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Wha t W orks f or roma inclusion in the eu : policies and model approa ches Wha t W orks f or roma inclusion in the eu : policies and model approa ches

policies aimed at Roma social inclusion. International dimension send the message to society that dealing (2010) ‘Summary of the Peer Review
on “Field social work and labour
human right instruments, 38 as well as EU instruments, 39 with Roma issues signifies dealing exclusively with counselling within the schemes of
are essential constitutive elements of this dimension. poverty and marginalisation, and implicitly tells the strategies combating unemployment
Many rights, benefits and resources are universal and Roma that their integration in society is a matter of of Roma”’.
Czech Republic, 25-26 November
therefore all citizens are entitled to them. However, forgetting who they are if they want to achieve social 2010. Mutual Learning Programme
the exercise of a right, the use of a resource or the advancement. 2010. Autumn Peer Reviews.
provision of a service need to be individualised and
36 Council of the EU (2009) op.cit.
especially adapted to the needs of each citizen or Foreseeing sensitiveness to Roma culture implies:
group; this is even truer in the case of those persons the availability of culturally and linguistically 37 See for example FRA (2009b) op.cit.
that find themselves in an underprivileged situation. appropriate social, education and health services;
the promotion of their history and culture within the 38 These include the Universal Declaration
Socio-economic inclusion: Poverty and exclusion Roma communities; the projection of a positive of Human Rights (UDHR) (1948) and the
European
do not necessarily coincide. The first is understood images such as positive role models and the public Convention on Human Rights
here as an economic concept, related to the absence visibility of the Roma, especially in the media and (ERHC) (1950) among others.
of material resources (precariousness), and the in official commemorative events aimed at the See chapter 4 for an elaboration.
second is a multidimensional phenomenon that goes majority population; encouraging Roma cultural 39 EU (2000) Charter of Fundamental
beyond the economic approach. In fact, some so- manifestations in the mainstream cultural agenda. Rights of the European Union.
cially excluded Roma are not poor, but they find The lack of access to basic services by Roma 2000/C 364/01. Available at:
2. participation in society’s political, economic and exclusion, discrimination, extremely low educational Council Directive 2000/43/EC
http://www.europarl.europa.eu/charter/;
communities is aggravated by obstacles related to
themselves in situations of exclusion due to lack of
European Council (2000a)
levels, etc. It is necessary for the whole society to
social dynamics. However, both phenomena are
of 29 June 2000 implementing
the principle of equal treatment
better understand the Roma culture and history, in
interrelated and affect both living conditions and
between persons irrespective
order for the tolerance towards Roma to improve.
how people participate in society. When approaching
the social inclusion of the Roma, three complemen-
Council(2000b) Council Directive
2000/78/EC of 27 November
tary dimensions need to be tackled concurrently: The four priority areas of racial or ethnic origin; European
2000 establishing a general
Adapting principles • Civil/Political dimension: implies inter There is a consensus among the key actors working framework for equal treatment
in employment and occupation.
Available at: http://eur-lex.europa.eu/
alia the protection from discrimination, the
to different circumstances full exercise of political rights and the in the Roma field that the four main areas that need 40 See http://www.romadecade.org/about.
possibility of exercising civic commitment.
to be tackled to achieve Roma inclusion are
employment, housing, access to education and
• Economic dimension: with regard to the healthcare. In fact, the Roma Decade has focused 41 Spanish Presidency of the EU
(2010) op.cit.
possibility of contributing to the production since its inception on these four crucial areas, 40 the
35 Among other documents, see The information that has been accumulated through 2.1. Areas, principles
EURoma (2010) EURoma Report. of goods and services and their capacity to Roadmap of the Platform for Roma Inclusion identified 42 European Commission (2011a)
Roma and the Structural Funds research, debates, and exchange on a growing and action criteria have access to (consume) the same. the key issues related to each of them, 41 and the op.cit.
