# EUR-Lex - 52014DC0209 - EN

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# 52014DC0209

**COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS Report on the implementation of the EU Framework for National Roma Integration Strategies /* COM/2014/0209 final */**

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1.           Introduction

The EU Framework for
National Roma Integration strategies up to 2020[1] adopted in April 2011 brought about
a change in the approach to Roma inclusion: for the first time a comprehensive
and evidence-based framework clearly linked to the Europe 2020 strategy was
developed. The EU Framework is for all Member States but needs to be tailored
to each national situation.

EU Heads of State and
Government endorsed the EU Framework[2],
and consequently, for the first time ever, Member States began to coordinate
their efforts to close the gap between Roma and non-Roma in access to
education, employment, healthcare and housing. The Commission put in place an
annual reporting mechanism to the European Parliament and the Council to assess
progress made until 2020. In parallel, it established structures to accompany
Member States in their efforts, in particular the National Roma Contact Points'
network where National Roma Contact Points from all 28 Member States meet
regularly as well as the Commission-internal Roma Task Force chaired by
Directorate General Justice (with Directorate General Employment, Social
Affairs and Inclusion as deputy chair) bringing together senior representatives
from the Commission's Secretariat General as well as from various Directorates
General, including those in charge of regional and urban policy, education and
culture, agriculture and
rural development, health and consumers, enlargement, home affairs, statistics,
budget, communication and the European Union Agency for Fundamental Rights
(FRA) to ensure coherence and consistency.

This report measures for
the first time progress made in the four key areas of education, employment,
healthcare and housing, as well as in the fight against discrimination and the
use of funding. It also assesses the progress made at EU level.

2.           Progress at EU level

2.1.        Mainstreaming of Roma
integration in policy and financing

The size and situation of the Roma population
vary from one Member State to another. In addition, in some Member States, integration
of recently arrived Roma communities poses new challenges that need to be
addressed. Under the EU framework, all Member States[3] have developed their
own Roma integration strategies[4]
tailored to the needs of the Roma population in their country. As many Roma
face poverty and social exclusion, the Commission linked Roma integration to
its wider growth agenda, the Europe 2020 strategy. In the European Semester,
the European Council has issued country-specific recommendations[5] on Roma integration to
Member States with a sizeable Roma population. In addition, the Commission
proposed, and the Council adopted, the first ever legal instrument on Roma, a
Council Recommendation on effective Roma integration measures in the Member
States[6].
This Recommendation identifies specific measures, including positive action to
improve the situation of Roma.

The Commission's Roma Task Force ensures that
all aspects of Roma integration are addressed, notably through the use of
various EU funds. The new multiannual Financial Framework for 2014-2020[7] facilitates the use of
EU funds for Roma integration. The Common Provisions Regulation for all
European Structural and Investment (ESI) Funds[8]
gives the possibility to combine different EU funds to work in the four key
policy areas of the EU Framework. The main relevant funds for Roma integration
are the European Social Fund (ESF), the European Regional Development Fund
(ERDF) and the European Agricultural Fund for Rural Development (EAFRD). The
financial Regulations[9]
set out that at least 23.1% of the Cohesion policy budget would be earmarked to
investment in people - through the European Social Fund, allocating at least
20% of this amount in each Member State to combating poverty and social
exclusion. Furthermore, the new Regulations governing the spending of EU Funds
now incorporate improved monitoring and evaluation mechanisms to obtain more
accurate information on whether Structural Funds are meeting the defined Roma
inclusion goals.

The Commission also issued a European Code of
Conduct on Partnership[10],
which covers all the ESI Funds, and provides detailed criteria for organising
partnerships, for planning, implementing, and following up the programmes. In
addition, the European Social Fund (ESF) Regulation[11] requires that an appropriate
amount of ESF funding be used in less developed and transition regions to
strengthen the capacity of social partners and NGOs in implementing the
programmes.

Lastly, based on a Commission proposal, the
Council adopted a Recommendation on Establishing a Youth Guarantee[12] and Member States were
specifically called upon to regard Roma as a key target group in proportion to
the size and situation of their Roma population.

2.2.        Working closely with all
stakeholders

The Commission has set up a permanent dialogue
with Member States through the network of the 28 National Roma Contact Points.
This network represents an important step forward to support coordination and
implementation of the strategies, and actions on the ground. It also allows
Member States to share their experience and expertise with the Commission, and
fosters transnational cooperation and the exchange of good practices.

In addition, the meetings of the European
Platform for Roma Inclusion have developed into a forum for discussion and exchange
of experience between the Commission, Member States, international
organisations, enlargement countries and civil society. The Commission, in
cooperation with all stakeholders, will further reflect on how to make this
forum even more efficient and contribute best to the shaping of European Roma
integration policies.

To support effective implementation of National
Roma Integration Strategies at local and regional levels, the Commission
participates in a Coalition of international organisations[13]. In this Coalition,
the Commission and the Council of Europe join forces to strengthen the capacity
of local authorities to design, fund and implement local Roma inclusion
strategies starting with improving local governance[14] and community
participation through mediation[15].

3.           Progress in the Member
States – the Commission's Assessment

Three years after the adoption of the EU
Framework, progress, although still slow, is beginning to take shape in most
Member States. This report looks in particular at what measures have been
implemented, whether guidance provided in previous Commission progress reports
has been followed, and whether there is a real impact on the ground. The
accompanying Staff Working Document contains a detailed overview by Member State, and the first assessment of Croatia’s national Roma integration strategy,
submitted after its accession to the EU on 1 July 2013.

The assessment uses in particular information
from the Member States through the National Roma Contact Points, from civil
society and from the European Network of Independent Experts on Social
Inclusion. The FRA survey of 2011 on the situation on the ground is the
starting point from which progress is measured.

3.1.        Education

In the EU Framework, the Commission calls on
Member States to ensure, as a minimum, primary school completion, to widen
access to quality early childhood education and care, ensure that Roma children
are not subject to discrimination or segregation and to reduce the number of
early school leavers. Member States were also called upon to encourage Roma
youngsters to participate in secondary and tertiary education.

