EN EN

EUROPEAN COMMISSION

Brussels, 3.11.2026 COM(2026) 602 final

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE

COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE

COMMITTEE OF THE REGIONS

on the progress made in the implementation of the national Roma strategic frameworks in light of the EU Roma strategic framework for equality, inclusion and participation and the

Council Recommendation on Roma equality, inclusion and participation

{SWD(2026) 330 final}

0

Contents

INTRODUCTION .................................................................................................................................. 1

I. PARTNERSHIPS AND INSTITUTIONAL CAPACITY ........................................................ 2

II. EU OBJECTIVES ...................................................................................................................... 4

II.I Fight and prevent antigypsyism and discrimination ........................................................... 4

II.II Reduce poverty and social exclusion .................................................................................. 7

II.III Promote participation through empowerment, cooperation and trust ................................. 9

II.IV Increase effective equal access to quality inclusive mainstream education ...................... 11

II.V Increase effective equal access to quality and sustainable employment ........................... 12

II.VI Improve Roma health and increase effective equal access to quality healthcare and social

services……………………………………………………………………………………………...14

II.VII Increase effective equal access to adequate desegregated housing and essential services 16

III. ROMA IN THE ENLARGEMENT REGION......................................................................... 18

IV. EU ACTION ............................................................................................................................ 19

CONCLUSION ..................................................................................................................................... 24

1

INTRODUCTION

The European Union (EU) is founded on the principle that all its citizens should be able to

participate fully in society. Equality, inclusion and respect for fundamental rights are core EU

values guiding EU legislation, policies and actions. These values are essential for social

cohesion, economic resilience and long-term competitiveness. In this context and in line with

its Union of Equality agenda, the Commission has made non-discrimination and inclusion a

key priority. Promoting Roma equality, inclusion and participation is an integral part of this

commitment and helps implement the rights and principles enshrined in the Treaties and the

Charter of Fundamental Rights.

Roma1 are Europe’s largest ethnic minority with an estimated population of 10 to 12 million

people across the continent, of whom more than 6 million live in the EU2. This number is

expected to increase significantly with the accession of Western Balkan countries. Despite

ongoing national and EU efforts, many Roma continue to face discrimination, antigypsyism

and socio-economic exclusion. To address these persistent inequalities, the strengthened EU

Roma strategic framework for equality, inclusion and participation for 2020-2030 was adopted

on 7 October 2020. It introduced seven EU-level objectives3, and proposed for the first time

EU headline quantitative targets for 2030. It promotes a ‘common but differentiated approach’

under which all Member States work towards achieving shared EU-level objectives and

implementing minimum commitments while adapting their measures to national circumstances

and the size of their Roma populations. Member States with significant Roma populations are

expected to adopt more ambitious commitments. The framework was reinforced by the Council

Recommendation of 12 March 2021, in which Member States committed themselves to

adopting and implementing their national Roma strategic frameworks (NRSFs). The

implementation of these EU instruments is supported by national Roma contact points

(NRCPs), EU funding, monitoring mechanisms and mutual learning, which together provide a

shared framework for action, accountability and coordination, turning common goals into a

collective European commitment.

As part of the EU Roma strategic framework’s biennial monitoring cycle, all Member States4

submit progress reports on their NRSFs to the European Commission. On this basis, the

Commission publishes a consolidated assessment of progress across the EU. This third

Commission implementation report covers developments between 1 June 2023 and 31 March

20255.

1 The reference to ‘Roma’, as an umbrella term, encompasses a wide range of different people of Romani origin

such as: Roma, Sinti, Kale, Romanichels and Boyash/Rudari. It also encompasses groups such as Ashkali,

Egyptians, Yenish, Dom, Lom, Rom and Abdal, as well as traveller populations, including ethnic Travellers or

those designated under the administrative term Gens du voyage and people who identify as Gypsies, Tsiganes or

Tziganes, without denying the specific characteristics of these groups. 2 Council of Europe, Commissioner for Human Rights (2025), The Unheard 12 Million – Council of Europe

Commissioner issues urgent wake-up call to act for Roma and Traveller rights, 1 October 2025. 3 i) Fight and prevent antigypsyism and discrimination; ii) Reduce poverty and social exclusion to close the socio-

economic gap between Roma and the general population; iii) Promote participation through empowerment,

cooperation and trust; iv) Increase effective equal access to quality inclusive mainstream education; v) Increase

effective equal access to quality and sustainable employment; vi) Improve health and increase effective equal

access to quality healthcare and social services; and vii) Increase effective equal access to adequate desegregated

housing and essential services. 4 With the exception of Malta. 5 The measures implemented after the reporting period are only included in this report if the NRCPs declare them

to the Commission.

2

In addition to national reports, this assessment draws on two further sources of evidence. First,

the Roma Survey 2024, conducted by the EU Agency for Fundamental Rights, which provides

comparable data on the situation of Roma6. Second, contributions from Roma and pro-Roma

civil society organisations and other stakeholders (hereinafter ‘stakeholders’), which were

gathered through three key initiatives: the Roma Civil Monitoring initiative (RCM), a dedicated

Implementation Dialogue with Commissioner Lahbib and a Call for Evidence. These inputs

provide valuable insights into the challenges stakeholders face in implementing the EU Roma

strategic framework and into ways of improving its implementation.

Member States have taken measures to strengthen governance and monitoring, combat

antigypsyism and discrimination, and improve Roma access to education, employment,

healthcare and housing, including through EU-funded initiatives. Findings from the Roma

Survey 2024 show improvements since 2016, including reductions in severe material

deprivation and the proportion of young Roma not in employment, education or training

(NEET), an increase in the proportion of Roma in paid work, increased participation in early

childhood education and care, and improved housing conditions. Nevertheless, progress

remains uneven across Member States and policy areas, and significant challenges remain in

translating policy commitments into tangible improvements for Roma.

This report assesses the implementation of national Roma strategic frameworks and progress

towards the objectives and targets set out in the EU Roma strategic framework. It also covers

developments in the enlargement region and relevant EU-level actions. It is complemented by

a staff working document containing country factsheets prepared by the Commission and an

overview of national quantitative targets and reported progress prepared by the EU Agency for

Fundamental Rights (see Appendix).

I. PARTNERSHIPS AND INSTITUTIONAL CAPACITY

Effective governance is essential for implementing the NRSFs. While all Member States have

set up governance structures centred on NRCPs, significant differences remain in institutional

capacity, coordination, stakeholder participation and local implementation. These

arrangements must be strengthened to turn national strategies into effective action. In this

context, stakeholders highlighted persistent challenges in translating NRSFs into effective local

action, in particular: fragmented governance, limited municipal capacity, and political

sensitivities affecting the prioritisation and implementation of Roma inclusion measures. This

underlines the need for stronger support through capacity-building and technical assistance.

Main achievements

All reporting Member States have designated NRCPs responsible for coordinating the

implementation of their NRSFs. In several countries, steps have been taken tostrengthen the

functioning of NRCPs by increasing the number of staff, improving institutional arrangements,

or providing more budgetary resources7. In several cases, NRCPs are directly involved in

programme monitoring and coordination mechanisms8. This helps to better integrate Roma

inclusion priorities into broader social and cohesion policies. For example, in Slovakia, the

NRCP is a full member of the Monitoring Committee for Programme Slovakia 2021-2027, a

cohesion policy programme co-funded by the European Social Fund Plus (ESF+) and the

6 The survey covers 10 Member States (BG, CZ, FR, EL, HU, IE, IT, PT, RO, ES) and three candidate countries

(AL, MK, RS). 7 BE, BG, CZ, DE, EL, ES, FR, HU, HR, IE, IT, LT, LV, RO, SI, SK. 8 BG, CZ, EL, ES, FR, HR, HU, LV, IT, RO, SK.

3

European Regional Development Fund (ERDF), and coordinates a specific commission

dedicated to marginalised Roma communities. Cyprus established a monitoring committee for

its NRSF, bringing together ministries and Roma representatives to strengthen coordination

and participation in policymaking.

Implementation of Roma inclusion measures also relies oncooperation with regional and local

authorities. Municipalities play an important role in implementing measures in key areas such

as education, housing and social services. For instance, Greece has implemented a framework

under which 85 municipalities have already submitted local action plans for Roma inclusion to

ensure alignment with national priorities.

A total of 20 Member States9 regularly monitor the implementation of their NRSFs and have

defined at least one quantitative or qualitative target. Encouragingly, almost all countries with

significant Roma populations have established quantitative targets and indicators for at least

five objectives. Czechia, Slovakia and Spain have developed robust monitoring frameworks

aligned with the EU Roma strategic framework indicators, while Bulgaria’s framework is more

limited but broadly aligned with these indicators. Monitoring frameworks in the remaining

Member States with significant Roma populations are at different stages of development, with

some indicator or target values still to be defined or to be completed at the time of reporting

(see Appendix), affecting the assessment of progress towards national targets.