(Madrid: Fundación Secretariado number of positive experiences, has generated recent Commission Communication refers to specific
Gitano); Council of the EU (2009) valuable knowledge among researchers, policy • Social dimension: with respect to goals for each of them. 42 Several transversal issues
op.cit.; European Commission
(2011a) op.cit.; European makers and practitioners on a corpus of principles The dimensions of Roma integration facilitating access to protection systems and feed into each of these elements, such as gender
Parliament Committee on Civil and criteria that should be followed by Roma promoting networks of social support, equality and discrimination, which imply the need for
Liberties, Justice and Home Affairs
(2011) op.cit.; Fresno, José Manuel Strategies, policies and plans. 35 The European There is a growing common understanding that including community organisations beyond both gender and antidiscrimination approaches in
and Technical Staff – Fundación Platform for Roma Inclusion has adopted Ten improving the situation of the Roma in Europe means clans or family networks that, in short, allow addressing each area. The four key areas acquire full
Secretariado Gitano (2009) Common Basic Principles, endorsed by the Council, developing policies that identify and tackle all people to integrate into their social meaning if they are approached through the civil/
‘Framework Document ACCEDER
Programme’. Working Group on which should be followed in Roma policies. 36 aspects of their deprivation through an integrated environment. political, economic and social dimension.
Employment Study visit (11-13 approach, together with the protection of
March 2009). Available at: http:// While implementing their National Roma Integration fundamental rights, the fight against exclusion and Cultural development: Taking into consideration The inter-linkages between each area imply that an
www.gitanos.org/; Guy, Will and José
Manuel Fresno (2006) ‘Municipal Strategies or integrated set of measures, Member the promotion of Roma culture and respect for Roma the cultural dimension when designing comprehensive integrated approach tackling concurrently all four areas
programme of shanty towns States need to follow the Common Basic Principles, identity. social inclusion strategies is a prerequisite for their is indispensable. Needless to say, these four areas are
eradication in Avilés (Asturias). but also to adapt them to different circumstances success. In fact, many mistakes and failures of Roma- interrelated: housing (conditions and geographical
Synthesis Report’. Peer Review in in order to put them to work. This section begins by Effective access to rights: The existing literature focused interventions are related to this lack of situation) affects the health situation, conditions access
Assessment in Social Inclusion.
Available at: providing an exposition of this corpus of knowledge, demonstrates that many Roma in Europe do not enjoy sensitiveness. Moreover, it is important to avoid the to health services, and influences access to job
http://www.peer-review-social- which is valuable for all strategies, plans and rights as the rest of the citizenry or they simply lack confusion between the Roma as an ethnic minority opportunities; the health situation influences the
inclusion.eu/; Fresno, José programmes addressed to the Roma and in some rights. 37 Effective rights mean more than formal group and those Roma groups experiencing educational attainment while education affects health-
Manuel (2010) ‘Promoting the
social inclusion of children in a consequence needs to be taken into account legal recognition and require adequate legislation, marginalisation and situations of social exclusion. related behaviours and exposure to social determinants
disadvantaged rural environment independently of the country and the group of Roma proper enforcement of the legislation, and removing In fact, Roma inclusion from a holistic perspective of health; the level of education and professional
– the micro-region of Szécsény: targeted by inclusion measures, and continues by all the obstacles that make it ineffective. An orientation concerns all the Roma and their roles in society, their training influence the possibilities of employment and
Synthesis Report’. Hungary 2010.
Peer Review in Social Inclusion and explaining how these principles and action criteria to rights and full citizenship must be an essential part culture, language, identity and the acknowledgement employment in turn allows for improvements in living
Social Protection and Assessment can be modulated and adjusted according to different of any comprehensive Roma policy; the absence of and appreciation of their cultural assets by the standards, including changes in housing conditions,
in Social Inclusion; GHK Consulting
circumstances. this dimension is a weakness for the functioning of majority population. Policies that neglect this access to education and healthcare.
