Opinion of the Economic and Social Committee on:

- the 'Communication from the Commission on racism, xenophobia and anti-semitism` and

- the 'Proposal for a Council Decision designating 1997 as European Year against Racism` ()

(96/C 204/09)

On 22 February 1996, the Council decided to consult the Economic and Social Committee, under Article 198 of the Treaty establishing the European Community, on the above-mentioned communication and proposal.

The Section for Social, Family, Educational and Cultural Affairs, which was responsible for preparing the Committee's work on the subject, adopted its Opinion on 12 April 1996. The Rapporteur was Mr Koryfidis, and the Co-Rapporteur Dame Jocelyn Barrow.

At its 335th Plenary Session (meeting of 24 April 1996), the Economic and Social Committee adopted the following Opinion by 112 votes to 1 with 5 abstentions.

1. Introduction

1.1. In December 1995 the Commission published a Communication (COM(95) 653 final) on racism, xenophobia and anti-semitism. The communication was accompanied by a proposal for a Council Decision designating 1997 as European Year against Racism, with the following objectives:

a) raise awareness of, and disseminate information on, racism, xenophobia and anti-semitism in the Community;

b) highlight the threat posed by discrimination on the grounds of race, colour, religion and national or ethnic origin to the economic and social cohesion of the Community;

c) bring to public notice the benefits of integration policies, in particular in the fields of education, training, accommodation and employment;

d) encourage reflection and discussion on the action required in order to combat racism, xenophobia and anti-semitism in the Community;

e) undertake a wide dissemination of information relating to measures and actions taken at national and European level in the fight against racism, xenophobia and anti-semitism;

f) promote the principle of solidarity between all members of society;

g) involve those who suffer from racism, xenophobia and anti-semitism in the process of European integration.

1.2. The ESC believes that, if the objectives laid down by the Treaty are to be achieved, these phenomena must be tackled, and therefore supports the Commission's communication and the proposal to declare 1997 European Year against Racism. The Committee's support is subject to the reservations expressed in point 5 of this Opinion.

2. General comments

2.1. Definition of concepts

2.1.1. The Committee urges the Commission to use clear definitions in its proposal of what is meant by 'racism`, 'xenophobia` and 'anti-semitism`, based on the standard texts and terminology of official international institutions and bodies such as the UN, the ILO and the Council of Europe.

2.1.2. The Committee, for its part, considers that:

- the 'European idea` refers to the systematic, consensus-based, long-term and laborious post-war attempt by Europeans to build a multicultural, multilingual - and, consequently, anti-racist - Europe based on freedom, democracy, welfare and social justice;

- and that ideally 'European citizen` means the responsible, democratic citizen of the European Union who, measuring up to their responsibilities, takes a critical view of the institutions and their workings, keeps a close eye on their limits and performance, and lays constant claim to substantial involvement in the decision-making process and access to common rights and benefits.

2.1.3. The Member States of the European Union have different social, political, economic and legal perspectives in terms of their definitions of such terms as minorities, immigrants and migrants.

2.1.3.1. Although the terms used vary, they are often mistakenly used on an interchangeable basis, whilst the terminology does point to important distinctions, both for immediate responses and their implications for the future.

2.1.3.2. The term 'ethnic minority` is used to define a numerically smaller section of the general population which is distinguishable through identifiable racial and/or cultural characteristics. It is important to distinguish this from xenophobic tendencies to stigmatize minorities and associate them with certain traits. It is likely in the European context that such groups will differ in their length of residence. Some will be relative newcomers and others will have settled for generations.

2.1.3.3. The term 'immigrant` is correctly applied to the first generation settler who moves into another society. Throughout and beyond the Community people are on the move so that this term will be used very often. However, it is also wrongly used to describe second and subsequent generations who have settled, entered the labour market and intend to discharge their rights and responsibilities as citizens.

2.1.3.4. The term 'migrant worker` basically denotes a work relationship accompanied by problems of freedom of movement, opportunity to enjoy civic rights and protection, reunion of families and also implies a relationship that may be a temporary one (subject to the vagaries of the labour market).

The significance of all three definitions is that these categories of people can experience racism and xenophobia.

2.2. Establishing the dimensions of the phenomenon

2.2.1. Racism, xenophobia and anti-semitism are considered currently to be on the rise. Certainly, in some cases the behaviour of given individuals is reprehensible and gives ground for concern. The scale and extent of the phenomenon, together with its causes, must without any doubt be subject to serious research and study at academic and applied research level, in order to interpret them.