Where national targets under national Roma strategic frameworks have been established (target

years vary), available information shows differing progress towards achieving them: Bulgaria

reports having reached its 2030 targets in pre-primary education participation and upper

secondary education attainment and some progress in other areas; Slovakia is on track with its

2030 targets related to Roma housing and participation; Spain has reached some of its 2026

targets related to antigypsyism but lags behind in other areas, particularly education; Czechia

shows limited or no progress towards its 2030 targets. The information provided by Hungary,

Greece and Romania does not allow for an assessment of progress towards their national targets

(2030 for Hungary and Greece, and 2027 for Romania; see Appendix). The analysis by the EU

Agency for Fundamental Rights shows improvements in 10 of the 16 indicators since 2016.

However, progress remains insufficient to achieve most of the EU Roma strategic framework's

objectives and targets by 2030, while the employment objective is currently on track.

Assessment and remaining challenges

Member States have continued to strengthen governance structures supporting Roma inclusion.

Ensuring that NRCPs have sufficient institutional capacity and resources remains essential for

effective cross-sectoral coordination. Roma inclusion is increasingly integrated into

mainstream policies but these often lack Roma-specific safeguards and outreach measures to

ensure that Roma can access and benefit from them.

Weak coordination between national and local authorities remains a major bottleneck, making

it more difficult to turn national strategies into effective local action. In decentralised systems,

implementation often remains discretionary, with municipalities avoiding implementing

measures perceived as politically sensitive, such as desegregation, in favour of short-term, low-

conflict measures.

Obtaining consistent results requires more robust governance arrangements, including clearer

responsibilities, effective monitoring and increased accountability. Boosting coordination and

9 BE, BG, CY, CZ, EE, EL, ES, FI, HR, HU, IE, IT, LV, LT, NL, PL, RO, SE, SI, SK.

4

administrative capacity, especially through targeted capacity-building and appropriate

incentives at municipal level, can improve the implementation of Roma inclusion measures

and increase the effective absorption of EU funds. Strengthening the link between governance

structures and the implementation of EU-funded programmes remains essential.

Further efforts are needed to bolster monitoring frameworks across Member States. In some

cases, targets and indicators have not yet been defined or remain incomplete, while monitoring

relies predominantly on output rather than outcome indicators. These shortcomings reflect

broader limitations in data availability and comparability across the EU. In several Member

States, official statistics do not adequately capture Roma populations, making it difficult to

assess inequalities and progress over time. More comparable methodologies, together with

disaggregated and proxy data10 where appropriate and legally permissible, would strengthen

evidence-based policymaking and improve the completeness and comparability of reporting.

Where sample sizes permit, monitoring could also capture disparities within the Roma

population, alongside comparisons with the general population.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives in line with the

‘common but differentiated approach’, the Commission calls on Member States, particularly

those with significant Roma populations, to:

• strengthen the mandate, staffing and funding of NRCPs, ensure their effective

involvement in the coordination and monitoring of mainstream and targeted policies

as well as EU-funded programmes, and empower them to track progress against the

EU Roma strategic framework;

• strengthen monitoring of the national Roma strategic frameworks to track

progress against clear targets and outcome indicators aligned with the EU Roma

strategic framework, using disaggregated and proxy data where appropriate and

legally permissible;

• step up coordination across governance levels, particularly by strengthening local

implementation through clearer responsibilities, greater stakeholder participation,

increased municipal administrative capacity and improved accountability

mechanisms.

II. EU OBJECTIVES

This section reviews progress made in achieving the seven objectives of the EU Roma strategic

framework. For each objective, the relevant EU Roma strategic framework headline targets for

2030 are presented, providing the benchmarks against which progress is assessed.

II.I Fight and prevent antigypsyism and discrimination

2030 EU Roma strategic framework headline targets:

➢ cut by at least half the proportion of Roma who have experienced discrimination

➢ decrease by at least one third the proportion of the general population who feel

uncomfortable having Roma as neighbours

10 Available at: https://commission.europa.eu/system/files/2020-10/portfolio_of_indicators_en.pdf.

5

Antigypsyism is recognised as a form of racism against Roma people11 that continues to drive

social exclusion and discrimination across the EU, undermining access to education,

employment, healthcare, housing and other essential services. As it heavily influences overall

progress on Roma equality, inclusion and participation, combating antigypsyism is both a

standalone objective and a cross-cutting priorityof the EU Roma strategic framework.

Findings from the Roma Survey 2024 indicate that nearly one in three Roma (31%)

experienced discrimination based on ethnic background. Levels of institutional trust also

remain relatively low: only around half of Roma respondents (49%) report trusting the police

in their country, while just two in five (40%) express trust in the national legal system. Based

on the results of the 2023 Eurobarometer, only 67% of respondents from the Member States

would feel comfortable having daily contact with a Roma colleague at work12. Stakeholders

highlighted that, despite growing recognition in policy frameworks, efforts to address

antigypsyism remain fragmented and often short-term, underscoring the need for more

systematic and mainstreamed action.

Main achievements

Over the reporting period, a significant number of Member States took steps to boost the

recognition and visibility of antigypsyism. Some Member States13 increased institutional

capacity to combat antigypsyism; in particular, Germany established the independent

Antigypsyism Reporting and Information Centre (MIA), Spain set in motion the drafting of the

State Pact against Antigypsyism and Lithuania launched consultations on a specialised Expert

Commission to Combat Antigypsyism. Policy and institutional frameworks were strengthened

through the formal adoption of the definition of antigypsyism in Czechia and Slovakia. Public

awareness was further promoted through media and awareness-raising campaigns, including

Latvia’s documentary series14 produced under the EU-funded Latvian Roma Platform.

Several Member States15 strengthened support services for victims of discrimination and hate

offences through improved complaint mechanisms, legal aid and outreach services. Bulgaria,

for instance, provided thousands of legal consultations through mobile teams mainly in remote

locations16 and introduced a mobile application to facilitate access to justice17.

Awareness-raising initiatives and commemorative events – such as Roma Holocaust Memorial

Day and International Roma Day – gained wider recognition in many Member States18,

contributing to greater public awareness of Roma history and culture. For instance, in France

the Montreuil-Bellay Memorial Project recognises the persecution of around 1 850 Roma

during the Second World War and raises awareness through a memorial site and a planned

museum. In October 2025, the Dutch House of Representatives adopted the Tseggai motion,

11 Antigypsyism (a form of racism against Roma) is a historically rooted structural phenomenon that appears at

institutional, social and interpersonal levels. It has its origins in how the majority views and treats those considered

‘gypsies’. It is rooted in a process of ‘othering’ that builds on negative as well as positive, exoticising stereotypes. 12 New data concerning the Roma neighbour indicator will be available in the upcoming 2026 Eurobarometer. 13 AT, BE, BG, CZ, DE, EL, ES, FR, IE, IT, LV, LT, NL, RO, SK, SE. 14 Available at: https://www.youtube.com/@KulturasMinistrija/videos. 15 AT, BG, CZ, DE, EL, ES, FI, HR, IE, IT, LT, LV, SK. 16 Available at: https://www.justice.government.bg/home/index/1201f1c6-798b-41b6-a874-052e228ac8a1?top=1 17 Available at:

https://apps.apple.com/bg/app/%D0%BF%D0%BE%D0%BC%D0%BE%D0%B3%D0%BD%D0%B8-

%D0%BC%D0%B8/id6471497775. 18 AT, BE, BG, CY, CZ, DE, EE, EL, ES, FR, HR, HU, IT, LU, LV, LT, NL, PT, RO, SK.

6

formally recognising Dutch Roma, Sinti, and Travellers as a national minority under the

Council of Europe's Framework Convention for the Protection of National Minorities.

Assessment and remaining challenges

Despite the growing policy attention being paid to antigypsyism, the implementation and

enforcement of measures to combat antigypsyism and Roma discrimination remain uneven and

fragmented across Member States, reflecting persistent gaps in political commitment and weak

enforcement mechanisms. As a result, institutions are often not held sufficiently accountable

for practices such as segregated education and forced evictions.

Underreporting of discrimination and hate incidents remains widespread, driven by low trust

in institutions, the fear of reprisals and limited awareness of complaint mechanisms. There is

therefore a shortage of reliable data, making it difficult to design and evaluate effective policy

responses. At the same time, concerns about policing practices – including ethnic profiling and

the disproportionate use of force – continue to be reported as major barriers to trust and

inclusion.

