COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS National Roma Integration Strategies: a first step in the implementation of the EU Framework
Date: 2012-05-21
Institutions: European Commission
Subjects: Roma, access to education, accession criteria, ethnic group, job access, marginalisation, public health, right to housing, social integration

EUROPEAN COMMISSION 

Brussels, 21.5.2012  
COM(2012) 226 final 

COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

National Roma Integration Strategies: a first step in the implementation of the EU 
Framework 

{SWD(2012) 133 final} 

EN 

   EN 

 
 
 
 
  
 
COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN 
PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMITTEE OF THE REGIONS 

National Roma Integration Strategies: a first step in the implementation of the EU 
Framework 

1. 

INTRODUCTION 

In recent years, the situation of Roma1 has increasingly become the centre of political 
attention  for  Europe.  Roma  –  Europe’s  largest  minority  of  about  10  to  12  million 
people – are very often the victims of racism, discrimination and social exclusion and 
live  in  deep  poverty  lacking  access  to  healthcare  and  decent  housing.  Many  Roma 
women  and  children  are  victims  of  violence,  exploitation  and  trafficking  in  human 
beings2,  including  within  their  own  communities.  Many  Roma  children  are  on  the 
streets  instead  of  going  to  school.  Lagging  education  levels  and  discrimination  in 
labour  markets  have  led  to  high  unemployment  and  inactivity  rates  or  low  quality, 
low skill and low paid jobs for Roma. This causes a loss of potential which renders 
the  endeavour  to  secure  growth  even  more  difficult3.  Better  integration  of  Roma  is 
therefore  both  a  moral  and  an  economic imperative, which moreover will require a 
change of mindsets of the majority of the people as well as of members of the Roma 
communities.  

The Member States have the primary responsibility and the competences to change 
the  situation  of  marginalised  populations,  so  action  to  support  Roma  lies  first  and 
foremost  in  their  hands.  To  support  them  in  addressing  this  situation,  the  EU  has 
made  available  a  wide  range  of  legal,  policy  and  financial  instruments.  Although 
specific  national  circumstances,  needs  and  required  solutions  vary  greatly  across 
Europe, the shared values of freedom of movement and fundamental rights and the 
common  objectives  of  political  stability,  economic  prosperity,  social  cohesion  and 
solidarity  between  Member  States  call  for  a  European  role  in  policies  for  Roma 
integration.  Moreover,  the  persisting  challenges  regarding  the  full  integration  of 
Roma  who  are  EU  citizens  into  their  societies  has  a  direct  impact  on  wider  EU 
relations  with  third  countries,  for  instance  with  regard  to  the  visa  requirements 
applied by some of these to the nationals of certain Member States4. 

1 

2 
3 

4 

The term “Roma” is used here, as well as by a number of international organisations and representatives 
of Roma groups in Europe, to refer to a number of different groups (such as Roma, Sinti, Kale, Gypsies, 
Romanichels,  Boyash,  Ashkali,  Egyptians,  Yenish,  Dom,  Lom)  and  also  includes  Travellers,  without 
denying the specificities and varieties of lifestyles and situations of these groups. 
Europol Organised Crime Threat Assessment 2011, p. 26. 
Economic 
http://siteresources.worldbank.org/EXTROMA/Resources/Economic_Costs_Roma_Exclusion_Note_Fi
nal.pdf  
See,  for  instance,  the  concerns  expressed  by  Canada  following  an  increasing  number  of  asylum 
applications lodged by the nationals of certain Member States. 

the  World 

exclusion, 

Bank, 

Roma 

April 

2010 

costs 

of 

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This is why the European Commission on 5 April 2011 adopted an EU Framework 
for  National  Roma  Integration  Strategies  up  to  20205,  calling  on  Member  States  to 
prepare  or  revise  National  Roma  Integration  Strategies6  in  order  to  address  more 
effectively the challenges of Roma inclusion to tangibly improve the situation by the 
end of the current decade. The endorsement of the Framework by EU Heads of States 
and Governments7 indicated that Roma inclusion is becoming an important priority 
for the all Member States, despite the economic and financial crisis.  

The  aim  of  the  EU  Framework  is  to  help  Member  States  to  make  a  tangible 
difference to Roma people's lives by bringing about a change in the approach to their 
inclusion.  Discrimination  on  the  basis  of  racial  or  ethnic  origin  in  education, 
employment, health and housing as well as other areas is already prohibited by EU 
law,  but  legislation  alone  is  not  enough:  Member  States  need  to  develop  and 
implement  an  integrated  and  sustainable  approach  that  combines  efforts  across 
different areas, including education, employment, health and housing.  

The  EU  Framework  addresses  Roma  inclusion  for  the  first  time  at  EU  level  and 
clearly  links  it  with  the  Europe  2020  strategy8.  The  persistent  economic  and  social 
marginalisation  of  the  Roma  is  directly  relevant  to  the  strategy.  Three  out  of  five 
Europe  2020  headline  targets  are  directly  linked  to  the  EU  Framework  targets  for 
Roma inclusion: the fight against poverty and social exclusion, raising employment 
levels,  and  reducing  school  drop-out  while  increasing  attendance  in  tertiary 
education.  For  Member  States  with  a  larger  Roma  population  making  sufficient 
progress  towards  the  Europe  2020  employment,  social  inclusion  and  education 
targets will require addressing explicitly and swiftly the situation of the Roma.  

EU funds (in particular the Structural Funds) could be a powerful tool to improve the 
socio-economic situation of disadvantaged groups, such as Roma, but too little of the 
€26.5  billion  allocated  to  support  Member  St ates'  efforts  in  the  field  of  social 
inclusion for the 2007-2013 period benefits disadvantaged Roma communities. 

The European Commission has undertaken to assess the National Roma Integration 
Strategies  and  to  report  to  the  European  Parliament  and  the  Council,  which  is  the 
purpose  of  the  present  Communication.  In  its  assessment,  the  Commission  also 
considers  the  wide  range  of  contributions  received  from  civil  society  and  other 
stakeholders  and  the  contributions  made  at  the  extraordinary  meeting  of  the 
European Platform for Roma Inclusion held in Brussels on 22 March 2012. 