The Commission's assessment reveals that Member
States have taken a series of specific measures which delivered results on the
ground. For instance, the reports reveal a clear positive general trend with
regard to access to early childhood education and care.

However, much more needs to be done to bring
about change on a larger scale. The most serious challenges previously
identified by the EU Framework remain relevant and require further sustained
efforts. In order to achieve significant progress, mainstream education systems
should become more inclusive and more tailored to the needs of Roma pupils.

The persistence of segregation of Roma children
in special schools or classes[16]
remains a key challenge, with no simple and clear-cut solutions. Desegregation
requires political commitment, time, careful preparation and implementation
plans, which take local circumstances into account. Measures that indirectly
lead to segregation should be systematically eliminated. The Member States most
concerned (e.g. Czech Republic, Slovakia, Hungary, Romania, Bulgaria and Greece) will need to put in place stronger measures to end and reverse this situation
through a quality, accessible and mainstream inclusive education system.

Importance of access to quality early childhood
education and care (ECEC) is now broadly recognised. A series of legislative
measures (e.g. compulsory pre-school years, in-cash incentives) have also been
implemented in several Member States. Some Member States were able to report
clear positive results. In Finland for example, within ten years, the
participation of Roma children in pre-primary school increased from 2% to 60%.
The same applies to Hungary, where the enrolment rate of Roma children in
pre-school is high (79%) and is likely
to further improve as the new law on public education lowers the starting age
of compulsory kindergarten education to 3 years. On the other hand, in certain
Member States, measures implemented are still insufficient (e.g. Slovakia) or even non-existent (e.g. Greece).

Reducing the number of Roma early school
leavers also requires additional efforts, including extracurricular activities
and close cooperation with families. The situation of children illegally staying
on the territory may be even worse, when the lack of required official
documents, such as a valid residence permit or medical records may prevent
children's enrolment in primary education. The French ombudsman's report[17] has indicated a number
of cases where local authorities have hindered the access of Roma children to
primary education for such reasons. In addition, frequent moves of Roma and
traveller families have led to interruptions in schooling, leading to learning
gaps and high drop-out rates.

The Commission's assessment confirms that
sustained efforts can bring about a significant impact on the situation of Roma
in education. For example, in three years (2010-2013), a Bulgarian educational
project has brought down the number of children who dropped out of school by
almost 80%. There are further good practices, such as all day schooling in
Bulgaria and Slovakia or after-school activities provided specifically for
disadvantaged children in Hungary, the use of mediators in Finland, the
inclusion of Roma culture in curricula in Slovakia and Hungary, providing
language support in Bulgaria and France, providing bilingual education
(Romani-Romanian), preparing Romani language teachers in Romania, and teacher training
in Slovakia, Hungary and Bulgaria. In addition, the extension of education
projects to children whose families move from one Member State to another is a
positive development.

However, existing practices have a rather
limited scope and the main challenge remains in up-scaling these initiatives
and securing long-term financing. More efforts are needed with regard to
teacher education and the introduction of inclusive teaching methodologies,
which take into account individual learning needs. A more systematic use of
Roma pedagogical assistants and mediators and greater involvement with local
communities and parents would improve access of Roma children to mainstream
quality education. Coherence of mainstream policies with the goals set in the
national Roma integration strategies needs to be ensured (e.g. in Hungary).

Beyond compulsory schooling, enrolment
differences between Roma and non-Roma become even larger. This is particularly
detrimental to Roma integration and makes a difference in the labour market as
the lack of professional skills and qualifications prevents Roma adults from
accessing quality employment. There are few systemic measures encouraging the
participation of Roma youngsters in further education, or helping Roma students
to reintegrate into the education system after they have dropped out. Although
in Poland, Finland and Sweden measures were put in place to increase the number
of students who complete secondary and higher education and to enhance
vocational education and training of adult Roma, in most Member States, similar
measures are rather sporadic, mainly consisting of scholarships for talented
students. In the field of youth, non-formal and informal learning are also
important instruments to develop skills and increase employability among young
people.[18]

Examples in the field of education Bulgaria and Hungary - Two-year obligatory pre-school has been introduced in Bulgaria; obligatory pre-school from the age of three will be introduced in Hungary from the 2014-2015 school year. This mainstream measure is promising as regards education of Roma children for primary education, but sufficient capacities and quality staff are crucial for long-term results. Denmark - The project 'Hold On Tight Caravan', administrated by the Ministry of Education, is focused on getting more youngsters from ethnic minorities to begin and complete a Vocational Education and Training programme. The initiative is managed in schools by coordinators who ensure an individual approach to each young person at risk of school failure or drop out. The project is implemented across Denmark. Since it started in 2009, overall school and training drop-out rates have fallen from 20% to fewer than 15%, while the gap with ethnic Danish students has narrowed. The ESF contribution for the 'Hold On Tight Caravan' has been €3,214,000 during 2009-2013. Romania - The positive action programme for Roma in higher education continue. These mainstreamed programmes offer dedicated places for Roma for admission to public universities (in the academic year 2010/11, 555 places have been granted, and in 2012/13, 564 places). Sweden - The Adult Education Association in Gothenburg (Studieförbundet Vuxenskolan i Göteborg) offers tuition for Roma who have not completed primary or secondary school education.

Although progress has been made, notably in
access to early childhood education and care, much more needs to be done to reduce the educational disadvantage of Roma. For Member
States with a significant Roma population priority should be given to combating
segregation fighting early school leaving and making mainstream
education systems more inclusive. Enabling Roma youngsters to obtain marketable
skills and qualifications, at least at secondary level and ensuring life-long
learning for Roma adults should be a clear objective of both mainstream and
targeted measures. Moreover, positive actions aimed at increasing the
educational attainment of Roma should be sustained and scaled up to enable
young Roma to get professional qualifications.

