Tou ism’s ole in u al de elopmen o Finnish Lapland: in e p e ing
na ional and egional s a egy documen s
HAKKARAINEN MARIA AND SEIJA TUULENTIE
Hakka ainen, Ma ia & Seija Tuulen ie (2008). T�u i���� �le in u al �e�el���T�u i���� �le in u al �e�el���
�en � Finni�h La�lan�: in e � e ing na i�nal an� egi�nal � a egy ��cu�en �.
Fennia 186: 1, ��. 3–13. Hel�inki. ISSN 0015�0010.
Ru al c���uni ie� in ��a �ely ���ula e� a ea� a e acing c�n�i�e able ��cial
change� a� a e�ul � �e���ula i�n an� he in ��uc i�n � new � �� � li�eli�
h��� an� w� king � ac ice�. The c���uni ie� al�� ha�e � �eal wi h en�i �n�
�en al change� cau�e� by he inc ea�e in he u�e � na u al e��u ce� an� by
gl�bal i��ue�, �uch a� cli�a e change. An ici�a i�n an� a�a� a i�n, a� well a�
ac i�e �a ici�a i�n, a e i��� an � a egie� � l�cal c���uni ie�. S a egic
�e�el���en w� k i� �a � he �lanning �y� e� a �any ge�g a�hical le�el�.
Thi� a icle a�k� h�w � a egy ��cu�en � ake in � acc�un u u e � ���ec � �
�u i�� �e�el���en . The �bjec i�e i� � exa�ine h�w change� in ��e a ing
en�i �n�en �, lan��u�e �a e n�, an� in he na u e�ba�e� in�u� ie� � l�cal u�
al c���uni ie�, a e aken in � acc�un in he “�e�el���en ��eech” � �u i��
� a egie�. The ela i�n�hi� be ween �u i�� � a egie� an� � he u al � a egie�
i� al�� b iefly a�� e��e�. The g a��� �� le�el � l�cal c���uni ie� i� in ��uce�
by analy�ing he g �u� �i�cu��i�n� hel� a he �illage � L�kka in Finni�h La��
lan�. Tex ual analy�i� i� ca ie� �u by u�ing c�n en analy�i� an� he � ical
analy�i�. The e�ul � �h�w ha an inc ea�e in �u i�� i� ega �e� a� ine�i able
an� ha �u i�� �e�el���en i� � en �i�cu��e� �e�a a ely �� � he eal�� �
u al li e, e�en h�ugh �i e en u al li�elih���� a e in �any way� � �ngly in�
e c�nnec e�.
Ma ia Hakka ainen & Seija Tuulen ie, Finnish Fo es Resea ch Ins i u e, PO Box
16, FI-96100 Ro aniemi, Finland. E-mails: ma ia.hakka ainen@me la.fi, seija.
uulen ie@me la.fi.
In oduc ion
In egi�nal �e�el���en , �u i�� i� � en �een a� a
�echani�� � he ec�n��ic �u �i�al � �e i�h�
e al c���uni ie� (Kn�w� 2000; Na�h & Ma in
2003; Saa inen 2004, 2007), an� hi� i� al�� he
��licy a ge in Finlan� a b� h he na i�nal an�
egi�nal le�el�. H�we�e , he benefi � � he g �w h
� �u i�� a e �el��� que� i�ne� in ��licy ��cu�
�en �.
D a� ic � uc u al change� in he lab�u �a ke �
highligh he nee� � � u�y u u e �cena i�� an�
��licie� �� e h� �ughly; hi� i� e��ecially he
ca�e in ela i�ely e�� e a ea� �uch a� Finni�h
La�lan�. E��l�y�en in � i�a y � ��uc i�n in
hi� egi�n ha� �ec ea�e� �� ��e 30,000 e��
�l�yee� in he 1960� � �ligh ly �� e han 4000
e��l�yee� a he u n � he �illenniu� an�, n�w�
a�ay�, he la ge� �ec � in he li�elih��� � uc u e
� Finni�h La�lan� i� he �e �ice in�u� y (Regi�nal
C�uncil � La�lan� 2002). Change� in li�elih���
� uc u e a e i��ac ing e�e y fiel� � li e. The an�
�i i�n �� a�i i�nal, �el ��u� aining li�elih����
� he ���e n��ay �a ke ec�n��y, an� e��ecial�
ly � he gene a i�n � �e �ice� an� ex�e ience�,
ha� �ean b� h ec�n��ical an� cul u al change�
� in�i�i�ual� an� l�cal c���uni ie�.
T�u i�� ha� been he �cu� � �e�el���en in
Finni�h La�lan� �ince he 1980�. The key � a i� ic�
�n �u i�� �h�w ha �u i�� ha� a �ignifican �i�
ec e ec �n inc��e� an� e��l�y�en in he e�
gi�n. In 2006, �i ec inc��e �� �u i�� in La��
lan� wa� a�� �xi�a ely 500 �illi�n eu ��, he
inc ea�e ��e he yea 2000 being 176 �illi�n eu�
��. Di ec �u i���ba�e� e��l�y�en in La�lan�
wa� equi�alen � a lea� 5000 �e ��n�yea �, an�
i ha� inc ea�e� by 1770 �e ��n�yea � �ince he
yea 2000 (Table 1). H�we�e , he e a e c�n�i�e �
4FENNIA 186:1(2008)
Hakka ainen Ma ia and Seija Tuulen ie
Table 1. S��e � a i� ic� ega �ing �u i�� in Finni�h La�lan� (Regi�nal C�uncil � La�lan� 2008; S a i� ic� Finlan� 2008).
2000 2006
Di ec �u i�� inc��e 324 �illi�n eu �� 500 �illi�n eu ��
Di ec �u i�� e��l�y�en 3,230 �e ��n�yea � 5,000 �e ��n�yea �
Nu�be � egi� e e� ��e nigh � 1,690,000 2,117,000
– nu�be � ��e nigh � by � eigne � 539,435 826,000
Fig. 1 Main ski eso s (whi e
ci cles) in Finnish Lapland.
Pale g ey shading deno es
na ional pa ks, whi e lines
a e commune bo de s, g ey
ci cles a e main se lemen s
and g ey lines indica e oad
ne wo k, i e s and o he
wa e bodies.
able �i e ence� wi hin he � ��ince; e.g. 86 �e
cen � he ��e nigh � we e egi� e e� in he fi�e
la ge� �u i� e�� � (Table 2).