5 

6 

7 

8 

Communication  "An  EU  Framework  for  National  Roma  Integration  Strategies  up  to  2020", 
COM(2011)173  of  5  April  2011.  The  Opinion  of  the  European  Economic  and  Social  Committee  on 
"Societal empowerment and integration of Roma citizens in Europe", CESE 998/2011 of 16 June 2011 
and the Opinion of the Committee of the Regions on "An EU Framework for National Roma Integration 
Strategies  up  to  2020",  CdR  247/2011  of  14  December  2011  give  both  strong  support  to  the  EU 
Framework. 
In  this  communication,  the  term  'strategy'  should  be  understood  as  covering  both  integrated  sets  of 
policy measures and strategies. 
European  Council  conclusions,  EUCO  23/11  of  23  and  24  June  2011,  following  the  EPSCO  Council 
Conclusions on an EU Framework for National Roma Integration Strategies up to 2020, 106665/11 of 
19 May 2011. 
http://ec.europa.eu/europe2020/index_en.htm 

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The  adoption  of  National  Roma  Integration  Strategies  will  contribute  to  making  a 
real  difference  in  the  lives  of  the  Roma population.  In  the  next  phase,  efforts  must 
focus on implementation based on action plans with specific measures commensurate 
with Roma inclusion targets, supported by a clear timetable and appropriate funding. 

2. 

ASSESSMENT OF THE NATIONAL STRATEGIES  

By  March  2012,  all  Member  States  had  presented  a  National  Roma  Integration 
Strategy  or  a  corresponding  set  of  policy  measures  within  their  broader  social 
inclusion policies. Some of them have chosen to revise their existing strategies in the 
light  of  the  EU  Framework,  while  others  have  developed  their  first  national 
strategies. The national strategies vary according to the size of the Roma population 
and the challenges Member States need to address9.  

The Commission’s assessment focuses on evaluating the Member States’ approaches 
to the four key areas of education, employment, healthcare and housing, and on how 
structural  requirements  (cooperation  with  civil  society,  with  regional  and  local 
authorities,  monitoring,  antidiscrimination  and  establishment  of  a  national  contact 
point) as  well as funding  are  addressed. In each section, a summary table indicates 
the Member States that propose to put in place specific measures required by the EU 
Framework10.  Member  States  that  are  not  listed  have  not  indicated  such  measures 
and need to address these specific issues, if relevant for their Roma population.  

Based on the assessment, a set of policy recommendations in each section points to 
priorities  that  Member  States  should  further  address,  depending  on  their  national 
circumstances, in order to meet their responsibilities. These policy recommendations 
should be integrated in the overall framework to fight poverty and exclusion.  

2.1. 

The Four Key Areas  

(a)  Education 

The  EU's  goal  is  to  ensure  that  all  Roma  children  complete  at  least  primary 
school and have access to quality education11. 

All Member States recognise the importance of education, and most have set goals 
that  generally  go  beyond  the  minimum  standard  of  primary  school  completion  set 
forth  in  the  EU  Framework,  covering  a  broader  spectrum  of  education  from  pre-
school12 to secondary and even tertiary education.  

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10 

11 

12 

Malta did not adopt a National Roma Integration Strategy as there is no significant Roma population on 
its territory. 
The summary tables in the four policy areas consistently address two sets of issues: goals, i.e. whether 
the strategies endorse the general EU goal in the given field set by the EU Framework and whether they 
set concrete, specific and quantifiable goals; and measures (both mainstream and specific for Roma). 
EU Roma integration goals were set out in the Communication "An EU Framework for National Roma 
Integration Strategies up to 2020", COM(2011)173 of 5 April 2011. 
Preventing Social Exclusion through the Europe 2020 strategy - Early Childhood Development and the 
Inclusion  of  Roma  Families  –  official  report  of  the  European  Platform  for  Roma  Inclusion  under  the 
Belgian  Presidency,  developed  from  UNICEF  and  the  European  Social  Observatory  in  collaboration 

EN 

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In  accordance  with  national  laws,  all  school-aged  children  in  the  EU  must  attend 
school.  However,  at  least  10%  of  Roma  children  aged  7  to  15  in  a  number  of 
Member  States  were  identified  in  a  recent  survey  undertaken  by  the  Fundamental 
Rights Agency as not attending school13. As it is a first step in acquiring basic skills, 
Member  States  should  seek  to  increase  attendance  rates.  In  particular,  in  order  to 
increase  primary  school  attainment,  Member  States  should  enhance  enrolment  in 
early  childhood  education  and  care,  the  training  of  teachers  and  mediators,  and  the 
inclusion of Roma pupils in mainstream schools.  

Measures  aimed  at  reducing  school-leaving  in  secondary  education  are  planned  in 
several  Member  States,  while  some  Member  States  envisage  increasing  the 
participation of Roma students in tertiary education. 

Measures to increase the educational attainment of children 

Measures required by the EU Framework 

Member States that have addressed them14 

Endorsement of the general goal 

BE, BG, CZ, DK, DE, EE, IE, EL, ES, IT, CY, 
LV, LT, LU, HU, AT, PL, PT, RO, SI, SK, FI, 
UK 

Concrete goals to reduce education gap 

BE, BG, CZ, EL, ES, IT, CY, LU, HU, AT, PL, 
PT, RO, SI, SK, FI, UK 

Widening access to quality early childhood 
education and care 

CZ, EL, ES, IT, CY, LV, HU, AT, PL, PT, RO, 
SI, SK, FI 

Measures to ensure that Roma children 
complete at least primary school  

BE, BG, DE, EE, IE, EL, ES, FR, IT, LV, LU, 
HU, NL, PT, RO, SI, SK, FI, SE, UK 

Reducing secondary school leaving  

BG, CZ, IE, EL, ES, FR, IT, HU, AT, PL, PT, 
RO, SK, FI, UK 

Increasing tertiary education 

CZ, ES, IT, HU, PT, FI 

Measures aimed at preventing segregation  

CZ, EL, ES, HU, PL, RO, SK 

Support measures 

BE, CZ, EE, IE, ES, IT, CY, LV, LT, HU, AT, 
PL, PT, RO, SI, SK, FI, SE, UK 

Several  Member  States  provide  additional  support  measures,  such  as  teaching  and 
learning programmes in the Romani language, learning support programmes such as 
after-school learning support or second-chance classes, parental education, including 
mediation, and raising awareness of the importance of education. 