Persistent gaps, at national and subnational levels, in ethnicity-disaggregated data on

discrimination against Roma populations and on multiple and intersecting forms of

discrimination, combined with uneven monitoring practices, continue to hamper the

assessment of trends and outcomes. Equality bodies in many Member States have limited

resources, powers or independence, reducing their ability to provide effective redress and

engage in strategic litigation. Member States were required to transpose the new EU Directives

on equality bodies19 by June 2026. Correct implementation and full compliance will be

essential for strengthening the independence, resources and effectiveness of equality bodies

and addressing these shortcomings.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• strengthen the implementation and enforcement of EU anti-discrimination and

hate crime legislation by: (i) ensuring adequate sanctions; (ii) improving access to

complaint mechanisms; (iii) systematically recording incidents of antigypsyism; and

(iv) addressing underreporting through measures that build trust in public institutions

and monitor changes in institutional trust;

• promote public awareness, remembrance and education initiatives addressing

Roma history, culture and antigypsyism, including through school curricula,

teacher training, media engagement and commemorative activities to counter

stereotypes and prejudice in society;

• systematically address antigypsyism across sectoral policies – particularly in

education, employment, healthcare and housing – by tackling discrimination,

strengthening institutional practices, and promoting awareness-raising and training

for key professionals.

19 Council Directive (EU) 2024/1499 of 7 May 2024 and Directive (EU) 2024/1500 of the European Parliament

and of the Council of 14 May 2024 establishing standards for equality bodies. Available at: https://eur-

lex.europa.eu/eli/dir/2024/1499/oj and https://eur-lex.europa.eu/eli/dir/2024/1500/oj.

7

II.II Reduce poverty and social exclusion

2030 EU Roma strategic framework headline targets:

➢ cut by at least half the poverty gap between Roma and the general population

➢ cut by at least half the poverty gap between Roma children and other children

Persistent poverty among Roma remains a serious concern across the EU. Children are

disproportionately affected, as they face cumulative disadvantages from an early age that

increase the risk of intergenerational exclusion and significantly limit social mobility.

Findings from the Roma Survey 2024 confirm that poverty and economic hardship remain

widespread among Roma communities. Overall, 77% of Roma children are at risk of poverty

– around four times higher than the rate for the general population. In addition, 40% live in

households experiencing severe material deprivation20. This has improved substantially since

2016 (66%), but levels remain significantly higher than for the general population (7%21).

Stakeholders emphasised the multidimensional and intergenerational nature of Roma poverty

and the need for integrated policy responses across sectoral areas (education, employment,

healthcare, housing). They also noted that while several Member States have strengthened

social protection systems, increased financial benefits or improved access to them, Roma-

targeted measures addressing poverty and social exclusion remain limited, particularly those

aimed at overcoming barriers to accessing mainstream support, such as administrative

obstacles, limited access to information and low levels of trust in public institutions.

Main achievements

Many Member States22 reported measures aimed at improving access to social protection, in

particular through outreach mechanisms such as Belgium’s Bridging Figures (Flanders), which

reached thousands of vulnerable families including many Roma and provided practical support

in accessing local schools and public services. This approach helped to build mutual trust

between local Roma and public institutions while strengthening the self-reliance of local Roma

people.

A limited number of Member States23 reported the implementation of Roma-targeted measures

addressing poverty and social exclusion, while some Member States24 address these challenges

as a cross-cutting issue in other sectoral objectives. For instance, Italy’s Accedere and Salute

projects, co-funded by the ESF+ and targeting Roma as one of the disadvantaged groups, put

in place an integrated, cross-sectoral approach that contributed to a significant reduction in

residents living in segregated settlements.

Several Member States25 also reported a focus on child poverty among Roma supported by EU

funding instruments. For example, Bulgaria introduced an ESF+-co-funded scheme providing

20 Severe material deprivation is defined as a household's inability to afford at least four out of nine essential

items or expenses, including adequate heating, regular nutritious meals and unexpected expenses (Roma Survey

2024, p. 32). 21 Available at: Eurostat 2020,

https://ec.europa.eu/eurostat/databrowser/view/ilc_mddd11__custom_22313195/default/table. 22 AT, BE, BG, FI, FR, DE, EL, HU, IT, NL, RO, SK, ES. 23 FI, HR, ES, PL, RO, SK. 24 AT, CZ, IT, RO, SK. 25 BG, HR, ES, IT, SI, LU.

8

meal vouchers and accompanying support to children from disadvantaged families and Croatia

deployed mobile outreach teams to support families in isolated settlements26.

Assessment and remaining challenges

Despite ongoing efforts, poverty among Roma communities remains widespread and continues

to represent one of the most persistent forms of socio-economic exclusion in the EU. Some

progress has been reported, particularly through measures improving access to social protection

and social services. However, progress remains limited and uneven, with most measures

focusing on access to benefits rather than addressing the structural drivers of poverty.

The COVID-19 crisis made matters worse, widening existing gaps and reversing some of the

progress achieved before 2020, with effects that continued to be felt throughout the reporting

period. Territorial disparities and the uneven distribution of services further hinder inclusion,

particularly in remote areas. Authorities should proactively address ‘invisible barriers’ such as

digital exclusion and a lack of identity documentation or property deeds, which prevent the

most marginalised households and homeless Roma from accessing social protection.

Roma poverty and social exclusion are driven by interlinked, deep-rooted disadvantages that

persist across generations. Addressing these challenges requires integrated policy responses

combining social protection with measures in education, employment, housing and health.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• align Roma inclusion measures with mainstream anti-poverty and children’s

rights policies, including through Roma-specific safeguards and indicators to ensure

equal access for Roma families and children;

• improve access to social protection and public services, including by simplifying

administrative procedures and addressing ‘invisible barriers’ such as digital

exclusion, lack of identity documentation or property deeds and limited outreach to

the most marginalised Roma;

• develop integrated, long-term responses to Roma poverty and social exclusion,

combining social protection with measures in education, employment, housing and

healthcare to address structural and intergenerational disadvantages.

The Principles for effective anti-poverty policies, published alongside the Anti-Poverty

Strategy, aim to guide effective anti-poverty strategies at national, regional and local level.

They include the following points, which are of particular relevance in the context of this

Report:

• financial resources are aligned with policy objectives by using EU funds,

including funding linked to the implementation of the national and regional

partnership plans, to support and complement the efforts of national, regional and

local authorities in fighting poverty and social exclusion;

26 Available at: https://www.centar-medjimurje.hr/.

9

• targeted measures are developed to support groups at higher risk of poverty or

social exclusion, including Roma;

• targeted programmes are in placeto improve the level and quality of learning

opportunities for pupils and students from low-income households (additional

funding for schools, professional development of teachers, mentoring, scholarships

and financial aid, access to facilities and materials, desegregation measures, including

for Roma, etc.);

• systematic mapping of segregated Roma settlements with the consent of the

communities and assessment to identify levels of poverty risk, severe material

deprivation, and gaps in access to essential services, while ensuring their inclusion in

urban planning processes.

II.III Promote participation through empowerment, cooperation and trust

2030 EU Roma strategic framework headline targets:

➢ capacitate and engage at least 90 NGOs in EU-wide coordinated Roma civil society

monitoring

➢ ensure participation of Roma NGOs as full members in monitoring committees for all

programmes addressing the needs of Roma communities

➢ double the proportion of Roma who report discrimination when it occurs

➢ promote participation of Roma in political life at local, regional, national and EU level,

in Member States with significant Roma populations

The meaningful participation of Roma is essential for addressing long-standing inequalities,

strengthening democratic governance and building trust in public institutions. Awareness of

institutional support structures has increased, with 46% of Roma respondents having heard of

at least one equality body or similar institution, compared with 29% in 2016. Stakeholders

stressed that, despite the expansion of formal participation structures, Roma participation often

remains limited or tokenistic. Unstable funding and, in some contexts, restrictions on civic

space continue to limit meaningful participation.

Main achievements

Member States reported gradual progress in Roma political participation at both local and

national levels. Roma representatives are increasingly present in local councils27, mayoral

positions28 and national parliaments29. While these are positive developments, Roma

participation in political decision-making remains limited overall, and Roma representatives

continue to be significantly underrepresented in elected and senior public office positions

across most Member States.

Several Member States30 reported having set up or strengthened consultative bodies linked to

the implementation of NRSFs or related policy processes, involving Roma civil society. For

example, Austria’s Roma Dialogue Platform, funded by the EU, has firmly established itself

as a stable instrument facilitating dialogue between Roma civil society and the public

administration. Germany’s Participatory Data Dialogue, led by the Federal Anti-

27 AT, BG, CZ, IT, ES. 28 BG, EL, SK. 29 RO, SK, IE, HR and most recently also in HU. 30 AT, BE, BG, CZ, EL, ES, FR, IT, IE, LV, NL, SK.

10

Discrimination Agency, brings together public authorities and civil society to develop

community-approved methods for collecting data on discrimination.

