COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Report on the implementation of national Roma integration strategies - 2019
Date: 2019-09-05
Institutions: Directorate-General for Justice and Consumers, European Commission
Subjects: EU Member State, Roma, education, employment policy, ethnic discrimination, health policy, housing, marginalisation, rights of minorities, social integration

EN 

  EN 

   EUROPEAN COMMISSION  Brussels, 5.9.2019  COM(2019) 406 final  COMMUNICATION FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT AND THE COUNCIL Report on the implementation of national Roma integration strategies - 2019 {SWD(2019) 320 final}  
 
 
INTRODUCTION 

The  European  Commission  published  an  evaluation  of  the  EU  Framework  for  National  Roma 
Integration  Strategies  (NRIS)  up  to  20201 on  4  December  2018.  The  evaluation  assessed  the  EU 
framework  and  how  it  mobilised  other  European  policy,  legal  and  funding  instruments  for  Roma 
inclusion2. To complete the picture, this report of 2019 focuses on national implementation of Roma 
inclusion measures.  

reports from National Roma Contact Points (NRCPs)3; 

The main sources of the assessment are: 
 
  civil society reports from the Roma Civil Monitor EP Pilot project4; 
  data on the situation of Roma from the EU Agency for Fundamental Rights (FRA)5; 
  a meta-evaluation on Roma inclusion interventions6. 

This  report  summarises  the  most  important  trends  focusing  on  the  four  policy  areas  of  the  EU 
Framework for National Roma Integration Strategies (education, employment, health, housing), as 
well as fighting discrimination and antigypsyism. In each area the report highlights: the situation of 
Roma;  summarises  the  main  types  of  inclusion  measures,  achievements  and  challenges  of  their 
implementation  (as  reported  by  NRCPs);  and  formulates  policy  learning  highlighting  promising 
approaches  and  priorities  to  be  addressed  (based  on  existing  evaluations, 7 feedback  from  civil 
society and NRCPs).  

I. SUBSTANTIVE POLICY AREAS 

This  report  contains  the  measures  taken  under  the  Council  Recommendation  on  effective  Roma 
integration measures8.  The number of measures reported does not necessarily reflect the ambition 
or the effectiveness  of  efforts.  In education and  the fight  against discrimination  and antigypsyism 
most  measures  are  targeted  for  Roma.  In  housing  there  is  an  even  balance  between  targeted 
measures for Roma and general policy measures, i.e. mainstream measures. In employment, and to 
a  lesser  extent  in  health,  Member  States  predominantly  rely  on  mainstream  measures  to  also 
promote Roma inclusion. 

1 COM  (2011)  173.  In  line  with  the  Council  conclusions  (EPSCO  106665/11)  endorsing  the  framework,  Member  States  were  to 
develop  “national  Roma  inclusion  strategies,  or  integrated  sets  of  policy  measures  within  their broader  social  inclusion policies”. 
The terms ‘NRIS’ and ‘strategy’ also cover integrated sets of policy measures. 
2 COM (2018) 785. The term ‘Roma’ is used to refer to a number of different groups (e.g. Roma, Sinti, Kale, Gypsies, Romanichels, 
Boyash,  Ashkali,  Egyptians,  Yenish,  Dom,  Lom,  Rom,  Abdal)  and  includes  Travellers,  without  denying  the  specificities  of  these 
groups. 
3 For country abbreviations see  www.ec.europa.eu/eurostat.  All Member States (MS) with the exception of DK, FI and IE (and MT 
that  has  no  Roma  community)  reported  in  2018.  Given  late  submission  of  the  DE  report,  it  could  only  be  included  in  Annex  1 
(country summaries), but not in the thematic analysis reflected in the Communication and the Staff Working Document (SWD). 
4 Annex 1 
5 SWD 
6 Meta-evaluation of Roma inclusion interventions, European Commission, Joint Research Centre, forthcoming 2019 
7 Ibid 
8 2013/C 378/01 

 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
                                                           
1. EDUCATION 

1.1. Focus of measures  

Most  Member  States  (MS)  invest  in  measures  to  reduce  early  school-leaving  (18  MS).  The  next 
most  frequently  used  measures  include:  considering  the  needs  of  individual  pupils  in  cooperation 
with their families (14MS); increasing the access to, and quality of, early childhood education and 
care (13 MS); and encouraging Roma participation in – and completion of – secondary and tertiary 
education  (11MS).    Efforts  are  also  made  to  fight  school  segregation;  use  inclusive  teaching 
methods; and develop skills adapted to labour market needs (12 MS each). 

What  about  the  substantive  focus  of  the  measures  beyond  the  above  goals?  Here  we  find  that 
Member States most often opt for measures to improve educational attainment: fighting  drop-out; 
encouraging  transition  to  –  and  completion  of  –  secondary  and  tertiary  education;  or  providing 
support to compensate for educational gaps, or material disadvantage. Taken together these types of 

2 

 
 
 
 
measures  account  for  36%  of  all  education  measures.  Other  significant  groups  of  measures  focus 
on:  the  transition  from  education  to  employment  by  supporting  vocational  education;  career 
development  and  lifelong  learning;  and  capacity  development  of  professionals  (9-11%).  Less 
widespread measures focus on integrated inclusion interventions and introducing Roma history and 
culture in the curricula (6-6%). 