3.2.        Employment

To close the employment gap between Roma and
non-Roma, the EU Framework calls on Member States to ensure Roma
non-discriminatory access to the open labour market, self-employment and
micro-credit, and vocational training. Member States were encouraged to ensure
effective equal access for Roma to mainstream public employment services,
alongside targeted and personalised guidance and mediation for Roma jobseekers,
and to support the employment of qualified Roma civil servants.

Although there are several promising
initiatives across Member States, the expected impact has not yet been reached.
Visible improvements in the educational participation and attainment have
failed to translate into improving employment prospects among Roma[19]. In some cases, the
employment situation of Roma has even further deteriorated, although this is
partly due to the general increase of unemployment in several EU Member States
over the past few years. Within this context, Roma, and to an even larger
extent Roma women[20],
have been particularly affected as they often lack marketable skills and
qualifications. In addition, chances for the Roma on the labour market are
limited by direct and indirect discrimination[21].
Advancing in this challenging situation requires determined action and investment
in human capital by Member States, such as measures ensuring equal access to
social services, and providing personalised guidance and employment schemes. The
potential for job creation for Roma through self-employment, (social)
entrepreneurship, and by using innovative financial instruments have hardly
been exploited. Social innovation should be reinforced by testing new policy
approaches and scaling-up successful initiatives, via building cooperation
between different actors at local and regional levels.

Lessons can be learnt from successful projects,
for example the Thara information platform in Austria, a pilot project
stimulating social and professional activation pathways in Belgium, Community
Development Centres to eliminate barriers to the labour market in Bulgaria or
the integrated action plans of Nordrhein-Westfalen and Berlin, to mention just
a few. These projects however, are mostly initiated by local or regional
authorities and are implemented by NGOs, so their result is bound to be limited
to a given territory and their sustainability remains uncertain.

The assessment reveals that there are still too
few systematic measures put in place at national level, although there are some
good examples: the Roma job counsellors under the Ministry of Employment in Finland, the reallocation of resources for the Spanish Acceder program, or pilot projects in
some municipalities in the Czech Republic introducing social considerations in
public procurement.

Examples in the field of employment Bulgaria - Community Development Centres (CDC) aim to empower and promote the employment of young people and women in marginalised Roma communities. The initiative has been implemented by AMALIPE Centre for Interethnic Dialogue and Tolerance with the support of European Commission since 2011. Community Development Centres were established in 11 municipalities. France (Lyon) - The multi-partner Andatu project has mobilised local, civil, national involvement as well as EU funding and combine training, access to employment and housing. As the program targets mobile EU citizens, French language courses are offered. The program also finances short professional trainings and provides individualised support. The European Social Fund supported the launch of the programme with €350,000. Currently reaching 73 beneficiaries, the intervention is planned to be extended to 400 participants requiring a total budget of €1.2 million. Hungary – The mainstream programme of the Public Employment Service aimed at improving the employability of the disadvantaged targets various subgroups within the registered unemployed, with Roma prioritised as one target group. The programme provides a personalised combination of subsidies and services, such as labour market counselling, mentoring, vocational training and wage subsidies aiming at open labour market reintegration. According to external expert evaluation, the probability of employment increases by 40% after having followed this programme.

Despite the success of some measures, no
tangible widespread impact has yet been achieved on the ground. To close the
employment gap between Roma and non-Roma, Member States will need to target
simultaneously the supply and demand sides of the labour market. On the supply
side, the low skill levels of Roma job seekers must be addressed with
vocational training and counselling, combining targeted measures and effective
access to mainstream employment services. On the demand side, measures are
needed to give incentives to employers, such as recruitment subsidies, job
trial and apprenticeship schemes. Other measures could include targeting Roma
under the youth guarantee schemes, introducing social considerations into
public procurement, fighting discrimination in the workplace and employing Roma
in national and local civil service, in a manner
that does not create a parallel labour system. Using the potential of
social economy and social innovation could promote (re)entry to the labour market.

3.3.        Health

To reduce the health gap between the Roma and
the rest of the population, the EU Framework calls on Member States to provide
access to quality healthcare especially for children and women, and to
preventive care and social services at a similar level and under the same
conditions as the rest of the population.

The poor health of Roma is very closely linked
to social, economic and environmental factors. People in vulnerable situations
often have trouble in navigating in the health system and in articulating their
needs. Barriers include poor accessibility of health services in terms of
distance (e.g. Roma settlements in remote areas or Roma without settlement),
lack of access due to financial difficulties (affordability of medicines), lack
of registration with local authorities, lack of awareness especially about preventive
services, cultural differences and discrimination. No health coverage often
also means no vaccination for children, which in turn can prevent them from
being accepted by schools and kindergartens.

Few Member States have provided information
enabling comparison of the health of Roma with the general population. While
there are a variety of reasons for this, it is nevertheless essential that all
relevant Member States can monitor the health of the Roma population. A good
example is the health and welfare survey that Finland is about to develop.

The available information shows very
significant differences among Member States both in terms of starting points[22] and progress. Ensuring
basic health coverage is still a challenge in some Member States, in particular
in Bulgaria, Romania and also in Greece. With the rise of unemployment in these
countries, the number of families lacking health coverage has increased. The
impact of budgetary cuts, restructuring or cancellation of services in general
health policies in some Member States had further consequences on vulnerable
groups, including Roma. In France, the government has committed to reduce
financial barriers to access to healthcare for the most vulnerable.

Reports from several Member States show
significant efforts in combatting infectious diseases among Roma. While
progress in this area is very much welcome, more attention on prevention and
treatment of non-communicable diseases and on general health campaigns with a
focus on the promotion of healthy lifestyles is also required. Furthermore successful
measures remain to be systematised.

Training health professionals (e.g. in Czech Republic) and involving Roma health mediators is one way to address access to
healthcare services for the Roma population. Several Member States (e.g.
Romania, Spain) have invested successfully in Roma mediators – however in most
cases, there is a need to move from temporary to mainstream funding and
ensuring adequate professional recognition. In 2013, the Commission launched an
initiative to develop training packages for health professionals for migrants
and ethnic minorities, including the Roma.

