JOHAN ERIKSSON PARTITION AND REDEMPTION A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM PARTITION AND REDEMPTION A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM AKADEMISK AVHANDLING Som med vederbörligt tillstånd av rektorsämbetet vid Umeå universitet för vinnande av filosofie doktorsexamen framlägges till offentlig granskning vid Statsvetenskapliga institutionen Hörsal MA 121, MIT-huset Fredagen den 30 maj 1997, kl 13.15 av Johan Eriksson Fil kand PARTITION AND REDEMPTION: A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM. Johan Eriksson, Department of Political Science, Umeå University, S-901 87 Umeå, Sweden. ISBN 91-7191-305-X ISSN 0349-0831, Research Report 1997:1 Distribution: Department of Political Science, Umeå University, S-901 87 Umeå, Sweden ABSTRACT Since the end of the Second World War, the location of most interstate borders has been fixed. This suggests that the common phenomenon of ethnic groups partitioned by internationally recognized state borders is permanent. Nevertheless, a recurrent dream of 'redemption' (i.e. the building of a self-ruling polity which unifies the separate segments) is capable of inciting patri­ otic mobilization even in the face of a very long period of unbroken partition. Little is known about this clash between dream and reality. How can an ethnoterritorial group which is appar­ ently permanently partitioned between separate, sovereign states be redeemed? In seeking a solution to this puzzle, I attempt a Machiavellian type of analysis, defined as an approach which combines a patriotic perspective with a strategic view of the choice of specific means and ends in a way which is free of state-centrism. I also employ Machiavelli's theory-building method, which is a form of abduction. This study focuses on six aspects of the problem of partition and redemption: the territorial setting, the historical process, partitioning state contexts, perceptions of partition and homeland mythology, strategies, and outcomes. Two instances are selected for case study and compari­ son: the Sami in northernmost Europe, and the Basques in Spain and France. Both groups are partitioned between separate states, are a minority in each one, and lack control over all existing state governments. The analysis reveals the unexpected result that the less numerous, greater dispersed, more partitioned, and generally weaker Sami have been more successful in redemption than have the Basques. While the Sami have built common bodies which officially represent Sami in all four partitioning states, the Basques have only a limited transborder cooperation between the Basque Autonomous Community (BAC) in Spain and non-Basque regional authorities in France. It is more important to have compatible building blocks in each state (like the three Nordic Sami Parliaments), than to have a single powerful one (like the BAC). Without fairly similar and harmonized partitioning states, like the Nordic countries, it is extremely difficult for transborder polity-building to succeed. Another main conclusion, which disputes the findings of other re­ search, is that redemption is possible even when a group remains partitioned, given that the goal of statehood is abandoned in favour of a less ambitious transborder homerule. In order to realize this goal, the most generally applicable method is a stepwise strategy aimed at creating compatible building blocks in each state. A variant of this is the blueprint strategy, that is, using an achievement in one state as a model for the struggle in other states. In contrast to nonparti - tioned groups, partitioned groups can refer to their own achievement in other states. The subject of interest here transcends the domestic-international divide. Similarly, the analysis transcends academic boundaries, mainly those of political theory, international politics and comparative politics. This combination provides a starting-point for further inquiry into the pattern of overlapping polities which is emerging, and of partition and redemption in particular. KEY WORDS: Partition, redemption, Machiavelli, Sami, Basque, patriotism, irredentism, polity. PARTITION AND REDEMPTION A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM PARTITION AND REDEMPTION: A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM. Johan Eriksson, Department of Political Science, Umeå University, S-901 87 Umeå, Sweden. ISBN 91-7191-305-X ISSN 0349-0831, Research Report 1997:1 Distribution: Department of Political Science, Umeå University, S-901 87 Umeå, Sweden ABSTRACT Since the end of the Second World War, the location of most interstate borders has been fixed. This suggests that the common phenomenon of ethnic groups partitioned by internationally recognized state borders is permanent. Nevertheless, a