Unit E2–Subsidiarity Network/Europe2020 Monitoring Platform/Covenant of Mayors/EGTC
/ EUROPEAN UNION
Committee of the Regions
REPORT ON THE CONSULTATION
OF THE SUBSIDIARITY MONITORING NETWORK ON THE COMMUNICATION:
AN EU FRAMEWORK FOR NATIONAL ROMA INTEGRATION STRATEGIES UP TO 2020
COM(2011) 173
Rapporteur: Mr Alvaro Ancisi (IT/EPP)
Disclaimer:
This report does not seek to reproduce all the contributions to the Subsidiarity Monitoring Network, but rather to synthesise the main points. The information it contains is purely for illustrationpurposes. The report is not binding on the CoR administration and does not prejudice the final content of the relevant CoR opinion.
Table of Contents
1.Introduction and methodology
2.Need and added value of EU Action
3.Tackling the problem: National Roma Integration Strategies and the use of Structural Funds
3.1National Strategies on Integration
3.2Use of structural funds
4.Best practices
5.Roma civil society organisations
Appendix 1: Best Practices
Appendix 2: Contributions
1.European Academy of Bolzano/Bozen (EURAC), Institute for Minority Rights (IMR)
2.Parlament de Catalunya
3.Land Salzburg
4.City of Vienna
5.Scottish Government
This document consists of 35 pages.
1.Introduction and methodology
The aim of the consultation is to identify the Subsidiarity Monitoring Network (SMN) Partners' perceptions of the European Commission Communication entitled An EU Framework for National Roma Integration Strategies up to 2020[1].
This communication aims to providean EU Framework forimproving the situation of Roma in the EU. The Roma population in Europe has been estimated at10-12 million, which makes itEurope's largest minority. TheRomaare often marginalised and live in very poor socio-economic conditions.
The aim of the European Commission (EC) is to ensure that Roma are not discriminated against but are treated on a par with all other EU citizens and also to break the vicious cycle of poverty that persists from one generation to the next.
The EU Framework proposed by the EC in its communication calls onthe Member States to adopt a comprehensive approach to Roma integration and endorse a range of goals, but does not seek to replace the Member States' primary responsibility in this regard.
The EC proposes to adopt a targeted approach and design or adapt national Roma integration strategies to meet EU Roma integration goals, with targeted actions and sufficient funding to deliver them. The Commission underlines that EU Roma integration goals should cover four crucial areas: access to education, employment, healthcare and housing. In particular, special attention should be devoted to:
Ensuringthat all Roma children complete at least primary education
Cutting the employment gap between Roma and the rest of the population
Reducingthe gap in health status between Roma and the rest of the population
Closingthe gap between Roma'saccess to housing and public utilities and that of the rest of the population.
The consultation was launched on 16 June 2011 and concluded on 5 August 2011. Five contributions from four Member States have been received[2]. All respondents are aware of the existence of Roma people in their territories and provide information on a numberof measures aimedat integrating these communities. These measures rangefrom the recognition of Romaidentity to the implementation of specific public policies.
2.Need and added value of EU Action
The European Commission has askedthe Committee of the Regions to 'endorse'the EU Framework for National Roma Integration Strategies up to 2020 as presented in the text of the communication (seep.14). Respondents were asked whetherthey considered the proposal necessary and brought added value, in other words,whetherthey considered this proposal to comply with the subsidiarity principle.
One of the respondents, from a country with a relatively small Roma population, does not explicitly reply to the question but clearly states that Member States, including devolved administrations, should be able to develop appropriate strategies which take into account local circumstances and reflect the size and nature of the Roma population. The other contributions show, however, that the issueof Roma integration is perceived as having a transnational nature and should be tackled in a coordinated manner. In fact, the Roma are very often nomadic and haveno fixed territory, and therefore their integration is a matterthat can affect several Member States at the same time. The Roma population also often faces an alarming degree of social inequality and exclusion and their inclusion and the improvement of their livingconditions are perceived to bea sensitive matter in many Member States.
The respondents statethat National and regional policies, which frequently focus on purely economic factors, have provento be ineffective in tacklingexclusion and poverty. They also refer to the need for these communitiesto preserve their identity. Purely national initiatives are seen as inefficient and lacking coherence, and the framework created by them is thus perceived to befragmented.
EU action in this field could bring a range of positive effects, such as improving the coherence and effectiveness of Member States'national strategies or introducing a comprehensive and integrated approach capable of tackling this issue from a more general perspective. EU action is also seen as capable ofimprovingthe sharing of information and contacts and of co-financing projects in the field of integration. EU action could also help clarify concepts and foster the use of correct terminology that fully respects all sensitivities. Data collection procedures could also benefit from European standards, whilst respecting human rights and the rules established by the Council of Europe.
Finally, EU action could be very effective inraisingawareness of the needto improve the situation of Roma people.
Support forthe proposal has been based mainly on the reasons referred to above, and the communication itself is viewed as necessary and able to bring added value. It is therefore perceived as complying with the subsidiarity principle.