13 

14 

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for 

the 

Service 

Belgian 

Planning 

with 
Federal 
http://www.ecdgroup.com/pdfs/Preventing-Social-Exclusion.pdf. 
At  least  10%  of  Roma  children  aged  7  to  15  in  Greece,  Romania,  Bulgaria,  Italy  and  France  were 
identified in the survey as not attending school: they were either still in preschool, not yet in education, 
skipped  the  year,  stopped  school  completely  or  were  already  working.  This  proportion  is  highest  in 
Greece, with more than 35% of Roma children not attending school (The situation of Roma in 11 EU 
Member States; Survey results at a glance. Fundamental Rights Agency, World Bank, United Nations 
Development Programme, 2012).  
Member States are included if their respective strategies refer to the type of measures listed in the table. 

Integration, 

Social 

2011; 

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Examples of actions promoting Roma inclusion in education 

While involving Roma assistants and mediators, Slovenia seeks to include Romani children as early 
as  possible  in  educational  processes  (pre-schools).  With  better  training  quality  of  education 
providers  and  more  support  networks  for  learning,  the  completion  rate  for  Romani  children  in 
general  education  will  be  significantly  improved  (in  Ljubljana,  54.3%  on  average  in  secondary 
education against 18.7% for Roma). Moreover, attention is paid to the promotion of Roma culture 
and heritage. 

Spain is setting up new mediation programmes to help reduce early school leaving and absenteeism 
(in primary education, the objective is to reduce it from 22.5% today to 15% by 2015 and to 10% by 
2020). 

The Kauhajoki model in Finland is based on three instructors with Roma background. A pre-school 
teacher provides support for the children and families participating in early childhood education; a 
special  needs  assistant  provides  support  for  comprehensive  school  pupils;  and  a  case  manager 
supports young adults in further studies and finding employment. 

In  addition,  support  for  the  Roma  culture  and  history  in  mainstream  curricula  is 
mentioned in a large number of documents. In general, most strategies underline that 
a better understanding of culture is necessary to fight stereotypes. 

As  part  of  an  integrated  approach,  Member  States  should,  as  a  matter  of 
priority in the area of education: 

• 
• 
• 
• 
• 

eliminate school segregation and misuse of special needs education;  
enforce full compulsory education and promote vocational training; 
increase enrolment in early childhood education and care; 
improve teacher training and school mediation; 
raise parents' awareness of the importance of education. 

(b)  Employment 

The EU goal is to reduce the employment gap between Roma and the rest of the 
population15.  

All  Member  States  acknowledge  the  need  to  reduce  the  employment  gap  between 
Roma and non-Roma. To do so, an integrated approach needs to be encouraged in all 
Member States, particularly in those with a larger Roma population or where this gap 
is  more  significant.  In  addition,  active  inclusion  policies16  should  also  reach  out  to 
the  Roma.  Moreover,  in  order  to  achieve  tangible  results,  Member  States  need  to 
describe their objectives in terms of quantifiable targets supported by clear baseline 
data, so that progress can be monitored.  

Notably in those Member States with a higher percentage of Roma, this population is 
largely located in rural areas. The strategy of these Member States should take this 
geographical  distribution  into  consideration,  identifying  appropriate  activities  (both 

15 

16 

In most Member States, the number of Roma saying they were unemployed was at least double than the 
number of non-Roma. In Italy, the Czech Republic and Slovakia up to 4 or even 5 times more Roma 
than non-Roma  said  they  were unemployed  (The  situation  of  Roma  in  11  EU Member  States; Survey 
results  at  a  glance.  Fundamental  Rights  Agency,  World  Bank,  United  Nations  Development 
Programme, 2012). 
Commission Recommendation 2008/867/EC on the active inclusion of people excluded from the labour 
market (OJ L 307/11 of 18/11/2008).  

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in the agricultural and non-agricultural sectors) in which Roma can participate, thus 
ensuring real opportunities for Roma employment. 

Measures to increase labour market participation 

Measures required by the EU Framework 

Member States that have addressed them 

Endorsement of the general goal 

All Member States  

Concrete goals to reduce the employment gap 

BG, CZ, EL, ES, FR, HU, PL, PT, RO, SI, SK, FI 

General measures under the principle of equal 
treatment to reduce the employment gap  

DK,  DE,  EE,  IE,  FR,  CY,  LV,  LU,  NL,  AT,  PL, 
SE 

Additional or specific measures for Roma17  

BG, CZ, IE, ES, HU, AT, PT, RO, SI, SK, FI, SE 

Access to micro-credit 

Civil servants in the public sector 

Personalised services  

IE, EL, ES, FR, IT, HU, PT, RO, SK, FI 

IE 

IE, IT, HU, PT, RO, FI, SE 

Integrated approach 

BG, CZ, ES, HU, SI, SK, FI, UK 

Measures suggested in the EU Framework, such as providing access to micro-credit, 
employing  qualified  civil  servants  in  the  public  sector  and  providing  personalised 
services  and  mediation  were  addressed  by  only  some  Member  States.  Several 
Member States envisage other specific measures to ensure non-discriminatory access 
for  Roma  to  the  labour  market,  including  for  example  vocational  and  on-the-job 
training,  or,  facilitating  access  to  childcare.  Several  Member  States  also  plan 
measures in addition to those proposed in the EU Framework. 