Examples in the area of health Czech Republic - Communication courses focusing on specific socio-cultural environment of a patient are compulsory in the medicine, dentistry and pharmacy curricula. Other medical staff is also trained through Interpersonal Skills of Professional (Interpersonální dovednosti specialisty) and Education (Edukace) programmes. Hungary - Training for those working in basic healthcare services is being developed: in 2013, 250 health visitors took part in training courses, and some 4830 specialists are expected to be trained by them in the 1st half of 2014. France -In January 2013, the government engaged to respond to growing health inequalities in the wake of the crisis and to reduce financial barriers to access healthcare. Romania - Awareness raising and behaviour changing campaigns targeting the Roma people’s health are operated through the healthcare mediation programme. Spain - Health mediators have proven to contribute to the improvement of health among the Roma population in Spain. The example of Navarra that has been working for many years has been chosen as a good practice by the WHO[23]

Following the analysis of health measures,
it can be concluded that healthcare and basic social security coverage is not
yet extended to all. Investing in adequate healthcare and preventive measures
for all Roma, in particular children, is essential as it will prevent further health
problems in the long-term. Promising initiatives should be extended and
multiplied to make a real impact on the ground.

3.4.        Housing

To close the gap between Roma and non-Roma, the
EU Framework calls on Member States to promote non-discriminatory access to
housing, including social housing and public utilities (such as water,
electricity and gas)[24].
Furthermore, the EU Framework underlined the need to address housing as part of
an integrated approach to social inclusion and desegregation.

Housing interventions have often been the
weakest links in the national strategies. The absence of progress is mainly due
to: grey zones concerning the legalisation of existing housing and halting
sites, as illustrated by judgments of the European Court of Human Rights[25]; failure to establish
a real dialogue with both mainstream and Roma local communities (e.g. in
Bulgaria); scarcity of national public funds and low uptake of available EU
funds despite the Commission's guidance[26];
the need to further develop the social housing sector in several Member States.
One of the main barriers encountered in the use of ERDF financing has been the
design of integrated housing projects.

In spite of this challenging context, there are
also promising practices. With the help of the European Regional Development
Fund (ERDF) quality temporary lodgings have been built with the involvement of
the Roma community in France. In Germany, housing projects also include
measures that promote the integration of Roma families in neighbourhoods. In Belgium, mediators work to gain trust of both Roma and non-Roma for acceptable housing
interventions. In Hungary, cities are required to prepare a desegregation plan
as part of city development strategies.

Examples in the field of housing Belgium - In January 2013, 38 mediators/bridge figures (i.e. intercultural mediators), neighbourhood stewards, project leaders, and consultants worked in the Region of Brussels Capital and the Flanders Region (employed by the Public Centres for Social Welfare, Department of Education, Employment Agency, Police, Integration Services or local NGOs) to gain the support of both Roma and non Roma for housing interventions. Germany – In Kiel, the ‘Maro Temm e.G.’ housing project helps Sinti and Roma of all generations to live together and preserve their culture and language (Romani) without being segregated. Further activities such as homework support, leisure activities and small cultural celebrations are offered. In Berlin, the project ‘Task Force Okerstraße’ aims to ensure that Roma are accepted as neighbours and being integrated into the community. Roma families are given advice, helped in their dealings with the authorities and assisted in disputes with their landlords. Furthermore, care is offered to children, and young people are encouraged to take part in leisure activities. Hungary - Cities are required to prepare a so-called Local Equal Opportunity (Desegregation) Plan as part of Integrated Urban Development Strategies. A Desegregation Plan identifies systemic interventions (relevant to the entire city) to stop or reduce segregation. Local Equal Opportunity Plans became a statutory requirement for local governments under the Equal Opportunity Act. ERDF funding supports integrated housing projects for Roma and other marginalised communities.

As in other areas, small-scale projects
offer useful policy lessons but need to be extended to bring about the expected
results. To achieve tangible and sustainable progress in the housing sector,
Member States should address more efficiently the bottlenecks identified above.
In some Member States, legislation is necessary to clarify the legal status of
existing dwellings. Furthermore, regular urban planning interventions to
eliminate and prevent ghettoisation in cities should be backed by national
governments, while the disproportionate risk of social exclusion in rural areas
demands stronger efforts. For the success of all projects, involvement of both
Roma and non-Roma is essential. Given the scarcity of public resources,
especially as housing belongs to the competence of municipalities in most
Member States, better use should be made of funds available from the ERDF.

3.5.        Fighting discrimination
convincingly

The principle of non-discrimination is one of
the core principles of our European Union. Thirteen years after the EU’s
landmark anti-discrimination directives were adopted in 2000, discrimination
against Roma is still widespread[27].
This has no place in the European Union. The situation of Roma women[28] is often worse than
that of Roma men, as they tend to face multiple discrimination. The situation
of Roma children often raises additional concerns[29].

Roma-specific problems are generally not due to
gaps in legislation, but rather to its implementation. In order to strengthen
the fight against discrimination legislation needs to be combined with policy
and financial measures. The Council Recommendation (articles 2.1 to 2.5)
proposes further specific measures to Member States, including positive action
to fight discrimination. This Recommendation should mark the beginning of
stronger political efforts from all Member States to end discrimination against
Roma and ensure equality in practice. The Commission's upcoming progress
reports on the implementation of the national Roma integration strategies will
look carefully at the areas highlighted in the Recommendation.

The Commission's recent report on the
application of the Equality directives confirms that Member States should make
better use of the possibility to adopt measures to prevent or compensate for
disadvantages (positive action). Such measures can usefully fight
discrimination against Roma.