One important factor to be underlined is that top-down policies are often inefficient due to local authorities lacking the political will to implement policies and measures coming from the national authorities. The involvement of local authorities in the design and planning of theses measures thus appears to be essential toits success.
3.Tackling the problem: National Roma Integration Strategies and the use of Structural Funds
3.1National Strategies on Integration
The EU Framework asksall EU27 Member States to prepare or revise their national Roma integration strategies and present them to the European Commission by the end of December 2011. It also requires those national strategies to be "designed, implemented and monitored in close cooperation and continuous dialogue" with local and regional authorities. Respondents were asked about their degree of involvement in the preparation of National Roma Integration Strategies.
Thisinvolvement varies and depends very much on the arrangements put in place in eachMemberState.
In some Member States, such as the UKandItaly, respondents are not aware of the existence of a National Roma Integration Strategy. In Spain, the national government has informed the regions that in future they will be contacted in order to provide further information about their participation in the National strategy. In Austria, a National Action Plan on Integration does exist, but no reference is made to a National strategy in this field.
3.2Use of structural funds
According to the European Commission "most Member States currently do not make yet sufficient use of available EU funds to address the needs of the Roma". Respondents were asked about what the reasons might be for this poor take-up of structural funds for projects aimedat integrating the Roma .
According to respondents, there appear to be a variety of reasons for this poor take-up. Some of these are: complexity and resource-intensive administrative requirements or the need for projects to be pre-financed. In many cases,local and regional authorities have no clear access to information and do not know how to apply for funds. There is a need for more information that is clearly accessible to local and regional authorities,in addition toadministrative simplification. The involvement of the target groups at the support programmes'developmentstage would also be a welcome step.
4.Best practices
The European Commission sets a range of goals in specific policy areas that should be achieved in order to foster the integration of Roma communities. These areas are considered to be especially important. Respondents were asked to provide examples of best practices in one or more areas identified as priorities by the European Commission. These are: access to education; access to employment; access to healthcare; and access to housing and essential services[3].
Improving access to education is one of the key elements inimproving the situation of Roma people. Projects in this area consist mainly ofinitiatives designed toreducetruancy and school failure and to improveco-existence. The active involvement of Roma professionals is mentioned as an important element for the success of these activities. Regarding early school-leaving, the transition fromprimary tosecondary education seems to be a crucial point.
Another typeof initiative in this field is the creation of fora for dialogue, where Roma women, for instance, can play a key role. It should be noted that the provision of a clear and specific legal framework is an important basis for developing initiatives. Other practicalgoalsand measures in this field are: pre-school education schemes, better communication with parents, broader intercultural policies and specific training for teachers.
Regarding access to employment, projects mentioned by respondents include literacy courses, with modules offering basic education and career guidance, as well as positive actions, such as quota for specific training courses.
In the area of healthcare, projects are mainly geared towardsboostingasense of belonging amongthe Roma population, their awareness of available services and prevention. Respect forcultural traditions is also a concern, and there is a need for social interpreters to be made available when needed.
Finally, in the area of access to housing and essential services, one concern is to abandon the model of making Roma live apartin camps and to adopt a comprehensive and coherent strategy at the national level, as expressed by one respondent.
5.Roma civil society organisations
In its communication, the European Commission explains that there is a need to join forces at all EU levels and with all stakeholders, including the Roma, to put an end to their exclusion. Respondents were asked to provide examples of the successful involvement of Roma civil society organisations in projects to integrate the Roma.
In this field, the cooperation and active involvement of Roma associations is crucial. Projects developed by Roma associations can achieve greater acceptance withinRoma communities.
Involving Roma associations in institutional processes is also regarded as a key element for success. In particular, the creation of advisory bodies including representatives of Roma associations, at the national, regional or local level shouldbe also highlighted.
Finally, the launch of Roma studies groups in cooperation with Roma advisory councils might also be a useful starting point forfurtheranalysing the exclusion suffered by the Roma and factors thatcan help to overcome this exclusion.
Appendix1: Best Practices
Access to education / Comunidades de AprendizajePromoción Escolar secondary education
Literary discussion groups
Meetings of Roma women students
Access to employment
Access to healthcare
Access to housing
Appendix 2: Contributions
1.EuropeanAcademy of Bolzano/Bozen (EURAC), Institute for Minority Rights (IMR)
COMMITTEE OF THE REGIONS – DIRECTORATE E – Horizontal Policies and Networks
Questionnaire on the Communication from the Commission to the European Parliament, the Council, the European Economic and Social Committee and the Committee of the Regions
An EU Framework for National Roma Integration Strategies up to 2020
Submitted by Mr Alvaro Ancisi (IT/EPP) for consultation of the Subsidiarity Monitoring Network
Please complete and submit by 5 August 2011. You can upload the completed questionnaires directly on to the Subsidiarity Monitoring Network webpage ( – remember to log in). Alternatively, you can send them by email to .