The �u i�� � a egy � Finni�h La�lan� � he
�e i�� 2003–2006 ha� a��� e� a egi�n�� ien e�
�e�el���en a�� �ach, an� ell e�� � i� �een a�
engine� � �e�el���en . I i� a gue� in he � a �
egy ha channelling �ublic �u��� � he e�� �
i� he ��� e ec i�e way � enhance �u i��. The
��alle , quie e �lace� an� �illage� �u �i�e he
�u i� e�� � a e ega �e� a� �ui able al e na i�e�
� wi�ening he �i�e �i y � �u i�� in he egi�n
(LTS 2003: 32). T�u i�� in La�lan� ha�, acc� �ing
� all he ele�an in�ica � � (Table 1), inc ea�e�
an� he La�lan� T�u i�� S a egy 2007–2010 c�n�
inue� � e��ha�ize he �le � he �u i� e�� �
(Fig. 1) a� engine� � �e�el���en . H�we�e , a l�
� w� k i� � ill equi e� � �� ea� he benefi � �
e�� �� ien e� �u i��. Acc� �ing � Pekka Kau��
�ila (2004), he ���i i�e e ec � ha�e n� ex en�e�
in � he a ea� �u �un�ing he e�� �. Thi� i� a �a�
j� challenge � �e�el��e � an� i can al�� be a
que� i�n � li e an� �ea h � ��all �illage�. The e
a e c�n�i�e able ����ibili ie�, bu al�� �any � �b�
FENNIA 186:1(2008) 5
Tou ism’s ole in u al de elopmen o Finnish Lapland: …
le�� in��l�e� in c��bining a�i i�nal na u e�
ba�e� w� k wi h he �� � “new w� k” a���cia e�
wi h he fiel� � �u i�� (�ee e.g. Mülle & Jan���n
2007: 12). The ��cial an� cul u al cha ac e i� ic�
� ��all �illage� in e�� e a ea� nee� � be aken
in � acc�un when � ��� ing �u i�� w� k a� a
��lu i�n � he e��l�y�en � �ble�� in �e i�he �
al a ea�.
T�u i�� i� � en �een by g��e n�en � a� a
�echani�� � i��le�en ing hei e�i� ibu i�n
��licy. H�we�e , he l�cal e�i�en � will gain un�
equally, i hey gain a all, an� � ���e �ay e�en
be ha �e� (Hall & Jenkin� 1998: 36). In he � e��
en �a�e , he �u i�� �e�el���en an� u al � a �
egy ��cu�en � a e analy�e� in � �e � �e e �ine
h�w hey �eal wi h i��ue� c�nce ning na u e an�
u al en�i �n�en , an� h�w hey an ici�a e chang�
e� in hei ��e a ing en�i �n�en . The fi � �bjec�
i�e i� � exa�ine he �le � u al en�i �n�en �,
e��ecially he �le � � e� �, which c��e ��� �
he lan� an� a e in en�i�ely u ilize� by �i e en
li�elih����, in he �u i�� � a egie� � Finlan� a�
a wh�le an� � Finni�h La�lan�, an� he �ec�n� i�
� in�e� iga e h�w change� in i��ue� c�nce ning
li�elih���� an� he na u al en�i �n�en a e an�
ici�a e�. The hi � �bjec i�e i� � eluci�a e wha
kin� � u al ��cie y he ��cu�en � �i�cu �i�ely
c�n� uc , an� h�w he�e �iew��in � fi in wi h he
nee�� an� ex�ec a i�n� � l�cal c���uni ie�.
S a egies as social ac s: he
impo ance o he audience
D�cu�en � �uch a� �u i�� � a egie� a e ‘��cial
ac �� in ha hey a e � ��uce�, �ha e�, an� u�e�
in ��cially � ganize� way�. They a e n� , h�we�e ,
an��a en e� e�en a i�n� � � ganiza i�nal �u�
ine�, �eci�i�n��aking � �ce��e� � � � e��i�nal
�iagn��e�. They c�n� i u e ��ecific y�e� � e� e�
�en a i�n ha a��ly hei �wn c�n�en i�n�. D�cu�
�en � a e � en u�e� � c ea e a ce ain kin� �
� e�ic abili y an� uni � �i y �u � a wi�e �a ie y
� e�en � an� ��cial a ange�en �, an� hu� hey
�� n� �i��ly �e�c ibe cla��e� an� �y� e��, bu
a e ac ually ac i�e in c ea ing an� �ha�ing he�.
Thi� �iew i� cl��e � he ��cial c�n� uc i�ni� i�ea
� ��cie y a� a hu�an � ��uc , in he �en�e ha
ex ual � ��uc � can be �een a� ac i�n� ha change
he w� l� an� c�n�i� � �any kin�� � ch�ice
(Be ge & Luck�ann 1967; A kin��n & C� ey
2004).
T an��a ency �ay n� be ����ible in � a egy
��cu�en �, bu i i� i��� an � ec�gnize he
��we � �uch ��cu�en �. The ai� in he ��cu�
�en � i� � y � �ake he� a� legi i�a e an� e��
e�en a i�e a� ����ible. D�cu�en � nee� � be
analy�e�, a� hei ba�ic ea u e i� ha hey c�nceal
he w� k � an in�i�i�ual ac � . Thei �e y an��
ny�i y i� �a � he � ficial � ��uc i�n � ��cu�
�en a y eali y. Thu�, analy�i� i� nee�e� � �h�w
wha kin�� � ch�ice ha�e been �a�e an� h�w he
��cu�en � clai� wha e�e au h� i y �ay be a �
ibu e� � he�. We �h�ul� a�k, wha a e he
� e�i�e� � he a gu�en a i�n in he ��cu�en �
an� wha a e he a ge au�ience� � he ex ? Rhe�
� ical analy�i� i� an i��� an �e h�� in � u�ying
h�w �i e en �e �i�n� � eali y a e �a�e � be
c�n�incing, an� h�w ea�e �, li� ene � � �a ici�
�an � can be engage� (Tuulen ie 2003; A kin��n &
C� ey 2004). F� exa��le, he � e ace � Finlan���
Na i�nal T�u i�� S a egy e��ha�ize� ha i ha�
been � e�a e� in cl��e c���e a i�n wi h “ �u i��
ac � �” an� ha he � e�a a i�n � �ce�� ha� in�
clu�e�, in a��i i�n � he ac ual w� king g �u�,
���e 2000 ac i�e �a ici�an � �� �a i�u� �a �
� Finlan�. I al�� � a e� ha he � a egy will ha�e
a ���i i�e i��ac �n ec�n��ic g �w h an� e��
�l�y�en , an� �n a �� e equal �e�el���en �
he c�un y��in�i�i�ual egi�n�. La�lan���T�u i��
S a egy � a e� ha “ he �e�el���en � �u i�� in
La�lan� i� an �n�g�ing � �ce��, in which ac i�n�
a e ba�e� �n ��licie� ha ha�e been join ly ag eed
upon an� egula ly e�i�e�” (La�lan� T�u i��
S a egy… 2003). The�e a e ���e � he ea u e�
ha �e �e � � eng hen he legi i�acy an� ele�
�ance � he ��cu�en . H�we�e , i i� i��� an �
ealize ha ��cu�en � �� n� exi� in i��la i�n.