At grassroots level, several Member States31 reported Roma involvement in bottom-up

initiatives. A key example is Slovakia’s EU-funded participatory local planning Development

Teams project, which organised over 120 community forums to support local planning, while

Estonia focused on strengthening local dialogue by opening the Roma Youth Centre in Valga

and the Roma Cultural Centre in Tallinn.

Assessment and remaining challenges

While the establishment of consultative bodies reflects growing institutional recognition of

Roma participation, involvement often remains confined to formal consultation with limited

influence on agenda-setting and policy outcomes. A key challenge remains ensuring that

participation mechanisms have a tangible impacton policies and outcomes.

Participatory monitoring of fundamental rights is gradually developingacross the EU, with

several Member States setting up specialised bodies to oversee the implementation of

legislation on hate offences and anti-discrimination32. However, practices remain inconsistent,

and administrative, legal and financial constraints continue to limit the operational and

advocacy capacity of many Roma and pro-Roma organisations, particularly at local level. This

affects the ability of such organisations to engage in monitoring, support communities and

participate in policy processes. Low levels of trust in institutions, experiences of discrimination

and, in some contexts, restrictions on civic space continue to undermine participation and

engagement.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• strengthen institutional frameworks for Roma participation and promote Roma

political representation, ensuring that Roma representatives and Roma and pro-

Roma organisations have meaningful and diverse representation and influence on

national, regional and local agenda-setting, policymaking, implementation and

monitoring;

• increase participatory monitoring and accountability, through the systematic

involvement of Roma and pro-Roma civil society in data collection, oversight and

monitoring of anti-discrimination and Roma inclusion measures, including as full

members of relevant monitoring committees;

• provide sustainable support for Roma and pro-Roma organisations through

simplified administrative procedures, multiannual funding and capacity-building,

while protecting civic space, addressing discrimination and strengthening trust in

public institutions.

31 BE, BG, CZ, FR, EL, HU, IT, RO, SK. 32 AT, IE, DE, HU, HR.

11

II.IV Increase effective equal access to quality inclusive mainstream education

2030 EU Roma strategic framework headline targets:

➢ cut by at least half the gap in participation in early childhood education and care

➢ cut by at least half the proportion of Roma children attending segregated primary schools

➢ reduce by at least one third the gap in upper secondary education completion

Education is a key prerequisite for equal opportunities, social mobility and active participation

in society, and the right to quality and inclusive education is enshrined in the first principle of

the European Pillar of Social Rights. For many Roma, however, equal access to quality and

inclusive mainstream education remains out of reach, although it is essential for overcoming

exclusion and enabling their full participation in society and the economy.

Findings from the Roma Survey 2024 show some progress in this area but disparities persist.

Participation in early childhood education and care33 increased from 42% in 2016 to 53% in

2024 but remains far below the EU average of 95%34. Only around one third of young Roma

complete upper secondary education, compared with more than four in five in the general

population. Segregation also persists, with nearly half of Roma children attending schools

where most or all classmates are Roma. Stakeholders noted some progress, particularly in early

childhood education and care and efforts to reduce early school leaving. At the same time, they

emphasised that sustained progress in inclusive education requires stronger desegregation

measures, long-term funding and improved monitoring.

Main achievements

Over the reporting period, almost all reporting Member States35 took steps to make their

education systems more inclusive and improve Roma children’s access to quality learning.

Participation in early childhood education and care increased significantly, particularly in

Bulgaria, Hungary, Slovenia and Slovakia, where governments expanded affordable or

mandatory pre-school attendance and strengthened engagement with Roma parents. More

support was also made available to Roma students in secondary and tertiary education, with

several countries increasing access to scholarships, mentoring, and affirmative action

measures36. This was the case, for example, in Romania, where over 72 000 Roma students

received social scholarships. Hungary’s network of 180 Tanodas supports primarily Roma

pupils from disadvantaged backgrounds through extracurricular activities to prevent school

drop-outs.

In some Member States37, EU-funded pilot projects – particularly under the ESF+ and the

Recovery and Resilience Facility (RRF) – have been scaled up and integrated into national

education systems. For example, Bulgaria has successfully transitioned more than 1300

educational mediators from project-based support to permanent state-funded positions. Some

Member States38 also took steps to address segregation more directly, including transport

support, adjustments to enrolment procedures and additional teaching staff. In Slovakia, legally

33 Children between 3 years old and the starting age for compulsory primary education. 34 Available at: Eurostat 2023,

https://ec.europa.eu/eurostat/databrowser/view/educ_uoe_enra21/default/table?lang=en. 35 AT, BE, BG, HR, CY, CZ, DK, EE, EL, ES, FI, FR, HU, IE, IT, LV, LT, NL, PL, PT, RO, SE, SI, SK. 36 HR, HU, PL, PT, RO. 37 BG, CZ, SK. 38 BG, CZ, HR, HU, RO, SK.

12

binding standards prohibiting segregation in education were introduced, supported by a

methodological handbook for schools39.

Assessment and remaining challenges

Building on recent progress, further efforts are needed to close persistent gaps in educational

outcomes between Roma and the general population. In particular, increasing participation in

early childhood education and care and improving completion rates in upper secondary

education remain essential. Advancing systemic approaches to desegregation40 across all levels

of education is critical for ensuring equal access to quality learning and breaking cycles of

disadvantage. At the same time, ensuring that inclusive mainstream settings provide

comprehensive support – including social, emotional, psychological and language support –

can further improve outcomes for Roma students.

Many inclusive education measures continue to rely on short-term project funding, while

monitoring of desegregation outcomes remains uneven, limiting their sustainability and

effectiveness. Existing initiatives – such as mediators, tutoring and pilot programmes – provide

a strong foundation that can be expanded and incorporated into sustainable, system-wide

approaches.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• strengthen systemic desegregation across all levels of education by preventing

and addressing segregation and effectively enforcing anti-discrimination

legislation, while ensuring adequate educational, psychological and language

support and improving coordination between education, social and family services,

and monitoring progress towards quality inclusive mainstream education,

particularly in Member States with significant Roma populations;

• move from short-term project funding to sustainable, flexible and responsive

financing frameworks for inclusive education, enabling schools and

municipalities to effectively allocate resources according to needs, maintain support

staff and keep long-term inclusion measures in place;

• strengthen access to early childhood education and care and support Roma

pupils' transition to and completion of upper secondary education, through

affordable and accessible provision, targeted outreach and parental engagement,

mentoring and measures to prevent early school leaving.

II.V Increase effective equal access to quality and sustainable employment

2030 EU Roma strategic framework headline targets:

➢ cut by at least half the employment gap between Roma and the general population

➢ cut by at least half the gender employment gap among Roma

➢ cut by at least half the gap in the share of young Roma not in employment, education or

training (Roma NEETs)

39 Available at: https://www.minedu.sk/standardy-dodrziavania-zakazu-segregacie/. 40 Systemic approaches to desegregation refer to coordinated structural and policy measures aimed at eliminating

segregation and ensuring equal access to inclusive quality education for all learners, including Roma children.

13

Labour market inclusion is a key driver of poverty reduction, social cohesion and active

participation in society. As the EU faces demographic change and growing labour and skills

shortages, making full use of available human potential is becoming increasingly important.

As one of Europe’s youngest population groups, Roma represent a growing share of future

labour market entrants in several Member States. Yet many still face discrimination, limited

access to education and training, and precarious employment. Advancing Roma equality and

inclusion would therefore contribute to social cohesion and economic growth.

According to the Roma Survey 2024, 54% of Roma are in paid work, compared with 43% in

2016, yet this remains well below the employment rate of the general population (75%41). The

proportion of young Roma not in employment, education or training (NEET) also decreased

from 62% in 2016 to 47% in 2024, although it remains substantially above the rate for the

general population (9%42). Employment inequalities are particularly pronounced for women:

only 38% of Roma women are in paid work, compared with 69% of Roma men, highlighting

a persistent gender gap. Nevertheless, the survey indicates that almost all EU Roma strategic

framework employment targets can be reached by 2030, with significant improvements having

been made in Bulgaria, Hungary, Italy and Spain. Stakeholders highlighted persistent barriers

to labour market inclusion, including discrimination, gender inequalities and fragmented

support systems. They pointed to approaches such as mentoring and mediation, second-chance

education, and targeted support for Roma women as effective measures, and noted the potential

of Roma entrepreneurship to support local socio-economic developments.

Main achievements

Most reporting Member States43 implemented measures to improve Roma access to quality and

sustainable employment, including work placements, apprenticeships and vocational training

programmes. A notable development in Italy and Spain is the emphasis on digital inclusion and

future-oriented skills, aiming to improve Roma access to service and digital sectors44.

Local and regional initiatives are also emerging that target Roma NEETs45 and Roma women46.

