Kilpailukykyvaltion koululainsäädännön rakentuminen : Suomen eduskunta ja 1990-luvun koulutuspoliittinen käänne

Finnish education policy, educational legislation and the entire education system changed significantly during the 1990s as part of a general restructuring of public administration. There has been a clear divergence from the former tradition of a system of regulation, founded on detailed legislation and the principle of equality. The new governance, which is based more on individual choice, efficiency and evaluation, emphasizes that the development of a high standard of education is a necessity in the light of global competition. This study explores the legislative process regarding education policy in the Finnish Parliament during the 1990s, and highlights in particular how the international discourse on education policies was restructured in the context of Finnish legislation. The research material consists of all the public parliamentary documents relating to education, including government proposals, minutes from the discussions in the chamber and archive material (final protocols, reports and statements) for the Committee for Education and Culture. The discourse on the process of drafting and passing education legislation is modelled on three interrelated policy technologies (market, management and performance), which are understood here as mechanisms connecting general political ideas to normative legislation. The changes in the regulation of education were part of a general public administration reform instigated during the mid 1980s. The research results will prove that during the left-right coalition cabinet of PM Harri Holkeri, new policy technologies affected the parliamentary discourse on education policy. This was particularly influenced by a change in the preconditions for the management of education that was created as a result of the numerous demands to deregulate and delegate decision-making authority to the local and school levels while rendering the whole education system more effective. At the turn of the decade, market-type mechanisms were more indirectly manifested in the forms of individuality and freedom of choice, which were reflected, for example, in proposals to “lower the hurdles” by separating general from vocational secondary education with a view to encouraging students to select courses from other educational establishments, in addition to relaxing the requirements for establishing private schools and abolishing a hundred-year-old strict national catchment-area system. Later, in the course of the 1990s, after the subjects, players, and methods of evaluation had been more precisely defined, evaluation based on performance would result in the active measurement of the attainment of set objectives. In the spring of 1991, from the outset of PM Esko Aho's right-centre coalition cabinet, the education budget suffered cutbacks as a result of a global recession and this influenced the legislative work of, and discourses in, parliament. Representatives of the parties in power regarded the recession solely as an external factor that was remote from the political arena. In their view, the education system should rise to the challenge by ensuring the efficient and innovative use of the resources available and by developing new forms of indicators for evaluating results. Representatives of the opposition opposed the cabinet’s standpoint as a result of the recession, criticized the measures taken by pointing out the harmful effect of constantly cutting the budget and argued that the government had made political capital out of the recession by using it as an opportunity to give more room to market, management and performance technologies within the Finnish education system. Criticism of the new education policy became even stronger during PM Paavo Lipponen's first “rainbow” coalition cabinet with critical views being expressed not only from the opposition but also from representatives within the government. Representatives from the left demanded legislative restrictions and the instigation of measures to relieve the presumed negative effects of market, management and performance in the name of educational equality. The new management by results steering method within the university sector and the introduction of commercial education services in compulsory education were fiercely criticized. The argument over “setting outer limits” including, for example, the demands for more detailed legislation and earmarked state subsidies was characteristic of Parliament’s legislative discourse in the latter part of the 1990s. Keywords: education policy, education legislation, Parliament of Finland

Kannustaminen ja moraali : Kannustamisen idea suomalaisessa yhteiskuntapolitiikassa 1990-luvulta alkaen