1.2. Achievements and challenges 
The  most  widespread  achievement  mentioned  by  NRCPs  in  the  area  of  education  is  mediation9. 
Other achievements include: development of kindergarten capacities10; improved support to fighting 
and  monitoring  early  school-leaving 11 ;  and  including  Roma  inclusion  and  non-discrimination 
related topics in teacher training or national curricula12. 

The most significant challenges highlighted by NRCPs include: school participation, absenteeism, 
early  school-leaving,  the  transition  from  primary  to  secondary  and  the  completion  of  secondary 
education. 13  Other  challenges  include:  fighting  segregation 14 ;  ensuring  and  developing  human 
capacities15;  cooperation  among  stakeholders16;  promoting  early  childhood  education  and  care;17 
adult learning and second chance education18; and data availability19. 

1.3. Policy learning 

Education is the area with the highest number of interventions and evaluations. It is therefore also 
the area  with  a  relatively  greater number of promising approaches and policy lessons common to 
several countries. Some of the important policy lessons in this area include: the importance of early 
intervention and prevention; the need to ensure participation and empowerment of Roma parents (as 
a  key  element  of  supporting  children  in  each  stage  of  education);  the  role  of  extracurricular 
activities  for  strengthening  identity  and  social  networks  of  Roma  children;  the  relevance  of 
continuous  complex  support  measures  (tutoring  combined  with  scholarship  and  removal  of  other 
cost barriers) in promoting the transition between educational levels and to employment. Although 
affirmative action has helped to improve Roma participation in education, it is important to avoid 
dedicating specific places for Roma who would have qualified for regular admittance.  

Especially  in  Member  States  with  a  high  share  of  Roma  pupils,  a  systematic,  complex  and  long-
term  approach is  needed to  fight  school  and class segregation, which remains a pressing problem 
that  undermines  the  success  of  other  inclusion  measures.  Key  parts  of  this  approach  include: 
providing early and free access to quality inclusive early-childhood education and care in integrated 
settings (both to prepare Roma children, and to overcome prejudice between Roma and non-Roma 
children  and  parents  in  order  to  prevent  later  segregation);  supporting  Roma  parents  in  school 
choice;  gradual  closing  of  segregated  schools  by  educational  authorities;  and  distributing  Roma 
children across several schools (through the reorganisation of school catchment areas). These active 
desegregation measures should be accompanied by additional financial and professional support to 
promote  the  social  and  academic  integration  of  Roma  children  in  mainstream  schools  such  as: 
covering  costs  of  transportation,  school  materials,  meals,  extracurricular  activities,  supplementary 
classes;  training  pre-school  staff  and  teachers  in  new  methods  of  teaching  in  integrated  school 
settings  (including  overcoming  stereotypes);  facilitating  communication  between  parents  and 
schools; informing parents of the benefits of integrated education; student mentoring, after-school 

9 AT, FR, EL, ES, IT, LV, RO 
10 e.g. CZ, SK 
11 e.g. HU, ES, LV 
12 e.g. AT, ES, IT, PT 
13 AT, CY, EE, EL, ES, FR, HR, LT, NL 
14 EL, ES, HR, RO 
15 EL, LV, SE, SK  
16 ES, LT, LV, PL  
17 BG, EL, ES 
18 AT, BG, EL 
19 HR, IT, PT 

3 

 
 
                                                           
support  for  Roma  children,  employment  of  teacher  assistants;  measures  to  sensitise  the  general 
public  on  the  importance  of  educational  inclusion  and  intercultural  education  for  community 
relations via campaigns and media20. 

Promising approaches: 

Priorities to be addressed: 

ESIF 

development 

٠  BG, CZ, DK, EL, FI, FR, HR, HU, LT, PL, SK: 
Introduction or  extension of  obligatory (free) pre-
school, 
of 
funded 
kindergartens, training for kindergarten teachers 
٠  CY, EL, ES, IE, IT, HR, HU, LT, LV, NL, PL, 
PT, RO, SE, SI: Programmes aimed at preventing 
school  drop-out  of  Roma  (girls)  through  after-
school  support,  tutoring,  scholarships,  mentoring, 
mediation,  assistants,  second  chance  education, 
teacher training, support to families 

٠  AT,  CY,  FI,  HU,  IE,  IT,  PT,  RO:  Introducing 
Roma  history  (including  the  Holocaust)  and/or 
culture in national curricula 

٠  IE,  HR,  RO:  Allocation  of  places  to  Roma  in 

secondary and tertiary education 

٠  LT:  Network  of  schools  attended  by  Roma 
and 

receiving 

building 

capacity 

children 
competence development 

٠  SE:  Teachers  training  (Södertörn  University)  and 

secondary-level adult education in Romani 

2. EMPLOYMENT 

٠  Support home parenting and early-childhood learning as part of 
comprehensive early intervention and prevention programmes 