Name of the Institution : European Academy of Bolzano/Bozen (EURAC), Institute for Minority Rights (IMR)
Contact person: Dr. Roberta Medda-Windischer (LL.M., Ph.D.), Senior Researcher
Contact details (phone, email) : 0039 (0)471 055 221;
Please complete the following questions:
The European Commission has invited the Committee of the Regions to "endorse" the EU Framework for National Roma Integration Strategies up to 2020 as presented in the text of the Communication (cf. page 14 of the Communication).
- In your opinion, is EU action in the form of a Framework for National Roma Integration Strategies necessary and would it provide an added value compared with action only at MemberState level? Please explain your answer.
The relevance of an EU Framework for National Roma Integration Strategies is to be sustained on various grounds.[4]
Firstly, it will improve coherence and effectiveness of National Strategies among EU MSs. Many EU MSs have indeed adopted legislation and policies on Roma that lack coherence and consistency at the national level. This has been identified by various European institutions, such as the CoE Advisory Committee of the Framework Convention on the Protection of National Minorities (AC) as a major problem in a number of European States, among others, Italy : in fact, although numerous laws exist in Italy at the regional level, and various attempts to adopt a national legislation on Roma, including the proposal to extend, with some adaptations, the scope of application of the existing national legislation on the protection of linguistic minorities (Law No. 482/99) as to include Roma, no legislation on Roma has been adopted so far at national level despite various the attempts in this direction.[5] Consequently, the Italian legal framework is extremely fragmented and incoherent and, according to the Council of Europe, focusing too much “on social and immigration issues at the detriment of the promotion of their [Roma, Sinti and Travellers] identity, including their language and culture”.[6]
On this point, the comments by the Advisory Committee of the FCNM on the Italian State Report are paradigmatic: “[t]he existing statutory provisions on the Roma, Sinti and Travellers adopted by several regions are clearly inadequate in that they are disparate, lack coherence and focus too much on social questions and immigration issues at the detriment of the promotion of their identity including their language and culture”. [7] Accordingly, the CoE Committee of Ministers has invited the Italian authorities to adopt “a comprehensive strategy of integration at national level”.[8]
Secondly, an EU Framework will contribute to clarify the terminology to be used when referring to the Roma communities. The term “Roma” can be used as an umbrella which includes groups of people who have more or less similar cultural characteristics, such as Sinti, Travellers, Kalé, Gens du voyage, etc. whether sedentary or not.[9] An issue identified in the Italian State Reports by the Council of Europe, is indeed the terminology used to refer to the Roma communities, namely ‘Zingari’ (Gypsies) and ‘Nomadi’ (Nomads). For the Council of Europe the term ‘Zingari’ has a pejorative connotation, whereas the term ‘Nomad’ is simply misleading since only some Roma individuals retain an itinerant lifestyle.[10] Despite the commitment by the Italian authorities to comply with the advice of the Council of Europe to use more accurate and sensitive terms, in the State Reports submitted by Italy to the Council of Europe the use of terms such as ‘Gypsies’ and ‘Nomads’ can still be found.[11]
Thirdly, an EU Framework would also contribute to homogenize data collection on Roma. Generally speaking, data collection concerning minorities, particularly Roma, raises in many countries complex ethic and privacy issues. In Italy, the data collection carried out, in 2008, in camps located in Rome and Milan,[12] included fingerprint identification of minors, and although it was carried out in cooperation with the Italian Red Cross, it raised strong criticisms by various international bodies,[13] and even by the Representative of the Government (Prefetto) in Rome who did not agree with the procedure used, particularly as regarding the collection of fingerprints from minors.[14]
Finally, an EU Framework for National Roma Integration Strategies will trigger a general increase in the awareness among national authorities of the cultural diversity of the Roma communities that deserves attention and respect, a pressure to monitor and assess, with clear targets, results and progresses of projects and initiatives carried out by different sectors and by different levels of the public administration as well as the necessity to adopt comprehensive national strategies to improve living conditions for the Roma combined with the protection and promotion of their culture and identities.
If it is true that an EU Framework for National Roma Integration Strategies has to be supported, it has also to be noted that initiatives conceived at the national level through a top-down process often lack support at the local level. In other terms, initiatives and reforms adopted at the national level that are then supposed to be implemented at the local level, due to a top-down approach, often lack the political willingness by the local authorities to implement them effectively and realistically. Under this perspective, reforms implementing the deregulation of administrative competences - from the central to the local level - can be clearly detrimental for minority protection as the discretion of the local authorities would acquire an even more relevant role. Therefore, strategies and broad policies must be coordinated at the national level, but then they must be individualized and specifically tailor made on the basis of the local specificities as well as designed and discussed with the local authorities.
Would you at the level of your local or regional authority endorse the Communication "An EU Framework for National Roma Integration Strategies up to 2020"?
The Province of Bolzano/Bozen where, in addition to the Italian speaking community, live the historical German and Ladin speaking communities, should support the EU effort in this regard especially as Roma represent the largest minority in Europe. Along this line, the Province should sustain the recent resolution of the CoE Parliamentary Assembly in which Member States are urged to: “treat the Roma issue not only from the perspective of a socially disadvantaged group, but from the perspective of a national minority entitled to enjoy the rights enshrined in the Framework Convention for the Protection of National Minorities”.[15]