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Wha t W orks f or roma inclusion in the eu : policies and model approa ches Wha t W orks f or roma inclusion in the eu : policies and model approa ches
43 Spanish Presidency of the EU According to this approach, priorities and goals should care and social services at a similar level and • Mobilising existing available human, insti- schools are neither desirable nor recommendable, 47 For instance, the project
(2010) op.cit. European Acceder has demonstrated
Commission be defined in different countries following the goals under the same conditions as to the rest of tutional and economic resources. mainstreaming Roma in the school system will that while aimed at the Roma,
(2011a) op.cit. identified by the Commission Communication (2011) the population. Key working areas are related always imply the adaptation of the public more than 30 percent of
according to time, means and particular circum- to: securing equal access to quality health- • Working with the Roma and working with education services. Adjustments and the degree beneficiaries are non-Roma.
44 European Commission (2011c) stances; but there is a consensus on a number of care, 45 preventive healthcare by targeting the community, including awareness raising of flexibility will differ according to the types of
Communication from the 48 Fundación Secretariado
Commission. Early Childhood key elements: 43 Roma youth; habits and healthy lifestyles. and mutual understanding. situations of exclusion and circumstances: for Gitano (2009) Health and the
Education and Care: Providing all example, in the case of urban or suburban groups, Roma Community, analysis
our children with the best start for • Access to education by ensuring that all • Access to housing and essential ser- • Developing the professional capacities of it may imply establishing dispersion criteria for of the situation in Europe.
the world of tomorrow. COM(2011) Bulgaria, Czech Republic, Greece,
66 final. Brussels 17 February. children complete at least primary school. To vices by closing the gap between the share the actors including multicultural working Roma students, or compensatory services; Roma Portugal, Romania, Slovakia,
make this possible Member States should of Roma with access to the housing and to teams, adequate tools and materials. living in isolation from urban areas may require Spain (Madrid: Fundación
45 See Commission on Social ensure the provision of quality education not public utilities (such as water electricity and transportation services; Roma migrants may Secretariado Gitano, Ministerio
Determinants of Health (2008) subject to discrimination or segregation. They gas) and that of the rest of the population. • Flexibility and adaptation of the mainstream require language training and Roma travellers de Sanidad y Política Social).
Closing the gap in a generation:
health equity through action on should also widen access to quality early child- Action on housing needs to be part of an services. specific rules of access. Specific strategies for the
the social determinants of health. hood education and care and reduce the integrated approach including, in particular, adaptation of general services will be needed also
Final Report of the Commission number of early school leavers from second- education, health, social affairs, employment • Appropriate balance between rights and in the other areas of intervention: in facilitating
on Social Determinants of Health
(Geneva, WHO). Available at: ary education pursuant to the Europe 2020 and security, and desegregation measures. responsibilities: guaranteeing the rights access to health services (different needs according
http://whqlibdoc.who.int/ strategy. 44 Roma youngsters should be strong- Member States should also address the while training in responsibilities. to groups), access to employment services
World Health Organisation (WHO) ly encouraged to participate also in secondary particular needs of non-sedentary Roma (different degrees of qualification and skills, as
(2010a) Poverty and social
exclusion in the WHO European and tertiary education. Key working areas are (e.g. provide access to suitable halting sites well as labour market situations) and access to
Region: health systems respond related to: access to the education system, for non-sedentary Roma).They should ac- 2.2. Adapting principles public housing (income levels, criteria for access…).
(Copenhagen: WHO Regional early child education and care, prevention of tively intervene with targeted programmes In most cases, a lack of, or inadequate adaptation
Office for Europe). WHO to the diversity of Roma
(2010b) How health systems early school leaving and academic failure involving regional and local authorities. Key will go against the principle of access to
can address health inequities (completing primary education and facilitating working areas are related to infrastructural living circumstances mainstream services.
linked to migration and ethnicity the transition from primary to secondary edu- and environmental improvements in Roma
(Copenhagen:
WHO Regional Office for Europe). cation), desegregation, ethnic de-concentration communities, desegregation and urban plan- The common basic principles (=c.p.) and other criteria
and educational mainstreaming, transition ning, basic care infrastructure, support mea- described above are useful and recommendable for 2. Specific services must lead
between primary and secondary education, sures for community involvement. all the Roma living circumstances. However, the
46 European Commission (2008a) to normalisation (c.p. 2)
Communication from the secondary and tertiary education with a view strategies to be used when following these principles
Commission. Non-discrimination
and equal opportunities: to securing access to employment, intercul- may be different; in fact, their implementation must The principle of explicit but not exclusive targeting
A renewed commitment. tural education and attention to diversity. The ten common basic principles be modulated and duly adjusted to the circumstances implies focusing on Roma people as a target group
Community Instruments and and groups in order to achieve effectiveness and but not to the exclusion of other people who share
Policies for Roma Inclusion.