Examples of actions promoting Roma inclusion in employment 

Spain aims to increase the employment rate amongst the Roma population from 44% (in 2011) to 
50%  in  2015  and  60%  in  2020,  setting  a  specific  objective  for  the  employment  of  Roma  women. 
The  programmes  will  promote  necessary  skills  and  simultaneously  facilitate  access  to  ordinary 
training programmes for obtaining employment.  

Austria  promotes  the  access  of  young  Roma  from  Austrian  and  immigrant  communities  to  the 
labour  market  by  the  enhanced  Thara  project  which  includes  community  work,  coaching  and 
training.  The  previous  Thara  project  (2011-2012)  focused  on  access  of  national  and  immigrant 
Roma to employment, reaching out to 107 Roma and 56 participants from public administration and 
civil  society.  Building  on  its  findings  the  current  project  aims  more  specifically  at  labour  market 
integration including support for self-employment. 

Bulgaria aims to raise the level of Roma in employment by 2015, primarily with ESF support, by 
organising training courses for more than 28 000 unemployed and employed Roma in order to raise 
their  employability  and  qualifications  and  by  training  1  500  people  in  management  and 
entrepreneurship. 

Increasing Roma participation in the labour market in the Member States with large 
Roma  populations  will  bring  clear  economic  benefits,  in  particular  in  times  of 
economic hardship. 

17 

Specific measures aim to ensure non-discriminatory access for Roma to the labour market, including for 
example vocational and on-the-job training, mediation, facilitating access to childcare, etc.  

EN 

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As  part  of  an  integrated  approach,  Member  States  should,  as  a  matter  of 
priority, in the area of employment: 

• 
• 

• 
• 

• 

provide tailored job search assistance and employment services; 
support  transitional  public  work  schemes  combined  with  education  as 
well as social enterprises employing Roma or providing them with specific 
services;  
support a first work experience and on-the-job training; 
eliminate  the  barriers,  including  discrimination,  to  (re)enter  the  labour 
market, especially for women; 
provide stronger support for self-employment and entrepreneurship.  

(c)  Healthcare 

The EU goal is to reduce the gap in the health status between the Roma and the 
rest of the population. 

Although  access  to  healthcare  is  universal  in  all  Member  States,  in  reality  not  all 
Roma can access these services to the same extent as the rest of the population. Most 
Member States are aiming to improve healthcare access for Roma through outreach 
and  other  methods.  Some  Member  States  included  measures  to  reduce  health 
inequalities  between  the  Roma  and  non-Roma  population  involving  a  range  of 
preventive  actions  which  go  beyond  those  highlighted  in  the  EU  Framework. 
However, only few Member States defined a comprehensive approach to improve the 
health of Roma. 

Several  Member  States  have  already  put  in  place  or  are  considering  programmes 
involving qualified Roma as mediators for improving access to healthcare. These are 
very welcome initiatives. However, such measures need to be supplemented by other 
actions to have a significant impact on the health gap between Roma and the rest of 
the population.  

The need for a systematic, integrated approach to health has been identified as a key 
challenge. It requires coordination between the healthcare sector and other sectors – 
particularly education, housing, employment and anti-discrimination.  

Measures to improve healthcare 

Measures required by the EU Framework 

Member States that have addressed them 

Endorsement of the general goal 

BG, CZ, IE,, EL, ES, FR, IT, HU, RO, SI, SK, 
SE 

Concrete goals to reduce the health gap 

BG, CZ, IE, EL, ES, FR, IT, HU, RO, SI, SK 

General measures relying on existing structures 
to reduce the health gap 

DK,  DE,  EE,  FR,  CY,  LV,  LU,  NL,  AT,  PL, 
PT, SE 

Access to quality healthcare especially for 
children and women 

EE, EL, ES, FR, IT, HU, PL, SK, SE 

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Additional measures18 

BE, BG, CZ, EE, ES, HU, PT, RO, SI, SK, FI, 
SE, UK 

Several  Member  States  highlight  the  need  to  focus  on  children's  and  women's 
health19.  Some  Member  States  mention 
training  health 
professionals to work with people of different socio-cultural backgrounds.  

importance  of 

the 

Examples of actions promoting Roma inclusion in healthcare 

Hungary aims to train 2 000 Roma women with the help of the European Social Fund and ease the 
acquisition of practical experience in social, child welfare and child protection services, and also as 
family  support  social  workers,  community  developers,  employment  facilitators  and  healthcare 
mediators.  

Ireland  has  made  available  a  wide  range  of  Travellers-dedicated  health  services,  such  as  the 
Traveller Health Units and the Primary Health Care Projects (including health mediators and public 
health  nurses  for  Travellers).  Since  1994,  some  Traveller  women  have  been  trained  as  community 
health mediators to develop primary healthcare based on Traveller communities' values. 

In  Romania,  in  order  to  increase  the  access  of  Roma  people  to  public  health  services,  the 
government  employed  approximately  450  health  mediators  by  2011.  Their  role  is  to  facilitate  the 
dialogue between the Roma and medical institutions and staff. They actively support Roma people in 
the process of obtaining identification documents, health insurances, registering on the lists of family 
doctors  and  make  mothers  aware  of  various  health  issues.  Since  this  has  represented  a  positive 
practice, one Roma inclusion goal is to increase the number of health mediators by 25% by 2020. 

However,  these  commitments  need  to  be  bolstered  by  clear  timelines  for  their 
implementation and by setting measurable targets so that progress can be followed. 
In addition, many Member States need to allocate clearer financial means to reduce 
health inequalities. 

As  part  of  an  integrated  approach,  Member  States  should,  as  a  matter  of 
priority in the area of healthcare: 

• 

• 

• 

• 

• 

extend  health  and  basic  social  security  coverage  and  services  (also  via 
addressing registration with local authorities); 
improve the access of Roma, alongside other vulnerable groups, to basic, 
emergency and specialised services; 
launch awareness raising campaigns on regular medical checks, pre- and 
postnatal care, family planning and immunisation;  
ensure  that  preventive  health  measures  reach  out  to  Roma,  in  particular 
women and children; 
improve living conditions with focus on segregated settlements. 