D�cu�en � e e � � he eali ie� an� ���ain�,
an� al�� � � he ��cu�en �. When analy�ing
��cu�en a y eali y, �ne �u� , he e � e, l��k be�
y�n� he in�i�i�ual ex � (A kin��n & C� ey
2004).
Table 2. Nu�be � ��e nigh � ay� �e �u i� e�� in Finn�
i�h La�lan� in 2006.
T�u i� e�� Regi� e e� ��e nigh � ay� in 2006
R��anie�i 441,000
Le�i 297,000
Yllä� 282,000
Saa i�elkä 275,000
Pyhä�Lu�� � 158,000
6FENNIA 186:1(2008)
Hakka ainen Ma ia and Seija Tuulen ie
The he � ical un�e � an�ing � c���unica i�n
i� ba�e� �n he � inci�al ha any ex (� al � w i �
en) i� � ��uce� in a ��cial c�n ex in which he
�le� � he a�� e��� an� he a�� e��ee can be
�efine� (Su��a 1989). Rhe � ical analy�i� can
�lace e��ha�i� �n �i e en ea u e� in he ex �.
One � he ��� influen ial �ub��i�i�i�n� wa�
�a�e in ancien i�e� by A i� � le. He �i� in�
gui�he� be ween e h��, �a h��, an� l�g��, �ean�
ing he ai � ha a e ela e� � he ��eake , h��e
ela e� � he au�ience, an� h��e ela e� � he
a gu�en i �el . The i�ea� � new he � ic (Pe el�
�an 1982; Su��a 1989) e��ha�ize e��ecially
he �eaning � he au�ience an� he ac ha a �
gu�en � a e alway� a�� e��e� � an au�ience.
Thi� ��e� n� e e � an au�ience ha i� �hy�i�
cally � e�en , n� ��e� i �ean an au�ience ha i�
ex� e��ly a�� e��e�, bu an au�ience ha i� he
ga he ing � h��e, wh� he ��eake wan � � influ�
ence h �ugh hi� � he a gu�en � (Pe el�an
1982: 14). Fu he �� e, he � e�i�e� � a gu�en�
a i�n ha�e � be �ha e� wi h he au�ience. Thi� i�
achie�e�, � exa��le, h �ugh he gene al na u e
� a gu�en a i�n: i i� ea�ie � gain b �a� acce��
ance � ���e hing ha i� gene ally c�n�i�e e� �
be a g��� hing, �uch a� heal h, han � ���e�
hing ha i� ba�e� �n a �e y �e aile� an� c�nc e e
a gu�en (Pe el�an 1982: 27–32). I hi� acce��
ance i� gaine� a he gene al le�el, i i� ����ible �
an� e i � �� e c�nc e e i��ue�. F� exa��le,
becau�e cance i� ega �e� a� a ba� hing, i i�
����ible � u�e cance a� a �e a�h� � ���e ���
cial �hen��en�n in � �e � �ake i l��k like a
� �ble�. Thi �ly, a gu�en a i�n alway� u�e� na u�
al language, an� hu� i i� ine�i ably a�bigu�u�
by na u e. The analy�i� �h�ul� b� h exa�ine he
ex a� a wh�le an� al�� e�eal he ch�ice� �a�e
u�ing ��ecific lingui� ic �ean�.
In hi� a icle, we �cu� � i�a ily �n he i��ue �
au�ience�: a wh�� he ��cu�en a y ex � a e a��
� e��e� an� in wha way� �� hey c���unica e
wi h �i e en au�ience�. In he beginning � �u
analy�i�, h�we�e , we �a�e a quan i a i�e c�n en
analy�i� � he ex �. T� �u��a i�e he in � �a i�n
�n �elec e� i��ue� in he ��cu�en �, we calcula �
e� he nu�be � e e ence� � �i e en c�nce� �
in �ix ��cu�en � (Table 3). H�we�e , u al � a e�
gie� we e �eal wi h �nly when hey e e e� � he
� ali y � li�elih���� in u al �i� ic �.
In a��i i�n, he D a � La�lan� T�u i�� S a �
egy 2007–2010 (LTS 2007a) wa� �i�cu��e� in a
�cu� g �u� c��� i�ing he inhabi an � � a ��all
�illage, L�kka, in Ea� e n La�lan�. The an�c i�
� hi� �i�cu��i�n wa� al�� analy�e� an� c���a e�
� he c�n en � � he egi�nal � a egy.
Resul s o he documen a y analysis
The �ali�i y � all he ��cu�en � i� ba�e� �n he
�ecla a i�n ha a la ge nu�be � �a ie� we e in�
��l�e� in he � e�a a � y � �ce��. The au�ience�
can be ega �e� a� he “na i�n” � “ egi�n” �
which he � a egy �e��n� a e� ha �u i�� i� an
i��� an �a � he ec�n��ic li e. The ��cu�
�en � al�� inclu�e he � a e�en ha he �u ���e
i� � a��eal � he financie � (FTS 2006).