Addressing trafficking in human beings can also
help to tackle discrimination and social exclusion of Roma. Women and children
are at highest risk of becoming victims. An equal focus is needed on preventing
trafficking, protection, assistance and support to victims, and involving
everyone who can help tackle the problem: health inspectors, police, education
experts and legal professionals. The EU’s Strategy towards the Eradication of
Trafficking in Human Beings 2012-2016, has helped Member States live up to
their obligations under the anti-trafficking Directive 2011/36/EU.

Most Member States have taken initiatives to
raise awareness about Roma culture and history; in particular, in recent years,
a growing number have organised activities to commemorate the Roma Holocaust.
Finally, in all Member States, more effective measures should be taken to
combat anti-Roma rhetoric and hate speech.

In some Member States, bodies for the promotion
of equal treatment have played a particularly active role to raise awareness,
report or put forward cases of Roma victims of discrimination (e.g. Bulgaria, Czech Republic, Finland, France, Greece, Ireland, Latvia, Lithuania, Romania, Spain and Sweden). As proposed in the Council Recommendation on effective Roma integration
measures in the Member States, the work and institutional capacity of bodies
for the promotion of equal treatment should be reinforced, and a regular dialogue
between the National Roma Contact Points and these Bodies should be continued,
as already initiated by the Commission.

Furthermore, in some Member States, effective
tools still need to be developed to empower the Roma.

Example in the field of anti-discrimination Slovakia - Amendment of the Antidiscrimination Act has introduced temporary equalising measures (positive action) that may be adopted on the grounds of ethnicity in all areas protected by the Act, i.e. employment, education, healthcare, social security and access to goods and services.

There are weaknesses in almost all Member
States when it comes to fighting discrimination effectively. This should not be
considered as a stand-alone policy, but should be mainstreamed into all
policies. Additional attention should be paid to public communication that can
promote the benefits of diversity and its acceptance in society. In addition,
Member States will need to show clear political leadership and ensure that no
racist manifestations are tolerated on their territories.

3.6.        Securing financial support
for sustainable policies

Roma integration is a long-term challenge.
Policies and measures aiming at Roma integration need to be sustainable in the
long term. The EU Framework invites Member States to allocate sufficient
funding from national budgets, and to make the best use of EU and international
funding.

In recent years, the volume of funds Member
States target at Roma integration has increased significantly. While progress
is evident in terms of commitment and planning, problems remain in
implementation. Countries with large Roma populations still face major
challenges in using EU funds. The gravity of the problems in the single policy
areas and their interdependence requires an integrated approach, combining
investments in employment, education, healthcare and housing, through various
funds.

In the 2007-2013 period, the potential use of
EU funds has not yet been fully exploited to support Roma integration. The
reasons are various: difficulties in finding national co-financing and in
combining funds, overly complex administrative structures, lack of
administrative capacity and expertise, insufficient use of technical assistance
for the use of EU funds, and poor cooperation between authorities and Roma. Although
the adoption of National Roma Integration Strategies is a major step in
providing a framework for Roma inclusion, experience shows that alignment
between general and Roma-specific policies and funding should be further
improved, building on better monitoring of the results and the impact of
EU-funded interventions. Where relevant, such an integrated approach can be
further enhanced by introducing a territorial approach, focusing on the most
disadvantaged micro-regions.

For the 2014-2020 programming period, an effort
has been made to address these deficiencies, by ensuring that an appropriate
share of the cohesion policy budget is allocated to investment in human
capital, employment and social inclusion. For the 2014-2020 period, €343
billion has been allocated to Member States from Structural and Cohesion Funds.

At least €80 billion of this will be allocated
to investment in human capital, employment and social inclusion through the
European Social Fund (ESF). It was decided that in each country, at least 20%
(compared to the current share of around 17%) of the ESF must be earmarked to
fight social exclusion and poverty i.e. about €16 billion. A specific
investment priority for the integration of marginalised communities such as the
Roma has also been established. Disadvantaged people, including Roma, will also
benefit from measures funded under other ESF investment priorities aiming at
good quality early-childhood education, reducing and preventing early
school-leaving, promoting the access to employment or enhancing youth
employment through youth guarantee. To ensure that the ESF will outreach the
targeted beneficiaries, it is necessary that appropriate regulatory and
institutional frameworks are already in place. Member States can improve the
quality of how they use EU funds by exchanging best practices, through a
permanent dialogue with stakeholders, evaluations and observations from
academic studies.

Regarding the European Regional Development
Fund (ERDF) the investment priority under the thematic objective of promoting
social inclusion, combating poverty and any discrimination, allows support for
physical, economic and social regeneration of deprived communities in urban and
rural areas. This may be used to continue the type of integrated housing schemes
for the benefit of marginalised communities, including Roma, which have been
started with ERDF funding in the 2007-2013 period. Other investment priorities such
as in the area of health, social and education infrastructure may support
investments in hardware to implement the corresponding Roma integration goals,
including for the involvement of Roma in mainstream actions. ERDF support to
cities which address demographic and social challenges as part of integrated
sustainable urban development strategies could also be relevant.

As part of the ex-ante conditionality mechanism
for Cohesion Policy 2014-2020, a national Roma inclusion framework has to be in
place where funds are programmed for Roma integration. This establishes a
direct link between the EU policy framework and funding and aims to maximise
the effectiveness of the funding.

In the negotiations with the Member States on
the Partnership Agreements, the Commission makes sure that challenges for Roma
inclusion identified within the European Semester are adequately reflected in
the funding priorities of the future programmes. Furthermore, to improve
administrative capacity and expertise, Member States may use global grants to
entrust the management and implementation of some parts of their programmes to
intermediary bodies with proven experience and knowledge on the ground[30].

In several Member States, a large part of the
marginalised Roma communities live in rural areas. This is why the Commission
has informed the Member States on the existing possibilities to support the
integration of disadvantaged groups, including Roma, under the rural
development policy by the European Agricultural Fund for Rural Development
(EAFRD). Within the framework of the informal dialogue on the Partnership
Agreement and programmes for the 2014-2020 programming period, the Commission
services have asked the most concerned Member States to bring their National
Roma Contact Points into the discussions[31]

Moreover, the funding possibilities of the
Erasmus + programme should also be fully exploited[32].