2.2.2. In any case, it may be pointed out from the outset that the issue of racism goes to the heart of both the European Union's ideals and its attempts to put the four freedoms into practice.

2.2.2.1. The heterogeneity of today's Community presents a very different picture from the demographic situation when the Rome Treaty was drawn up. The speed at which economic, political and social changes are taking place in the world is having a decisive effect on the Community, while there has been no let-up in the movement and settlement within its borders of populations from non-Community countries.

2.2.2.2. The present-day EU citizen or inhabitant does not necessarily stem from a racially, culturally or, in some cases, ethnically 'pure European stock` (if such a thing can be said ever to have existed).

2.2.2.3. The population of the EU is now a human mosaic, unarguably enriching our existence, and is no longer composed of newly-arrived immigrants but of their children and grandchildren - who, as EU citizens, quite rightly expect to be able to exercise the four freedoms. To describe ethnic minorities purely and simply as migrants, foreigners or refugees is a sign of narrow-mindedness.

2.2.2.4. From the EU's own point of view, it is important to bear in mind that this human potential may at the same time contribute to establishing political and economic links between the Community and other parts of the world. Consequently, such people do not represent a 'problem`: on the contrary, they are a source of opportunities.

2.2.2.5. As we approach the twenty-first century, it is now time to recognize the threat to the European idea posed by racism and its advocates and to reveal its true nature, refuting the claim that it is unimportant.

2.3. Towards an explanation: possible causes

2.3.1. Xenophobia and racism are without any doubt largely based on ignorance, and arise from the insecurity felt by people in relation to anything foreign or different.

2.3.2. Under certain circumstances, xenophobic and racist tendencies may evolve from personal, latent feelings of guilt or perceptions into collective, ideologically-driven patterns of behaviour which usually trigger aggression. Once something of the kind occurs, once an individual racist tendency is transformed into a collective perception and expressed through social behaviour, both in private and in public, then a real problem of racism, including institutionalized racism and racist policies has come into being.

2.3.3. Conditions in which racism and xenophobia can flourish include:

- individual, social, national, etc., isolation;

- lack, or concealment, of knowledge, disinformation or non-information;

- poverty, unemployment and social exclusion;

- the encouragement of racial, national, religious or any other form of fanaticism.

2.3.3.1. The foregoing conditions alone, whether singly or taken together, tend to favour the growth of racism and xenophobia.

2.3.3.2. In particular, unemployment constitutes one of the factors contributing most actively to the appearance, growth and manifestation of racist behaviour. This is shown by the increase in the phenomenon during periods such as the present one when there is a serious unemployment problem. This is one of the reasons why it is essential to develop policies to create jobs and combat unemployment.

2.3.4. Conditions inhibiting the development of the problem

2.3.4.1. If the problem of racism is looked at historically, it is easy to identify the periods when it has been less acute. These are marked by the free movement of races (), the sharing of a higher goal among the different races (), and a shared attitude and feeling about what is fair, i.e. a uniform accepted institutional framework and a uniform accepted level of collective and individual operation and action ().

2.4. In a nutshell, one can say that racism deriving from latent individual attitudes - acquired through weaknesses - can under certain conditions be expressed in or transformed into a collective ideological movement, sometimes a majority one.

2.4.1. When something of this kind occurs, political behaviour (both individual and collective) becomes primitive, irrational and inhumane.

2.4.2. Xenophobia is undoubtedly a breeding-ground for racist attitudes, while anti-semitism historically has the, perhaps harsher, characteristics of racist violence.

2.4.3. Prevention of xenophobia and racism is an important duty of every democratic, anthropocentric society.

2.4.4. The European idea as a concept and attitude to life is identified with the concepts of consensus, cooperation, tolerance and respect for diversity, and therefore clearly incompatible with xenophobia, racism and anti-semitism.

2.4.5. The European Union with its institutions, as the prime expression of the European idea and because of its expert inside knowledge of Community reality, is under an obligation to pick up in good time the distress signals on this question and respond immediately by drawing up specific framework proposals to tackle the problem. The EU should take measures to ensue that racist behaviour is tackled early enough to contribute to its decrease.

2.4.6. These measures can only touch upon and skate around the problem. There is a need to break through to its core and combat the root causes.