Even though the concept of incentive has become very popular in Finnish welfare politics since the economic crisis of the 1990s, the content of this concept is not clear. Fundamentally, it is a matter of controlling the behaviour of individuals to accord with the authorities' objectives and interests in gaining cooperative benefits. As early as in Plato's Republic, citizens were encouraged to use their abilities and skills in a way most beneficial to the society. Similarly, in today's welfare society citizens are urged to produce common goods and distribute welfare to enable a better life for all through cooperation. The fundamental question is to what extent society can shape individuals' preferences with incentives, and encourage them without external coercion to choose actions beneficial for both the society and the individuals themselves. The objective of the incentive institution is to gain cooperative benefits, but there are different views on how it should be implemented. For example, the incentive system in the Finnish welfare society includes several economic and social conceptions which adjust the distribution of welfare. From an economic perspective, the objective of the incentive system is economic efficiency, while from a social perspective it is the securing of social rights and citizens' equality. The market mechanism, for example, can at best lead to economically efficient activity, but it might sacrifice fairness and equality. In this research, the idea of activation policy expands to cover normative and social incentives, in addition to the economic factors affecting human choice and social actions. Desirable co-living and meaningful cooperation have some prerequisites. We need the expanded idea of activation to study them, and to maintain them in society. The themes discussed in all the ten chapters aim at evaluating the preconditions of a just society. This study provides tools to examine the changes in the welfare state, also from the viewpoint of normative ethics. This offers a morally and conceptually wider perspective than a normative viewpoint of economics alone. In terms of the values of our welfare society, it makes a difference how the relationship between the legalities of economics and citizens' well-being is understood. The research asks whether economic benefits to the society should be allowed to supersede the principles of human dignity Key words:incentives, activation policy, morality, social philosophy, social justice, policy paradigm

Cultural Trauma and Life Stories

The purpose of this work is to use the concepts of human time and cultural trauma in a biographical study of the turning points in the recent history of Estonia. This research is primarily based on 148 in-depth biographical interviews conducted in Estonia and Sweden in 1995-2005, supplemented by excerpts from 5 collections and 10 individually published autobiographies. The main body of the thesis consists of six published and of two forthcoming separate refereed articles, summarised in the theoretical introduction, and Appendix of the full texts of three particular life stories. The topic of the first article is the generational composition and the collective action frames of anti-Soviet social mobilisation in Estonia in 1940-1990. The second article details the differentiation of the rites of passage and the calendar traditions as a strategy to adapt to the rapidly changed political realities, comparatively in Soviet Estonia and among the boat-refugees in Sweden. The third article investigates the life stories of the double-minded strategic generation of the Estonian-inclined Communists, who attempted to work within the Soviet system while professing to uphold the ideals of pre-war Estonia. The fourth article is concentrated on the problems of double mental standards as a coping strategy in a contradictory social reality. The fifth article implements the theory of cultural trauma for the social practice of singing nationalism in Estonia. The sixth article bridges the ideas of Russian theoreticians concerning cultural dialogue and the Western paradigm of cultural trauma, with examples from Estonian Russian life stories. The seventh article takes a biographical look at the logic of the unraveling of cultural trauma through four Soviet decades. The eighth article explores the re-shaping of citizen activities as a strategy of coping with the loss of the independent nation state, comparatively in Soviet Estonia and among Swedish Estonians. Cultural trauma is interpreted as the re-ordering of the society s value-normative constellation due to sharp, violent, usually political events. The first one under consideration was caused by the occupations of the Republic of Estonia by the Soviet army in 1940-45. After half a century of suppression the memories of these events resurfaced as different stories describing the long-term, often inter-generational strategies of coping with the value collapse. The second cultural trauma is revealed together with the collapse of the Soviet power and ideology in Estonia in 1991. According to empirical data, the following three trauma discourses have been reconstructed: - the forced adaptation to Soviet order of the homeland Estonians; - the difficulty of preserving Estonian identity in exile (Sweden); - the identity crisis of the Russian population of Estonia. Comparative analyses of these discourses have shown that opposing experiences and worldviews cause conflicting interpretations of the past. Different social and ethnic groups consider coping with cultural trauma as a matter of self-defence and create appropriate usable pasts to identify with. Keywords: human time, cultural trauma, frame analysis, discourse, life stories

“En ole tyhjäpää turha julkku” – Julkkisehdokasdiskurssin hegemonisoituminen 1990-luvun eduskuntavaaleissa