For instance, Finland set up a dedicated employer pool to recruit Roma interns across various

sectors47, while Sweden developed outreach tools in Romani languages to engage young

jobseekers. The social economy also offers a pathway to labour market integration48. Slovakia

now employs over 10 100 Roma in social enterprises, Greece set up 14 Roma social

cooperative enterprises, and Czechia submitted an Act on Integrative Social Entrepreneurship.

In addition to established mediator roles across different sectors49, Roma increasingly occupy

higher-level administrative positions. Ireland’s Department of Justice launched a pilot Civil

Service Traveller and Roma Internship Programme. Several Member States50 reported

combining employment support with social inclusion measures such as mentoring, often

through ESF+ funding. A notable example is Belgium’s Rom Werkt project, which uses ESF+

41 Available at: https://ec.europa.eu/eurostat/databrowser/view/lfsi_emp_a__custom_22319809/default/table. 42 Available at: https://ec.europa.eu/eurostat/databrowser/view/edat_lfse_20/default/table. 43 AT, BE, BG, HR, CY, CZ, DK, EE, FI, FR, HU, IE, IT, LV, LT, PL, RO, SK, EL, ES, SE. 44 Accedere|Invitalia is implemented in IT, while Acceder is implemented in ES Gabinete de Comunicación. 45 BG, EE, HR, LV, RO, SK. 46 HU, IE, LT, PT, FI, SE, AT, CZ, ES, SI. 47 Available at: https://romako.diak.fi/romako-askeleet-huomiseen/. 48 CZ, EL, SK, HU, IE. 49 BG, ES, FR, HR, PL, PT, RO, SK. 50 AT, BE, EL, ES, FR, IT, SK.

14

funds to offer culturally sensitive support in employment and participation that is tailored to

Roma needs.

Assessment and remaining challenges

Despite gradual improvement since 2016, Roma participation in the labour market continues

to lag significantly behind that of the general population. A major structural challenge remains

the transition from informal or low-skilled employment to more stable and higher-quality jobs,

which is often hindered by skills gaps and occupational segmentation. To address gaps and

break the cycle of intergenerational poverty, Member States should prioritise adult and lifelong

learning, providing second-chance pathways and literacy support that enable early school

leavers and adults to transition into stable, quality employment.

Many Member States continue to rely primarily on mainstream employment measures, which

often lack Roma-specific outreach and safeguards. Targeted outreach, particularly to Roma

NEETs and women, remains limited, reducing the effectiveness of employment support.

While the expansion of the social economy provides new opportunities for labour market

integration, its role remains limited in scale and does not yet offer a comprehensive pathway

to sustainable employment for most Roma jobseekers. Persistent labour market discrimination

and gender employment gap remain the major barriers, while many initiatives are still short-

term, limiting their sustainability and the transition to stable employment.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• strengthen targeted employment support for Roma, particularly for young people

and women, through outreach, guidance and activation, in cooperation with

employers, public employment services and social partners, including through social

economy initiatives where appropriate;

• combine targeted employment support for Roma with accessible pathways to

vocational training, adult and lifelong learning or second-chance education while

ensuring that mainstream employment measures effectively reach Roma and improve

access to quality and sustainable employment;

• step up action against labour market discrimination and antigypsyism, including

through awareness-raising and stronger enforcement of equal treatment legislation in

cooperation with equality bodies and Roma civil society.

II.VI Improve Roma health and increase effective equal access to quality

healthcare and social services

2030 EU Roma strategic framework headline targets:

➢ cut by at least half the gap in life expectancy between Roma and the general

population

Access to healthcare is a fundamental right and a cornerstone of social inclusion. However,

many Roma communities continue to live in conditions that negatively affect their health,

including poor housing and sanitation, environmental exposure to risks and limited access to

essential services. Barriers such as lack of health insurance, administrative obstacles, distance

15

from healthcare facilities and discrimination in healthcare settings further limit access, with

consequences for both individuals and society.

Findings from the Roma Survey 2024 confirm that health inequalities remain significant. Roma

men live on average 8 years fewer, and women 7.4 years fewer, than the general population.

These gaps reflect persistent inequalities in access to health and healthcare and broader socio-

economic disadvantages. Stakeholders reported that Roma health outcomes are strongly

influenced by social determinants such as housing, employment, poverty and discrimination,

and called for integrated responses combining healthcare with social support and community

outreach. Roma women were identified as facing particularly high health risks, especially when

accessing maternal and reproductive healthcare, highlighting the need for targeted and

culturally sensitive services.

Main achievements

A significant number of Member States51 implemented measures to improve Roma health and

access to healthcare and social services. Several Member States52 further institutionalised the

role of intercultural mediators, with established networks to help Roma navigate health

systems, improve communication with providers, and support treatment adherence. For

instance, Romania employs a stable network of health mediators and community nurses, while

Portugal delivers training for health professionals on structural inequalities and barriers

contributing to lower life expectancy among Roma.

Greece and Bulgaria expanded access to essential healthcare services for uninsured Roma,

including guaranteed newborn screening regardless of insurance status. Others53 have invested

in knowledge-building on Roma health, including through dedicated surveys, targeted data

collection with safeguards, and improved monitoring tools. In Czechia, the deadline for

applications under the compensation scheme for unlawfully sterilised Roma women has been

extended to allow more victims to apply.

Assessment and remaining challenges

Effective and equitable access to healthcare and social services remains a key challenge,

particularly for Roma living in marginalised, rural or remote areas and those without stable

administrative status. Healthcare provision is primarily delivered through mainstream systems.

While measures such as mediators have improved outreach, their impact often remains

localised and dependent on short-term funding. Uninsured Roma – including some mobile EU

citizens and undocumented non-EU nationals – remain at risk of exclusion in several Member

States.

Discrimination and antigypsyism in healthcare settings continue to undermine trust and timely

health-seeking behaviour, while limited monitoring of Roma health outcomes constrains

evidence-based policymaking. Without integrated action to address the broader social

determinants of health and coordinated action across policy areas, improvements in healthcare

access alone are unlikely to significantly reduce inequalities. This should include better mental

health and emotional support to tackle the long-term stress and trauma caused by persistent

discrimination and social exclusion.

51 BE, BG, CZ, FI, FR, DE, EL, HU, IT, NL, RO, SK, ES. 52 BE, BG, ES, LV, LT, PL, RO, SK. 53 SK, SI, FR, ES, IE.

16

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• ensure equal and effective access to quality healthcare by reducing administrative,

financial and other barriers affecting Roma communities, including barriers linked to

insurance coverage, documentation, poverty or residence status, while strengthening

preventive, maternal, reproductive and mental healthcare;

• institutionalise and sustainably fund the role of Roma health mediators and

community outreach services, particularly in marginalised and remote areas, while

promoting culturally sensitive healthcare, health literacy and cooperation between

healthcare, social services and Roma communities;

• address the social determinants of health through integrated policies linking

healthcare to housing, sanitation, education, employment and poverty reduction,

supported by stronger monitoring, Roma participation and sustainable funding,

particularly in Member States with significant Roma populations.

II.VII Increase effective equal access to adequate desegregated housing and

essential services

2030 EU Roma strategic framework headline targets:

➢ reduce by at least one third the gap in housing deprivation

➢ ensure that at least 95% of Roma have access to tap water

➢ cut by at least half the gap in overcrowding

Adequate, desegregated housing is essential for dignity, health and access to basic services and

rights. It has a direct impact on outcomes in education, health and well-being, and also supports

family-based care, preventing unnecessary separation. However, many Roma households

continue to face poor housing conditions and residential segregation across the EU.

The Roma Survey 2024 shows that 47% of Roma live in damp or dark homes or in housing

without proper sanitation (i.e. in housing deprivation). Although this represents an

improvement compared with 2016 (61%), it remains far above the EU average (18%54).

Overcrowding also persists, with 83% of Roma living in households without sufficient living

space. During the consultations, stakeholders noted that housing policies continue to focus

largely on improving living conditions in segregated environments and emphasised the need to

complement mainstream housing policies with targeted measures for marginalised Roma

communities and stronger monitoring of desegregation outcomes.

Main achievements

Approximately half of the Member States reported measures to improve Roma access to

adequate desegregated housing and essential services, using a mix of targeted interventions55

and mainstream systems with safeguards for Roma56. Progress is visible in housing transitions.

In Italy, the number of people living in segregated settlements decreased significantly, while

54 Available at: Eurostat 2023, https://ec.europa.eu/eurostat/databrowser/view/tessi291/default/table?lang=en. 55 BE, BG, CZ, ES, IT, LT, RO, SK. 56 DE, FI, FR, IE, SI.

17

France uses the Resorption-Bidonvilles digital platform to move families out of temporary

slums and into permanent homes. In Slovenia, local authorities integrate segregated settlements

into municipal urban plans, while Romania used the Technical Support Instrument to

strengthen the national and local capacity for integrated interventions in informal settlements.