2.4.7. Through educational measures, both within and outside the education systems, the individual's ignorance, and hence his xenophobia and racist tendencies, can be overcome in the long term, and the appropriate mechanisms for sifting information and detecting non-information and disinformation can be developed.

2.4.8. Social measures such as those designed to combat unemployment and social marginalization may contribute to create conditions which are incompatible with the growth of xenophobia and racism.

2.4.9. Measures to tackle racist propaganda - whether it puts forward the perspective of racism or the aims pursued by racist movements and their leaders - could awaken the dormant anti-racist conscience which can hopefully be found in the overwhelming majority of European citizens today.

2.4.10. Given the increasingly variegated nature of the EU population, a proper balance now needs to be struck between the pride individuals take in their origins (defined historically or according to other factors) and respect for racial, cultural, religious and ethnic diversity.

Regardless of how each of us creates our own image of society, the challenges of today - and even more of tomorrow - demand an immediate, open dialogue in order to resolve this kind of internal EU problem. Racism, whether in the form of open violence or of damage to the opportunities and possibilities open to individuals, is not an issue of secondary importance: it directly contradicts the very essence of democracy.

3. The ESC and the problem of racism and xenophobia

3.1. The ESC is a forum where individuals, social groups or even national tendencies, with differing attitudes and interests, coexist, engage in dialogue, agree or disagree, compete or cooperate. This body's basic anti-racist position, due precisely to its mode of operation, is therefore of long standing and has been repeatedly expressed in a series of Opinions ().

3.2. On the other hand, the ESC and the corresponding bodies in Member States, precisely because of their composition, mode of operation and internal logic, have a key role to play in formulating policy on xenophobia, racism and anti-semitism.

3.3. The joint declaration on prevention of racial discrimination and xenophobia and promotion of equal treatment at the workplace, adopted at the summit meeting of the social partners in Florence on 21 October 1995, could form the basis of the search for and promotion of specific policies on this issue. Integral to this approach should be the inclusion of other groups representing the various categories of economic and social activity.

4. Gist of the Commission communication ()

4.1. The Commission communication, while noting that the problem exists throughout the European Union and that there is a lack of up-to-date relevant studies and data to determine its extent, emphasizes the root causes of xenophobia, racism and anti-semitism and voices the need for a European response to the problem.

4.2. The declared aim of the Commission in its communication is - as previously announced in the Medium-term Social Action Programme 1995-1997 - to draw together its activities in this area and indicate how to develop them in the coming period. It also presents a specific proposal for a Council Decision to designate 1996 as European Year against Racism.

4.3. Having referred to its action so far in developing a European response to the problem of racism, the Commission points to the particular role it can continue to play in this area, complementing Member States' efforts, on the basis of the following guiding principles:

- Cooperation between all those concerned in combating racism.

- Prevention as the key aim of any strategy against racism.

- Establishment of priorities on the basis of cooperation.

- Respect for the principle of subsidiarity.

The Commission cites the embodiment of appropriate action into existing policy instruments in the relevant areas as a major means of developing its activities, with the European Social Fund as the principal instrument.

The second main contribution comes from instruments which already - directly or indirectly - contribute to countering racism and will continue to play an important role in the future.

Such instruments relate to education, training and youth (e.g. Socrates, Leonardo da Vinci and Youth for Europe III).

Lastly, the Commission mentions the development of appropriate and effective anti-racist measures and the need to disseminate them among the bodies concerned, particularly those involved with immigrants and ethnic minorities.

More specifically, it speaks of support for initiatives such as the Cities' Anti-Racism Project, the introduction of mediators, and bodies such as the Migrants' Forum and ELAINE (European Local Authorities Interactive Network for Ethnic Minorities Policies).

4.4. On the question of European-level legislation, the Commission:

- has focused on the need to build up knowledge of the similarities and differences between legislative provisions in the Member States and to develop and deepen cooperative exchanges at Community level;

- proposes the inclusion of a specific clause on discrimination in the Treaty: this would entail automatic application in all Community acts where appropriate;

- proposes that specific powers to combat racial discrimination also be included in the Treaty.

4.4.1. In the context of the above, and given that racism exists within the police itself, the ESC is in favour of developing a European police training strategy for tackling discrimination and training for police in preventive and reactive policing to combat racist crimes. The ESC feels that help should be provided to set up a special police body for this purpose.

4.5. The duration of the action is 24 months, while the responsibility for implementing the decision lies with the European Commission, assisted by a committee of an advisory nature composed of Member State representatives.