The Seventh Framework Programme for Research
and Development[33]
provides also further opportunities to strengthen coherent and cost-effective
policies in this field.

Bulgaria- - The municipality of Kavarna is an example of investment in integration Local Development Strategies.
The municipality of Kavarna has invested in infrastructure development,
improved access for Roma children to quality early-childhood education and
care, health education and cooperation with other cities and private employers
to promote Roma employment. Diversification of resources, systematic measures
and the strong political commitment of the municipal
leadership has contributed to obtaining results in all policy fields
(ranging from improved quality of public services, improved school attainment,
decreased mortality rate and increased employment of Roma in both private and
public sector). The European Structural and Investment Funds also helped ensure
the sustainability of results by providing EUR 3.1 million for investments in
physical infrastructure and human capital.

Spain – Within the ESF Operational Programme
on Fight Against Discrimination, the non-profit organisation Fundación
Secretariado Gitano has been playing a key role in the social and labour
integration of Roma people as an intermediate body of the programme.
Implementation through a non-governmental organisation as an intermediate body
has proven to be crucial for the efficient and effective management of EU
funding, the strong, operational and long-term partnerships established with
private companies, the flexibility and adaptation of the programme to new
social needs and the implementation of social innovation projects. As regards
the whole OP, the number of agreements with entities and organisations has
grown to 1400 active agreements, including businesses with a demand for
employees (71%), the public administrations (20%) and entities of the Third
Sector (9%).

Lasting success is only achieved when
investments in education are accompanied by investments in employment and
housing, targeting explicitly but not exclusively Roma communities. Embracing a
multi-sector, multi-stakeholder and multi-fund approach (which is made easier
by the new generation of EU Funds) is key to Roma inclusion. At the same time,
to address local needs and build capacities of small NGOs, non-competitive
funding opportunities for small local projects should be ensured. Global grants
should be promoted, especially in those Member States with more limited
administrative capacities. In its contacts with the Member States, the
Commission encourages local authorities and Roma representatives to work
together from the outset on local inclusion strategies.

4.           Enlargement countries

There are about 10-12 million Roma in Europe,
out of which some 4 million in Turkey and 1 million in the Western Balkans. Roma
are very often the victims of racism, discrimination and social exclusion and
live in deep poverty, lacking sufficient access to healthcare, education and
training, housing and employment. Enlargement countries therefore need to step
up their efforts to further integrate their Roma population, including refugees
and internally displaced persons, many of whom are Roma. Roma exclusion continues
to have consequences in terms of increased numbers of Roma temporarily
migrating to EU Member States under visa-free regime and this can have a
negative impact on visa liberalisation, which is a great achievement towards
the integration of the Western Balkans[34]
into the EU. The Commission works closely with each of the enlargement
countries to review progress in implementing their commitments towards the
inclusion of Roma.

In the period 2007-2013, over €100 million
pre-accession assistance has been provided under the Instrument on
Pre-Accession Assistance (IPA) to support social inclusion and integration of
Roma in the enlargement countries, including housing. To improve coordination,
efficiency and visibility of financial support to Roma inclusion under the new
IPA II, tailor-made actions will continue to be financed under the relevant
national programmes through a sectorial approach and as part of a global IPA
envelope ("Roma inclusion facility"). This will be accompanied by
rigorous monitoring involving governments and all stakeholders including civil
society.

To support the enlargement countries in their
efforts, the Commission will:

– 
Continue to support and co-organise with each
country national follow up sessions to the 2011 "Roma inclusion
seminars" with rigorous monitoring of implementation of the operational
conclusions jointly reached;

– 
Increase and better target IPA II actions
through a "Roma inclusion facility" to finance measures outlined in
the Country Strategy Papers or agreed in the national seminars and to improve
cooperation with external stakeholders; funding will shift from supporting
policy development and institution building to actions directly making an
impact on the lives of individual Roma persons, with a particular focus on
education, housing and social inclusion;

– 
Award prizes to NGOs for innovative and
successful projects for Roma inclusion.

The Commission will continue to closely follow
developments in enlargement countries in its annual progress reports, and will
support enlargement countries to translate their political commitments for Roma
inclusion into concrete and enduring engagements on the ground.

The Council Recommendation on effective Roma
integration measures in the Member States is relevant for enlargement
countries, as it forms an integral part of the EU acquis. Enlargement countries
also need to take targeted actions to bridge the gap between the Roma and the
rest of the population in access to education, employment, healthcare and
housing, accompanied by cross-cutting policies of particular relevance for these
countries such as provision of personal documents and strengthening the
involvement of local and regional authorities and dialogue with civil
organisations.

The Decade for Roma Inclusion[35] has been a strong
inspiration for the EU Framework. It has been playing a very positive role in
mobilising civil society and ensuring the smooth transition of enlargement
countries into the EU Framework. The work of civil coalitions coordinated and
supported by the Decade of Roma Inclusion Secretariat has also showed a strong
added value.

5.           conclusions - the way
forward

The 2011 EU framework set up a long-term
process. It calls for the sustained political commitment of all stakeholders to
make a difference in the life of Roma people by 2020.

The first step on this long road was taken when
each Member State developed its national Roma integration strategy. The
implementation of these strategies has now started.

Following the Commission’s guidance, Member
States have started to put in place the structural pre-conditions that are
indispensable to implement their strategies successfully[36]. For the first time,
all EU Member States have set their Roma inclusion strategies in motion and
plenty of projects carried out in all EU Member States demonstrate that Roma
inclusion is possible.