Legislative developments further anchored these efforts, including the adoption of the

Affordable Housing Law in Luxembourg and the Housing Support Act in Czechia. The Czech

model combines local housing support, anti-discrimination measures and ‘Housing First’

programmes to help Roma families move into stable, integrated homes, while prohibiting social

housing investments in segregated areas. At the same time, some countries focused on

improving infrastructure in existing settlements. Greece and Croatia invested in utilities such

as water, electricity and sewage, while in Poland, housing renovation projects and the purchase

of properties on the secondary market helped Roma families to improve their housing

situation57.

Assessment and remaining challenges

Residential segregation remains the key structural challenge in several Member States, limiting

Roma families’ access to adequate housing and compounding exclusion across education,

employment and healthcare. Forced evictions remain a serious concern, especially when they

occur without sufficient safeguards or access to adequate accommodation.

Pressures in housing markets continue to constrain progress and highlight the need for stronger

measures to expand access to affordable and non-segregated housing. Rising housing costs,

particularly in urban areas, limited social housing supply and restrictive administrative

requirements, as well as a lack of identity documentation or bureaucratic obstacles to

registering an address, reduce access to stable housing solutions for many Roma households.

Discrimination in access to housing, including on the private rental market, further limits

opportunities for families to secure adequate and non-segregated housing.

While several Member States reported measures to improve infrastructure in settlements,

expand access to social housing and support relocation to mainstream housing, their impact

remains uneven. Many initiatives remain limited in scale or are implemented on a project basis,

and monitoring of desegregation outcomes remains weak. In particular, a continued focus on

improving conditions in segregated settlements does not necessarily lead to sustainable

desegregation.

Guidance for further improvement

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States to:

• in line with the Council Conclusions on Measures to ensure equal access for Roma

to adequate and desegregated housing, and to address segregated settlements,

address territorial and residential segregation by promoting integrated, long-term

and sustainable pathways from segregated settlements to adequate housing in

mainstream communities, ensuring access to essential services and infrastructure and

systematically monitoring desegregation outcomes, particularly in Member States

with significant Roma populations;

57 Available at: https://www.gov.pl/web/mniejszosci-narodowe-i-etniczne/programy-integracji-spolecznosci-

romskiej.

18

• in line with the Council Conclusions on access to services by people at risk of poverty

or social exclusion, including Roma, expand access to affordable, adequate and

non-segregated housing through increased social housing provision, targeted

support for people at risk of poverty or social exclusion, simplified administrative

requirements and stronger action against discrimination on the private rental market;

• make use of the Operational Toolkit on the use of EU funds for investments in

social housing and associated services, published by the Commission, with the aim

to promote desegregated and inclusive neighbourhoods, addressing the needs of

marginalised communities;

• prevent forced evictions and housing insecurity by ensuring secure tenure, early

warning and protection mechanisms, access to adequate alternative accommodation,

and continuity of access to education, employment and healthcare.

III. ROMA IN THE ENLARGEMENT REGION58

The situation of Roma in the enlargement partners59 has been assessed through dedicated Roma

surveys carried out by the United Nations Development Programme and the World Bank and

financed by the Commission. The survey for Eastern Neighbourhood countries (Ukraine,

Moldova and Georgia) was completed in the spring of 2026, while the new one for the Western

Balkans is ongoing.

In most candidate countries and potential candidates, Roma remain the most disadvantaged

group due to stereotypes, prejudice, discrimination and antigypsyism, leading to social

exclusion. Discrimination in employment remains widespread, and unemployment is high.

Roma women also face multiple forms of discrimination and are at increased risk of gender-

based and domestic violence, while Roma children could be exposed to labour exploitation or

forced early marriages. Although enrolment in compulsory education is improving,

participation in early childhood education and care remains below national averages, early

school leaving remains high and participation in upper secondary and higher education remains

limited. Access to healthcare remains limited, particularly for children outside formal education

and older people. In addition, housing conditions remain inadequate in many settlements. In

the Eastern Neighbourhood the situation of Roma is further exacerbated by displacement as a

result of the Russian aggression against Ukraine.

All Western Balkans partners, as well as Ukraine, Moldova and Türkiye, have adopted or are

finalising updated Roma strategies in line with the EU Roma strategic framework and the

Poznań commitments60 for the Western Balkans. However, several national action plans

implementing these strategies came to an end in 2025, and some partners are still developing

new plans for the next 3-5 years.

While there is a clear effort to strengthen existing monitoring mechanisms or set up new ones,

progress remains difficult to measure where targets are too general. NRCPs are recognised as

58 The ‘enlargement region’ refers to candidate countries and potential candidates currently engaged in the EU

accession process. Full list of countries available at: https://enlargement.ec.europa.eu/countries_en. 59 Albania, Bosnia and Herzegovina, Kosovo* (designation without prejudice to positions on status and in line

with UNSCR 1244 and the ICJ opinion on Kosovo Declaration of Independence), Moldova, Montenegro, North

Macedonia, Serbia, Türkiye, Ukraine. 60 Declaration of Western Balkans Partners on Roma Integration within the EU Enlargement Process, Poznań,

5 July 2019.

19

key actors in Roma inclusion but their administrative positioning, institutional capacities and

financial resources require more attention. The Council of Europe continues to support the

administrative capacity of NRCPs co-financed by the EU.

Antigypsyism is included in national Roma frameworks, but measures to tackle it remain

limited. While most equality bodies deal with cases of discrimination against Roma in the

Western Balkans, Ukraine and Moldova, antigypsyism is still not included as a distinct category

in anti-discrimination reports and surveys.

National strategies try to address the problem of segregation in education and housing, but

desegregation measures remain insufficient, with limited or no dedicated funding. The EU co-

funded ‘Roma Action for Roma Integration’ project implemented by the Roma Education Fund

supports access to education for Roma children and young people, but further national action

is needed to improve educational outcomes and ensure equal access to quality mainstream

education at all levels. The labour market, skills and education reforms under the Western

Balkans Growth Plan are expected to benefit Roma once implemented. The ongoing Western

Balkans Roma survey will also help further identify gaps to be tackled in the enlargement

negotiations and the annual ministerial meetings dedicated to Roma equality and inclusion.

Guidance for further improvement

To accelerate progress on Roma equality, inclusion and participation, the Commission calls

on governments in the enlargement region to:

• where missing or expired, adopt national Roma strategies and national action plans

beyond 2025 aligned with the EU Roma strategic framework and allocate funding for

their sustainable implementation and strengthen the institutional mandate, staffing

and financial resources of the NRCPs and ensure their involvement in the

programming, implementation and monitoring of national and EU-funded programmes;

• step up measures to increase Roma participation in the labour market, including in

public sector employment; effectively combat antigypsyism and discrimination,

including by enforcing anti-discrimination legislation, ensuring access to justice and

tackling hate speech and hate crime;

• implement the recommendations of the Ukraine and Moldova Roma surveys and the

ongoing Western Balkans Roma survey.

IV. EU ACTION

Member States bear primary responsibility for implementing the EU Roma strategic framework

and the 2021 Council Recommendation. However, the Commission’s role is to support these

efforts by enforcing legislation, coordinating policies, mobilising funding instruments and

facilitating stakeholder engagement.

Enforcing EU legislation

The Commission continued monitoring the enforcement and application of: (i) the Racial

Equality Directive61; (ii) the revised Victims’ Rights Directive; and (iii) the Council Framework

Decision on combating racism and xenophobia. There are three ongoing infringement

proceedings against Czechia, Slovakia and Hungary for Roma segregation in education. An

61 See also the Commission’s 2026 report on the application of the Racial Equality Directive and the

Employment Equality Directive, available at: https://eur-lex.europa.eu/legal-

content/EN/TXT/PDF/?uri=CELEX:52026DC0364.

20

additional letter of formal notice was sent to Czechia in October 2024. The case against

Slovakia was referred to the Court of Justice of the European Union62.

Furthermore, the adoption of Directives (EU) 2024/1499 and 2024/1500 strengthens the

minimum standards for equality bodies across all Member States so that they can effectively

address discrimination and help victims access justice. The Commission will continue to

support Member States through dedicated expert group meetings. It will monitor Member

States’ timely and correct transposition63 of the directives into national legislation using all the

tools at its disposal, including informal dialogues and formal infringement procedures.

Mainstreaming Roma equality in EU policy initiatives

The EU Anti-Racism Strategy clearly recognises antigypsyism as a specific, distinct and deeply

rooted form of racism. In line with the Strategy, the Commission also continues to promote

greater staff diversity and access to career opportunities for underrepresented groups, including

Roma, through targeted outreach in recruitment and traineeships, anti-bias training for HR

professionals and equality data collection. In parallel, the Gender Equality Strategy 2026-2030

and LGBTIQ+ Equality Strategy 2026-2030 highlight the compounded and intersectional

disadvantages faced by Roma women and LGBTIQ+ people. The Commission continued to

promote diversity and inclusion in the workplace, including Roma equality and inclusion,

through the EU Platform of Diversity Charters. The platform facilitates dialogue and provides

guidance, for instance on inclusive hiring practices.