When c�n�uc ing a ex ual analy�i�, i i� n�
�nly i��� an wha ha� been w i en, bu al�� �
ec�gni�e wha i� n� ex� e��e�. Thu�, �u fi �
que� i�n� a e: Wha i� aken � g an e� in he
��cu�en �? Wha a e he un�e lying a��u�� i�n�
ha �� n� e�en ha�e � be in�ica e�? One c���
��n ea u e in �u i�� � a egy ��cu�en � i� ha
he g �w h � �u i�� i� �een a� he �nly ����ibil�
i y. The ��cu�en � �� n� inclu�e any �cena i��
Table 3. D�cu�en �a a: � a egie� an� abb e�ia i�n� u�e� in he able� � hi� � u�y.
S a egy Abb e�ia i�n
1. Finlan��� T�u i�� S a egy � 2020
(Mini� y � T a�e an� In�u� y)
FTS
2. La�lan� T�u i�� S a egy 2003–2006* LTS1
3. D a � La�lan� T�u i�� S a egy 2007–2010* DLTS2
4. La�lan� T�u i�� S a egy 2007–2010* LTS2
5. De�el���en S a egy � Finni�h Ru al A ea�
(Mini� y � Ag icul u e an� F� e� y)
NRS
6. La�lan��� Ru al P �g a��e 2013* LRS
*S a egie� 2, 3, 4 an� 6 � �ula e� by he Regi�nal C�uncil � La�lan�.
FENNIA 186:1(2008) 7
Tou ism’s ole in u al de elopmen o Finnish Lapland: …
ha a�� e�� �eclining �u i��. Ex� e��i�n� like
“ �u i�� b ing� well�being � all � La�lan� an�
u he � egi�nally�balance� �e�el���en ” i� ak�
en a� he �ain �i�i�n � he La�lan� S a egy (LTS
2003). Thi� al�� a��lie� � Finlan���S a egy (FTS
2006): “T�u i�� i� a �ignifican ��u ce � e��l�y�
�en an� � ���e i y, which will hel� Finlan���
ec�n��y g �w u he , an� i i� al�� � egi�nal
�ignificance a� a ��u ce � li�elih���.” H�we�e ,
he na i�nal � a egy i� �� e cau i�u� in i � an ici�
�a i�n an� � ��i�e� a li� � a�k� ha ha�e � be
ulfille� in � �e � ealize hi� kin� � �e�el���
�en . B� h he na i�nal (FTS 2006) an� he La��
lan� T�u i�� S a egie� (LTS 2007a,b) � e�en he
���i i�e i��ac � � �u i�� �n egi�nal �e�el���
�en in a ��we ully e��ha�ize� �anne , an�
�u i�� i� ega �e� a� a ble��ing � e�� e an�
�e i�he al a ea�.
The na u al en i onmen
Na u e i� ega �e� a� �ne � he �ain a ac i�n�
in Finlan�, an� e��ecially in La�lan�. Na u e a�
�uch i� equen ly �en i�ne� in he � a egie� – in
he na i�nal � a egy 61 i�e� an� in he egi�nal
� a egie� ab�u 50 i�e� in each ex (Table 4).
H�we�e , wha i� �ean by “na u e” e�ain�
���ewha ��en. Na u e i� ela e� � �uch a�jec�
i�e� a� clean, a ied,silen an� peace ul. In he
La�lan� S a egy he a�jec i�e� “A c ic” an�
“n� he n” a e � en ela e� � na u e. Cleanne�� i�
he ea u e ��� � �ngly e��ha�ize� in b� h he
na i�nal an� egi�nal � a egie�. Na u e�ba�e� ac�
i�i ie� a e ega �e� a� an i��� an �e�el���en
b anch in �u i��.
F �� he ��in � �iew � he � ic, “na u e” i� a
u�e ul c�nce� : he e i� �uch a uni�e �al ag ee�en
ha na u e i� g��� an� i� a hing ha �u i� � l��k
� , ha he �i e en ac � � can ag ee �n he i�ea
ha clean, unique na u e i� wha Finlan� – an�
e��ecially La�lan� – can � e � �u i� � (c . Pe el�
�an 1982: 27 ab�u uni�e �al �alue�). H�we�e ,
when i c��e� � he que� i�n � “ eal” na u e an�
i � ea u e�, i i� n� �� ea�y � w i e ab�u i . Na�
i�nal �a k� a e �en i�ne� in b� h he na i�nal
an� egi�nal �u i�� � a egie�, an� hey can be
�een a� e e ing � he �� � na u al en�i �n�en
ha will c�n inue in he u u e in he � � ha i i�
in n�w. In Finlan�, an� al�� in in e na i�nal �a �
ke ing, La�lan� wi h i � �any la ge na i�nal �a k�
e� e�en � “high na u e” an� an ex� ic e��u ce �
�u i��, whe ea� in Finlan���T�u i�� S a egy (FTS
2006) La�lan� ecei�e� li le �en i�n.
One i��� an a��ec � Finni�h na u e, he
c�un y�� � e� �, a e �en i�ne� �nly a c�u�le �
i�e� in each � a egy. Thi� i� e��ecially in e e� ing
becau�e �u i�� en e� eneu � in La�lan� ha�e
ecen ly �e�an�e� ha he � e� � in ce ain a ea�
�h�ul� n� be u�e� � � e� y, bu �h�ul� in� ea�
be �e a�i�e � �u i�� an� �u ��� ec ea i�n u�e
(e.g. Mäkinen 2006). The u�e an� he na u e �
� e� � hu� �ee� � be a c�n e� e� i��ue, an� �ne
ha i� c�n�enien ly a��i�e� in he � a egy ��cu�
�en �. H�we�e , he e a e ���e �ign� ha he � �
e� y i��ue i� al�� en e ing he � a egy ��eech: La�
�lan���Sec�n� T�u i�� S a egy �eal� wi h he
�� e c�n e� e� � e� y i��ue� an� e e � � he
����ibili y � he a�e in na u al �alue� (LTS
2007b).