5. Specific comments

5.1. The entire text is coloured by the strength of the Commission's concern that the threat posed by discrimination should be perceived and that specific and effective measures to combat racism, xenophobia and anti-semitism be devised. This shows that a range of views on the scale of the problem, its intensity and how to tackle it also exists within the Community institutions. The ESC would state from the outset that it supports and allies itself with those forces which consider that the Treaty should include a non-discrimination clause. The ESC therefore associates itself with all anti-racist positions adopted by Community bodies.

5.2. For the ESC, an in-depth understanding of the problem itself, its causes and its ramifications is an essential point and a prerequisite for any appropriate response. In the light of the above, it finds it incredible that the last Eurobarometer survey on this issue took place a full eight years ago, and calls for such surveys to be carried out at fixed intervals (point 2.3.3 of the communication). For the same reasons, the ESC supports the immediate establishment of the European Monitoring Centre on Racism and Xenophobia (point 2.3.5 of the communication).

5.3. In the ESC's view, a comprehensive strategy to counter racism and xenophobia entails action both within the Community and on an intercontinental level. Action against racism, xenophobia and anti-semitism, although essential to the Community's social and economic prospects, is not enough to fully resolve these problems. To this end, the ESC calls for immediate studies by the Member States, in cooperation with international organizations, to ascertain the situation throughout the world; subsequently, this should lead to suitable policies of worldwide scope (point 2.3.6 of the communication).

5.4. The ESC would make the following points concerning action within the Community:

5.4.1. As stated in its 1992 Opinion on the Citizens' Europe, Union-wide action needs 'a Treaty provision banning discrimination on grounds of sex, colour, race, opinions and beliefs` (). The Committee therefore agrees with the Commission's view on the inclusion of a non-discrimination clause in the Treaty and specific powers to combat racial discrimination (point 2.3.7 of the communication). It considers the 1996 Intergovernmental Conference to be the appropriate forum for decisions to amend the Treaty on the basis of the relevant proposals by the Reflection Group. It notes and supports proposal VII of the 'Comité des Sages` that the Treaty should include 'a ban on any form of discrimination on the basis of race, colour, sex, language, religion, political or other opinion, natural or social origin, membership of a national minority, wealth, birth, disability or any other situation` ().

5.4.2. It considers education to be a key instrument in countering racial prejudice and fostering anti-racist awareness. It therefore urges that education and training - especially of young people - be strengthened and adapted so that it can fulfil this role. To this end, the ESC is convinced that intercultural education should be strengthened and expanded as much as possible; at the same time, smaller-scale shrewd choices are needed to counter prejudice. An example of such a challenge might be 'which teacher to teach where?`.

5.4.3. The ESC also considers the role of the mass media in preventing and countering prejudice to be vital, in that they may be put to negative or positive use in achieving a given aim. In the Committee's opinion, the policies towards the media that should be followed in this particular area are of two types, neither of which would compromise their free operation:

- one would involve harnessing the media - including advertising - to combat racism, xenophobia and anti-semitism (not always focusing on nationality, ethnicity and religion), and

- another cancelling out anything contradicting the purpose of the messages they broadcast.

5.4.3.1. The first policy includes incentives and support to promote media material of an anti-racist character. All the Commission's proposals fit in with this (point 2.3.3 of the communication and Article 3 of the proposal for a Council Decision), together with a related publicity campaign spotlighting particularly apposite and positive anti-racist actions. The policy would also cover the development of a medium- and long-term programme of education and training for those working in the media, together with a pan-European dialogue on a single set of ethical rules concerning the research, selection and presentation of news.

5.4.3.2. The second category of policies includes all those seeking to equip citizens with mental defences against misinformation and lack of information.

The creation, through education and life-long learning, of mechanisms for filtering information and checking 'knowledge` is absolutely essential given that the information society is now an all-powerful reality.

5.4.3.3. The ESC calls for the aim of prohibiting the distribution of racist material via the Internet to be set down as a Community action in the decision designating 1997 as European Year against Racism. To achieve this objective, the Commission is urged to establish a dialogue with the Council of Europe and other international institutions working on a basis of cooperation at all levels.

5.4.4. The ESC agrees in principle with the proposal for a decision to designate 1997 as European Year against Racism, but would make the following points:

5.4.4.1. It considers the proposal's aims to be ambitious in comparison with the resources provided. The ESC calls for the amounts concerned to be increased, the number of actions to be restricted and their scope to be broadened.