Over the reporting period, the Commission has continued to mainstream Roma equality,

inclusion and participation in relevant EU policies, legislation and funding programmes,

including through its internal Task Force on Equality.

In the areas of housing and poverty, three complementary initiatives adopted in 2025 and 2026

have stepped up EU action to advance Roma inclusion. The European Affordable Housing Plan

includes actions to support people in vulnerable situations, including Roma, and will improve

access to decent housing through investment and social housing measures. This is

complemented by the Council Recommendation on fighting housing exclusion, including

homelessness, which promotes integrated, personalised and housing-led approaches combining

housing, social services and prevention to address homelessness and exclusion. The

Recommendation recognises that housing exclusion and homelessness may disproportionately

affect certain groups, including Roma, and includes measures to address discrimination through

outreach, transparent social housing criteria, anti-bias training and support for tenants facing

discrimination.

The EU Anti-Poverty Strategy highlights that prejudice and stigma can increase the risk of

poverty for specific groups, including Roma, and recalls the EU Roma strategic framework

target to halve the poverty gap by 2030. It also underlines the Commission’s commitment to

continue working with Member States and stakeholders on targeted anti-poverty measures. It

is accompanied by the Principles for effective anti-poverty policies64. Building on the 2021

Council Recommendation, which identified Roma children as a priority group, the

Communication strengthening the European Child Guarantee announces guidance to address

the specific challenges faced by Roma children in accessing services through integrated

measures, from outreach and mediation to inclusive education, family support and community-

62 Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/HTML/?uri=CELEX:62023CC0799. 63 Available at: https://ec.europa.eu/commission/presscorner/detail/en/inf_26_1380. 64 These principles are partially presented in section II.II. of this report.

21

based interventions. It represents a strategic opportunity to advance more targeted and effective

policies for Roma children – who remain disproportionately affected by poverty and

discrimination – and to break the intergenerational cycle of exclusion. It also announces an

ESF+ call for proposal with a budget of EUR 5 million to support transnational projects

designed to improve the access to employment for Roma young people not in employment,

education, or training (NEETs65).

The Council Recommendation on improving the provision of digital skills in education and

training is also relevant for Roma inclusion, as it promotes equitable access for disadvantaged

and marginalised groups, including Roma, and calls on Member States to address accessibility,

territorial and socio-economic gaps contributing to digital exclusion. The Council

Recommendation on Human Capital in the European Union explicitly recognises Roma people

among the groups facing barriers to quality education and training, underscoring the need for

targeted measures to address their skills and employment gaps. The Action plan against

cyberbullying ‘Safer online, stronger together’ explicitly recognises Roma people and other

racial and ethnic minorities as particularly exposed to online harassment and illegal hate speech

linked to systemic exclusion.

Making the best use of EU funds

In the current programming period (2021-2027), the ESF+ provides approximately EUR 1.8

billion across 15 Member States to fund Roma targeted interventions in education, employment

and social inclusion. The ERDF complements this through targeted and mainstream

investments in housing, social infrastructure, education and healthcare, which directly or

indirectly benefit Roma people. A dedicated thematic enabling condition on Roma inclusion

links funds and policies. The recovery and resilience plans include actions across several social

policy areas. They combine investments and reforms with attention to disadvantaged groups,

including Roma, by supporting digital and financial skills development, or school

desegregation. The Technical Support Instrument also helps Member States design strategies

and policies that better address the challenges faced by marginalised Roma communities. For

instance, the instrument is supporting inclusive education, including school desegregation

activities.

The Erasmus+ programme has supported more than 480 projects promoting the inclusion of

Roma communities; these amounted to close to EUR 29 million and involved around 1500

organisations across the EU. The projects focused mainly on youth, school and adult education,

covering Roma mediators, improving the access of Roma grassroots organisations to the

Erasmus+ programme, learning about the Roma Holocaust and preserving the Romani

language. The European Solidarity Corps has supported over 100 projects promoting Roma

inclusion, involving 104 organisations and more than EUR 1.4 million, mainly in education,

culture, sport, health, environmental action, community engagement and youth volunteering.

Under the EU4Health programme (2021-2027), several initiatives target health inequalities

affecting Roma communities, with a focus on prevention and access to healthcare. For

example, ShowUp4Health addresses non-communicable diseases by tackling social and

environmental determinants and strengthening health literacy among Roma. European

initiatives such as SASTIPE, MENTBOX, and JA MENTOR promote Roma access to quality

mental health services. Moreover, the SOLACE project piloted lung cancer screening

approaches involving Roma populations in Croatia, Greece and Hungary, in cooperation with

65 Available at: https://www.socialinnovationplus.eu/call/strengthening-the-european-child-guarantee-national-

governance-systems-and-supporting-access-to-the-labour-market-for-roma-neets-2/.

22

community mediators. Interreg offers opportunities for cooperation, as illustrated by the

CHESS START project, which involved over 100 Roma children from Romania and Hungary.

Through the Citizens, Equality, Rights and Values(CERV)programme, the Commission

continued to support NRCPs in setting up or strengthening national Roma platforms that ensure

Roma participation in decision-making processes. The Commission also funds a transnational

project, ROVA, which strengthens the capacity of Roma NGOs. The EQUAL and REM calls

for proposals under CERV support activities combating racism and discrimination, including

antigypsyism, as well as commemoration and educational activities on the Roma Holocaust

and Roma slavery. In addition, under the programme, three EU-level Roma-led organisations

active in capacity-building, culture, advocacy and Roma rights serve as the Commission’s

institutional partners and receive operating grants.

Guidance for the Effective Use of EU Funds on Roma Equality, Inclusion and

Participation

To accelerate progress towards the achievement of EU-level objectives, in line with the

‘common but differentiated approach’, the Commission calls on Member States,

particularly those with significant Roma populations, to:

• strengthen the link between governance structures and EU funds, ensuring

that Roma equality and inclusion priorities are reflected throughout programme

design, implementation and evaluation to support the achievement of the targets

of the EU Roma strategic framework by 2030;

• combine targeted measures addressing the specific needs of Roma

communities with inclusive mainstream policies and services, with particular

attention to education, employment, health, housing and social inclusion, ensuring

coordinated and integrated action across policy areas and long-term investment to

address the multiple and interconnected dimensions of exclusion;

• ensure that EU-funded investments in education and housing promote the

principles of desegregation and non-segregation, prioritising desegregation to

eliminate or significantly reduce existing segregation by integrating Roma into

mainstream schools and neighbourhoods, while ensuring that, where immediate

desegregation is not possible, investments do not create new segregated settings

or reinforce existing ones (non-segregation) and pave the way for future

desegregation.

Strengthening governance and policy coordination

The European Semester continued to monitor the situation of Roma and to guide Member

States in designing and implementing reforms and investments to address persistent challenges.

In the context of the 2026 European Semester cycle, the recitals of the Council

Recommendation identified the need to address challenges faced by Roma communities in

Bulgaria, Czechia, Greece, Hungary, Romania, Slovakia and Spain. The successive Guidelines

for the employment policies adopted by the Council consistently identify marginalised Roma

communities among the groups requiring targeted labour market activation, integrating Roma

equality in the EU’s employment policy coordination framework.

23

Looking ahead, the forthcoming national and regional partnership plans66 under the 2028-2034

multiannual financial framework (MFF) offer an important opportunity for Member States to

address these challenges in a more comprehensive and targeted manner. The Commission has

integrated Roma equality and inclusion across several 2028-2034 MFF regulatory proposals,

including AgoraEU, the Justice Programme and Erasmus+, as Roma inclusion remains an EU

political and social priority.

Promoting Roma participation and stakeholder engagement

The Commission continued to support Roma participation through structured dialogue,

capacity-building, and institutional cooperation. Every year the European Platform for Roma

Inclusion brings together authorities and civil society to identify priorities and assess progress

towards reaching the 2030 targets. Cooperation with stakeholders also included regular

meetings with the NRCPs and other relevant national authorities, civil society and the European

Network of Equality Bodies (Equinet)67.

The Commission continued cooperation with Member States holding the rotating Presidency

of the Council of the EU and with the European Parliament to keep Roma equality, inclusion

and participation high on the political agenda. It also actively supported Roma Week, marked

International Roma Day and Roma Holocaust Memorial Day by issuing dedicated statements,

and participated in the Auschwitz commemoration ceremony on 2 August.

