these various authorities, even if the authorities are as wicked and depraved as Nero (A.D. 54–68), the emperor in power when Paul wrote this section. Nero's reign brought dark days for Christians. Foxe’s Book of Martyrs describes the scene as follows:

In AD 67, Nero ordered the burning of Rome. The fire lasted for nine days and when the blame turned to Nero, Nero blamed the Christians. And Nero came at the Christians with a new vengeance. Nero contrived all manner of punishments for the Christians that the most infernal imagination could design. In particular, he had some sewed up in skins of wild beasts, and then they were attacked by dogs until they expired; and others dressed in shirts made stiff with wax, were fixed to stakes, and set on fire in his gardens, in order to illuminate them. This persecution was general throughout the whole Roman Empire. In the course of it, St. Paul and St. Peter were martyred.
 

We must also understand the seriousness with which God takes rebellion to governing authorities as illustrated by Korah's refusal to subject himself to Moses' authority (Nu 16:3,13, 30, 32-35, 41,49). Had not Aaron intervened by making atonement for the people, the entire congregation of Israel would have been annihilated (Nu 16:46-48).

Governing  (5242) (huperecho from hupér = above, over + écho = have, hold) literally means to hold over or have above, and figuratively to be superior in rank which explains the translation as "governing".

On the eve of Nero’s fiery persecution, Peter gave a similar exhortation to the believers who resided reside as aliens, scattered throughout Pontus, Galatia, Cappadocia, Asia, and Bithynia, instructing them...

Submit (present imperative) yourselves for the Lord's sake to every human institution, whether to a king as the one in authority,  14 or to governors as sent by him for the punishment of evildoers and the praise of those who do right. 15 (Why? How will believers let their lights shine forth and give their Father glory? Mt 5:16, cf notes on Philippians 2:15) For such is the will of God that by doing right you may silence the ignorance of foolish men. 16 Act as free men, and do not use your freedom as a covering for evil, but use it as bondslaves of God. 17 Honor all men; love the brotherhood, fear God, honor the king. (see notes 1 Peter 2:13-17)

Authorities & authority (1849) are both exousia  (used 3x in this chapter = Ro13:1,13:2,13:3, cf some other NT uses Mt 8:9, Mt 9:8, Mt 21:23, Mt 21:24, Mt 28:18, Mk 2:10, Lu 7:8, Lu 12:5, Lu 19:17, Lu 20:20, Lu 23:7) (Click in depth study of exousia) which Vine says evolved "from the meaning of "leave or permission," or liberty of doing as one pleases, it passed to that of "the ability or strength with which one is endued," then to that of the "power of authority," the right to exercise power...or "the power of rule or government," the power of one whose will and commands must be obeyed by others. In short exousia is "the right and the might" (see Ro 9:21) or the privilege and the power. An authority is anyone who has the right to make decisions that affect your life.

Paul well understood "exousia" as illustrated by (Ac 26:10, 26:12)

"A Christian man is the most free lord of all, and subject to none; a Christian man is the most dutiful servant of all, and subject to everyone."—Martin Luther

FOR THERE IS NO AUTHORITY EXCEPT FROM GOD: ou gar estin (3SPAI) exousia ei me hupo theou:  (Jn 19:10,19:11, Pr 8:15-16 Da 2:21 4:32 5:18-23)

The Authority behind the authorities is God. This is a lot easier to preach in America than it would be in China. We like to think that God is behind governments like America and England, but that He has nothing to do with governments like China. But recall the evil government headed by Pilate that unjustly crucified our Lord (Jn 19:11). Pilate could not have even lifted a finger to crucify Jesus if it were not permitted by God that he do so. In (Romans 9:17) to the Paul tells us that God raised up Pharaoh, that wicked, hardhearted king, and set him on the throne of Egypt. God did that! God made Nebuchadnezzar ("My servant" Jer 25:9) the most powerful ruler in the world & used him to punish His own chosen people. Cyrus was also God's servant, raised up and set on the throne by God (Isa 44:28; 45:1).

All through the OT God represents himself as the controlling force behind every government on earth, without exception. Therefore, it isn't man's elections or his revolutions that determine the governments of earth. We think it is. In Mexico they used to do it by the process of revolution -- you never could change the government there without a revolution. But neither elections nor revolutions determine who sits in the seats of power -- it is God Who does so. These things are only the instruments by which He works His will; and the revelation of Scripture is that God puts in power the men of his choosing, whether they be good or evil, whether they are beneficent rulers or tyrants like Hitler or Stalin or Mao or any of the others on earth by the permissive choice of God. If you struggle with that, it is because you don't see what is behind God's purpose in the world today & that He is El Elyon, the sovereign Most High God over ALL the earth. The questioning of why God allows evil comes because we do not realize that God is not attempting to govern the earth properly -- He is waiting, He is withholding, He is restraining evil, He is governing to a limited extent, -- but He is not trying to do the job as He will someday. We've not seen the end of "His"story ("HISTORY") yet!. Every government that exists is held in the palm of God's hand. It can only go as far as God wills; it is under His control; it has been instituted by Him.