٠  Introduce  or  further  extend  quality, 

inclusive,  free  and 
obligatory  pre-school  and  remove  financial  and  non-financial 
barriers to access 

٠  Promote quality, inclusiveness and results in education through 
incentives  (funding  and  reform  of  teacher  training),  attracting 
the best teachers to disadvantaged schools/regions 

٠  Systematically  monitor  and  fight  school  and  class  segregation 
with  long-term  comprehensive,  preparatory  and  accompanying 
measures supporting Roma families 

٠  Build  public  support  and  cooperation  of  all  stakeholders  to 

complement explicit active desegregation measures 

٠  Combine scholarships, tutoring and extracurricular activities to 
prevent early-school-leaving and promote transition to the next 
stage of education 

٠  Target  Roma  girls,  their  parents  and  teachers  to  fight  gender 

stereotypes and reduce early school-leaving 

٠  Promote  transition  to  –  and  completion  of  –  upper  secondary 
and  further  education  including  by  career  guidance  for  Roma 
students and their families 

2.1. Focus of measures  
The two largest groups of measures implemented by most Member States aim at removing barriers 
to  the  labour  market  (15MS)  and  individualised support  for  job-seekers  (13  MS).  Fewer,  but  still 
significant  number  of  countries  invest  in  vocational  training  (9MS),  lifelong  learning  and  skill 
development  (10MS)  and  self-employment  and  entrepreneurship  (8MS).  The  growing  rates  of 
Roma youth not in education, employment or training would certainly require even more efforts in 
supporting  a  first  work  experience  (10MS).  Two  other  areas  that  should  be  prioritised  are: 
safeguards  and  personalised  services  to  ensure  that  mainstream  public  employment  services 
effectively  reach  out  to  disadvantaged  Roma  job-seekers;  and  positive  action  to  promote  Roma 
employment in the civil service.  

20 http://www.romaeducationfund.org/sites/default/files/publications/desegregation_toolkit__2015_web.pdf 

4 

 
 
 
                                                           
What about the substantive focus of the measures? Here we find that Member States most often opt 
for individually oriented forms  of support, such as employment subsidisation, other forms  of cost 
sharing, career-development support (mentoring, coaching) and vocational training (altogether 35% 
of  all  measures).  More  general  measures  to  promote  social  inclusion,  community  development, 
adult  qualification  and  catch-up  education  make  up  8-9%  of  the  measures.  Only  one  fifth  of  the 
measures target young people, which is clearly insufficient, given the challenges of Roma youth in 
employment.  

2.2. Achievements and challenges 

In their reporting on 2017, several NRCPs referred to the positive impact of economic growth on 
the prospects for Roma employment21. But even more NRCPs referred to targeted measures, such as 
regional  employment  programmes  (career-counselling,  vocational  or  on-the-job  training  and  job 
matching  tailored  to  Roma  or  vulnerable  job-seekers)22.  Such  measures  are  even  more  effective 
when Roma are involved as mediators, social workers, or other service providers. 
NRCPs  emphasise  three  main  types  of  challenges:  capacity  of  implementing  structures 23 ; 
discrimination against Roma24; and attitudes and trust of Roma themselves25. 

2.3. Policy learning 

Ensuring effective transition from education to the open labour market, tackling discrimination by 
employers, and ensuring meeting of demand for labour with supply (especially among Roma youth 
not in education, employment and training) appear to be the most critical points in employment. In 
order  to  reduce  the  gender  gap  in  employment  and  the  rate  of  Roma  youth  not  in  education, 
employment or training  it is  essential to  incentivise and cooperate  closely  with  private employers 
and  to  explicitly  target  Roma  youth  and  women  under  mainstream  policies  (rather  than  creating 
parallel  employment structures).  Improving Roma employability should also  include development 
of IT and foreign language skills.  To ensure employment, however, other barriers also need to be 
addressed, in particular discrimination by employers, limited social network of Roma job-seekers or 
traditional gender roles in Roma communities. A combination of training, supported internships and 
antidiscrimination measures targeting employers can play an important role. 

21 BG, ES, HR  
22 AT, BG, CZ, ES, FR, HR, HU, LV, NL, SK 
23 AT, EL, PL, PT, SK 
24 EE, ES, LT, LV, NL, PT, RO 
25 BG, EE, FR, NL, PT 

5 

 
 
                                                           
Promising approaches: 

Priorities to be addressed: 

٠  BG,  CY,  ES,  IT,  LV,  NL,  PT,  SI:  Regional  or  local 
employment  programmes  (individualised  counselling)  to 
promote active job-seeking or self-employment 

٠  Enable  mainstream  public  employment  services  to 
effectively  support  Roma  job-seekers’  integration  in 
the primary labour market  

٠  HU,  EL,  ES,  FR:  Targeted  programmes  to  improve  the 

employability of Roma women (in the social sector) 

٠  IT,  LT,  HU:  Examples of cooperation with employers for 

job placements for Roma and fighting stereotypes 

٠  SK:  Amendment  of  the  Act  on  Public  Employment 
Services providing for an individual action plan to  support 
labour  market  integration  binding  the  jobseeker  and  the 
labour office 