As a second step, tangible change in the
situation of Roma will only be achieved if Member States:

· 
Demonstrate political will and determination to
remain on the path leading to the expected results for Roma at the local level
by 2020 and persistently honour the commitments they have undertaken at the
highest political levels;

· 
Combine legislation with policy and financial
measures; Improve and strengthen structures to ensure effective implementation
of the national Roma integration strategies, in particular in terms of
governance, cooperation with stakeholders and monitoring. These structures need
to become firmly embedded in national administrations for the years to come;

· 
Together with the Commission, ensure monitoring
and evaluation of the  effective use of available European Structural and
Investment Funds in line with the relevant shared management regulatory
framework;

· 
Participate actively in the National Roma
Contact Points' network and provide their National Roma Contact Points with an
adequate mandate and resources;

· 
Monitor progress and inform the Commission,
including in view of the Commission's annual reports.

The EU Framework and the Council Recommendation
on effective Roma integration measures in the Member States have opened up the
path towards Roma inclusion. The EU will continue to provide political
leadership and will give practical support to Member State efforts, including
through EU funds. This is, however, just the beginning and the Commission will
play its role in making sure that the path is consequently followed further. It
will notably:

· 
Provide annual policy guidance in the Europe
2020 strategy, issuing Roma-specific country-specific-recommendations where
appropriate, and through progress reports in the areas highlighted in the Recommendation,
which will be assessed concerning a necessity of revision
or up-date by 1 January 2019;

· 
Provide methodological support and foster
exchange of experience and best practice through the network of National Roma
Contact Points;

· 
Continue a regular dialogue with civil society,
support grassroots NGOs through the European Parliament's Pilot project, and
involve civil society in the monitoring of progress;

· 
Promote the use of available EU funds[37] and strengthen the
capacity of authorities at all levels to efficiently use EU funds;

· 
Provide specific support to the local level by:
making easily accessible (online) information on available EU funds for social
inclusion; undertaking an analysis of the needs of local authorities in 8
Member States in terms of awareness-raising and transnational cooperation; and
strengthening their administrative capacity;

· 
In cooperation with Member States and, where
appropriate, other organisations, including the European Investment Bank and
the European Bank for Reconstruction and Development, develop initiatives to
better target funding for integrated and mainstream measures for Roma inclusion
early during the 2014-2020 programming period. On the basis of an assessment of
the experience during this period, explore ways of further improving
effectiveness and integration of EU financial support for Roma inclusion post
2020, including a specific facility.

Finally, Roma integration will also depend on
sustained efforts from Roma civil society to engage with the mainstream population,
as well as on joint actions from all stakeholders, including local and regional
authorities, international organisations, academia, churches and the private
sector.

The EU Framework's first years of
implementation show that action in favour of Roma integration is in motion in
all Member States. It should be the cornerstone for building further joint
efforts and achieving significant progress by 2020.

[1]               COM(2011) 173 final O.J. L 76/68,
22.3.2011

[2]              European Council Conclusions EUCO 23/11 of 23
and 24 June 2011, following the Employment, Social Policy, Health and Consumer
Affairs (EPSCO) Council Conclusions on an EU Framework for National Roma
Integration Strategies up to 2020, 106665/11 of 19 May 2011.

[3]              Malta did not adopt a National Roma Integration Strategy
as it declared there is no significant Roma population on its territory, though
will address Roma integration should this case arise.

[4]              In this communication the term ‘strategies’ covers
integrated sets of policy measures and strategies.

[5]               In 2013
the European Council issued country specific
recommendations relevant for Roma inclusion for Bulgaria, the Czech Republic, Hungary, Slovakia and Romania. These recommendations address the
implementation of National Roma Integration Strategies in the framework of the
horizontal policies as well as specific policy developments in the field of
education and employment for Roma.

[6]               Council recommendation of 9 December 2013 on
effective Roma integration measures in the Member States, OJ C 378, 14.12.2013,
01.

[7]              Council regulation laying down the multiannual
financial framework 2014-2020 . Council regulation No 1311/2013 of 2
December 2013. O.J. L 347/884 20.12.2013

[8]              Regulation (EU) No 1303/2013 of the European
Parliament and of the Council of 17 December 2013laying down common
provisions on the European Regional Development Fund, the European Social Fund,
the Cohesion Fund, the European Agricultural Fund for Rural Development and the
European Maritime and Fisheries Fund and laying down general provisions on the European
Regional Development Fund, the European Social Fund, the Cohesion Fund and the
European Maritime and Fisheries Fund and repealing Council Regulation (EC)
No 1083/2006. O.J. L 347, 20.12.2013

[9]              Including Regulation (EU) No 1304/2013 of the European
Parliament and of the Council of 17 December 2013 on the European Social Fund
and repealing Council Regulation (EC) No 1081/2006. O.J. L 347, 20.12.2013

[10]             Commission Delegated Regulation (EU) of 7 January
2014on the European code of conduct on partnership in the framework of the
European Structural and Investment Funds; C(2013) 9651.

[11]             Regulation (EU) No 1304/2013 of the European Parliament
and of the Council of 17 December 2013 on the European Social Fund and
repealing Council Regulation (EC) No 1081/2006. O.J. L 347, 20.12.2013

[12]             Council Recommendation of 26 April 2013 on Establishing
a Youth Guarantee O.J. C 120, 26.4.2013,1

[13]             Such as the Council of Europe, the Council of Europe
Development Bank, the World Bank, the United Nations, UNICEF, the  EU Agency
for Fundamental Rights (FRA) and the Open Society Foundations.

[14]             The ROMACT project, launched in October 2013 in about
40 municipalities in 5 Member States, aims at building up political will and
sustained policy engagement at the local level, at enhancing democratic
participation and empowerment of local Roma communities, with a view to assist
the design and implementation of projects with the support of EU and national
funds.

[15]             The ROMED programme, funded through Lifelong Learning
Programme, launched in 2011 has trained close to 1,300 mediators to date in the
field of school, culture and health. For 2013-2014, mediation is focussing on
establishing contacts with local authorities (municipalities, schools, etc.).