The La�lan� T�u i�� S a egy 2003–2006 (LTS
2003) �en i�n� � e� � �nly a ew i�e�, bu he
c�nce� � wil�e ne�� i� equen ly u�e� an� can
be ega �e� a� inclu�ing � e� �, i � �ain unc i�n
being a� a �� e a ac i�e an� ��an ic a� w� �
� hi� y�e � na u al �u �un�ing. “Va� ” an�
“clean” a e a�jec i�e� u�e� �ge he wi h wil�e �
ne�� (LTS 2003, Engli�h �e �i�n). S��eh�w, h�w�
e�e , he w� � “wil�e ne��” ha� �ani�he� �� he
la e� �e �i�n � he La�lan� T�u i�� S a egy. N�
��e� i a��ea in Finlan���T�u i�� S a egy. Thi�
�ay be �ue � he ac ha he � ficial wil�e ne��
na u e � � ec i�n a ea� we e e� abli�he� in n� h�
e n La�lan� in 1991 (E ä�aalaki 17.1.1991/62),
an� hey we e �� e ac i�ely �i�cu��e� a he i�e
when he fi � La�lan� T�u i�� S a egy wa� � �
�ula e�.
Wholeness o u al socie y
In hi� � u�y we c�n�i�e he u al � a egie� ��
he ��in � �iew � he wh�le u al ��cie y. We
Table 4. Na u e an� na u e�u�e ela e� c�nce� � �lu� hei
equencie� in he � a egie�. F� abb e�ia i�n�, e e � Ta�
ble 3.
S a egy FTS LTS1 DLTS2 LTS2
Na u e 61 48 23 49
Wil�e ne�� –11––
F� e� 2 1 3 3
Scene y 81357
Na u al �alue a�e ––11
Na i�nal �a k 41618 20
P � ec e� a ea 2 6 7 7
8FENNIA 186:1(2008)
Hakka ainen Ma ia and Seija Tuulen ie
a�k � wha ex en he�e � a egie� e� e�en he
wh�le ange � li�elih���� an� ela i�n�hi�� be�
ween he �i e en ��he e� � u al li e. Pe i�he al
a ea� ecei�e a en i�n in he � a egie�. The na�
i�nal �u i�� � a egy � a e� ha “The � a egy ha�
a clea ly ���i i�e e ec �n ec�n��ic g �w h an�
e��l�y�en , an� i al�� u he � a �� e balance�
�e�el���en in he �i e en a ea�. T�u i�� i� in a
cen al �le in he ec�n��ie� � he e�� e a ea�,
an� he ���i i�e i��ac � � he � a egy a e e��ha�
�ize� e��ecially in he ��a �ely ���ula e� a ea� �
N� he n an� Ea� e n Finlan� an� in �u i� e�� �
wi h a ca�aci y � g �w h in N� he n Finlan� an�
P�hj�i��P�hjan�aa.”
The i�ea � �e�el���en in he �u i�� � a e�
gie� ha� �a allel� wi h � Pe e Bu n���(1999: 330)
�i�i�i�n be ween he a i u�e� “ �u i�� fi � ” an�
“�e�el���en fi � ”. Acc� �ing � Bu n�, he a��
� �ach “ �u i�� fi � ” wi h i � �cu� �n �e�el���
�en i� � ally �i ec e� a �u i��, while he a��
� �ach “�e�el���en fi � ” �ee� �u i�� �nly a� a
��l � na i�nal an� egi�nal �e�el���en . S��e
e e ence� � he a�� �ach “�e�el���en fi � ”
can be �een in he ��ening �a ag a�h� � he � a �
egie� (in he fi � cha� e � � Finlan���T�u i��
S a egy � 2020 an� La�lan� T�u i�� S a egy
2003–2006, an� in he �ec�n� cha� e � La�lan�
T�u i�� S a egy 2007–2010), whe e �u i�� i�
�een a� a �echani�� � ec�n��ic wel a e in u al
a ea�. Sub�equen ly, h�we�e , he �u i�� � a e�
gie� ely �� e an� �� e �n he “ �u i�� fi � ” a��
� �ach. The �u i�� � a egy ��cu�en � al���
c���le ely � e ha �ly any �e h��� � ��l� �
� ��� ing �u i�� in he a ea� a �un� �u i� e�
�� �. The a�ew� k � �e�el���en an� e e �
ence� � c���e a i�n al�� �cu� �n �u i�� � ake�
h�l�e �. Ru al � a egie� inclu�e �� e �lan� an�
��l� � he in eg a e� �e�el���en � he �i e �
en �ec � �. Thi� al�� eflec � �i e ence� in he
� a egie�� a ge au�ience�. T�u i�� � a egie� �u
�u i�� �e�el��e � fi � , while u al � a egie� � i�e
� b �a�e l�cal �e�el���en .
The e��ence � h�w u al a ea� a e e� e�en e�
in he ��cu�en � can be �u��e� u� in he i�ea
ha �e���ula i�n � he c�un y�i�e i� a � �ble�
an� �u i�� i� a �a�e a� ��� � he �u i� �e� i�
na i�n� a e �i ua e� in he u al a ea� (FTS 2006).
Finlan���na i�nal �u i�� � a egy i� al��� �e�
��i� � �i�cu��i�n ab�u � he u al li�elih����
an� hei ela i�n�hi� � �u i�� (Table 5). The �nly
exce� i�n i� �ne figu e in which ag icul u e an�
� e� y a e �en i�ne� a� �a � � a b �a�e a�e
� �u i��. Fi�he y an� ein�ee he �ing a e n� a
all inclu�e� in he a�e.
The La�lan� T�u i�� S a egy 2003–2006 (LTS
2003) a�� e��e� a�i i�nal li�elih���� an� hei
ela i�n�hi�� � �u i�� in �� e leng h (Table 5).
The w��way in e ac i�n i� al�� ec�gni�e�: ou -
ism c ea es oppo uni ies o o he indus ies, bu
a he same ime i is s ongly dependen on hem
(LTS 2003: 6). Planning � �ce��e� a e ega �e� a�
a � u� � ec�nciling he in e e� � � �i e en u�
al li�elih����. M� e in en�i�e �ial�gue i� al�� �e�
�an�e� � a��ance he �i�e �e u�e � � e� an�
wa e e��u ce�. Al��� all � he �i�cu��i�n�
ab�u he ela i�n�hi�� be ween �i e en u al
li�elih���� ha�e been ��i e� �� he la e� �e �
�i�n � he � a egy (LTS 2007b). T a�i i�nal li�eli�
h���� ecei�e �uch le�� a en i�n. I �i��ly � a e�
ha he in e e� � � ein�ee he �ing, �ining, an�
Table 5. Nu�be � e e ence� � �i e en � �� � li�elih��� in he � a egie�. F� abb e�ia i�n�, e e � Table 3.