٠  BE: Since 2016, Roma have access to the ‘integration path’ 
set up for people of foreign origin in Wallonia (courses on 
French  language,  basic  knowledge  of  society;  support  to 
find  employment  and  children’s  schooling).  Municipalities 
employ Roma mediators in public social assistance centres, 
prevention or proximity services 

٠  HR:  Ombudsman’s office gives antidiscrimination training 

to public employment officers and other civil servants 

٠  UK:  Race  disparity  audit  and  website  to  collect  and 
disseminate information on discrimination in employment 

3. HEALTH  

٠  (Continue  to)  train  and  employ  Roma  and  youth 
mentors, mediators to support transitions in education 
and to the labour market 

٠  Target Roma (youth and women) more explicitly with 
active  labour  market  policies,  including  the  Youth 
Guarantee 

٠  Sensitise and incentivise employers to employ Roma 
٠  Systematically  monitor  and  fight  discrimination  in 

labour market access and at the workplace 

٠  Combine  job  placement  support  (internship)  with  IT 

and language training and work with employers 

٠  Prioritise (re)integration in the primary labour market 
over parallel systems (e.g. public or informal work)  
٠  Work on integrated solutions to tackle the  vulnerable 
situation of undocumented mobile Roma, including by 
transnational cooperation 

3.1. Focus of measures  
The  two  most  significant  types  of  measures  reported  by  a  majority  of  Member  States  focus  on 
removing general barriers to healthcare and promoting health awareness (13-14 MS), representing a 
balance  between  supply  and  demand-side  interventions.  Other  relevant  measures  include  targeted 
vaccination programmes and access to specialised health services (6-7 MS). 

What about the substantive focus of the measures? Here we find that Member States most often opt 
for  measures  improving  the  supply  side  (staff,  facilities)  of  health  provision  (26%  of  measures). 
They also address the demand side by health awareness and information campaigns (21%). Other 
significant  groups  of  measures  include  general  actions  to  improve  health  and  sanitation 
infrastructure  at  local  level,  and  provision  of  preventive  services  (16-17%).  Highly  important 
interventions – providing Roma with health insurance and targeting health care professionals with 
antidiscrimination campaigns – are much less widespread (6-7%).  

6 

 
 
 
3.2. Achievements and challenges 
The achievements most often mentioned by NRCPs are: vaccination campaigns26; other prevention 
and  detection  programmes 27;  improving  hygiene,  health  conditions  and  access  to  healthcare 28; 
awareness  raising29;  health  mediation30;  and  multi-stakeholder  cooperation  involving  national  and 
local  authorities  and  civil  society31.  There  was  a  notable  lack  of  reference  to  antidiscrimination 
efforts; improving hygienic living conditions; and access to healthy food.   

Challenges  reported  include:  lack  of  coordination  and  effective  communication  between  the 
national  and  local  levels;  maintaining  appropriate  (national  or  EU)  funding  or  staffing32;  lack  of 
self-consciousness  on  health  matters 33;  lack  of  health  insurance  coverage  among  Roma 34;  and 
insufficient knowledge of health professionals on Roma issues.35 There was also concern about low 
vaccination  rates  among  Roma,  which  in  some  countries  are  reported  to  contribute  to  higher 
premature mortality and morbidity rates36. Participation and empowerment of Roma in health care 
initiatives is considered challenging, also due to low literacy and language barriers37. 

3.3. Policy learning 

Both  measures  and  evaluations  are  scarce  in  the  area  of  health  (as  well  as  housing),  limiting 
opportunities for policy learning and transfer. The most broadly used promising practices focus on 
prevention via vaccination campaigns and the training and employment of Roma health mediators. 
It  is  important,  however, that targeted support services actively aim to  improve health awareness, 
change behaviours and build long-term self-reliance and ability of Roma to engage with mainstream 
institutions,  instead  of  dependence  on  permanent  intermediaries  and  long-term  parallel  structures. 
Antidiscrimination measures targeting healthcare professionals should be prioritised. 

Promising approaches: 

Priorities to be addressed: 

٠  BG,  CZ,  DK,  EL,  FR,  HU,  PL,  PT,  RO,  SE,  SI,  SK:  Training  and 
employment  of  Roma  health  mediators  (assistants,  visitors,  bridge 
builders) to promote Roma access to healthcare 

٠  AT,  BG,  EL,  FR,  HU,  HR,  PL,  SK,  UK:  Vaccination  campaigns 

targeting Roma (girls, women), and those living in marginalised areas 

٠  CZ,  IT,  RO,  SI,  SK:    Long-term  national  health  programmes,  action 

plans, strategies 

٠  ES:  Ensuring  Roma  and  civil  participation  in  the  design  of  health 

prevention and training programmes for social service professionals 

٠  FI:  Roma  Wellbeing  Study  by  the  National  Institute  for  Health  and 

Welfare 

٠  PT:  Evidence-based  planning  of  interventions  to  fight  health  inequalities 
of  Roma,  including  information  and  awareness  raising  materials  on 
teenage motherhood, paediatric follow-up and healthy eating habits 

