STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND Government resolution Prime Minister’s Office Publications 7/2012 STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND Government resolution Prime Minister’s Office Publications 7/2012 DESCRIPTION Published by 20.12.2012 PRIME MINISTER’S OFFICE Type of publication Commissioned by Publication Prime Minister’s Office Authors Paulina Tallroth, General Secretary to the Strategy for the National Languages of Finland Name of publication Strategy for the National Languages of Finland Abstract The Strategy for the National Languages of Finland is one of the flagship projects under Prime Minister Katainen’s Government Programme. It focuses on the national languages of Finland – Finnish and Swedish – and it is the first government language strategy. The legal background of the Strategy for the National Languages of Finland consists of the Constitution and the more specific language legislation. In line with the Government Programme, the Strategy for the National Languages of Finland is divided into two parts: a long-term language strategy and concrete measures for the Government’s term of office 2011–2015. The Strategy for the National Languages is a development project which aims to safeguard a future Finland with two viable national languages. The Government’s position is that the existing language legislation on Finnish and Swedish is for the most part up to date. However, there are shortcomings in the practical implementation of this legislation. The Strategy for the National Languages of Finland is based on the realisation that the current situation concerning the Finnish and Swedish languages is not satisfactory over the long term. The Strategy does not include proposals for reform of legislation. The starting points of the Strategy for the National Languages of Finland are the basic linguistic rights of individuals and the benefits and strengths arising from a bilingual society. The responsibility for the implementation of the strategy is divided among a number of bodies, with the Ministry of Justice carrying the general responsibility for monitoring. The Appendix provides practical tools for different kinds of administrative situations in order to improve the application of language legislation. Keywords national languages, Finnish, Swedish, bilingualism in Finland, Government Programme, strategy, measures for the Government’s term of office Name of series and number of publication ISSN ISBN Print 978-952-287-007-0 Prime Minister’s Office Publications 7/2012 1799-7828 ISBN PDF 978-952-287-008-7 Number of pages Language Confidentiality rating 50 en Public Distribution Printed by Published by Available in PDF format at www.vnk.fi/ Edita Prima, Prime Minister’s Office julkaisut Helsinki 2013 Inquiries: [email protected] 4 STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND CONTENTS 1 INTRODUCTION 7 1.1 Vision 7 1.2 The need for a Strategy for the National Languages of Finland 7 1.3 The nature and background of the Strategy for the National Languages of Finland 7 1.4 Responsibility for the Finnish and Swedish languages 8 1.5 Benefits and strengths offered by two viable national languages 10 1.5.1 Societal benefits 10 1.5.2 Benefits at individual level 11 2 CURRENT SITUATION 12 2.1 Finnish language and Finnish speakers in Finland 12 2.2 Swedish language and Swedish speakers in Finland 12 2.3 Bilingualism at the individual level and coexistence of the national languages in Finland 13 2.4 The special status of the Åland Islands 15 2.5 Other languages and their speakers in Finland 15 3 CHALLENGES IN ATTAINING VIABLE BILINGUALISM 16 3.1 Finland’s bilingualism and misconceptions about it 16 3.1.1 Finland’s bilingualism and social structures 17 3.1.2 Understanding for the other national language and its speakers 17 3.2 Language teaching and learning 18 3.2.1 The learning and competence level of the mother tongue and the other national language 19 3.2.2 Opportunities of speakers of other languages to learn Finland’s national languages 22 3.3 Costs and savings arising from Finland’s bilingualism 22 4 ACTIONS TO MEET THE CHALLENGES 24 4.1 Proposals for long-term measures 24 4.2 The Government’s measures for the government term 2011–2015 25 4.2.1 Increasing the visibility of the national languages and systematic application of language legislation in administrative processes 25 4.2.2 Strengthening of Finnish and Swedish skills and appreciation of languages and culture 26 4.2.3 The Government’s recommendations 27 5 MONITORING 28 5.1 Monitoring of the Strategy for the National Languages of Finland 28 5.1.1 Ministry of Justice 28 5.1.2 Ministry of Employment and the Economy 28 5.1.3 Ministry of Finance 28 5.1.4 Administrative branch of the Ministry of Education and Culture 28 SOURCES 30 STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND 5 APPENDIX STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND: PRACTICAL TOOLS 32 1 HOW DO YOU SHOW THAT YOU USE THE NATIONAL LANGUAGES AND HOW DO YOU PROMOTE THEIR USE? 33 2 CONSIDERATION OF THE LANGUAGE LEGISLATION IN WORKING GROUPS AND PROJECTS 36 3 COMMUNICATION BY THE AUTHORITIES 37 4 CONSIDERATION OF THE LANGUAGE ACT IN PUBLICATION PROCESSES AND ONLINE PUBLICATIONS 39 5 CONSIDERATION OF THE LANGUAGE ACT IN THE PROCUREMENT PROCEDURE 41 6 CONSIDERATION OF LANGUAGE SKILLS IN RECRUITMENT 43 7 A MODEL FOR THE JOB DESCRIPTION OF THE CONTACT PERSON FOR THE NATIONAL LANGUAGES, DESIGNATED BY MINISTRIES 45 6 STRATEGY FOR THE NATIONAL LANGUAGES OF FINLAND 1 INTRODUCTION linguistic rights of the Finnish-speaking and, in particular, the Swedish-speaking population. The Strategy for the National Languages of Finland is also needed so that Finland would be able both to 1.1 Vision utilise its strengths emanating from the two national Finland builds its national and international future as languages and to promote citizens’ well-being and part of a stable and secure Northern European broad education. In this way, Finland can be an active community. Participation in this community, with and competitive player and a cooperation partner which Finland has strong historical, cultural, linguistic, inspiring confidence, for instance, when working legal and economic ties, is one of the country’s together with the other Nordic countries. strengths. Throughout their history, Finns have used The vision of the Strategy for the National their national languages, Finnish and Swedish. As a Languages of Finland defines the preconditions for bilingual country, Finland is responsible for ensuring a future Finland with two viable national languages. that both languages remain viable and will be used in The core ideas include appreciation for and utilisation our country in the future as well. Individuals using of the mother tongue, the other national language, both national languages strengthen Finland’s and Finland’s bilingual culture, and ensuring that all bilingualism and also act as bridge-builders between inhabitants of Finland have the opportunity to learn the language groups. both languages. The vision also contains core ideas to The objective of the Strategy for the National increase encounters and opportunities for language Languages is a Finland where use between people speaking Finnish and Swedish - the national languages, Finnish and Swedish, are and would raise the visibility of both languages. The seen, heard and approved; above ideas are also reflected in this strategy: in the - the national languages are used in all sectors of measures outlined by the Government for the current society; government term and in the proposals for longer- - the benefits brought by the national languages are term actions. put into use for society and individuals; The objective of the Strategy for the National - everyone has the opportunity to live and be active Languages of Finland – to create a Finland with two in their own country in their own language, whether viable national languages – needs to be supported Finnish or Swedish; by practical measures. The purpose of the measures - everyone has the opportunity to become familiar presented in the strategy is to create conditions for with both Finnish-language and Swedish-language de facto equality of Finnish and Swedish as viable culture and traditions in our country and with our national languages now and in the future. common history, and to benefit from them. Until now, Finland has not had a strategy for its national languages. Nor is there a language strategy To enable this for other languages used in Finland, whose legal - Finland secures everyone living in Finland the right status, actual spheres of use and needs differ from and the opportunity to learn their mother tongue, the national languages and also from one another. either Finnish or Swedish; The Strategy for the National Languages of Finland - Finland secures everyone living in Finland the right can serve as a basis for a potential future language and the opportunity to learn the country’s other strategy that would encompass all or some of the national language, Finnish or Swedish; languages spoken in Finland. - Finland develops Finnish and Swedish vocabulary and promotes the opportunities to use these 1.3 The nature and background of languages. the Strategy for the National Languages of Finland 1.2 The need for a Strategy for The Strategy for the National Languages of Finland is the National Languages of Finland a strategy for two viable national languages. Since it is likely that Finnish and Swedish will be spoken in The need for a Strategy for the National Languages of Finland in the future as well, the strategy reaches out Finland arises from the inadequate application of the to span many decades. At the same time, Finland legal statutes concerning our national languages, welcomes all languages, and all language groups have Finnish and Swedish.