(d)  Housing and essential services 

18 

19 

These measures target preventive care, such as improving vaccination rates and campaigns on healthy 
lifestyles among Roma, but also reproductive health (e.g. prevention of youth pregnancies). Measures 
preventing prejudiced behaviour of health professionals are also mentioned by several Member States. 
With priority on reproductive health and preventive care including improved immunisation. 

EN 

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The  EU  goal  is  to  close  the  gap  between  the  share  of  Roma  with  access  to 
housing and to public utilities and that of the rest of the population. 

Although all Member States agree with the need to improve the housing conditions 
of many Roma, few propose concrete measures as part of an integrated approach to 
tackle  the  situation.  Independent  measures  that  are  not  part  of  a  comprehensive 
housing approach including other accompanying measures in the fields of education, 
employment  and  healthcare  may  not  achieve  lasting  results.  Member  States  are 
therefore  encouraged  to  consider  broadening  the  scope  of  housing  interventions, 
urban planning and rural development and making them part of such comprehensive 
plans.  Some  Member  States,  especially  those  with  a  relatively  small  Roma 
population,  address  the  housing  challenges  of  Roma  within  existing  structures. 
Several Member States address access to housing, including social housing. 

Measures to improve the housing situation 

Measures required by the EU Framework 

Member States that have addressed them 

Endorsement of the general goal 

All Member States (except LT) 

Concrete goals to reduce gap in access to 
housing and public utilities 

All Member States (except LT) 

General measures relying on existing structures  DK, DE, EE, LV, LU, NL, AT, SE  

Access to housing, including social housing 

BG, CZ, DK,DE, IE, ES, IT, CY, HU, AT, PT, 
SI, SK, SE,  

Addressing the needs of the non-sedentary 
population 

BE, IE, FR, AT,UK 

Integrated approach  

CZ, ES, FR, HU, PT, RO, FI, 

Only  a  few  Member  States  plan  specific  measures  promoting  non-discriminatory 
access to housing. Most Member States with Travellers include specific measures for 
non-sedentary populations. The involvement of regional and local authorities as well 
as local Roma and non-Roma communities is essential for Member States in order to 
find sustainable solutions. 

Examples of actions promoting Roma inclusion in housing 

In  the  UK,  Welsh  regional  authorities  have  put  in  place  specific  measures  to  improve 
accommodation  and  access  to  services  for  Roma  and  Travellers.  The  funding  made  available  to 
local authorities by the Welsh government to allow refurbishment and the creation of new sites has 
been increased from 75% to 100%. 

In Hungary, to promote the social inclusion of those living in segregated environments, integrated 
programmes  aimed  at  improving  social,  community,  educational,  healthcare,  employment  and 
housing  conditions  will  be implemented  using  both  ESF  and  ERDF  resources.  Alongside  the 
establishment of community centres to provide hygienic and other services for the inhabitants, their 
housing needs will be targeted as well, including social housing. 

In France, several local authorities have developed "insertion villages" in order to meet the needs of 
disadvantaged  people,  including  Roma,  who  live  in  illegal  settlements.  Such  projects  will  be 
replicated by other local authorities with the support of the European Regional Development Fund. 

EN 

10 

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Considering the importance of the local level for housing issues, Member States are 
invited  to  promote  community-led  local  development  and  integrated  territorial 
investments supported by the European Regional Development Fund, the European 
Social Fund and the Cohesion Fund20. 

As  part  of  an  integrated  approach,  Member  States  should,  as  a  matter  of 
priority in the area of housing: 

• 
• 

promote desegregation; 
facilitate  local  integrated  housing  approaches  with  special  attention  to 
public utility and social service infrastructures; 

•  where  applicable,  improve  the  availability,  affordability  and  quality  of 
social housing and halting sites with access to affordable services as part 
of an integrated approach. 

2.2. 

Assessment of the Structural Requirements 

The  EU  Framework  calls  on  Member  States  to  pursue  a  targeted  approach  in  line 
with  the  Common  Basic  Principles  for  Roma  inclusion,  and  ensure  consistency  of 
their National Roma Integration Strategies with National Reform Programmes in the 
Europe 2020 framework. 

(a)  Mobilising the regional/local level and civil society 

The  EU  Framework  highlighted  the  need  for  a  continuous  dialogue  with 
regional and local authorities, as well as with Roma civil society in the design, 
implementation and monitoring of national strategies.  

While  most  Member  States  highlight  local  projects  or  initiatives  taken  by  local  or 
regional  authorities  in  order  to  promote  Roma  inclusion,  only  a  few  explicitly 
envisage the mobilisation of these authorities in implementing and monitoring of the 
strategies.  Moreover,  there  is  little  indication  of  the  involvement  or  consultation  of 
these local public actors in the drafting of the strategies. In very few cases, Member 
States do not indentify clear measures at national level, but concrete programmes are 
implemented at regional and local level. 

As regards civil society, several Member States have conducted broad consultations 
with  Roma  representatives  and  civil  society  organisations  in  the  design  of  their 
policy documents, although contributions received do not always seem to have been 
taken on board.  

Mobilisation of regional and local authorities and civil society 

Measures required by the EU Framework 

Member States that have addressed them 

Consultation of local and regional authorities or 
Roma/civil society representatives when 

BE, BG, DK, DE, EE, IE, ES, FR, IT, LV, HU, 
NL, AT,, PL, PT, RO, SI, SK, FI, SE, UK 

20 

Elements for a Common Strategic Framework 2014-2020, Staff Working Document (2012) 61 final, 14 
March 2012. 