recurrent dream of 'redemption' (i.e. the building of a self-ruling polity which unifies the separate segments) is capable of inciting patri­ otic mobilization even in the face of a very long period of unbroken partition. Little is known about this clash between dream and reality. How can an ethnoterritorial group which is appar­ ently permanently partitioned between separate, sovereign states be redeemed? In seeking a solution to this puzzle, I attempt a Machiavellian type of analysis, defined as an approach which combines a patriotic perspective with a strategic view of the choice of specific means and ends in a way which is free of state-centrism. I also employ Machiavelli's theory-building method, which is a form of abduction. This study focuses on six aspects of the problem of partition and redemption: the territorial setting, the historical process, partitioning state contexts, perceptions of partition and homeland mythology, strategies, and outcomes. Two instances are selected for case study and compari­ son: the Sami in northernmost Europe, and the Basques in Spain and France. Both groups are partitioned between separate states, are a minority in each one, and lack control over all existing state governments. The analysis reveals the unexpected result that the less numerous, greater dispersed, more partitioned, and generally weaker Sami have been more successful in redemption than have the Basques. While the Sami have built common bodies which officially represent Sami in all four partitioning states, the Basques have only a limited transborder cooperation between the Basque Autonomous Community (BAC) in Spain and non-Basque regional authorities in France. It is more important to have compatible building blocks in each state (like the three Nordic Sami Parliaments), than to have a single powerful one (like the BAC). Without fairly similar and harmonized partitioning states, like the Nordic countries, it is extremely difficult for transborder polity-building to succeed. Another main conclusion, which disputes the findings of other re­ search, is that redemption is possible even when a group remains partitioned, given that the goal of statehood is abandoned in favour of a less ambitious transborder homerule. In order to realize this goal, the most generally applicable method is a stepwise strategy aimed at creating compatible building blocks in each state. A variant of this is the blueprint strategy, that is, using an achievement in one state as a model for the struggle in other states. In contrast to nonparti- tioned groups, partitioned groups can refer to their own achievement in other states. The subject of interest here transcends the domestic-international divide. Similarly, the analysis transcends academic boundaries, mainly those of political theory, international politics and comparative politics. This combination provides a starting-point for further inquiry into the pattern of overlapping polities which is emerging, and of partition and redemption in particular. KEY WORDS: Partition, redemption, Machiavelli, Sami, Basque, patriotism, irredentism, polity. JOHAN ERIKSSON PARTITION AND REDEMPTION A MACHIAVELLIAN ANALYSIS OF SAMI AND BASQUE PATRIOTISM UMEÅ UNIVERSITY DEPARTMENT OF POLITICAL SCIENCE 1997 Department of Political Science Umeå University, Sweden Research Report 1997:1 ISSN 0349-0831 ISBN 91-7191-305-X Copyright © Johan Eriksson 1997 Printed by Solfjädern Offset AB, Umeå Contents Tables and Illustrations iv Acknowledgements vi 1. INTRODUCTION 1 Scope of Inquiry 1 The Problem of Partition and Redemption 1 Research Questions 4 Selection of Cases 5 Shortcomings of Borderland Studies 8 Machiavellian Realism and Patriotism 10 The Solution: A Machiavellian Analysis 10 Machiavellian Realism 14 Machiavellian Patriotism 19 Patriotic Core Values: Identity, Autonomy, and Congruence 20 Units of Analysis, Core Units, and Actors 25 Methodology 26 The Machiavellian Method 26 A Framework of Abduction 31 Sources 33 2. PARTITION AND REDEMPTION: AN ARMCHAIR ANALYSIS 38 The Territorial Setting 38 The Historical Process 40 State Polity as Context 42 Democracy, Autocracy, and Transitory Systems 42 General State Policy: Accommodation and Repression 45 State Identity Policy 46 Perceptions and Patriotism 49 Perceptions of Partition 49 Homeland Mythology and Patriotic Commitment 50 Strategy 52 Strategic Goals 53 Strategic Actions 57 Strategic Targets 62 Strategic Framework 68 Outcomes 69 Conclusion 76 i 3. THE PARTITION AND REDEMPTION OF SÄPMI 77 The Territorial Setting 78 The History of Partition 82 The Siida Polities and Overlapping Colonization 82 The Enforcement of Sovereign Borders: 1751-1889 84 Assimilation, Segregation, and World Wars: 1890-1944 88 The Era of the Iron Curtain: 1945-1989 93 The New European