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Multilingual the Hague: Municipal Language Policy, Politics, and Practice

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Multilingual The Hague: Municipal language policy, politics, and practice Anne-Mieke M. M. Thieme Leiden University January 2020 Supervisor: Prof. I. M. Tieken-Boon van Ostade Second reader: Dr. D. Smakman Acknowledgements This thesis would not have been what it is today without the help of many people. First of all, I would like to express my greatest gratitude to my supervisor, Professor Ingrid Tieken-Boon van Ostade. Her helpful feedback, enthusiasm, and insights encouraged me to get the most out of my Research Master’s thesis project. I am extremely thankful that she was my thesis supervisor. I would also really like to thank Dr Eduardo Alves Vieira for discussing my thesis ideas with me and giving useful advice about which directions I could consider. I am also grateful to the audience at Anéla’s 2019 Study Day about Multilingualism in Education and Society for their interesting comments. I am incredibly indebted to Peter Sips, Lodewijk van Noort, and Frank Welling of the municipality of The Hague, who kindly talked to me and gave me insight into municipal language policy. Without their help, this thesis would have an empty shadow in comparison to what it is now. They showed me how relevant the topic was, inspiring me to dig deeper and push further. Thank you so much, Peter, Lodewijk, and Frank. Lastly, I would like to thank my family and friends for the unconditional support they gave me, for listening to my ideas, and asking helpful questions. I am forever grateful that they were there for me along the way. I would like to specifically mention Wietse and Hugo and thank them for the interesting conversations we had and for their useful suggestions about politics and economics. ii Samenvatting In veel steden over de hele wereld is meertaligheid de realiteit en dit is ook het geval in Den Haag. Rond de eeuwwisseling sprak bijna de helft van de schoolgaande kinderen in deze stad een andere taal naast het Nederlands thuis en dat zijn er sindsdien waarschijnlijk alleen maar meer geworden (Extra et al., 2001). De meertaligheid in de stad heeft invloed heeft op communicatie, onderwijs en het stadslandschap en daarom moet de gemeente er iets mee. Er is echter weinig onderzoek gedaan naar taalpolitiek en taalbeleid op gemeentelijk niveau in het algemeen en naar meertaligheid in Den Haag in het specifiek (Backhaus, 2012; Tieken-Boon van Ostade, 2019). Om dit gat te proberen op te vullen, onderzocht ik het gemeentelijk beleid, de gemeentepolitiek en de gemeentelijke praktijk rondom meertaligheid in Den Haag. Er waren twee onderzoeksvragen: hoe ziet het beleid en de politiek rondom meertaligheid in Den Haag eruit op papier en hoe vertaalt zich dat naar de praktijk, specifiek naar het taalgebruik op gemeentelijke borden in Den Haag? Om deze vragen te kunnen beantwoorden heb ik drie subprojecten uitgevoerd. Ik heb de beleidsstukken en politieke documenten van de huidige gemeenteraad geanalyseerd door middel van corpusanalyse. Twee belangrijke beleidsdocumenten, namelijk het coalitieakkoord en het vertaalbeleid, heb ik in detail onderzocht met behulp van een kritische discoursanalyse. Daarnaast heb ik gekeken naar taalbeleid en -politiek in de praktijk door het taalgebruik op gemeentelijke borden te analyseren met een taallandschapsanalyse. De resultaten van de drie methodes geven een vergelijkbaar beeld over meertaligheid in Den Haag, maar elk vanuit een andere hoek. Ze laten zien dat de gemeente zich vooral richt op de Nederlandse taal: het gebruik van het Nederlands en taalonderwijs in het Nederlands. Meertaligheid wordt in het algemeen als obstakel gezien voor het leren en gebruiken van het Nederlands, tenzij het de meertaligheid betreft van zogeheten expats, internationals en toeristen. De gemeente komt hun wensen tegemoet en benadert ze in het Engels, Frans en Duits, terwijl de focus bij inwoners met bijvoorbeeld een Turkse, Marokkaanse of Oost-Europese achtergrond ligt op het Nederlands. Deze verschillende benadering vergroot mogelijk de ongelijkheid in de stad. In mijn discussie laat ik zien dat ideologieën over taal en bevolkingsgroepen, zoals nationalisme en een eenzijdige economische benadering van meertaligheid, aan dit soort taalbeleid ten grondslag liggen. Taalwetenschappers benadrukken echter dat het ondersteunen en bevorderen van meertaligheid prima hand-in-hand kan gaan met Nederlandse taalvaardigheid en participatie in de Nederlandse samenleving (Skrandies, 2016; KNAW, 2018). Meertaligheid kan worden ingezet als troef voor alle lagen van de bevolking en niet alleen voor de bovenlaag (Skrandies, 2016; KNAW, 2018). iii Summary The reality in many cities across the world today is one of multilingualism (Kraus & Grin, 2018; Smakman & Heinrich, 