God instituted the system of human government immediately after the great flood when He decreed,

“Whoever sheds man’s blood, by man his blood shall be shed” (Ge 9:5-6).

That decree gave authority to men to judge criminal matters and to punish offenders. (1Pe 2:13-17 Jn 19:11) Furthermore, God sometimes may, for His own purposes, place even wicked men in positions of power (Nebuchadnezzar Jer 27:5-7, Da 4:17). The Apostle Paul himself was imprisoned and finally executed by Emperor Nero, yet he never counseled rebellion or disobedience.

Paul says, human government is ordained by God for the benefit of society. In whatever of the many forms it exists, civil authority derives directly from God. Like marriage, it is a universal institution of God, and, like marriage, it is valid regardless of place, circumstance, or any other consideration. God sovereignly created and absolutely controls the universe, with no exceptions or limitations. Also without exception, the power that any person, group, or society may possess is divinely delegated and circumscribed. How well or how poorly that power is used is another matter. The autocratic, ruthless, and even demonic regimes of Adolph Hitler, Joseph Stalin, and Mao Tse Tung were no exceptions to God’s command to be subject to civil authority. The Roman empire, sometimes ruled by Caesars who proclaimed themselves to be gods, was no exception. The apostate and heretical “Christian” kingdoms of the Middle Ages were no exceptions. Shaman ruled primitive and animistic tribes of South America are no exceptions. Scripture however does make exception in those situations in which obedience to civil authority would require disobedience to God & to God’s Word (eg, Ex 1:17; Da 3:16-18 6:7,10; Ac 4:19-20; 5:28-29).

Richard Halverson the former chaplain of the United States Senate wrote that...

To be sure, men will abuse and misuse the institution of the State just as man because of sin has abused and misused every other institution in history including the Church of Jesus Christ, but this does not mean that the institution is bad or that it should be forsaken. It simply means that men are sinners and rebels in God’s world, and this is the way they behave with good institutions. As a matter of fact, it is because of this very sin that there must be human government to maintain order in history until the final and ultimate rule of Jesus Christ is established. Human government is better than anarchy, and the Christian must recognize the “divine right” of the State. (Halverson, R: Prologue to Prison: Cowman Publishers, 1964)

Prayer and Politics, a devotional from Our Daily Bread:

In 1787 a convention was called in the United States to revise the Articles of Confederation. For weeks delegates reviewed ancient history and analyzed modern governments, searching for insights. But nothing suited the infant nation.

Finally, a distinguished gentleman named Benjamin Franklin rose and said, "In this situation of this assembly, groping as it were in the dark to find political truth and scarce able to distinguish it when it is presented to us, how has it happened that we have not hitherto once thought of humbly applying to the Father of Lights to illuminate our understandings?" Mr. Franklin believed there was a sovereign God who could provide guidance to those who sought it.

If ever there was a time to follow that prayerful example, it is now. Paul said that governments are ordained of God (Rom. 13:1), and that we are to pray for those in authority over us (1 Tim. 2:1-2). This prayer principle also applies to the election of our leaders. We must become informed and vote prayerfully for those who shape our laws.

Because God has instructed us to do so, we can--indeed we must--unashamedly and boldly mix prayer with our politics. --DJD

In God we trust, let others trust their rulers,
We trust in God to save us from alarm;
Like broken reeds, the works of man will fail us,
Our God alone can keep us from all harm. --Smith

Whatever makes men good Christians makes them good citizens. --Webster

AND THOSE WHICH EXIST ARE ESTABLISHED BY GOD: ai de ousai (PAPFPN) hupo theou tetagmenai (RPPFPN) eisin (3PPAI): (1 Samuel 2:8; 1 Chronicles 28:4,5; Psalms 62:11; Proverbs 8:15,16; Jeremiah 27:5-8; Daniel 2:21; 4:32; Daniel 5:18-23; Matthew 6:13; John 19:11; Revelation 1:5; 17:14; 19:16)

"Established" (5021) (tasso) means to assign or dispose to a certain position or lot or to a particular task.  Perfect tense pictures a past completed action with present ongoing effect or result and so could be translated "Have been ordained and the ordinance remains in force." 

Wuest translates it this way...

the existing authorities stand permanently ordained by God.

Thus human government is a permanent institution brought into being by God for the regulation of human affairs for He alone is the sovereign ruler of the universe (Ps 62:11, 103:19, 1Ti 6:15).

This principle that all authority is from God is seen in both the Old and New Testament...