The ESC nevertheless supports the proposals contained in the Commission's communication concerning the promotion of supranational programmes against racism.

5.4.4.2. The ESC calls for the following clause 'Whereas restriction of the rights of free movement of third country nationals living in the EU contributes to racist and xenophobic attitudes` to be added after the clause 'Whereas racist and xenophobic attitudes can constitute an obstacle to the effective exercise of the rights of free movement` on p. 23 of the Commission document.

5.4.4.3. The Committee places particular emphasis on the use of education to cultivate and develop an anti-racist awareness, and on the use of the mass media to combat racism and for the exchange of information and best practice.

5.4.4.4. Lastly, the ESC considers that declaring a year against racism would contribute not only to adopting a stance opposing the dangers of racism, but at the same time would cast the positive and welcome changes occurring in our societies in a favourable light. Moreover, it is intended to highlight not only what has been achieved so far, but also new issues which we must tackle as we head for the twenty-first century. The entitlement of each citizen to enjoy the fundamental rights, and the worldwide achievement of a basic quality of life, must constitute the central element of any action undertaken during the European Year against Racism.

5.4.5. Both in connection with the Commission text and independently of it, the ESC would underline the importance of the Joint Declaration by the social partners (Florence, October 1995) on the prevention of racial discrimination and xenophobia and the promotion of equal treatment in the workplace. The Declaration, arising from the common experiences of the social partners and the need to boost the European economy and society, could be used in a number of ways by the Commission. The ESC endorses the Florence Declaration, and calls upon the Commission to cooperate with the trade unions to support and promote the objectives set, and recognizes the important role played at the workplace in dealing with this issue. Integral to this approach should be the inclusion of other groups representing the various categories of economic and social activity. To this end, the ESC calls for the participation of the social partners in the advisory committee following the progress of the European Year. The Economic and Social Committee, as in the past, should also be accorded observer status.

5.5. The ESC is convinced, in any case, that discrimination, racism, xenophobia and anti-semitism will not be defeated once and for all with a single battle. This can only be done through a daily struggle at the social level: at work, at school, in places of leisure, at home. It is principally up to us, to our strengths and the consistency between our words and actions, as to how quickly we can, as a society, reach the point where we respect diversity, recognize the same rights and duties for all and grant equal esteem to all, regardless of race, colour, sex and religious or political beliefs.

5.6. In putting these proposals forward, the ESC has a wider vision than designating a particular year or defining a specific or distinct policy response to these issues. The Committee sees this area as an ongoing responsibility which needs to be integrated into the mainstream of the European ideal. By this we mean, among other things, that the relevant actions of local, regional and national authorities need to be monitored and fostered so that this theme is recognized, and acted upon, because it is inextricably linked to the four freedoms identified in the Treaty of Rome. The changing demographics of the Community in the wider context of a changing global order make this an issue of vital importance for the coming millennium.

Done at Brussels, 24 April 1996.

The President

of the Economic and Social Committee

Carlos FERRER

() OJ No C 89, 26. 3. 1996, p. 7.

() Here movement concerns not only persons but also ideas.

() The easing of racism in the USA during the Vietnam War and immediately after it was linked with the shared experiences of black and white soldiers in that war.

() The shared view of what is fair depends inter alia on a healthy competitive environment and on equal initial conditions for development.

() Relevant ESC Opinions:

(i) OJ No C 186, 26. 7. 1985;

(ii) OJ No C 343, 24. 12. 1988;

(iii) 89/C 23/12;

(iv) 92/C 40/95 - 31. 1. 1991;

(v) OJ No C 393, 31. 12. 1994, p. 69;

(vi) OJ No C 313, 30. 11. 1992 (resolution);

(vii) OJ No C 158, 18. 5. 1996, p. 38;

(viii) OJ No C 397, 31. 12. 1994 - Mr Vasco Cal (White Paper on European Social Policy - a way forward for the Union);

(ix) OJ No C 313, 30. 11. 1992 - Mrs Rangoni Machiavelli (Citizens' Europe).

() COM(95) 653 final - paragraphs 1.1 and 1.2.

() Opinion on The Citizens' Europe (Rapporteur: Mrs Rangoni Machiavelli), OJ No C 313, 30. 11. 1992 - Recommendation (2).

() Report by the Comité des Sages chaired by Maria de Lourdes Pintasilgo - Brussels, October 1995 - February 1996.