The socio-economic context of Salla
Salla’s early inhabitants were the Sámi people, whose traditions and subsistence practices — such as reindeer herding and fishing — have played a foundational role in the region's identity. Over time, Finnish settlers integrated in Salla, becoming the dominant demographic group. While some Forest Sámi families remain, Salla is no longer part of the official Sámi homeland. The relatively small Sámi population in Salla reduces the visibility of Sámi culture and its susceptibility to exotification — a pressing concern in other regions of Lapland.
In the 20th century Salla was deeply affected by World War II, as the region became a battleground during the Winter War (1939–1940) and Continuation War (1941–1944). The war led to significant losses as nearly half of the territory was forfeited to the Soviet Union and entire communities were displaced. Wartime history remains an important cultural marker, which has been incorporated in tourism offerings, such as the Museum of War and Reconstruction, several war memorials and historical sites scattered across the municipality. While the natural landscapes and wilderness are the main draw for tourists, there is continuous effort to incorporate local narratives and history into service offerings, inviting tourists to explore the events that have shaped the identity of Salla (Interviewee 2, 2024).
Today, the relatively small population of Salla reflects a tightly knit community with strong connections between individuals (Interviewee 2, 2024). The population is aging, as in many rural parts of Finland, with younger generations increasingly moving to urban areas for education and employment. Tourism has helped retain younger residents by creating employment opportunities in accommodation, guiding, and activity services. However, visitor numbers to Salla, like Lapland in general, peak during winter months, with lower activity during summer and mid-seasons. These seasonal fluctuations lead to job instability, with many residents relying on temporary employment that forces some to seek work elsewhere during the off-season (Interviewee 2, 2024).
The tourism offering is closely linked to the values of the local community, which centres around closeness to nature and tradition. Many residents engage in activities like fishing, reindeer herding, hunting, foraging, and handicrafts – and with increasing interest in authentic experiences in the tourism industry, Salla has leveraged these traditions in its offerings. In turn, this demand contributes to the preservation of cultural practices and traditional livelihoods. However, commercializing local culture to meet tourists' demands also raises questions about the authenticity and long-term sustainability of traditional practices, especially in the event of a rapid expansion of tourism (Interviewee 2, 2024). In Salla, the municipality and industry actors are, however, highly conscious of the potential risks and consequences of high visitor numbers. As noted by a municipal representative, a more prudent approach to growth is preferred: “We want to grow, but we want it to be controlled growth. We aren’t aiming for massive luxury hotels but rather want to keep it cozy, reasonably small, and responsible going forward.” (Interviewee 2, 2024).
Tourism governance structure in Salla
Salla's governance of the tourism sector is characterized by a collaborative approach that integrates national policy frameworks, regional strategies, local initiatives and stakeholder collaboration.
At the national level the overarching goals for tourism are outlined in
Finland’s Tourism Strategy 2022-2028 (Ministry of Economic Affairs and Employment, 2022). The strategy emphasizes environmental conservation, community involvement, and leveraging Finland’s natural and cultural assets as competitive advantages. Operating within this broader strategy is the
Sustainable Travel Finland (STF) program, which provides tools and certifications for destinations and businesses to implement sustainable practices. The STF program offers a seven-step development path that includes commitment, capacity building, certification, sustainability communication, sustainability indicators, development planning, and verification. Participants who complete the program and meet a set of criteria are eligible for the Sustainable Travel Finland label. In 2024, Salla became the sixth area in Finland to receive the STF destination label. As the destination label requires that at least 51% of its tourism businesses adopt certified sustainable practices, the label demonstrates the coordinated efforts and broad commitment to sustainable tourism in Salla.
At the regional level, tourism development is overseen by the Regional Council of Lapland (Lapin Liitto), which also supports the sector through funding, infrastructure projects, and marketing efforts. Overarching goals and strategic priorities for tourism are outlined in the Lapland Agreement (“Lappi Sopimus”) (Regional Council of Lapland, 2022), and the Smart Specialization Strategy for 2023-2027 (Regional Council of Lapland, 2023). These plans are further supplemented by specific tourism strategies that provide more detailed guidance on how to achieve the region's tourism goals. The latest regional tourism strategy for 2020-2023 places a strong emphasis on developing year-round tourism, improving accessibility, and developing authentic cultural experiences (Regional Council of Lapland, 2020).