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11 

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drafting the strategy 

Planned involvement of regional and local 
authorities in implementation 

BE, BG, CZ, DE, IE, EL, ES, FR, CY, LV, LT, 
AT, PT, RO, SI, SK, FI, SE, UK 

Planned involvement of Roma/civil society 
representatives in implementation 

BE, BG, DE, IE, EL, ES, FR, LV, HU, AT, PL, 
PT, RO, SI, SK, FI, SE, UK 

However,  most  Member  States  failed  to  explain  how  they  see  cooperation  with 
regional  and  local  authorities  on  the  one  hand,  and  civil  society  as  well  as  Roma 
communities  on  the  other,  in  the  implementation  and  monitoring  of  their  policies. 
Member States need to make more efforts to meaningfully involve both the regional 
and local authorities and civil society at all stages of the national strategies. 

As part of an integrated approach, Member States should, as a matter of priority: 

• 

• 

• 

closely  involve,  in  accordance  with  their  specific  competences,  regional 
and local authorities in the review, implementation and monitoring of the 
strategies; 
involve civil society, including Roma organisations, in the implementation 
and monitoring of the strategies; 
ensure coordination between the different layers of governance involved in 
the implementation of the strategies; 

•  mainstream Roma inclusion into the regional and local agenda; 
•  make use of the European Social Fund to strengthen the capacity of Roma 

organisations. 

(b)  Effective monitoring and evaluation of policy implementation 

The EU Framework calls on Member States to include in their strategies strong 
monitoring  methods  to  evaluate  the  impact  of  Roma  inclusion  actions  and  a 
review mechanism for adapting strategies.  

Several Member States recognise the need for a strong monitoring system and some 
are striving to put in place or at least are planning to develop such a system. Some 
Member  States  have  successfully  tested  a  territorial  approach  for  monitoring  the 
evolution  of  the  situation,  particularly  in  those  areas  where  deprivation  is  more 
severe. However, substantial efforts are needed to meet the expectations set out in the 
EU  Framework  and  to  ensure  appropriate  reporting  on  Roma  socio-economic 
inclusion in the framework of the Europe 2020 process, where appropriate.  

Monitoring and implementation 

Measures required by the EU Framework 

Member States that have addressed them 

Strong monitoring to evaluate impact  

IE, LV, PT, SK 

Review mechanism for adapting the strategy 

BG, IE, EL, ES, LV, SK, FI, SE 

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As part of an integrated approach Member States should:  

• 

• 

develop  or  make  use  of  existing  robust  monitoring  systems  by  setting  a 
baseline, appropriate indicators and measureable targets in collaboration, 
where possible, with the National Statistical Offices; 
ensure  that  each  programme  makes  provision  for  the  assessment  of  its 
relevance, effectiveness, efficiency and impacts. 

(c)  Anti-discrimination and the protection of fundamental rights 

The  EU  Framework  calls  on  Member  States  to  ensure  that  Roma  are  not 
discriminated against but treated like all other persons with equal access to all 
fundamental rights as enshrined in the EU Charter of Fundamental Rights. 

All  Member  States  paid  attention  to  promoting  anti-discrimination  and  to  the 
protection  of  fundamental  rights  in  their  strategies.  In  most  strategies,  a  specific 
section  or  chapter  is  dedicated  to  raising  awareness  of  fundamental  rights  and 
fighting against discrimination or the violation of human rights (including addressing 
trafficking in human beings). 

Measures to promote human rights and non-discrimination 

Measures required by the EU Framework 

Member States that have addressed them 

Efforts  in  the  field  of  human  rights  and  non-
discrimination 

BE,  BG,  CZ,  DK,  DE,  EE,  IE,  EL,  ES,  FR,  IT, 
CY, LV, LT, LU, HU, NL, AT, PL, PT, RO, SI, 
SK, FI, SE, UK 

Addressing the lack of registration of Roma in the national population registers and 
the  lack  of  identity  papers,  where  applicable,  is  an  absolute  pre-condition  for 
ensuring  equal  access  to  public  services.  This  should  be  urgently  and  properly 
addressed by those Member States where this is a challenge.  

Stepping  up  the  fight  against  discrimination  and  racism,  including  those  forms 
affecting  Roma  people,  must  be  part  of  a  strong  approach  in  each  Member  State. 
This should be based on full compliance with EU21 and national laws by all and on 
raising  awareness  of  the  societal  interest  of  Roma  integration.  Opportunities  for 
intercultural encounters may support such awareness and facilitate de-stigmatisation. 

Roma  children  are  a  particularly  vulnerable  group  when  it  comes  to  access  to 
fundamental rights, which is only rarely addressed outside the fields of education and 
health. Several strategies devote specific attention to the situation of Roma women, 
even though additional efforts are needed to enable them to exercise their rights.  

A significant number  of the  Roma  living in the Member States are legally residing 
third-country  nationals,  who  face  the  same  challenges  as  migrants  coming  from 

21 

Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between 
persons  irrespective  of  racial  or  ethnic  origin  (OJ  L  180  of  19/7/2000);  Framework  Decision 
2008/913/JHA  of  28  November  2008  on  combating  certain  forms  and  expressions  of  racism  and 
xenophobia by means of criminal law (OJ L 328 of 6/12/2008). 

EN 

13 

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outside the EU. They should not be discriminated against, but enjoy the same rights 
as those granted to non-EU migrants.  

As  part  of  an  integrated  approach,  Member  States  should,  as  a  matter  of 
priority: 

• 
• 

• 
• 

ensure that all Roma are registered with the appropriate authorities; 
step  up  the  fight  against  racism  and  discrimination  including  multiple 
discrimination; 
build public understanding of the common benefits of Roma inclusion; 
fight  child  labour  and  address  trafficking  in  human  beings  more 
effectively, including by international cooperation. 

(d)  National contact points 

The EU Framework asked Member States to appoint a national contact point for the 
National Roma Integration Strategy with the authority to coordinate the development 
and  implementation  of  the  strategy.  All  have  followed  this  request  and  now  have 
national contact points, most of them at a high level22. The clear identification of the 
coordinating authorities in all 27 Member States is an improvement compared to the 
past  and  a  strong  indicator  of  the  political  will  to  tackle  the  challenges  of  Roma 
integration23. At the same time close cooperation between national contact points and 
the authorities in charge of funding and responsible for the implementation must be 
ensured. 