2018). Municipalities need to deal with this linguistic superdiversity to be able to communicate with their citizens and to navigate inhabitants’ linguistic needs (Blommaert & Rampton, 2001; Kraus & Grin, 2018; Skrandies, 2016). There is a relative lack of research into municipal language policy, while it can have a profound impact on citizens’ life and sociolinguistic identities (Backhaus, 2012; Siiner, 2014; Skrandies, 2016). The Hague, as the third largest city in The Netherlands, is a prime, but understudied example of such a multilingual reality and associated municipal language policy (Tieken-Boon van Ostade, 2019). Moreover, allegedly, The Hague is the most segregated city in The Netherlands (Cornips et al., 2018), which makes issues of language ideology, sociolinguistic inequality, and language policy all the more prominent and interesting to examine. Furthermore, the Royal Netherlands Academy of Arts and Sciences (KNAW) has recently called for policies which value and capitalise more on the linguistic diversity in The Netherlands, which begs the question to what extent municipalities like The Hague currently do so (KNAW, 2018). Therefore, I researched how and to what extent multilingualism features in the municipal language policy and politics of The Hague, both in text and in practice. The analysis takes a sociolinguistic and language policy perspective and is threefold: it consists of a Corpus Analysis of language policy and politics of the current municipal council, a Critical Discourse Analysis of two language policy documents, and a Linguistic Landscape analysis of municipal signs in the city. The results of all three analyses indicate that the municipality operates from a monolingual mindset by focusing mostly on the acquisition and use of Dutch and by describing multilingualism negatively, instead of as a resource (Clyne, 2005). Additionally, the multilingualism of citizens who are already disadvantaged is viewed as an obstacle, while the multilingualism of so-called expats and internationals is embraced. This points to a social divide in The Hague based on socioeconomic class, language, and ethnic background. This thesis is indicative of language ideologies of nationalism and a one-sided economic perspective on multilingualism (Skrandies, 2016). However, scholars argue that multilingualism is a reality, also among low socioeconomic status inhabitants, that the municipality should acknowledge, accommodate for, and celebrate (Backhaus, 2012). This would allow citizens to participate equally in society, it will make them feel heard and respected, and it might even improve their proficiency in Dutch (Skrandies, 2016). Multilingualism, moreover, can also be exploited as a resource: linguistic capital that creates (job) opportunities and enriches city life (Skrandies, 2016; KNAW, 2018). iv Table of contents Samenvatting.......................................................................................................................................... iii Summary ................................................................................................................................................ iv List of frequent terms ............................................................................................................................ vii List of political parties in The Hague’s municipal council .................................................................. viii Part I. Introduction .................................................................................................................................. 1 1. Introduction ..................................................................................................................................... 1 2. Literature review ............................................................................................................................. 3 2.1 Introduction ............................................................................................................................... 3 2.2 Theories about multilingualism and municipal language policy .............................................. 3 2.3 Examples of urban multilingualism and municipal language policy ........................................ 9 2.4 The Hague: political, historical, and sociolinguistic background ........................................... 12 2.5 Concluding remarks ................................................................................................................ 16 3. This study ...................................................................................................................................... 17 3.1 Introduction: research gap ....................................................................................................... 17 3.2 Research questions and
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