Maanpuolustuskorkeakoulu Johtamisen ja sotilaspedagogiikan laitos Julkaisusarja 3: Työpapereita nro 2

THE FINNISH DEFENCE FORCES AS PART OF A DEMOCRATIC SOCIETY

Jaakko Valtanen MAANPUOLUSTUSKORKEAKOULU JOHTAMISEN JA SOTILASPEDAGOGIIKAN LAITOS JULKAISUSARJA 3: TYÖPAPEREITA NRO 2

NATIONAL DEFENCE UNIVERSITY DEPARTMENT OF LEADERSHIP AND MILITARY PEDAGOGY SERIES 3: WORKING PAPERS NO. 2

THE FINNISH DEFENCE FORCES AS PART OF A DEMOCRATIC SOCIETY

JAAKKO VALTANEN

MAANPUOLUSTUSKORKEAKOULU Johtamisen ja sotilaspedagogiikan laitos HELSINKI 2017 The Series 3 Working Papers of the Department of Leadership and Military Pedagogy of the National Defence University are preliminary works in pro- gress that have been posted or published to stimulate discussion and com- ments. In addition, they provide information to the general public. The views, opinions, findings, and conclusions expressed in these papers are strictly those of the author(s) and do not necessarily represent the views of the Department of Leadership and Military Pedagogy or the National Defence University. Nei- ther the Department of Leadership and Military Pedagogy nor the National Defence University assume responsibility or liability for the statements, opin- ions or conclusions expressed in these papers. Although checked by the de- partmental publishing board of the Department of Leadership and Military Pedagogy, these working papers have not been through a process of blind peer-review.

Jaakko Valtanen The Finnish Defence Forces as Part of a Democratic Society Maanpuolustuskorkeakoulu, Johtamisen ja sotilaspedagogiikan laitos Julkaisusarja 3: Työpapereita nro 2 National Defence University, Department of Leadership and Military Pedagogy Series 3: Working Papers No. 2

Uusimmat julkaisut pdf-muodossa: http://www.doria.fi/

Kannen kuva: Pasi Väätäinen

ISBN 978-951-25-2885-1 (PDF) ISSN 2489-2769 Maanpuolustuskorkeakoulu – National Defence University Johtamisen ja sotilaspedagogiikan laitos – Department of Leadership and Military Pedagogy

1 THE FINNISH DEFENCE FORCES AS PART OF A DEMOCRATIC SOCIETY Jaakko Valtanen

General (ret.) Jaakko Valtanen was Chief of Defence (CHOD) of the Finnish Defence Forces between 1983 and 1990. In 1999, General Val- tanen held a presentation in Tampere at the concluding seminar of the research project "Democratic Security Building in the Baltic States". The research project was organized by the Tampere Peace Research Institute and the University of Aberdeen. All the presentations held at the seminar, in addition to that of General Valtanen, were to be pub- lished after the seminar, but this was never done. Even though the presentation is already 17 years old and does not contain source refer- ences, the Department of Leadership and Military Pedagogy publishes the presentation, due to its important perspectives vis-à-vis Military So- ciology as one of the disciplines of the Department.