S a egy FTS LTS1 DLTS2 LTS2 NRS LRS
T�u i�� (in u al � a egie�) 7* 165*
C�llab� a i�n be ween he �u i�� in�u� y an� � he li�elih���� 2233 –16
T�u i�� in�u� y���e�en�ence �n � he li�elih���� –21–
T a�i i�nal li�elih���� –3–1 –9
Rein�ee he �ing –3–2 172
– all a��ec � ega �ing ein�ee –948 –118
Fi�he y (in�u� y) –4–1 437
Ag icul u e 1––1207 48
F� e� y –23443 34
– � e� �ec � 1–– 21
*The�e figu e� c�n ain all e e ence� � �u i��, n� �nly � he �u i�� in�u� y.
FENNIA 186:1(2008) 9
Tou ism’s ole in u al de elopmen o Finnish Lapland: …
� e� y can be he �����i e � h��e � �u i��,
bu ha a balance be ween he�e in e e� � can be
eache� h �ugh � ��e lan��u�e �anage�en
��licy. A� ega �� � e� y, h�we�e , he a�e in
ec ea i�nal an� �cenic �alue� i� �en i�ne� a� a
new i�ea. Wi h e��ec � he ba�ic �u i�� a ac�
i�n� in La�lan�, i i� � iking ha he D a � La��
lan� T�u i�� S a egy 2007–2010 (LTS 2007a)
��e� n� �en i�n ein�ee he �ing a all. A e ci �
cula i�n � c���en �, ein�ee he �ing gaine�
�ligh ly �� e a en i�n in he final ��cu�en (LTS
2007b).
La�lan� T�u i�� S a egy 2003–2006 (LTS 2003)
��in � �u ha �u i�� �e�el���en �h�ul� �cu�
�n �u i� e�� �. Thi� �a�e ��licy a ge i� c�n�
fi �e� in he Finlan���T�u i�� S a egy � 2020
(FTS 2006) an� in he la e� La�lan� T�u i�� S a �
egy 2007–2010 (LTS 2007b). Qui e he c�n a y,
Finlan���Ru al De�el���en S a egy �
2007–2013 (FRDS 2007), ��e� n� �i�cu�� he �le
� �u i� e�� � a all, bu he u al � a egy � La��
lan�, La�lan��� u al � �g a��e 2013 (LRP 2005),
ake� he �a�e ��in � �iew a� he egi�nal �u i�
� a egie�. Since he e��ha�i� i� �n �u i� cen e �,
he ba�ic e�i�en ial uni � in La�lan�, �illage� an�
��all c���uni ie�, bec��e al��� in�i�ible. Ne��
e hele��, al��� all he �u i� e�� � in La�lan�
ha�e e��l�e� a �un� �l� �illage�, which � ill ha�e
hei a�i i�nal ���ula i�n an� li e� yle�.
L�cal c���uni ie� a e � en ega �e� a� an e��
�en ial �a � u al a ea�, an� a � �ng �en�e �
c���unali y ie� � a �en�e � �lace i� e��ha�
�i�e� (e.g. H�l�ila 2001). M� e��e , he c�nce� �
� l�cal an� l�calne�� ha�e been ega �e� a� i��
�� an in he fiel� � �u i��: �u i� � a e ex�ec e�
� be in e e� e� in l�cal cul u e an� � ha�e in e �
ac i�n wi h he l�cal� (S�i h 1978). Thu�, i i� in�
e e� ing � n� e h�w u al c���uni ie� an� hei
in e ac i�n wi h �u i� � a e a�� e��e� in � a egy
��cu�en �. In u al � a egie�, he a�i i�nal u al
i��ue� a e �i�cu��e� a l� , while c���uni y an�
c���unali y i��ue� a e n� �� ���ula (Table 6).
L�calne�� ecei�e� ���e �� e a en i�n in �u i��
� a egie�. L�calne�� i� al�� �iewe� �� �i e en
�i ec i�n�: he �ain i��ue� a e 1) h�w he l�cal
���ula i�n benefi � �� �u i�� an� 2) h�w �
u�e l�cal cul u e a� �u i�� a ac i�n (LTS 2003).
H�we�e , he�e ��in � � �iew� a e �nly �en�
i�ne�, n� �e�el��e� in any c�nc e e way. The
�i e ence be ween he La�lan� T�u i�� S a egie�
an� Finlan���T�u i�� S a egy i� in he e��ha�i�
�lace� �n he l�cal ���ula i�n: Finlan���T�u i��
S a egy � 2020 (FTS 2006) ha� � �nge �e�an��
wi h �� e nu�e �u� �en i�n� ha he l�cal ����
ula i�n� �u� be in��l�e� in �lanning an� ha hi�
�u� be aken in � acc�un in e�e y �eci�i�n. Thi�
i� al�� he � ficial g�al � ecen �lanning ��licie�
(�ee Jauhiainen & Nie�en�aa 2006).
An icipa ion o changes
Being s a egy �e�ice� � he u u e � a li�eli�
h���, i i� � be ex�ec e� ha he an ici�a i�n �
change� in an ��e a ing en�i �n�en i� i��� an .
In�ee�, each � he ��cu�en � inclu�e� a cha� e
�n an ici�a i�n (Table 7).
The an ici�a i�n � ����ible change� �uch a� cli�
�a e change i� an in e e� ing ��ic �ince i i� �eal
wi h �e y �i e en ly in he Finlan���T�u i�� S a �
egy (FTS 2006) an� in he La�lan� T�u i�� S a e�
gy (LTS 2007b). In he � �e , cli�a e change i� a
�a � a l�ng li� �e��n� a ing he h ea � � he
Table 6. Nu�be � e e ence� � c�nce� � ela e� � �u i� �e� ina i�n� an� a�i i�nal u al li e. F� abb e�ia i�n�, e e �
Table 3.