He raises the poor from the dust, He lifts the needy from the ash heap To make them sit with nobles, And inherit a seat of honor; For the pillars of the earth are the LORD 's, And He set the world on them.  (1 Samuel 2:8)

By Me kings reign, and rulers decree justice. By Me princes rule, and nobles, all who judge rightly.  (Proverbs 8:15,16)

"(After God had revealed the mystery of Nebuchadnezzar's dream to Daniel he bless the God of heaven testifying that) it is He who changes the times and the epochs; He removes kings and establishes kings; He gives wisdom to wise men, And knowledge to men of understanding. (Daniel 2:21)

"(Speaking of King Nebuchadnezzar Daniel records this incredible event and the even more incredible result) (Nebuchadnezzar) as also driven away from mankind, and his heart was made like that of beasts, and his dwelling place was with the wild donkeys. He was given grass to eat like cattle, and his body was drenched with the dew of heaven, until (an crucial time phrase) he recognized that the Most High (El Elyon) God is Ruler over the realm of mankind, and that He sets over it whomever He wishes." (Daniel 5:21)

Jesus answered (Pilate who claimed to have authority over Jesus' destiny), "You would have no authority over Me, unless it had been given you from above; for this reason he who delivered Me up to you has the greater sin." (John 19:11)

John MacArthur has an excellent comment on this section writing that

These seven verses contain the clearest and most specific NT teaching on the Christian’s responsibility to civil authority. Every Christian, no matter what form of government he lives under, is under command from the Lord to maintain proper and useful submission to that government for the sake of leading a peaceful life and having an effective witness. This recurring theme of submission to society’s controlling power is nowhere more forcefully dealt with than here....The monumental miracle of salvation impacts every relationship associated with the believer’s life. ...

First, and most important and obvious, is the effect on our relationship to God. When we are saved, our initial response should be to fully present our “bodies a living and holy sacrifice, acceptable to God, which is [our] spiritual service of worship” (see notes on Romans 12:1).

The apostle’s next concern is for our having a right relationship with our brothers and sisters in Christ (see notes on Romans 12:3-6) and with non Christians, including even our enemies (notes on Romans 12:17
Ro 12:18-21).

After dealing with those matters, the inspired writer focuses on the need to have a right relationship to the human governments under which we live (Romans 13:1-7). Due to the religious freedom that most westerners have enjoyed for many generations, it is difficult for believers living in such countries to fully appreciate the struggle that many of their brothers and sisters in Christ face under regimes that restrict freedom and oppress Christianity....

We are to be the conscience of the nation through faithful preaching &  godly living, confronting it not with the political pressure of man’s wisdom—including our own—but with the spiritual power of God’s Word. Using legislation, adjudication, or intimidation to achieve a superficial, temporal “Christian morality” is not our calling—and has no eternal value....the Christian’s priority [is] of proclaiming the gospel and living a holy life to demonstrate that God is a saving God.

Both the Old and New Testament present illustrations of believers whose earthly role placed them in civil service, and they were useful to God there. Joseph in Egypt and Daniel in Babylon are the two supreme Old Testament examples. After Jesus healed the centurion’s servant, He did not advise him to leave the army (Mt 8:5-13). After Zaccheus was converted, he did not leave his civil profession but became an honest tax collector (see Lu 19:1-10). Cornelius, another Roman centurion, was saved through the ministry of Peter and continued to serve in the army (Ac 10). And there is no reason to believe that the proconsul Sergius Paulus did not remain in his high civil office after he was saved (Ac 13:4-12).

In a message delivered at Oxford University in 1898, the British theologian Robert L. Ottley observed:

THEREFORE HE WHO RESISTS AUTHORITY: hoste o antitassomenos (PMPMSN) te exousia: (Jeremiah 23:8-17; 44:14-17; Titus 3:1)

"Therefore he who resists and sets himself up against the authorities" (Amplified)

 "Therefore" (5620) (hoste) introduces a conclusion, the logical result (see term of conclusion) - Because God has willed that there be orderly states, anyone who sets himself in opposition rebels against what God has ordained. Paul is making it clear that the believer is to respect the state & not make himself the final arbiter. Manson adds "Resistance to legitimate authority legitimately exercised is wrong."

To resist the authorities that God has set in place is to resist what God has commanded and such resisters will bring judgment on themselves. As alluded to above, there is an exception. A Christian is not required to obey if the government orders him to sin or to compromise his loyalty to Jesus Christ (Ac 5:29).

No government has a right to command a person’s conscience. So there are times when a believer must, by obeying God, incur the wrath of man. In such cases he must be prepared to pay the penalty without undue complaint.

"Resists" (498) (antitassomai  from antí = against + tásso = arrange) literally means to "array against" and used only 4 other times in NT (Ac 18:6, Ja 4:6, Ja 5:6)  (see notes on 1 Peter 5:5) The verb is in the present tense which pictures one who continually or habitually resists authority and dos so as a lifestyle. In addition the verb is in the middle voice which brings out the reflexive meaning and so means to set oneself against, to resist or to oppose. Antitassomai was a militar