The Estonia Page > Society

Integration: what and how?

(Paper delivered at the conference Multicultural Estonia in Helsinki, 26.12.1998)

Contents:

Why is Integration Needed?

Modern Estonia is a strongly differentiated society, especially as far as ethnicity, language use and the judicial status of people are concerned. The picture we get in 1998 is approximately as follows:

Out of Estonia's 1.47 million people about 65% or 950,000 are Estonians who are nearly 100% nationals. The 520,000 non-Estonians are divided into the following categories according to their judicial status: nationals - 175,000, non-nationals (mostly Russian citizens) - 100,000, without nationality (foreigners and illegal immigrants) - 245,000.

The native language of about 400,000 people in Estonia is Russian. About a quarter of non-Estonians speak Estonian fluently, about a quarter do not speak any Estonian, and the rest fall into an intermediate group with varied proficiency in Estonian.

In real life terms this means that there are two distinct communities in Estonia: one an Estonian-speaking community and the other a Russian-speaking community. In spite of the fact that representatives of more than 100 different ethnic groups live in Estonia, the distinction in people's minds and in politics is between Estonian and Russian. In 1998 there exist Russian schools and Russian churches, Russian parties and Russian newspapers, Russian factories and Russian cities in Estonia where the Russian language is exclusively used. This "separate existence" was characteristic of Soviet times as well. The problem is that after the reinstitution of independence in Estonia isolationist tendencies have become even more pronounced in several areas.

Social scientists have analysed the developments in Estonia in the 1990s and defined them as a continuing separation of the Estonian and non-Estonian populations. First of all, this is observed in the attitudes, especially in the attitudes of the Estonians. The large Russian community in Estonia disturbs Estonians; this disturbance is related to the ideas of non-Estonians as foreigners, as aliens who affect daily life in Estonia and who, under certain conditions, might even jeopardize the existence of the Estonian nation. The non-Estonians are also disturbed and dissatisfied; their problems stem from their undetermined judicial status, as well as concern about their own and their children`s future in Estonian society. At the same time there are issues and areas where the views of Estonian and non-Estonian people differ radically, from the alien's passport to Russia's reliability (study conducted by Iiris Pettai).
This distancing has found its realization in the legislation enacted in the early 1990s, which draws a clear distinction between them and us. While judicially ethnicity is not the basis for distinction because it is nationality which Estonia is trying to determine, non-citizens in Estonia are almost 100% non-Estonians. The law-making process has not entailed any consideration of future scenarios, so nobody knows where the present situation, with more than two hundred thousand judicially undefined persons, will lead. As Rein Ruutsoo says, "the continuation of inflexible state policies on nationality issues as a perpetuation of the idea of restitution... has led Estonia to a dangerous state of imbalance."

Ethnic relations in modern Estonia are best mirrored by local media. While reading or watching Estonian-language media, the uninitiated might get the impression that in this country non-Estonians do not exist, let alone their "problems". When the topic of non-Estonians is raised, it usually features as a concern or a worry. The non-Estonian community as the subject for constructive discussion is never dealt with by Estonian-language media. On the other side of the wall the Russian-language media are busy with their own concerns. As a matter of fact, they sometimes attempt to enter the Estonian side of the field. This attempt, however, is very often confined to claims or irony directed at Estonian authorities. Consequently, integration is needed to overcome the distinction between "two communities within a country" which is the reality in modern Estonia. One does not need to be a soothsayer to predict what the dangers are if this becomes established - the danger to Estonian stability, security and prosperity. Paradoxically, at present Estonians need integration even more than non-Estonians.

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What is the Meaning of Integration?

Over recent years integration has become a fashionable term. But the content and objectives which the term implies are not always understood in the same way. The following is based on the results of a 1997-98 inter-university survey entitled VERA
and the views of the expert commission of the Estonian Government on the issues of integration.

Integration is a process in the course of which non-Estonians residing in Estonia would be gradually brought to participate equally in Estonian society. Integration means the dismantling of the barriers which prevent many non-Estonians from competing in the Estonian labour market, from having access to educational facilities in Estonia, and from participating in local cultural and political life. These barriers are mostly related to their Estonian language proficiency, their familiarity with local culture, and their judicial status, but also to fears and prejudices which stem from rapid social changes. Integration is not the obliteration of ethnic identity, integration is not the loss of something; it is the acquisition of new qualities which are needed in order to cope in modern Estonian society.

The aim of integration is to establish a balanced society where ethnic differences are not the source of tension or the impediment to a successful career. Integrated Estonia can be characterized as follows:
- this is a society where the fear of Estonians about losing their national identity and the narrowing of their cultural space has dissipated. There is an established and mutually acknowledged principle that non-Estonians will be able to speak two languages and act in two cultures. Non-Estonians do not constitute a separate (and sometimes hostile) community, non-Estonians are adapting (each individual at their own pace) to local Estonian-language and Estonian-oriented society by preserving and developing their own national traits and traditions.
- this is a society where non-Estonians have no uncertainty about their future prospects. Non-Estonians have accepted their bilingual and bicultural role in Estonia and as such are recognized by Estonian society and state. The terms Russian-Estonian and Finnish-Estonian are as valid as Estonian or Ukrainian. The majority of non-Estonians are Estonian citizens; loyalty to Estonia is taken for granted.