٠  LT:  Health  awareness  seminars  on  preventive  care,  sexual  and 

reproductive health and childcare targeting Roma women and youth 

26 EL, FR, HU, HR  
27 HU, PL, SI 
28 AT, HU, RO 
29 CZ, HU, LT, SI 
30 FR, RO, SE, SK 
31 BG, RO 
32 EL, HU, LT, SE, RO 
33 BG, CZ, EL, HR 
34 BG, ES, HR, RO 
35 AT, CZ,  
36 ES, EL 
37 BG, PL, SK, 

٠  Increase health insurance coverage, fill 
gaps  in  primary  and  specialised  care 
provision,  including  reproductive  and 
sexual health in disadvantaged areas 
٠  Step  up  efforts  to  prevent  and  fight 
drug 
smoking,  HIV, 
hepatitis,  tuberculosis,  cardio-vascular 
diseases, premature birth  

addiction, 

٠  Monitor  and  fight  discrimination  in 
access  to  health  and  sensitise  health 
professionals to Roma needs 

٠  Ensure 

that 

targeted  Roma  health 
mediators help build the long term self-
reliance of Roma 

٠  Improve  nutrition  and  fight  unhealthy 
targeting  Roma 

living 
women and families with children 

conditions 

7 

 
 
                                                           
4. HOUSING  

4.1. Focus of measures  

The measures most commonly reported by Member States aim to: ensure access to public utilities 
(water,  electricity,  gas)  and  infrastructure  for  housing;  support  desegregation;  promote  non-
discriminatory  access  to  social  housing  (10-12  MS).  Only  a  minority  of  Member  States  invest  in 
integrated  housing  interventions  targeting  marginalised  communities  in  the  framework  of  local 
urban regeneration projects (7MS) or use ESIF for community-led local development or integrated 
territorial investments (4 MS). Only 2 Member States reported on provision of halting sites for non-
sedentary Roma. 

What  about  the  substantive  focus  of  the  measures?  Here  we  find  that  Member  States  most  often 
focus on maintenance, provision and repair of municipal and social housing (27%); infrastructure in 
Roma  settlements  (16%);  as  well  as  legislative  measures,  construction  permits  or  legalisation  of 
informal housing (13%). Explicit active desegregation, including the removal of slums, as well as 
integrated  territorial  measures  or  social/infrastructural  support  for  the  homeless  is  much  less 
common as a central focus of investment (7% each). 

4.2. Achievements and challenges 
NRCPs reported that the most significant achievements were in access to social housing38. Another 
important cluster of achievements mentioned by several NRCPs was the elimination of slums and 
spatial  segregation39.  NRCPs  also  referred  to  results  in  the  provision  of  halting  sites40,  access  to 

38 AT, CZ, EL, HU, LV, LT, PT, RO 
39 ES, FR, HU, IT, LT 

8 

 
 
 
                                                           
public utilities (such as water, electricity and gas) and infrastructure for housing41; the legalisation 
of housing42; and in urban regeneration43. 
Reported  challenges  include:  spatial  segregation 44;  barriers  for  Roma  to  access  housing  in  the 
private sector45; as well as public support for and legislation on access to social housing46. 

4.3. Policy learning 

Housing  is  the  policy  with  the  fewest  examples  of  promising  approaches  common  to  several 
countries.  It  is  also  the  area  where  a  long-term,  integrated  and  comprehensive  approach  has  been 
found to be especially critical, including: complementing provision of housing with accompanying 
support  combining  elements  of  employment,  education,  health  and  community  development;  and 
embedding  interventions  in  broader  national  policy  and  legislation  on  land  and  social  housing. 
Promoting  spatial  desegregation  requires  a  targeted,  coordinated,  and  participatory  process: 
engaging  Roma  beneficiaries  in  the  design  and  implementation  of  community  and  individual 
housing options; combining infrastructural and human investments; and awareness raising to reduce 
ethnic  tensions  and  overcome  resistance  from  majority  society.  Other  areas  that  need  to  be 
prioritised  include:  developing  the  social  housing  stock  ensuring  improved  access  for  Roma; 
preventing forced evictions as part of a multi-stakeholder, broad housing approach; and providing 
sufficient and culturally appropriate halting sites for non-sedentary Roma.  

Promising approaches: 

Priorities to be addressed: 

٠  ES:  Local  and  regional  governments  with  NGO  support  have  significantly 
reduced  the  prevalence  of  shanty  towns  over  the  past  15  years  leading  to 
desegregation  as  part  of  an 
integrated  approach  with  sustainable 
improvements in education, health and employment 

٠  Invest  in  affordable  and  appropriate 
social  housing  stock  in  integrated 
areas,  and  ensure 
that  eligibility 
criteria are accessible for Roma 

٠  CZ: ESIF support scaling up local ‘housing first’ initiatives, built on models 
of  successful  social  housing  pilot  by  local  governments  and  social  rental 
agency  by  NGOs,  excluding  housing  in  segregated  areas  (methodology  to 
identify  residential  segregation  piloted  by  the  Ministry  of  Labour  and  12 
municipalities) 