[16]             Segregation in mainstream schools attended by Roma: SK:
58%, HU: 45%, EL: 35%, CZ: 33%, BG: 29%, RO: 26%, FR: 24%, ES: 10%, IT: 8%, PT:
7%, PL:3%. - segregation in special schools: Roma children attending special
schools mainly with Roma: CZ: 23%, SK: 20%, FR: 18%, BG: 18%, etc. Source: FRA, Education: The situation
of Roma in 11 EU Member States. Roma
Survey - Data in Focus (forthcoming in 2014).

[17]             Le
Défenseur des Droits, Bilan d'application de la circulaire
interministérielle du 26 août 2012 relative à l'anticipation et à
l'accompagnement des opérations d'évacuation des campements illicites août 2012
– mai 2013 (juin 2013).

[18]             The Council Recommendation of 20 December 2012 on the
recognition of the value of non-formal and informal learning within the
European youth field (O.J. C 398/1, 22.12.2012) encourages the use of
instruments for recognition of skills and qualifications obtained through such
learning experiences.

[19]             FRA, Poverty and Employment: The situation of Roma
in 11 EU Member States, Roma Survey – Data in Focus (forthcoming in
2014).

[20]             Across the Member States surveyed,
21% of Roma women were in paid work compared to 35 % of Roma men. FRA, Analysis of FRA Roma Survey by Gender (September 2013).

[21]             Share of Roma experiencing discrimination in the past 5
years when looking for work: CZ 74%, EL 68%, IT 66%, FR 65%, PL 64%, PT 56%, HU
51%, SK 49%, BG 41%, RO 39%, ES 38%. FRA, Poverty and Employment: The situation of Roma in 11 EU Member
States. Roma Survey - Data in Focus (forthcoming in 2014).

[22] For example, 59 % of Roma women in Bulgaria, 47 % in Romania and 38 % in Greece said that they had no medical insurance compared with 22 % of non-Roma
women in Bulgaria and in Romania, and 7 % of non-Roma women in Greece. FRA Analysis of FRA Roma Survey by Gender (September 2013).

[23]             In its publication on “Poverty and social exclusion in
the WHO European Union: Health systems respond.”
http://www.navarra.es/NR/rdonlyres/D4DFA3BA-F54F-40DE-8C5F-9F24A003868E/233965/2_Spain_06Feb09casopublicado2010.pdf

[24]             42 % of the Roma surveyed said that they have either no
piped water or no sewage or no electricity in their home. FRA,
The situation of Roma in 15 Member States and
Croatia (2013).

[25]             The European Court of Human Rights, Yordanova and
others v. Bulgaria n°25446/06 judgment of 24 April 2012,) concluded that
although the concerned Roma lived in an illegal settlement, their eviction was
a breach of article 8 of the European Convention of Human Rights (on private
life and private property): their housing, although illegally built there, had
to be considered as their property and it was disproportionate to evict them. “In
the context of Article 8, in cases such as the present one, the applicants’
specificity as a social group and their needs must be one of the relevant
factors in the proportionality assessment that the national authorities are
under a duty to undertake.” This
position taken by the Court in Yordanova was confirmed and further developed in
a more recent judgment in case Winterstein and others vs. France (European
Court of Human Rights, n° 27013/07 of 17 October 2013. Similar violation of the
European Convention of Human Rights (article 8) was observed by the SK Public
Defender of Rights (Ombudswoman) in her examination of the forced eviction and
liquidation of a Roma settlement carried out in 2012 in Kosice, Slovakia (report of 23 July 2013).

[26]             Guidance note on the implementation of integrated
housing interventions in favour of marginalised communities under the ERDF, of
28 January 2011. http://ec.europa.eu/regional_policy/information/search/detail.cfm?LAN=EN&id=354&lang=en

[27]             Report from the Commission to the
European Parliament and the Council Joint Report on the application of Council
Directive 2000/43/EC of 29 June 2000 implementing the principle of equal
treatment between persons irrespective of racial or ethnic origin (‘Racial
Equality Directive’) and of Council Directive 2000/78/EC of 27 November 2000
establishing a general framework for equal treatment in employment and
occupation (‘Employment Equality Directive’).

[28]             The European Parliament also drew attention to the
situation of Roma women in its Resolution on the gender aspects of the
European Framework of National Roma Inclusion Strategies adopted on 10
December 2013.

[29]             The Commission Recommendation Investing in children:
breaking the cycle of disadvantage. C(2013)778 of 20 February 2013 provides
policy guidance to
help the EU and Member States focus on successful social investment towards children.

[30]             Regulation (EU) no 1303/2013 of
17 December 2013 op. cit.

[31]             Member States were asked to invite the National Roma
Contact Points to participate in the working bodies discussing the future Rural
Development Programmes, as well as in the future Monitoring Committees of these
programmes.

[32]             The Erasmus + programme benefits from a 40% increase in
its budget (i.e. €14.7 billion) in the 2014-2020 period. In particular, transnational
cooperation projects in the framework of strategic partnerships (Key Action
II) and prospective initiatives (Key Action III) can help develop
new, innovative approaches to address the educational challenges faced by Roma
communities.

[33]             http://romani.humanities.manchester.ac.uk/migrom/

[34]             As it has been recommended by the Commission in its
Fourth Report on the Post-Visa Liberalisation Monitoring for the Western Balkan
Countries (Albania, Bosnia-Herzegovina, The Former Yugoslav Republic of
Macedonia, Montenegro and Serbia) COM(2013) 836 final, in accordance with the
Commission Statement of 8 November 2010.

[35]             In addition to seven EU Member States the following enlargement
countries are members of the Decade for Roma Inclusion: Albania, Bosnia-Herzegovina, The Former Yugoslav Republic of Macedonia, Montenegro and Serbia.

[36]             Communication from the Commission to the European
Parliament, the Council, the European Economic and Social Committee and the
Committee of the Regions Steps forward in implementing National Roma
Integration Strategies COM(2013)454 of 26 June 2013.

[37]             Including through the EURoma
network, made up of representatives of twelve Member States with the aim to promote the use of Structural Funds to enhance
the effectiveness of policies targeting the Roma and to promote their social
inclusion.