1. It is natural that under normal was created in Sweden, of which Fin- conditions, the role of armed forces in land was a part at the time. The sys- society is always somewhat problemat- tem was called the military tenure es- ic. The problems are due to the fact tablishment. Farmers formed a group that the question is about the position of two or more farms with the obliga- of troops trained and organised to use tion to provide, in case of war, an weapons – in other words an organi- equipped soldier for the military units sation of violence. In societies based to be established in the area. A tenure on the political role of the armed soldier was given a croft and arable forces, the position is perhaps “more land in addition to a small sum of clear”, but in a democracy the matter money. During peace-time, the tenure is complex. There is a kind of perma- soldiers lived and worked among oth- nent tension between an authoritarian er people. This system made it possi- military organisation and a democratic ble to avoid a rootless mercenary army society – especially in peace-time. As isolated from the rest of the society. to society, the question is thus about enduring something unpleasant but 3. When Finland was annexed to the necessary, and of minimising the pos- Russian Empire as a Grand Duchy in sible disadvantages caused by it. Even 1809, the military tenure establishment in the Finnish Defence Forces’ role was abolished and enlisted troops and in its integration into society, the were formed instead. In 1878, the first question is precisely about this. Conscription Act came into force in Finland. Under it, military personnel 2. From an historical perspective it had to be Finnish and the tasks of the can be said that until the French armed force were restricted to defend- Revolution, the armed forces in al- ing the territory of Finland only. most all European countries were es- However, for the mother country tablished based on enlisted mercenary Russia, a nationally-based army had troops. On the other hand, as early as separatist effects that she considered at the end of the 17th century, a most dangerous. In the early 20th century, exceptional system of armed forces the Russification of Finland was start- 2 ed with harsh measures, and as part of different circles of population and this, the Conscription Act was amend- removed social animosity dating from ed. The measures taken in Finland 1918. During the Second World War, resulted in refusals to report for ser- more than 600,000 men performed vice on a large scale when called up. their military service within the Finn- The Russians responded to the Finns’ ish Defence Forces. It was natural that insubordination by disbanding the at the time it affected the whole socie- Finnish Army in 1901. After that there ty most extensively and almost every were only some 100,000 Russian sol- Finnish home. Some 100,000 Finnish diers in Finland. soldiers died during the war, and of the around 200,000 wounded, over 4. Finland’s War of Independence of 5,000 were permanently disabled. In 1918 changed into a bloody Civil War relation to the population of 3.5 mil- between the so-called Whites and lion at the time, the losses were ex- Reds, and it divided the people of Fin- tremely heavy. land deeply and for a long period of time. The political left had a negative 5. After the Second World War, it attitude towards the Defence Forces took a long time before a regular way of independent Finland, which was of life could be resumed. Prior to that, formed of the White Army that had Finland had to pay war reparations to won the war. This negative attitude the Soviet Union, resettle half a mil- was not unfounded, as conscripts lion war refugees from Karelia, and from the left were treated with suspi- finish rebuilding Lapland, which had cion. been destroyed by the Germans. In spite of the fact that the Defence For this reason, a provision included Forces’ position in society was weak in Finland’s Penal Code in 1922 was well into the 1960’s, general conscrip- of great significance. It prohibited tion was, however, implemented con- soldiers from engaging in party poli- tinuously as provided by law. Every tics. It promoted the implementation age class received training, and unlike of general conscription and had a pos- several Central European countries, itive impact on the internal climate we had no untrained age classes. The prevailing in the whole society in the Defence Review Committee of 1945 1920’s and 1930’s. recommended that general conscrip- tion be continued. All political and The so-called Mäntsälä coup, attempt- military reports of later date have ar- ed by the extreme right in 1932, rived at the same conclusion. measured the social importance of general conscription in a concrete 6. The conscription system is of way. The Defence Forces’ loyalty to course based on the legislation con- the Government relieved people’s cerning it. Finland’s Constitution pro- minds and contributed to a peaceful vides that all citizens have the general solution. liability to participate in the defence of their native country and that all males The Winter War that a unanimous are liable for military service. On the nation fought against the Soviet Un- other hand, the Conscription Act de- ion in winter 1939-1940 showed how crees how this liability is implemented the social development in the 1930’s and the general rights and responsibili- and general conscription had united ties of a soldier. There is a separate 3 Act on unarmed and civilian service, stress lies on the troops that are the and provisions on conscientious ob- target of the training. Class distinc- jectors. The Act on Voluntary Military tions are blurred in society, while a Service for Women came into force in strict hierarchy prevails in the military 1994. organisation. In society, the possibility to select and influence is improved, 7. Although the Finnish Defence whereas the military organisation re- Forces have a tradition of general quires obedience. In society, permissi- conscription dating back to the days bility and the approval of difference is of the military tenure establishment, increased, while military education and clear legislation concerning con- aims at uniformity, and so on. scription, they are by no means the only factors integrating the Defence 8. Even in a democratic society, the Forces into society. most important interest regarding the defence forces is that the establish- As I have already said, the military ment fulfils the task given to it and organisation has been, and still is, an uses the resources allocated to it cor- authoritarian system built according to rectly. In other words, the defence the requirements of possible war and forces have to prepare to defend the combat. Besides authoritarianism, mil- country and its citizens in case of a itary discipline, based on special regu- possible war. Essential factors