Measures required by the EU Framework 

Member States that have addressed them 

National contact points 

Appoint a national contact point 

All Member States 

All  measures  should  be  put  in  place  so  that  the  national  contact  point  is  able  to 
coordinate Roma inclusion policies effectively. 

2.3. 

Assessment of the Funding of Measures 

The EU Framework asked Member States to allocate sufficient funding from national 
budgets, to be complemented, where appropriate, by EU and international funding, to 
Roma inclusion measures. The assessment of the national strategies shows that most 
Member  States  have  failed  to  allocate  sufficient  budgetary  resources  for  Roma 
inclusion.  Just  a  few  Member  States  have  identified  budgetary  resources  and 
concrete amounts for Roma inclusion policy measures.  

To  ensure  the  implementation  of  Roma  inclusion  policies,  several  Member  States 
plan to rely mostly on EU funding, especially on the European Social Fund and the 
European  Regional  Development  Fund.  Although  possibilities  exist  to  support 

22 

23 

EN 

the  national  contact  points  at 

See 
strategies/index_en.htm. 
In Greece, appointment of the national contact point is foreseen for the second half of 2012. 

:  http://ec.europa.eu/justice/discrimination/roma/national-

14 

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vulnerable groups, such as Roma, within the scope of the rural development policy, 
most  strategies  do  not  make  any  reference  to  the  European  Agricultural  Fund  for 
Rural Development (EAFRD). Budgetary allocations for National Roma Integration 
Strategies  should  follow  a  territorial  approach  addressing  the  specific  needs  of 
geographical  areas  most  affected  by  poverty  or  target  groups  at  highest  risk  of 
discrimination or exclusion, with special regard to marginalised communities such as 
the Roma24.  

Allocation of funding 

Measures required by the EU Framework 

Member States that have addressed them 

No indication of funding 

IE, FR, CY, LU, NL, AT, FI, UK 

No budget allocations 

BE, DK, DE, EE, ES 

Indication of allocation of funding from national 
budgets 

BG, EL, LV, LT, HU, PL, RO, SI, SK, SE 

Indication of allocation of international/EU 
funding 

CZ, EL, LV, LT, HU, PL, PT, RO, SI, SK  

Member States should make more and better use of EU Funds for Roma inclusion as 
part of their efforts to improve their absorption rate. 

In  order  to  ensure  the  sustainable  implementation  of  their  Roma  inclusion 
strategies,  Member  States  should  show  a  clear  commitment  to  securing  their 
financing  up  to  2020,  thereby  reflecting  their  political  will  to  address  Roma 
exclusion. 

3. 

THE CHALLENGES OF ENLARGEMENT COUNTRIES 

The  EU  Framework  underlines  that  the  EU  Roma  integration  goals  are  equally 
relevant to enlargement countries. The National Roma Integration Strategies of these 
countries need to be reviewed in line with these goals and reflect the comprehensive 
approach  required  by  the  EU  Framework.  This  is  clearly  highlighted  in  the 
Commission Enlargement Strategy and Main Challenges 2011-201225.  

The Commission is closely following developments in its annual progress reports. In 
addition  to  focusing  on  the  four  key  areas  of  the  EU  Framework,  countries  in  the 
Western Balkans and Turkey need to pay particular attention to facilitating access to 

24 

25 

The European Commission is collaborating with the World Bank to develop a mapping methodology, 
as  well  as  maps  of  poverty  and  exclusion  for  most  of  the  Member  States  which  joined  the  EU  in  or 
since 2004. In 2011, the European Spatial Planning Observation Network called for proposals aimed at 
developing  maps  of poverty and  exclusion for  a  number of  Member  States  that  joined  the  EU before 
2004.  At  the  end  of  2011,  the  European  Commission  proposed  that  in  the  next  programming  period, 
Member  States  present  the  contribution of  their Partnership  Contracts  and operational programmes  to 
combating poverty by focussing their efforts to specific geographical areas or target groups. 
COM (2011) 666. 

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15 

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personal  documents  and  registration  with  the  local  authorities26.  The  national 
authorities  of  enlargement  countries  need  to  remain  committed  to  taking  concrete 
steps in all related areas27. 

A  number  of  measures  are  already  funded  in  candidate  countries  under  the  human 
resources  development  component  of  the  Instrument  on  Pre-Accession  Assistance 
(IPA). Beneficiary countries have a section dedicated to vulnerable groups and Roma 
in their Operational Programme, which promotes social inclusion, including training, 
career guidance and activities to improve participation in the job market. 

In order to further assist the enlargement countries in their efforts to promote Roma 
inclusion,  the  Commission  has  taken  steps  to  improve  the  use  of  IPA  in  order  to 
address Roma inclusion at national and regional level in a more strategic and result-
oriented way28. 

Better  integration  of  Roma  is  a  matter  of  social  justice  and  of  ensuring  more 
inclusive societies in the enlargement countries. This forms part of the EU's shared 
values  that  enlargement  countries  are  encouraged  to  embrace  as  part  of  the  path  to 
accession.  However,  the  current  situation  of  Roma  living  in  poor  conditions  in 
enlargement  countries  has  had  consequences  in  terms  of  the  increased  number  of 
Roma temporarily migrating to EU Member States under visa-free regime and even 
applying  for  asylum29.  This  can  have  a  negative  impact  on  the  visa  liberalisation, 
which  is  one  of  the  greatest  achievements  towards  the  integration  of  the  Western 
Balkans into the EU. Enlargement countries must step up efforts to further integrate 
their Roma citizens. This should also include sustainable solutions for refugees and 
internally displaced persons, many of whom are Roma30. 

4. 