S a egy FTS LTS1 DLTS2 LTS2 NRS LRS
T�u i� �e� ina i�n 56 93 95 106 –14
– �ki e�� 1698––
– ell e�� –746–2
Ru al 5 178
C���uni y ––––213
L�cal c���uni y –1––1–
C���unali y 4 –––10 6
L�cal 24 14 3948 45
Village –247 13 66
10 FENNIA 186:1(2008)
Hakka ainen Ma ia and Seija Tuulen ie
�u i�� in�u� y. In he la e , cli�a e change i�
�ainly un�e � ��� a� a ���i i�e ac � , al h�ugh
he � �ble�� � S�u he n La�lan� a e �en i�ne�.
The final �e �i�n � he La�lan� T�u i�� S a egy
2007–2010 (LTS 2007b) �en i�n� cli�a e change
�ix een i�e�, an� in nine � he�e he �e��age i�
ha cli�a e change will benefi �u i�� in La��
lan�. Th ee � he �en i�n� �ee cli�a e change a�
a ����ible h ea ( � �u i�� in S�u he n La�lan�),
an� he e� a e �� e � le�� neu al.
The i�eal � �u� ainabili y i� fi �ly in eg a e�
in � he �u i�� � a egie�. Su� ainabili y, �u� ain�
able �e�el���en , an� �u� ainable �u i�� a e � �
en �en i�ne� an� hei � inci�le� a e ex�laine�
in cha� e � �e�ica e� � hi� ��ic (LTS 2003; FTS
2006; LTS 2007b). Su� ainabili y wa� al��� ��i �
e� �� he la e� La�lan� T�u i�� S a egy: he
� a �e �i�n (LTS 2007a) ha� �nly �ix �en i�n�
an� hey we e �ainly ela e� � ec�l�gical i��ue�.
H�we�e , he final �e �i�n � he � a egy (LTS
2007b) inc ea�e� he nu�be � �en i�n� � he
le�el � he � e�i�u� � a egy. Al��, an en i e cha��
e �e�ica e� �nly � �u� ainabili y wa� ein� a e�
in he ex . Thi� �h�w� h�w ea�ily a ex can a��
� e�� �nly a ��ecific au�ience in a ce ain �ec � �
li e, whe ea� in ac ual ac he au�ience i� u�ually
a wi�e . Ab �a�e �e ��ec i�e wa� ein� a e� in
he �ec�n� La�lan� T�u i�� S a egy in he c�u �e
� ci cula ing he � a �e �i�n a��ng � akeh�l��
e �.
Su� ainabili y an� �u� ainable �e�el���en a e
�eal wi h in he � � � gene ali ie� wi h li le
c�nc e e c�n en . They a e u�e� in a�e y flexible
�anne � ju� i y a wi�e ange � i��ue�. F� exa��
�le, he La�lan� T�u i�� � a egy 2007–2010
� a e� ha (LTS 2007b: 20) “�u� ainable �e�el���
�en i� ��we ully � e�en in �u i�� in Ea� e n
La�lan� becau�e � egi�nal �lanning an� he
awa �ing � he in e na i�nal Pan Pa k� ce ifi�
ca e.” He e �u� ainable �e�el���en i� un�e �
� ��� in a �e y na �w �en�e �nly in ela i�n �
na i�nal �a k�. T� �efine �u� ainabili y in hi� way
in a egi�n ha �u e � �� �any � a� ic ��cie al,
ec�n��ic, an� ec�l�gical change�, an� a lack �
�u i�� in�e� �en � c���a e� � � he �a � �
La�lan�, �i�ini�he� he a gu�en a i�e ��we �
�u� ainabili y.Ingene al, �e��i e all he e�ea ch
��ne a �un� he�e c�nce� �, he u�e � he e �
�u� ainabili y an� i � �i e en �e �i�n� �ee�� �
e�ain a he le�el � ab� ac �alue�, e.g. beau y
� ju� ice, bu n� a� c�nc e e �alue� bel�nging �
a��ecific being, �bjec , � g �u� (c . Pe el�an
1982: 27).
One � en�ex� e��e� c�nce n ega �ing e�� e
egi�n� i� ela e� � �ig a i�n an� he ���ula i�n
age � uc u e. Thi� i��ue � �e��g a�hic change�
in u al a ea� i� b iefly �eal wi h in he na i�nal
�u i�� � a egy. The e ec � � g �wing �u i��
a e �ainly ega �e� �i��ly a� being ���i i�e, bu
he e i� al�� a �en i�n ha neg� ia i�n� wi h l��
cal �e��le a e nee�e�. The � �ble� � ���ula�
i�n age � uc u e in u al a ea� i� n� �eal wi h
in he na i�nal �u i�� � a egy a all, an� he La�
�lan� T�u i�� S a egy (LTS 2003) ega �� he
c�n�equence� � ageing in a���i i�e ligh in he
�en�e ha well�� �eni� � nee� �� e �u i��
�e �ice�.
De��g a�hic change� in u al a ea� a e �eal
wi h b iefly in Finlan���T�u i�� S a egy. I��ue�
�uch a� �a e y, e � i��, an� c i�e a e li� e� b� h
in Finlan���T�u i�� S a egy an� in he La�lan�
T�u i�� S a egy a� h ea �, an� hei being ab�en
a� a��an age� � Finlan� a� a wh�le an� � La��
lan� a� a egi�n.
Table 7. Nu�be � e e ence� � c�nce� � ela e� � he an ici�a i�n � change�. F� abb e�ia i�n�, e e � Table 3.
S a egy FTS LTS1 DLTS2 LTS2 NRS LRS
Cli�a e change 11 –12168–
– nega i�e 2–23*1
– ���i i�e ––89–
– neu al 9–247**
Su� ainabili y 30 19 6 21 21 14
Sa e y, �ecu i y 38 27 22 43
*Tw� nega i�e �en i�n� in�ica e i��ac � �n egi�n� � he han La�lan�, bu he�e a e al�� an� � �e� � he benefi �
La�lan� la e �n in he ��cu�en .