are the lations, and using sanctions and pun- security policy pursued by the country ishments, is a typical characteristic of a and possible military crisis and threat military organisation. When the sys- factors. The threat analysis whereupon tem has to function in situations the activity of the Finnish Defence where there is a contradiction between Forces is based, as well as the assess- the implementation of the task, as it is ment of the resources needed by the based on the advantage of the whole, Defence Forces have been made in and the mortal danger the individual is parliamentary committees during the confronting, discipline based on obe- last three decades. In them, members dience must make troops act in the of parliament and elected political of- right way. For this reason the military ficials of all parties – the opposition of organisation uses, in addition to sanc- the time as well – together with securi- tions, a great number of norms, sym- ty-policy and military experts have bols and modes of behaviour with a been engaged in assessing the most unifying function. It should also be probable threat scenarios. The Act on noted that the structures and features the Defence Forces and the require- of military organisations are similar ments set on the performance of the throughout the world. The differences services, arms of service and branches in the social systems have barely af- are examples of the results of these fected them. assessments. Based on reports on se- curity and defence policy (white pa- Societies are, however, in a constant pers), Finnish Parliament has allocated state of change. There have been es- the appropriations needed to maintain pecially great changes in the individu- and develop the Defence Forces. The al’s position and rights in democratic level of appropriations is low in inter- societies. While the individual citizen’s national comparison, but for decades, rights and position are emphasised in largely thanks to the parliamentary society, in the military organisation the reports, the Finnish Defence Forces 4 have not been the object of significant tics has been discussed from time to party-political disputes regarding eco- time, Parliament has repeatedly re- nomic questions. tained this legal provision because of the positive effect that it has on the 9. The second interest of society re- integration of the Defence Forces into garding the Defence Forces is that it society. However, some kind of miti- also obeys, in addition to other laws, gation of these provisions is presently legislation on freedom of religion under preparation. among citizens. In Finland, ever since the 1920’s, it has been possible to sub- On the other hand, the professional stitute armed service with unarmed organisation of military personnel and service in the Defence Forces or with their membership in labour market civilian service in establishments of organisations has not been restricted public administration. Only for Jeho- in Finland. Regular personnel are vah’s Witnesses is it possible to be members of national interest and la- exempted from military service by bour organisations through their own using a process of deferment for a unions. In military units there are so- period of about 10 years. Due to the called Conscript Committees, whose liberal legislation, the total number of representatives are elected by the con- those that perform substitute service scripts themselves. The objective of and of conscientious objectors has the committees is to improve the con- remained fairly low in Finland. For the scripts’ service conditions and to time being, the number of conscien- promote their other interests. The tious objectors has not become a so- Union of Conscripts operates outside cial or military problem, but the in- the Defence Forces as a free civic or- crease in the number wishing to per- ganisation. form civilian service could be a symp- tom of the direction that the devel- 11. The fourth factor having an im- opment has taken. pact on the Defence Forces’ relation- ship with society is the leadership and 10. The third factor integrating the political control system that is in use. Finnish Defence Forces into society is This system differs from the ones the fact that military personnel are not used in most other countries. While allowed to participate in party politics. the highest administrative and also Regular military personnel have the military authority of the Defence right to cast their vote in national elec- Forces is generally vested in the Min- tions of course, but they cannot be ister in democracies, in Finland the members of political parties. This is President of the Republic is the Su- not prohibited for conscripts and re- preme Commander. The Chief of De- servists, but they cannot be engaged in fence as holder of military authority is party politics while wearing uniform, directly subordinate to the President. while within barracks areas or while The Chief of Defence is directly re- on duty. This prohibition dates back sponsible to the President for the De- to the events of 1918. The prohibition fence Forces’ military readiness, is perhaps somewhat strange in a de- equipment, training, mobilisation and mocracy, but it has had a levelling ef- other matters related to defence. The fect in several crisis situations in our status of the Minister of Defence is, of society. Although the expediency of course, politically important. The Min- the prohibition to be engaged in poli- ister is in charge of appropriations, 5 legislation, construction, social affairs, Aptitude tests for conscripts are car- etc. concerning the Defence Forces. ried out in many countries, and also The “dualism” of our system also the Finnish Defence Forces conduct originates in the serious events of our them in order to find suitable place- independence. It has functioned well ments and tasks for the men. Because until now, and for its part, it has the training during the first months is strengthened the non-political charac- adjusted according to the average level ter of our Defence Forces, and there- of learners, the more knowledgeable by also the approval of our system and advanced conscripts are often among all circles of the population. frustrated. It would of course be easy Recently, however, in connection with to place the conscripts in training the reform of Finland’s Constitution, groups of different levels according to there has been discussion on the au- their previous education and training, thority of the President of the Repub- as well as aptitude tests. However, lic and the Chief of Defence. because of the positive social effects of the current system, there has been The Defence Council, where the ma- no interest in adopting this kind of jority of members are Government placement system. Ministers, and the parliamentary De- fence Committee also exercise politi- 13. The sixth factor, which may be the cal