٠  EL:  New  regulations  to  promote:  relocation  from  camps  and  settlements; 
improvement  of  infrastructure;  creation  of  self-management  and  protection 
system  of  residential  complexes;  and  rent  subsidy  for  finding  a  home  in 
integrated settings 

٠  FR: Multi-stakeholder comprehensive ‘housing first’ approach in Toulouse 
to help Roma move from camps to integrated areas, accompanied by social 
support,  literacy  and  other  training,  access  to  education,  employment  and 
healthcare 

٠  SI:  Public  tenders  for  basic  communal  infrastructure  (water,  electricity, 

roads) targeting municipalities where Roma live 

٠  LT:  Desegregation  process  in  the  Kirtimai  settlement  in  Vilnius  by 
relocation  combined  with  offer  of  social  housing  with  subsidised  rent  to 
families with many children.  

٠  SE:  Guidance  and  training  for  landlords  to  increase  knowledge  and  fight 

discrimination against Roma 

٠  Provide  housing  assistance  targeting 

the most vulnerable 

٠  Legalise  housing  and  prevent  forced 

evictions 

٠  Combine  comprehensive  long-term 
desegregation  with  preparatory  and 
accompanying  measures  building 
interethnic 
public 
relations  and  ensure 
community 
participation  of  communities 
in 
design and implementation 

support 

and 

٠  Ensure  access  to  clean  water,  basic 
public 
explicit 

essential 
all,  with 

amenities 
services 
safeguards for Roma 

and 

for 

٠  Fight  discrimination  in  access  to 

(social and private) housing 

٠  Ensure  the  provision  of  sufficient, 
serviced  and  culturally 
for 

halting 

sites 

properly 
appropriate 
Travellers 

40 FR, NL 
41 SI 
42 HR 
43 BG 
44 BG, CY, ES, SK 
45 ES, LT, LV, NL 
46 CZ, BG 

9 

 
 
                                                                                                                                                                                              
II. FIGHTING DISCRIMINATION AND ANTIGYPSYISM 

1.  Focus of measures  

Antidiscrimination  measures  most  reported  by  Member  States  include:  fighting  antigypsyism  by 
awareness  raising  on  the  benefits  of  Roma  inclusion;  awareness  raising  about  diversity;  and 
combatting anti-Roma rhetoric and hate speech (10-12MS). Few Member States invest in measures 
that  seek  to  protect  Roma  women  and  children  by  fighting  multiple  discrimination,  (domestic) 
violence,  or  underage  and  forced  marriages  (2-4  MS).  Only  4  Member  States  report  investing  in 
measures to ensure the effective enforcement of the Racial Equality Directive (2000/43/EC). Even 
fewer  refer  to  local  or  regional  desegregation  measures  (3MS),  or  fighting  trafficking  in  human 
beings (2MS). Only one Member State reported measures to prevent unlawful evictions or begging 
with children; and to promote cross-border cooperation. 

10 

 
 
 
What  about  the  substantive  focus  of  the  measures?  Here  we  find  that  Member  States  most  often 
invest in promoting Roma culture and heritage as a way to raise awareness and fight antigypsyism 
indirectly among the general public (22%). Somewhat fewer measures target awareness raising to 
directly fight discrimination and intolerance (18%). Other measures focus on capacity development 
of institutions (15%), Roma civil society (12%) and human rights monitoring mechanisms (11%). 
Key areas that received less focus were the provision of legal support, the empowerment of Roma 
women  and  desegregation  (5-6%).  Only  16%  of  reported  antidiscrimination  measures  targeted 
explicitly Roma youth, and 10% targeted Roma women. 

2.  Achievements and challenges 

The  achievements  most  often  mentioned  by  NRCPs  were:  improving  the  conditions  of  Roma 
women and children47; combating antigypsyism by breaking stereotypes or promoting Roma culture 
and  history 48 ;  and  involving  all  relevant  actors  (public  authorities,  civil  society  and  Roma 
communities) in efforts to promote anti-discrimination49. 

Several  NRCPs  referred  to  challenges  of  improving  access  to  legal  protection  and  rights 
awareness50, as well as difficulties in fighting against stereotypes51 and improving the situation of 
Roma  women  and  children.52 The  mere  fact  that  several  Member  States53 –  including  some  with 
large Roma communities and several with very high rates of perceived discrimination among Roma 
– did not report any antidiscrimination measures underlines the gravity of challenges in this area. 

3.  Policy learning 

Experience  with  Roma  inclusion  actions  shows  that  long-term  change  in  any  of  the  policy  areas 
requires tackling antigypsyism and discrimination towards Roma, and building trust between Roma 
and non-Roma communities. To succeed Roma inclusion actions in all policy areas must be linked 
to  common  values  and  include  awareness  raising  among  the  general  public.  To  fight  stereotypes, 
hate speech, and hate crime it is necessary to build positive narratives on Roma among mainstream 
society  and  strengthen  Roma  identity,  via  specific  targeted  measures  to  fight  antigypsyism  and 
promote recognition of Roma history (including the Holocaust). The most successful actions do not 
just align with, but rather transform mainstream structures and policies by fighting prejudices and 
stereotypes and building a positive image of Roma among policy-makers and other stakeholders.  