**F�u �en i�n� a�� e�� � e�en i�n � �i iga i�n (�l�wing ��wn) � cli�a e change in a neu al �anne .
FENNIA 186:1(2008) 11
Tou ism’s ole in u al de elopmen o Finnish Lapland: …
Regional s a egy om he poin o
iew o a small, emo e illage
L�cal ��in � � �iew in “�e�el���en ��eech”
we e �i�cu��e� in he c�u �e � �ne �illage �ee �
ing hel� in Finni�h La�lan�. Fi�e �illage � ea� he
� a � he new egi�nal � a egy an� we hen hel�
a �cu� g �u� �i�cu��i�n wi h he ea�e � ab�u
he �illage �� ��in � � �iew ega �ing he � a . A
�e�� � he �i�cu��i�n wa� � awn u� a� an � fi�
cial c���en �n he � a . The � a e�en e� e�
�en e� he �nly c���en �n he � a �a�e by a
�illage. The �cu� g �u� wa� �a � he ac i�n e�
�ea ch � �ce��, which wa� launche� in he �� ing
� 2007 a he �illage � L�kka. The ai� � hi� ac�
i�n e�ea ch � �ce�� i� � �ake ce ain w� king�
li e� ela e�, e�e y�ay � ac ice�, � �ble��, an�
����ibili ie� �i�ible � he l�cal �e��le he��el�e�
(Hakka ainen 2007).
The �illage � L�kka i� l�ca e� in cen al La��
lan�, in he �unici�ali y � S��ankylä. Thi� e�
�� e �illage lie� �n he �h� e � Finlan���la ge�
hy� �elec ic e�e ��i . S���i�, he wil�e ne��
a ea a �un� L�kka, ha� � �ng cul u al�hi� � ical
�ignificance � he l�cal �e��le, a� well a� � he
la ge na i�nal au�ience. The �e�i�e � he � e�i�
�u� �el ��u ficien ec�n��y in L�kka i� linke� �
he ��e all � uc u al change� in ��cie y, an� in he
l�cal c�n ex i i� cl��ely linke� � he c�n� uc i�n
� he L�kka hy� �elec ic e�e ��i in 1967, which
e�ul e� in he �e �anen fl���ing � ��� � S���
�i�. In a��i i�n, he e�e ��i e�ul e� in � a� ic
change� in he �hy�ical en�i �n�en � S���i�
an� in li�elih���� �uch a� ein�ee he �ing an�
a �ing becau�e he �a� u e� we e c��e e� by he
wa e . A� �e�a� a ing a� he e�e ��i ha� been, i
ha� �ince � ��e� � be an excellen fi�hing a ea,
an� fi�hing i� n�wa�ay� �ne � he �ain li�eli�
h���� in L�kka. Du ing he �a� ew yea �, he l��
cal �e��le ha�e �e�el��e� �u i�� ac i�i ie� an�
hey ha�e �lan� � c�n��li�a e �u i�� a� �ne �
hei li�elih����. (L�kan kylä 2007).
The �cu� g �u� �ee ing a which he La�lan�
T�u i�� S a egy wa� �i�cu��e� (2.4.2007) wa�
�ne � he �ee ing� an� w� k�h��� a ange� �u �
ing he c�u �e � he ac i�n e�ea ch � �ce��. The
�ee ing began wi h a �i�cu��i�n ab�u �e���ula�
i�n, an� he �illage � ex� e��e� hei c�nce n �
he u u e � he �illage in he ace � he �eclining
bi h a e. The �illage �� �ain an� ��� � iking
c���en ega �ing he � a �e �i�n wa� ha e�
�� e �illage� a e in�i�ible in he � a egy. H�we��
e , hey �i� acce� hi� becau�e he � a egy wa�
ega �e� a� being �i ec e� a he en i e egi�n �
La�lan�. On he �a�e g �un��, he e��ha�i� �n
�u i� e�� � wa� acce� e�. The �illage � �i��
cu��e� a l� ab�u he ela i�n�hi�� be ween he
�illage� an� u al a ea� an� �u i� e�� �. One
unan�we e� que� i�n highligh e� he ����ibili ie�
� u al a ea� a� a wh�le – an� e��ecially hei
�wn �illage – wi h e��ec � linking u� wi h he
nea by e�� �� bu�ine�� en�i �n�en ? The � a
�i� n� a��ea � a�� e�� hi� i��ue.
Ne�e hele��, he �illage � wi�he� ha he �u �
i� cen e� w�ul� a��u�e e���n�ibili y � he �e�
�el���en � he �u �un�ing c�un y�i�e. They
a��u�e� ha he egi�nal � a egy i� �� e benefi�
cial � �u i� e�� � an� na i�nal�le�el � gani�a�
i�n�. The �illage � c�ul� benefi �� e i he nea �
by e�� � w�ul� � aw u� �lan� ha ake in � ac�
c�un he �u �un�ing c�un y�i�e, inclu�ing i �
�illage�. In i � � e�en � a e, he �illage � L�kka i�
�i ec ly inclu�e� �nly in he Li�elih��� P�licy
P �g a��e � S��ankylä �unici�ali y.
One c�nc e e exa��le � he ac i�n e�ea ch
� �jec �u ing he � a egy � �ula i�n i� ela e� �
he acce��ibili y � hi� �a icula �illage. A
� e�en , he e i� �nly �ne �a� lea�ing � he �il�
lage � L�kka, which �ean� ha �u i� � �u� � i�e
80 kil��e e� �� he �ain �a� � fin� he �il�
lage. One i��� an � �jec � he �illage � i� �
ge a �� e �i ec , �h� e c�nnec i�n � he �ain
�a�, bu hi� wa� n� inclu�e� in he � a � he
La�lan� T�u i�� S a egy. A e ci cula i�n � he
� a � c���en �, he �a� i� n�w �en i�ne� a�
�ne i��� an i��ue � �u i�� �e�el���en (LTS
2007b).
The �illage �� �iew��in � �i e e� in �any way�
�� he “� ficial” � a egy hinking. F� exa��le,
he way La�lan� wa� �i�i�e� in � �u i�� a ea� in
he � a wa� ega �e� a� a ificial, an� he �illag�
e � ec�gni�e� ha hi� �i�i�i�n wa� ba�e� �n he
nee�� � he �u i� e�� � an� � he �u �i�e �lan�
ne �.
F� he �illage �, �e��g a�hic change in he
c�un y�i�e wa� a a �� e i��� an i��ue han
cli�a e change. The �illage � c���en e� �n cli�
�a e change by �aying ha “ he L�kka e�e ��i
will l��e i � c��e � ice ���e i�e be ween �i��
May an� �i��June – an� hen li e will g� �n.”
Conclusions
Thi� a icle exa�ine� he way � a egic �u i��
�lanning c���unica e�: Wh� �ay� wha � wh��?