control over the Defence Forces. most controversial one in integrating In Finland the internal legality control the Defence Forces into society, is the of the Defence Forces is exercised by attitude of citizens towards the special the Parliamentary Ombudsman. features of the military organisations. As individualism and the choices 12. The fifth influential factor is the available to the individual have in- Finnish system, which differs from the creased, new problematic issues have practice in many other countries. In arisen. They are largely caused by the Finland, conscripts entering service reduced capacity of modern youth for remain in their units for the first train- tolerating norms that restrict their ing period of 2 to 3 months as uni- individualism. A number of factors form, “equal” units. There the young causing mental pressure, which are men coming from different social and related to the changes taking place in educational backgrounds learn to society, may find an outlet in the know each other and they all experi- strange, new and sometimes even hard ence the conditions and pressures of life experienced in the military. the same military system. The friendly relations established in the first train- During the past decade it has been ing period, as well as the relations be- seen that scheduled service tasks, re- tween future leaders and their subor- quirements of punctual and uniform dinates, have proved to improve the behaviour, restricted freedom of team spirit and to have a positive ef- movement and penalties as a result of fect on the capability of the organisa- breaking these rules have led to an tion to function well. The positive increase in conflict situations and effects were clearly seen in the war- mental disorders. Another element time years and have been seen even in putting strain on the Defence Forces the social life of peacetime. even today is hazing by older service- men. A great deal of work has been done to root this out, but it has found 6 more and more subtle forms. Alt- lished almost on a daily basis in the hough the number of reported cases is media. This is a sign of a functioning very low today, preventive work is democratic system. continued since derogatory behaviour towards one’s fellow men finds less 16. It is understandable that the “de- and less understanding in our society. mocratisation process” of the Defence Forces has not taken place without 14. Finally, I would like to discuss an friction. The changes in the status of aspect that is important for the inte- the conscript have sometimes been gration of a defence forces into a seen as a threat to the superior’s au- democratic society. The tasks of the thority and rights and to the mainte- Finnish Defence Forces as prescribed nance of good military discipline and by law include the defence of the pre- order. It is difficult to simulate the vailing judicial system and the living conditions of battle and war and their conditions of citizens. Although this requirements in a secure peacetime naturally refers to repelling an external situation. Therefore, soldiers have threat in wartime, the statue has some- been motivated in different ways to times been interpreted as if it also absolute obedience, which is necessary meant repelling internal threats against in a battle, as strange as this may be to the social order. I would like to point the young people of today. out that all assistance, including main- taining order, shall always happen un- Conscription ties the Defence Forces der the leadership of the civilian au- to society. Conscripts bring with them thorities. Anti-riot training has never their outlook on life as well as social been given to soldiers by the Defence variation. As a matter of fact, through Forces. conscripts, society is ever present in the Defence Forces where it controls 15. Distinguished participants, I hope and observes the functions of the or- you do not misunderstand me when I ganisation and provides stimuli for its say that also according to outside es- development. In this sense, conscrip- timates we Finns have succeeded quite tion can be seen as democracy’s way well in adjusting our armed forces to of guaranteeing that the armed forces being an organic part of our demo- are not used against the will of the cratic society. This is shown, for ex- people and democratically elected ample, in that our citizens have toler- state bodies. ated and understood rather well the military organisation, which by its very 17. Like armed forces in other coun- nature is undemocratic. According to tries, the Finnish Defence Forces face opinion polls carried out over several continuously differing challenges and decades, over 80 % of Finns have ex- pressures. They are generated both by pressed their positive attitude towards changes in security policy and the in- defence almost irrespective of how the ner development within societies. The questions have been posed. The geo- social pressure on the Defence Forces graphic location of Finland has under- reflects the changes in people’s values, standably contributed to the positive of which the development of individ- result. It is natural, however, that the ualism and individualistic thinking is Defence Forces are subjected to con- perhaps the most influential. Because tinuous observation and control by of the nature of their tasks, the De- society. Critical statements are pub- fence Forces are always to a certain 7 degree a closed community, restricting the life of a private individual through their organisation and set of norms. The appearance of so-called “soft val- ues” also has an effect on the activities of the Defence Forces; they question the goals and importance of a military organisation and arouse criticism amongst the general public against the methods of the military organisation and the values it represents.

For conscription, and thereby for the functioning of the entire defence sys- tem, it is vital that the Defence Forces continue to take into account the new phenomena in society and aim at adapting to them in a way that does not give rise to conflict with the goals that citizens see as important. On the other hand, the Defence Forces have to make sure that the requirements of military activities are clearly defined. Conscription is, even with some shortcomings, the most important defence potential of a small country. In addition, it is the most economical and the most suitable system for a democratic society. 8 Previously Published in This Series

Kouri, Suvi (2017) Elämäkertatutkimus – totta vai tarua? Elämäkertatutkimus ja sen käyttö sosiologiassa. Maanpuolustuskorkeakoulu, Johtamisen ja sotilaspedagogii- kan laitos Julkaisusarja 3: Työpapereita nro 1. [http://urn.fi/URN:ISBN:978- 951-25-2859-2] Maanpuolustuskorkeakoulu Johtamisen ja sotilaspedagogiikan laitos PL 7 00861 HELSINKI

ISBN 978-951-25-2885-1 (PDF) ISSN 2489-2769

The Finnish Defence Forces