The outcome of the integration process would be the Estonian version of a multicultural societ, characterized by individual-centredness, the common core and Estonian cultural dominance.
Individual-centredness means that with the recognition of cultural identity for minority groups there is a strong emphasis on the right of each individual to choose the group where he/she belongs and his/her cultural identity. While no one can be prevented from developing his/her own culture, no one can be "forced" to belong to a certain ethnic group, either. The primacy of individual choice means that multiculturalism is not based on group rights determined by law but on attitudes and ideas prevalent in the society. The most essential thing is to encourage tolerance and openness among both Estonians and non-Estonians.
The common core. A multicultural society can only function when the members have a common core. The common core is a basis for interaction where both sides benefit, where common interests are invested; it creates a context within which the different sections feel secure. It is inevitable that a large part of the common core will be grounded in Estonian culture, the dominant language for official and social communication will be Estonian, and the norms and behavioural patterns which have been established in Estonia will be generally observed. Naturally, the minorities will contribute to the common core; an essential part of the common core will be created in the course of the Europeanization process, as the adoption of democratic rules and modern patterns of coexistence is vital to both the Estonian and the non-Estonian populations.
Estonian cultural dominance. In social dialogue all cultures in Estonia are equal. In relation to the state Estonian culture is preferred. The aim and purpose of the Estonian state is the preservation and development of Estonian cultural space, and that is why state support for the development of Estonian culture is necessary. While the society is moving to multiculturality, the state is and will be Estonian-centred. Estonian nationhood is expressed through the special role and responsibility delegated to the state to preserve Estonian cultural space.

It should be stressed that integration is, first and foremost, in Estonian interests. It is Estonians who are interested in the growth and prosperity of this country, it is Estonian interests that can be realized in a secure and balanced Estonian society. When we consider the scarcity of Estonian human resources, the exclusion of one or other group is inevitably a setback for all. In a situation where the pressure to import foreign labour is growing, it is imperative to dismantle the barriers which deny access to the life of the society, including the labour market, even to people who have adapted. On the other hand, it is also in the interests of Estonia's non-Estonian population. To be able to cope in two languages and in two cultures is an effort, but it is also advantageous. It will give the person the chance to succeed, to make his/her way in the world and to realize himself/herself, it will give an opportunity to be at home in Estonia while identitying with one's historical homeland.

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The Present Situation

When we look at the developments in the 1990s, we can see a change to more liberal attitudes in both Estonian and non-Estonian communities, especially over the past few years. Whereas in the first years of the reinstitution of independence both sides showed inflexibility in their views, the picture has noe become more realistic. Estonians do not seriously argue for the return of Petserimaa and the illusion of the departure of masses of non-Estonians to their homelands has been shed. On the other hand, the leaders of the non-Estonian community do not call for autonomy or for two official languages: their expectations have taken a more realistic turn as well. According to Marju Lauristin and Peeter Vihalemm, the transition period in Estonia has reached the phase of economic and cultural stabilization which is characterized by the weakening of nationalistic attitudes and the retreat of ethnic values. The new attitudes in the changed circumstances may be summarized as follows:
- the idea of the necessity of integration is spreading among Estonians. The stabilized sovereignty has created a sense of security and an understanding that it would be sensible and beneficial to get on well with the large Russian-speaking population which is going to stay in Estonia; moreover, they should be brought to participate in the reconstruction of the Estonian state. The conviction has grown that no vital objectives can be attained when there are hundreds of thousands of people whose status and prospects are uncertain.
- the majority of non-Estonians have linked their future to Estonia and are looking for ways to participate in Estonian society. At the same time these ways have not yet been clearly defined, and that is why a large part of non-Estonian society today is suffering from insecurity. Uncertainty and vagueness of future prospects have caused the seclusion of Russians in a closed circle of their own language and culture. At the same time there are attempts on the part of some non-Estonians to be included in Estonian society, for example, to send their children to Estonian kindergartens and schools and their eagerness to speak Estonian in public places.

The international context has also changed. The invitation for Estonia to take part in negotiations with the European Union has been a clear signal that we have been recognized as a full-fledged society on an international scale. This entails an ability to solve our problems independently, including the problem of the non-Estonian population. There is a clear expectation internationally that Estonia should take effective measures to integrate non-Estonians into our society. Many foreign countries and international organizations are prepared to support this. What is needed is our initiative, and the initiative of the state. The latter, however, has been lacking until now.