Pro gradu-tutkimukseni käsittelee niin sanottuja julkkisehdokkaita ja heidän representaatiotaan mediassa 1990-luvun eduskuntavaalien aikaan. Nyky-yhteiskunnassa julkkisehdokkaat näyttäytyvät itsestään selvänä ilmiönä, jonka alkuperälle ei juuri uhrata ajatuksia. Ilmiön taustalla on poliittisen kulttuurin muuttuminen yhä viihteellisemmäksi ja henkilökeskeisemmäksi. Poliitikot käyttäytyvät kuin julkisuuden henkilöt ja samalla julkisuuden henkilöt ovat pyrkineet poliitikoiksi. Lisäksi suomalaisessa vaalijärjestelmässä ei käytetä niin sanottuja listavaaleja, vaan äänestetään yksittäisiä ehdokkaita. Niinpä vaaleissa päähuomio kiinnittyy ehdokkaiden henkilökohtaisiin ominaisuuksiin ja yksilöiden välisiin kamppailuihin. Näissä olosuhteissa julkkisehdokkaat ovat potentiaalinen keino saavuttaa lisää näkyvyyttä ja herättää myös politiikasta vähän kiinnostuneiden äänestäjien mielenkiinto. Tutkimukseni ajallinen viitekehys on 1990-luku, sillä halusin selvittää mitkä ovat julkkisehdokasilmiön juuret ja miten ilmiö on kehittynyt. Oman tutkimukseni valossa vuoden 1991 eduskuntavaalit olivat julkkisehdokkaiden läpimurto. Keskeinen hypoteesini on, että media ei anna julkkisehdokkailla tasavertaisia mahdollisuuksia muiden ehdokkaiden kanssa esiintyä vakavasti otettavina ja ”oikeina” poliittisina ehdokkaina. Media puhuu julkkisehdokkaista alentuvasti ja asenteellisesti sekä heidän poliittisia kykyjään epäillen. Tämän asenteellisuuden tutkimiseksi tarkastelin kuutta valtakunnallista sanomalehteä (Helsingin Sanomat, Iltalehti, Ilta-Sanomat, Demari, Nykypäivä ja Suomenmaa) kolmien eduskuntavaalien ajalta. Tarkoituksena oli saada selville onko olemassa jonkinlainen hegemoninen julkkisehdokasdiskurssi, jonka seurauksena kaikista julkkisehdokkaista puhutaan samalla tavalla alentuvasti. Ilmiön taustoitukseksi selvitin julkisuuden teoriaa, politiikan ja viihdeteollisuuden suhdetta, parasosiaalisia suhteita sekä julkkisehdokkaiden historiaa. Hegemonisen diskurssin piirteitä tutkin puolestaan kriittisen diskurssianalyysin keinoin. Aluksi tarkastelin millaisia representaatioita, identiteettejä ja suhteita diskurssissa luodaan. Tämän jälkeen tutkin diskurssin ideologisuutta ja hegemonisuutta. Julkkisehdokasdiskurssi näyttäytyi 1990-luvun sanomalehdissä vaihtoehdottomana ja sen sosiaalinen alkuperä pimittyi vuosikymmenen kuluessa. Näin ollen diskurssi hegemonisoitui ja 2000-luvulle tultaessa siitä on muodostunut hyvin itsestään selvä puhetapa, jota ei kyseenalaisteta. Julkkisehdokkaita paheksutaan yleisesti, vaikka puolueet saavat julkkisehdokkaiden kautta näkyvyyttä, media myy heidän avullaan tuotteitaan ja äänestäjät saavat eduskuntaan tuoreita ja ”ryvettymättömiä” kansanedustajia. Pro gradu -tutkimukseni tekee hegemonisen julkkisehdokasdiskurssin näkyväksi, mutta vain media kykenee haastamaan vallitsevan