A new tourism strategy for the region is currently underway, which aims to ensure a balance between growth and sustainability. As a representative from the Regional Council observed, the governance of the tourism sector in Lapland has experienced a notable shift from growth-driven strategies towards sustainable management, responding to concerns about over-tourism, the pressure on local communities and the region's vulnerable Arctic ecosystem (Interviewee 1, 2024). Therefore, upcoming strategies are set to focus increasingly more on the dimensions of environmental and social sustainability.
On the local level, the municipality of Salla is responsible for tourism strategies, project management, and advocacy. The municipality actively engages stakeholders, with tourism governance coordinated through the Travelling in Salla Association (Matkalla Sallaan ry), a membership-based organization representing 35 local businesses and stakeholders. Together with the association, the municipality has outlined its goals and objectives in the Strategy for Sustainable Tourism 2020-2025 (Kestävän matkailun strategia), and the more recent Development Plan for Tourism (Salla 2030 kehittämissuunnitelma) (Municipality of Salla, 2024). These strategies underscore the importance of maintaining Salla’s identity as a small, wilderness destination while enhancing the quality of life for residents.
To support the sustainable growth, diversification of the local economy is a priority, with a focus on supporting small and medium-sized enterprises (SMEs) and encouraging entrepreneurship. A major focus of current strategies in the region and in Salla is also the promotion of year-round tourism. Domestic travellers remain the largest visitor group year-round but in winter there are also significant numbers of international travellers. By expanding the tourism season, Salla can create more stable employment opportunities, reduce the environmental pressure on peak season destinations, and spread the economic benefits of tourism more evenly across the year. The strategies also take note of diversifying and targeting markets across multiple countries, to ensure that if tourism from one country slows down the local industry will not collapse.
Discussion
The governance of tourism in Salla is characterized by a highly collaborative approach that includes the municipality, the tourism association, local businesses, and the wider community. The tourism association plays a key role in implementing strategies, but as it is largely funded by the municipality, occasional challenges arise concerning the division of responsibilities (Interviewee 2, 2024). While communication between stakeholders is generally open and productive, there are moments when internal communication gaps exist. For instance, strategic initiatives risk stagnating due to unclear delegation of responsibilities, leading to inefficiencies in follow-through.
One of Salla’s governance strengths is its approachable and engaged local leadership. The municipal administration is considered tourism-positive and actively supports sustainable tourism development. Local leaders, including the mayor, maintain direct interactions with the community, fostering a sense of transparency and accessibility. Regular events allow residents to voice their concerns, and local stakeholders are actively included in decision-making processes. As noted by a representative from the municipality, broad participation has been key to the progress: “Including all stakeholders and the local population, definitely puts pressure on decision-makers. When there are many stakeholders involved in common strategies and initiatives, joint efforts can really drive change” (Interviewee 2, 2024).
Despite broad community support, tourism funding allocation can sometimes cause tensions, with some residents questioning whether too many municipal resources are directed towards tourism instead of local welfare. In response, governance bodies strive to maintain an open dialogue about how decisions are made and how tourism can deliver economic benefits to the area (Interviewee 2, 2024). For instance, biannual events organized by the tourism association provide a platform for discussion and engagement, with the goal of ensuring that local voices remain central in shaping the tourism sector.
The general support for the tourism industry in Salla is tied to the economic benefits that it provides to the community. Tourism creates job opportunities, with one in four private-sector employees deriving their income from the industry. Unlike in some tourism hotspots, economic benefits in Salla largely stay within the local community due to the predominance of locally owned businesses, and there is little concern about revenue flowing outside the region (Interviewee 2, 2024). As mentioned, year-round employment remains a challenge, as much of the work is seasonal. To this end, the strategies emphasize continued diversification of tourism offerings and workforce development to help retain workers.
The economic benefits also extend beyond direct tourism businesses, helping to sustain shops, restaurants, cultural venues, and sports facilities, contributing to the vitality of the local community. Further, the economic impact of tourism also extends to indirect beneficiaries such as transportation providers and construction companies. Infrastructure investments, such as new accommodations, create demand for local construction and maintenance services, further strengthening the regional economy.
To date, sustainable tourism in Salla has been most closely linked to ecological responsibility and environmental stewardship. Environmental strain from tourism, such as waste generation and trail overuse, indirectly affects the community's well-being by impacting the pristine nature that forms the foundation of Salla's identity. To mitigate these challenges, several commitments and measures have been made, reflecting a view of shared responsibility among actors in the tourism industry. These commitments are highlighted in an environmental promise that has been developed by stakeholders in the tourism sector (see text box below).