To sum up, in the 90s Estonian society has been moving, although slowly, towards the acceptance of integration. This is especially obvious on the grassroots level where there have been major changes: the gradual introduction of language learning programmes, the pressure from Russian parents to have their children educated in Estonian kindergartens and schools, the foundation of non-profit organizations which promote integration, etc. At the same time, the steps taken by the government are still insufficient and are not implemented on a large scale; and the official rules are not always observed, especially as far as citizenship is concerned. In 1996 about 3,000 people became citizens through naturalization. If this pace is maintained, the situation in which 90% of non-Estonians are nationals will not be reached for hundreds of years.

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Practical Measures

The paradox of the policy on non-Estonian issues is that until February 1998 the Estonian state had not formulated any views or objectives. Although the issues were declared important, no stand was taken. It was only in February 1998 that the government led by Mart Siiman adopted the first official document concerning non-Estonians, entitled "The basics of Estonian integration policy". It says : "In the changed internal and international situation the Estonian government has identified further measures to be taken on issues concerning the non-Estonian population. These measures should address state and societal interests, the rapid modernization of Estonian society in the framework of Estonia`s acceptance into the European Union, the preservation of internal stability and the protection and promotion of Estonian culture. Random practices should be replaced by an official strategy which aims clearly at integrating non-Estonians into Estonian society."

The official document defines the following objectives for the integration process and the areas where practical measures should be taken:
- an attitude change in dealing with the problems that non-Estonians are confronting. The replacement of "non-Estonians as a problem" by "non-Estonians as a potential for development", "non-Estonians as participants in the reconstruction of Estonia".
- a considerable reduction of the number of people without clearly defined citizenship in the Republic of Estonia. It is in Estonian interests to have a population with a clearly defined legal status. Estonian nationals should become predominant among non-Estonians. It is in the interests of the state that the naturalization process should produce more results and that it should be supported both politically and financially. There should be overall support for children born in today's Estonia becoming Estonian citizens, independent of the ethnicity of their parents.
- the Estonian educational system should become one of the central integrative factors.
There should be a consensus about the future of Russian-language education. Estonian-language teachers should have proper training for working in multilingual and multicultural surroundings, Estonian-centred textbooks and teaching aids should be written and published. The objective is for a young person who has graduated from a non-Estonian secondary school to speak Estonian fluently, a prerequisite for the person to become an Estonian citizen without additional examinations, so that he/she would not have linguistic or cultural impediments to continuing his/her education or competing on the market.
- improvement of Estonian language proficiency. The objective is to make the Estonian language, which is the official language, the language of communication. Another objective is to arrange examinations for the graduates of non-Estonian secondary schools in the Estonian language and civics, which for non-nationals have the status of citizenship examinations.
- adaptation of non-Estonians to Estonian cultural space, their active involvement in social life. The aim is to remove obstacles which prevent non-Estonians from competing on the labour market and in public life. More favourable conditions should be created which would lead to their more active participation in non-governmental associations, in culture production, and in international exchange of ideas.
- lessening of regional isolation of the non-Estonian population. Mobility within the state of both Estonians and non-Estonians should be encouraged and facilitated so that the present trend for maintaining the predominantly non-Estonian neighbourhoods would cease (primarily in Ida-Virumaa, the north-eastern part of Estonia). The aim is to create a multicultural and open communicative environment in Ida-Virumaa.
- political integration of non-Estonian Estonian citizens into the legislative and executive power structures. The prerequisite for the functioning of democracy in Estonia is the establishment of political pluralism independent of ethnic origins; voting at elections or in parliament would not be along ethnic lines but would stem from ideological differences and socio-economic interests.

The key to integration in society is a change in attitudes. First of all, it means acceptance on the part of Estonians of the idea of constructing an integrated multicultural society in Estonia in which "Estonian" does not mean one's ethnicity, but one's nationality. For non-Estonians this means overcoming the complex of being a second-class citizen, shedding illusions which are cherished by many (about joining Russia or instituting two official languages), accepting a not so cheerful prospect to the Russian spirit of having to make a serious effort. Because to learn Estonian, to adapt to local life, to improve one's qualifications to compete on the labour market requires a serious effort. Since this effort will be associated - at least in the minds of the younger generation - with many rewards, it will not be an insurmountable problem.
    It is likely that Estonia's economic achievements and closeness to Europe will create a supportive atmosphere for the integrative attitudes in society. When Jüri Kruusvall in his survey asked people to arrange six possible visions of Estonia in order of preference (mononational, integrated, westernized, new, divided or russianized Estonia) it turned out that an integrated Estonia was one of two most preferred variants for both Estonians and non-Estonians. This is also a sign of converging views and more pragmatic attitudes.

To sum up, the issue of non-Estonians is one of the tasks that Estonia has to deal with. To create a functioning civil society in the European context means successful integration and the cultivation of openness and tolerance in all areas of social life. In view of Estonian national interests there is no alternative to integration.

Mati Heidmets

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