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Article published In:
Language, conflict and security
Edited by Roberta Medda-Windischer and Andrea Carlà
[Language Problems and Language Planning 46:2] 2022
► pp. 192–224

Language policies as a conflict prevention tool

The approach and experience of the OSCE High Commissioner on National Minorities

| OSCE High Commissioner on National Minorities
ORCID logo | University of Ottawa | Human Rights Research and Education Centre (HRREC)

This article outlines the approach of the OSCE High Commissioner on National Minorities to matters related to the use of language, assessing its consistency. Language is a major identity marker and as such can become a contentious issue in multi-ethnic societies. Questions revolving around the use of language can catalyse fights around distribution of power within States. They can also become a source of conflict and tensions between States, requiring the attention of international organizations such as the OSCE. Conversely, sound language policies can be instrumental in defusing tensions and strengthen the cohesion of diverse societies. Since its inception thirty years ago, the HCNM has devised a framework for developing balanced language policies as an instrument for conflict prevention. In the HCNM experience, the promotion and use of minority languages needs to be balanced by the adoption and promotion of one or more official languages. The article argues that the HCNM approach relies on the ‘positive’ securitization of linguistic rights, and proves that through its thematic recommendations the HCNM has embarked on a mission of addressing languages and minorities through inclusion and integration, as an approach to build a win-win model of global and regional security.

Keywords: conflict prevention, language policies, integration, human security, human rights
Article outline
  • Introduction
    • Conceptual framework
  • The OSCE High Commissioner on national minorities: Mandate and evolving role
    • Origins and mandate
    • Evolution: From tripwire to shaping policies
    • The concept and practice of integration
    • Beyond the protection of human rights and towards integrated societies
    • Conflict prevention through diversity management
  • Language, ethnicity and conflict
    • Language as an identity marker and vital interest
    • Instrumentalization and securitization of language issues
    • Positive vs negative securitization of language issues
  • From Oslo to Ljubljana: The evolving HCNM approach to language issues
    • Before Oslo
    • The Oslo recommendations regarding the linguistic rights of national minorities
    • From Oslo to Ljubljana
  • Elements of a balanced language policy
    • The promotion of state/official languages and the role of the HCNM
    • What balance
    • Principles
  • The HCNM in action
    • Promotion of state language
    • The enforcement of minority languages in state administration
    • The HCNM impact on minority and state language promotion
    • Minority languages and economic activities
  • Conclusions
  • Acknowledgements
  • Notes
  • References
Published online: 17 November 2022
DOI logo
https://doi.org/10.1075/lplp.00092.rot
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