COM_2008_420 CSWD • Access to employment by cutting the gap The Common Basic Principles intend to provide consistency. We explain below how in practical terms similar socio-economic circumstances; in fact existing
27[1].6.08. Brussels: European between Roma and the rest of the population. guidance and orientation to the different actors some principles and common criteria can be adjusted experience demonstrates that services focusing on
Commission, 2 July. Available Member States should grant Roma people working on Roma issues. Some of these principles, according to the fivefold typology by following specific Roma can be very valuable for other people in similar
at: http://ec.europa.eu/social/
full access in a nondiscriminatory manner to notably nº.2 explicit but not exclusive targeting, nº.4 strategies and priorities. circumstances. 47 This principle understands that
vocational training, to the job market and to aiming for the mainstream and nº.7 use of community when Roma experience particular living conditions
self-employment tools and initiatives. Access instruments have been explicitly mentioned by the and there is a broad gap with public services, specific
to micro-credit should be encouraged. In the European institutions in several documents and policy 1. Effective access to mainstream forms of intervention are thus required and it is
public sector, due attention should be given declarations, 46 in the work of the Roma Task Force, services requires their adaptation appropriate to develop explicit services for Roma.
to employment of qualified Roma civil ser- and also included in the amendment of the Art 7.2 to Roma needs (c.p.1 and 4) This approach must not separate interventions
vants. Public Employment Services can reach of the ERDF (please refer to Annex I). focused on Roma from broader policy initiatives.
out to the Roma by providing personalised All inclusion policies aim to include the Roma in
services and mediation. This can help attract Together with the Ten Common Basic principles, the mainstream of society (c.p. 4) (mainstream Explicit Roma services developed in parallel to
Roma to the labour market and thus increase other action criteria have proven to be useful and educational institutions, mainstream jobs, mainstream services can entail a risk for the former
the employment rate. Key working areas are are recommended when aiming policies and mainstream health services, mainstream housing) to constitute second-class services for Roma people,
related to: transition between education and developing projects for the Roma social integration. and Roma inclusion policies are to be integrated while normal services do not undertake the necessary
employment, professional training, individu- We select here some of them while Annex II presents with mainstream policies (c.p.1). These principles changes to adapt to the needs of all citizens. The
alised support, employability and access to a more detailed description based on case studies need to be understood in conjunction with other specific Roma services must lead to normalisation,
formal labour market, micro-credit for entre- and reports: principles such as explicit but not exclusive remain connected with and function complementarily
preneurship and self-employment, adult targeting (c.p.2). Yet effective access to to general services, while aiming to facilitate Roma
vocational training, quality of employment. • Long-term approach including political con- mainstreamed services means rendering the latter access to general/normal services. However, the
sensus beyond the policy cycle. flexible, sufficient and adapted to Roma. This would extent to which adapted services will lead to
• Reducing the gap in health status between imply different approaches according to the five normalisation and the possibilities for them to be
the Roma and the rest of the population by • Global action schemes (integrated approach) categories described previously and depending complementary to global services will require
improving Roma access to healthcare. and interconnected services, improving co- on different areas of action. different approaches depending on the context, type
Member States should provide access to ordination, building partnerships and creat- of situation and group. For example, in the area of
quality healthcare to the Roma, especially ing synergies between the different actions. Taking as an example the area of education, an health, a health mediation service in an urban Roma
for children and women as well as preventive understanding that special schools or Roma neighbourhood may act as a transition service aimed
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