THE WAY FORWARD 

The  Commission's  assessment  of  the  National  Roma  Integration  Strategies  shows 
that Member States are making efforts to develop a comprehensive approach towards 
Roma  integration.  However,  much  more  needs  to  be  done  at  national  level.  Socio-
economic  inclusion  of  Roma  remains  first  and  foremost  the  responsibility  of  the 
Member States and they will need stronger efforts to live up to their responsibilities, 
by  adopting  more  concrete  measures,  explicit  targets  for  measurable  deliverables, 
clearly  earmarked  funding  at  national  level  and  a  sound  national  monitoring  and 
evaluation system. 

26 

27 

28 

29 
30 

Zagreb  Declaration  of  27  October  2011,  approved  at  the  Conference  on  the  Provision  of  Civil  Status 
Documentation and Registration in South Eastern Europe. 
This  commitment  includes:  establishing  or  reviewing  relevant  general  and  specific  action  plans  and 
programmes in the four key areas, facilitating access to personal documents and registration; fostering 
early childhood education and reducing Roma early school leaving; stimulating employment of Roma 
in the public and private sector; preventing discrimination in social and health care, and improving the 
housing conditions of Roma, particularly those living in informal settlements. 
Implementation  is  monitored  through  the  mechanism  of  the  Stabilisation  and  Association  (SAA) 
process  and  the  annual  progress  reports;  the  operational  conclusions  will  be  followed-up  in  2012  in 
SAA committee meetings. 
SEC(2011) 695 and SEC(2011) 1570. 
The  Sarajevo  process  (Belgrade  Declaration  of  7  November  2011)  includes  a  €584  million  Joint 
Regional Programme on this issue. 

EN 

16 

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To  meet  the  challenges  identified  and  to  bring  about  the  effective  integration  of 
Roma minorities, Member States, especially those with a sizeable Roma population, 
need in particular to: 

• 

Continue  regular  bilateral  dialogue  with  the  Commission  and  relevant 
stakeholders in order to 

– 

– 

– 

ensure  that  National  Strategies  and  action  plans  are  coherent  with  EU 
laws  and  policies  and  with  the  specific  national  situation,  including 
mainstream policies and public sector reforms, and take into account the 
impacts of the economic crisis; 

ensure effective use of both national and European funds; 

promote and monitor concrete implementation of the strategies. 

• 

Involve regional and local authorities 

Member  States  need  to  ensure  that  the  implementation  of  the  strategies  is 
coherent  with  regional  and  local  plans.  Regional  and  local  authorities  are 
indispensable  for  delivering  change  and  need  to  be  fully  on  board  when  the 
strategies  are  reviewed  and  implemented.  In  addition,  the  Commission  will 
further promote exchanges of experience and networking among regional and 
local authorities.  

•  Work closely with civil society 

Civil  society,  and  in  particular  Roma  organisations,  should  not  be  considered 
as passive recipients of change, but should be called upon to play an active role 
in  generating  it.  They  must  play  a  crucial  role  in  bringing  Roma  people  on 
board and in building trust between majorities and minorities. Member States 
must take the necessary measures to secure the participation of civil society in 
the review, implementation and monitoring of their national strategies. 

• 

Allocate proportionate financial resources 

Member States need to allocate sufficient resources for the implementation of 
National  Roma  Integration  Strategies,  as  this  reflects  Member  States' 
ambitions. In addition to national funding, actions included in these strategies 
will also form part of the Structural Funds and the European Agricultural Fund 
for  Rural  Development  negotiations  for  the  2014-2020  programming  period. 
The  Cohesion  Policy  Framework  proposed  by  the  Commission  includes  a 
minimum allocation for social inclusion and poverty, improved access to funds 
and  their  better  coordination  and  integration,  and  an  investment  priority 
dedicated to the integration of marginalised communities such as the Roma and 
ex-ante  conditionality  requirements  making  Structural  Funds  investments 
conditional upon the existence of a National Roma Integration Strategy in line 
with the EU Framework. 

•  Monitor transformation and enable policy adjustment 

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National Reform Programmes within the European semester will be scrutinised 
for  coherence  with  National  Roma  Integration  Strategies  and,  where 
appropriate,  references  to  Roma  integration  will  be  made  in  the  Country-
Specific  Recommendations,  in  order  to  guide  the  relevant  Member  States 
towards  further  progress.  In  future  years,  in  proportion  to  their  Roma 
populations,  Member  States  are  asked  to  systematically  address  the  issue  of 
Roma inclusion in their National Reform Programmes. 

the  accompanying  Staff  Working  Document 

this 
Furthermore, 
communication  includes  the  summary  of  key  points  which  help  the  Member 
States  to  bridge  the  gaps  between  Roma  people  and  the  majority  population. 
The detailed assessment will be shared with the Member States in the context 
of dialogue with them. 

to 

Member  States  are  also  invited  to  share  with  the  Commission  the  findings  of 
their monitoring of the implementation of their respective strategies. 

The EU's Fundamental Rights Agency will continue its surveys across the EU 
and work closely with the Member States to support them in developing robust 
national monitoring systems. 

The Commission will continue to support mobilising capacity within Member 
States. To this end, a network of the national contact points of all EU Member 
States  will  be  set  up  to  share  the  results  of  their  measures  addressing  Roma 
inclusion, exchange best practices and peer-review the implementation of their 
strategies. The European Platform for Roma Inclusion will continue to provide 
a forum for stakeholders to exchange views.  

The  Commission  will  review  annually the  implementation  of  the  National 
Roma  Integration  Strategies,  reporting  to  the  European  Parliament  and  the 
Council, as well as under the framework of the Europe 2020 Strategy.  

• 

Fight discrimination convincingly 

Member States need to ensure that anti-discrimination legislation is effectively 
enforced in their territories. When reporting in 2013 on the application of the 
EU's Race Equality Directive31, the Commission will address legal issues with 
a particular emphasis on those aspects relevant to Roma integration. 

31 

Council Directive 2000/43/EC of 29 June 2000 implementing the principle of equal treatment between 
persons irrespective of racial or ethnic origin (OJ L 180 of 19/7/2000). 

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