Promising approaches: 

٠  AT:  As  a  result  of  an  online  consultation  on  the  NRIS,  efforts  to  address 
antigypsyism  intensified.  Fighting  antigypsyism  became  a  priority  under  the 
revised  strategy  and  the  focus  of  a  dedicated  event  of  the  Austrian  EU 
presidency  

٠  DE:  An  independent  expert  commission  on  antigypsyism  has  been  set  up  to 
provide  the  government  with  concrete  recommendations  regarding  the  history 
of Sinti and Roma in Germany, their persecution and discrimination, as well as 
recommendations for addressing antigypsism today. 

٠  Recognition  of  the  Roma  Holocaust  and  setting  up  of  a  committee  against 
racism  with  Roma  participation  (SK);  monuments,  exhibitions  and  online 
platform  to  commemorate  Roma  victims  of  the  Holocaust  (NL);  annual 
commemoration of Roma Holocaust Remembrance Day in Auschwitz-Birkenau 
Concentration  Camp  (PL);  Roma  History  and  Art  Museum  and  compensation 
to victims of forced labour (LV) 

47 BG, EE, ES, HU, HR, PT, SK 
48 ES, FR, HU, LV 
49 IT, ES, SI 
50 AT, CZ, LT, PT 
51 EE, ES, HR, LV 
52 BG, ES, SK 
53 CY, FR, EL, PL, RO 

Priorities to be addressed: 

٠  Develop 

ethnically  disaggregated 
to 
(anonymised)  data  collection 
monitor antigypsyism, discrimination 
and  the  impact  of  public  policies  on 
Roma 

٠  Develop  actions 

fight, 
to 
about,  monitor 

raise 
and 
awareness 
sanction  antigypsyism,  hate  crime 
and  hate  speech  (linked  to  broader 
anti-racism  strategies)  with  Roma 
civil involvement targeting society as 
a whole 

٠  Ensure  the  enforcement  of  equality 
legislation  and  tackle  discriminatory 
treatment  by  law  enforcement  and 

11 

 
 
                                                           
٠  CZ:  The  government  bought  the  pig  farm  located  at  the  site  of  the  former 
concentration  camp  at  Lety  u  Písku.    A  memorial  to  the  victims  of  the  Roma 
Holocaust will be built with EEA grants support 

٠  SE:  Work  by 

in 
acknowledgement  of  historic  and  current  antigypsyism;  special  police  units 
combating hate crime cooperating with minorities including Roma 

the  Commission  against  Antigypsyism 

resulting 

٠  ES:  Campaigns  to  fight  stereotypes  and  disseminate  Roma  culture  run  by  the 
Roma Culture Institute and regional governments with Roma civil involvement; 
free  legal  aid  service  for  victims  of  discrimination  and  hate  crime  by  bar 
associations  of  Madrid,  Barcelona,  Malaga,  Seville  and  Cordoba;  prosecutor 
specialised in hate crimes and discrimination in Spanish provinces 

٠  IT: The equality body (and NRCP) established a contact centre for complaints 
on  hate  crime  providing  support  and  legal  help  to  victims  and  a  media  & 
Internet observatory training Roma and non-Roma youth to monitor, remove or 
report hate speech  

٠  FI: Antidiscrimination campaigns against hate crime and hate speech by NGOs 
with Roma involvement; awareness raising among Roma on gender roles within 
the family; obligatory equality planning by municipalities and larger employers 
monitored by the Non-discrimination Ombudsman’s office 

٠  IE:  A  code  of  ethics  for  the  Irish  police  with  specific  reference  to  fighting 
discrimination  against  the  Traveller  community;  appointment  of  277  ethnic 
liaison officers to build trust between Travellers and the police 

٠  CZ,  EL,  HU  SK,  RO:  Mapping  of  socially  excluded/Roma  communities  that 

can be used to target interventions including those funded from ESIF 

٠  UK: Facility for the online reporting of hate crime 

other  public  authorities 
thorough 
sanctions, 
antidiscrimination training 

through 
investigation,  dissuasive 
and 

sensitisation 

٠  Support  Roma  access  to  justice  with 
a  focus  on  victims  of  multiple 
discrimination (women, LGBTI, non-
citizen  Roma),  and  reinforce 
the 
capacity  of  equality  bodies  to  deal 
with discrimination against Roma 

٠  Set 

up 

Roma-led truth 

and 
reconciliation  processes  to  explore, 
document  and  raise  awareness  about 
past  abuses  against  Roma,  and 
promote trust and reconciliation 

