Securitizing Russian-speakers in Estonia and Latvia: The Frame-Policy Nexus before and after Russia’s Invasion of Ukraine

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Abstract The securitization of Russian-speakers has been central to nation-building in Estonia and Latvia since they regained their independence in 1991. Securitization at the levels of discourse and policy varies over time as a result of historical legacies, Russia’s kin state activism, and the minority protection requirements of European institutions. This article introduces a typology that links discursive frames with policies to map securitizing trends in Estonia and Latvia after the Soviet collapse: securitizing exclusion — less accommodating policies are justified by presenting the minority as a threat to the state or core nation; securitizing inclusion — more accommodating policies are justified to “win over” the minority in order to decrease the threat; and desecuritizing inclusion — more accommodating policies are justified on grounds of fairness or appropriateness without reference to security. The utility of the typology is demonstrated by analyzing frames in the public broadcast media and recent policy developments in Estonia and Latvia immediately following Russia’s invasion of Ukraine in 2022. The analysis points to increasing convergence across countries in favor of securitizing exclusion. The analysis points to increasing convergence across countries in favor of securitizing exclusion. We conclude by evaluating these trends in light of minority mobilization and recent data on support for the active defense of the state among Russian-speakers and titulars.