٠  Empower  Roma  to  participate  fully 
in  political,  cultural  and  social  life 
and all stages of the policy process 
٠  Follow  a  holistic,  gender  and  child 
sensitive approach; fight child abuse, 
early  marriages,  begging  involving 
children  (through  the  enforcement  of 
legislation protecting children rights), 
in 
violence, 
human beings  

trafficking 

including 

٠  Alleviate  the  social  costs  of  begging 

and maintain human dignity 

III. ROMA INCLUSION IN THE ENLARGEMENT REGION 
Western  Balkans  geared  up  their  ambition  beyond  expectations  and  mandate54 and  endorsed  the 
same  Roma  inclusion  objectives  and  working  methods55 as  Member  States.  Solid  and  sustainable 
improvements on Roma integration are necessary to progress towards the EU. To take into account 
the effects of previous accessions, especially in the field of free movement of persons, progress on 
Roma integration is  for the first  time included as a full element  in  the ongoing negotiation in  the 
accession process for Chapter 23 “Judiciary and fundamental rights”. The results of the 2017 survey 
on the socio-economic situation of the Roma in the Western Balkans, has allowed the partners to 
identify new  challenges, such as enhanced support for successful reintegration of  returnees to  the 
region, and establish a solid basis for defining the requirements of the future Roma policy.  For the 
first time a dedicated annex to this Communication focuses on Roma inclusion in the enlargement 
region presenting both detailed horizontal and country specific information. 

IV. CONCLUSIONS 

The  review  of  Roma  inclusion  measures  underline  the  need  to  identify  and  develop  with  active 
Roma  involvement  interventions  that:  respond  to  and  are  proportionate  with  the  scale  of  the 
challenges;  promise  measurable  results;  and  include  realistic  options  to  generate  acceptance  by 
society  at  large.  Success  factors  for  planning,  implementation  and  monitoring  Roma  inclusion 
interventions are identified as follows: 

٠  Sufficient  time  not  only  for  implementation,  but  for  planning,  consultation,  engaging 
stakeholders, building trust with communities, monitoring, evaluation and policy review 

54  Point 6: “Promoting Roma Integration Beyond the EU: the particular situation of enlargement countries”. Three objectives were 
set for the enlargement countries: improved used of IPA funds; enhanced monitoring; closer cooperation with civil society. 
55 Report annually on implementation; appointed National Roma Contact Points; held Annual National Platforms closely involving 
civil society organisations; held Roma Seminars; report on fulfilment of their commitments in the Enlargement Package and the 
Stabilization and Association Agreement Subcommittees. 

12 

 
 
 
                                                           
٠  Systematic collection of robust data disaggregated by gender and age to inform needs and 
context analysis; build a baseline; set targets; and populate outcome and impact indicators 
٠  Embedding targeted interventions in mainstream policy and legal frameworks to ensure 
that  they  remain  temporary  and  promote  effective  equal  access  of  Roma  to  mainstream 
services, instead of creating permanent parallel structures 

٠  Strong  multi-stakeholder  partnership  –  to  ensure  ownership,  shared  responsibility  and 

sustainability56 

٠  Active participation of Roma and all stakeholders in all stages (planning, implementation, 

monitoring, evaluation and policy review) 

٠  Intersectional, cross-sectoral, integrated approaches to tackle multiple discrimination and 

multi-dimensional exclusion 

٠  Gender and child sensitive approach: planning, based on the analysis of the needs of Roma 
women and children; comprehensive approach; and continuous support especially in critical 
transitions 

٠  Accounting  for  the  diversity  among  Roma:  reflect  on  the  real  needs;  ensure  sensitivity  to 
local contexts; and address the exclusion and discrimination patterns faced by specific Roma 
communities 

٠  Tackling  extreme  poverty  with  a  combination  of  territorial  and  group  targeting  in 

comprehensive interventions to promote long-term change 

٠  Explicit  but  not  exclusive  targeting  to  ensure  consideration  of  the  wider  context  and 

prevent resentment from other disadvantaged groups 

٠  Prioritisation of  prevention and early  intervention  to  ensure cost  efficiency and  generate 

long-term, sustainable change 

٠  Desegregation  (in  education  and  housing)  as  a  long-term  priority  instead  of  improving 

quality in segregated settings 

٠  Recognition  of  antigypsyism  to  promote  a  strong  non-discrimination  approach  in  Roma 

inclusion interventions in all areas57 

٠  Expertise to ensure quality, non-discriminatory services 
٠  Building the capacity of civil society, public administration and Roma 
٠  Visible, long-term political and sufficient financial support (including allocation from the 

national budget) to ensure institutionalisation of promising practices and sustainability 

٠  Flexibility to ensure success by allowing for policy learning and adjustment 
٠ 

Independent quantitative and qualitative  monitoring  and  evaluation  to measure progress, 
and ensure policy review 

56  This  also  implies  close  cooperation  between  stakeholders  working  with  Roma  and  those  developing  and  implementing 
mainstream public policies, as well as cooperation between local public and private service providers with civil society  working 
closely with Roma communities. 
57 This should also include the recognition of the specificities of antigypsyism, hate crime and anti-Roma rhetoric, as well as the 
challenges faced by Roma victims in accessing justice, protection and support (such as underreporting also due to fear of 
discrimination or reprisal by investigating authorities, risks of re-victimisation, impact of the authorities' own biased attitudes on 
criminal law responses, etc.). 

13