Promoting equality and combating antigypsyism

Combating antigypsyism requires sustained action across all policy areas. The Commission has

pursued a dual approach: addressing it directly through targeted action and public

communication, while mainstreaming the fight against antigypsyism across sectoral policy

areas.

Over the years, the Commission has continued its structured cooperation with the Council of

Europe, through a range of joint programmes, namely: (i) the Roma Memory programme

launched in June 2024, which promoted awareness and remembrance of the Roma Holocaust;

(ii) ROMACT, which strengthened the capacity of local and regional authorities to work on

ensuring Roma inclusion;and (iii) EQUIROM, which combated antigypsyism through positive

narratives about Roma in the media. In addition, the Roma on Par social media campaign,

launched on International Roma Day, aims to combat antigypsyism and challenge negative

stereotypes about Roma.

The Commission also supports UNESCO’s work on anti-racism education in the EU, as

announced in the Anti-Racism Strategy. In March 2026, UNESCO launched a two-year project,

funded by the Commission, which specifically addresses forms of racism such as antigypsyism.

The project aims to equip educators with resources for teaching students about contemporary

racism and its historical legacies, thereby fostering more inclusive learning environments for

Roma students68.

66 Under the Commission proposal for the 2028-2034 MFF, national and regional partnership plans would bring

together several EU funding streams, including the European Social Fund and the European Regional

Development Fund. 67 Available at: https://equineteurope.org/. 68 Available at: https://www.unesco.org/en/articles/unesco-launches-new-programme-address-racism-and-

through-education-europe.

24

CONCLUSION

Since the adoption of the EU Roma strategic framework, Member States have strengthened the

institutional foundations for implementing their national Roma strategies. The 2023-2025

period saw the continued development of key governance structures in the Member States.

NRCPs have strengthened their coordinating role, dialogue with Roma and pro-Roma civil

society has become more structured and, in several countries, some increase in Roma

representation in public administration and elected office has also been reported. In addition,

visible progress has been made across several policy areas: political recognition of

antigypsyism has increased, the participation of Roma children in early childhood education

has improved, employment rates among Roma have risen, and Member States have expanded

measures in housing, health and social protection. EU funding supported inclusive national

reforms and initiatives throughout the period.

The Roma Survey 2024 shows improvements in 10 of the 16 indicators used to monitor the EU

Roma strategic framework. For instance, most of EU Roma strategic framework employment-

related targets appear to be within reach by 2030. Nevertheless, substantial efforts are still

required to reach all targets, including through more consistent national target setting. Short-

term funding, uneven monitoring frameworks and limited coordination across governance

levels continue to undermine the effectiveness and sustainability of Roma equality and

inclusion policies.

The coming years will be decisive. The fight against antigypsyism and further progress in

Roma equality, inclusion and participation will require sustained political commitment,

effective systemic reforms, stronger institutional capacity, integrated, cross-sectoral policy

approaches and predictable long-term investment. Effective enforcement and strong public

leadership will also be essential. The forthcoming MFF will provide an important opportunity

to further step up these efforts.

Roma equality, inclusion and participation are not only rooted in fundamental rights but are

also strategic priorities for Europe. In the context of demographic decline, labour shortages and

growing global competition, the inclusion of Roma – one of Europe’s youngest population

groups – can also contribute to economic resilience. As 2030 approaches, the EU Roma

strategic framework must continue to advance these priorities while also contributing to

Europe’s long-term cohesion and competitiveness, reflecting the EU’s commitment to leaving

no one behind.

EN EN

EUROPEAN COMMISSION

Brussels, 3.11.2026 SWD(2026) 330 final

COMMISSION STAFF WORKING DOCUMENT

Accompanying the document

REPORT FROM THE COMMISSION TO THE EUROPEAN PARLIAMENT, THE

COUNCIL, THE EUROPEAN AND ECONOMIC COMMITTEE AND THE

COMMITTEE OF THE REGIONS

on the progress made in the implementation of the national Roma strategic frameworks

in light of the EU Roma strategic framework for equality, inclusion and participation

and the Council Recommendation on Roma equality, inclusion and participation

{COM(2026) 602 final}

1

Contents

INTRODUCTION ............................................................................................................................................... 2

Table 1 - Belgium................................................................................................................................................. 3

Table 2 - Bulgaria................................................................................................................................................. 8

Table 3 - Czechia ............................................................................................................................................... 14

Table 4 - Denmark ............................................................................................................................................. 20

Table 5 - Germany ............................................................................................................................................. 23

Table 6 - Estonia ................................................................................................................................................ 28

Table 7 - Ireland ................................................................................................................................................. 33

Table 8 – Greece ................................................................................................................................................ 38

Table 9 - Spain ................................................................................................................................................... 44

Table 10 - France ............................................................................................................................................... 50

Table 11 - Croatia............................................................................................................................................... 56

Table 12 - Italy ................................................................................................................................................... 61

Table 13 - Cyprus ............................................................................................................................................... 66

Table 14 - Latvia ................................................................................................................................................ 70

Table 15 - Lithuania ........................................................................................................................................... 74

Table 16 - Luxembourg ...................................................................................................................................... 78

Table 17 - Hungary ............................................................................................................................................ 82

Table 18 - The Netherlands ................................................................................................................................ 89

Table 19 - Austria............................................................................................................................................... 94

Table 20 - Poland ............................................................................................................................................... 99

Table 21 - Portugal ........................................................................................................................................... 104

Table 22 - Romania .......................................................................................................................................... 109

Table 23 - Slovenia .......................................................................................................................................... 115

Table 24 - Slovakia .......................................................................................................................................... 120

Table 25 - Finland ............................................................................................................................................ 126

Table 26 - Sweden ............................................................................................................................................ 131

APPENDIX: Country overview of quantitative targets set in their NRSFs.................................................... 135

2

INTRODUCTION

This staff working document (SWD) provides country-specific assessments of progress in the implementation

of the National Roma Strategic Frameworks (NRSFs), presented in the form of individual country factsheets.

Like the main report, it covers the reporting period from 1 June 2023 to 31 March 2025.

The country factsheets address the main areas covered by the EU Roma Strategic Framework and 2021

Council Recommendation. They assess progress made, including key developments, include input based on

the Roma civil monitoring country reports, and present the Commission’s assessment. They also highlight

promising practices to support mutual learning among Member States. They were prepared by the

Commission services.

The SWD also includes an Appendix, which is an overview of the quantitative targets set in the NRSFs, and

progress made as reported by Member States with significant Roma populations. The Appendix was prepared

by the EU Fundamental Rights Agency (FRA).

3

Table 1 - Belgium

Belgium

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Building on its 2012 strategy, Belgium adopted the national Roma

integration strategy 2020-20301 as its national Roma strategic framework

(NRSF) in 2022. Closely aligned with the EU Roma strategic framework, the

current NRSF outlines 32 actions addressing both horizontal and sectoral

objectives.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates range between 20 000 and 40 000 individuals,

with around 7 000 to 10 000 being Travellers, often with Belgian

nationality2.

NATIONAL ROMA CONTACT

POINT (NRCP)

Federal public planning service for Social Integration, anti-Poverty Policy,

Social Economy and Federal Urban Policy (PPS SI)

NATIONAL ROMA CONTACT POINT

The NRCP coordinates and monitors the implementation of the NRSF, contributing to its design and development

across all areas of intervention. It provides Roma-specific expertise and facilitates dialogue, notably through the

National Roma Platform. Although it has no direct mandate in mainstreaming Roma issues or EU fund management, it

promotes coherence by fostering exchanges and maintaining informal cooperation with regional authorities. The

Ministry collaborates with various stakeholders, including regional governments, local authorities, equality bodies, and

civil society organisations. During the reporting period, the NRCP operated with an annual budget of EUR 30 000 and

part-time staffing, limiting its operational capacity.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The national anti-racism plan3 and the NRSF provide the main foundation for monitoring

and preventing discrimination against Roma in Belgium. Under this objective, key achievements include the

continuation of awareness campaigns, support for discrimination victims, and symbolic actions such as events for the

International Roma Day led by Equal Brussels4 (a public authority of the Brussels Region). The “Label – Promotion of

Citizenship and Interculturality” project5, also backed by the French Community, aimed to raise awareness among

young people and professionals about stereotypes and antigypsyism. Additionally, the “Reflections. Roma in Belgium”

travelling exhibition6 showcased personal stories of Roma individuals, thereby increasing awareness through education

and art.

FEEDBACK FROM CIVIL SOCIETY: Civil society organisations (CSOs) acknowledge the progress made in

implementing awareness-raising activities and measures to support victims of discrimination. However, they highlight

that there are no formal mechanisms to recognise and address antigypsyism, which is not yet defined or treated as a

distinct structural form of racism. This lack of a specific definition contributes to the strategy treating discrimination as

1 Available at: https://www.mi-is.be/sites/default/files/documents/2020-2030_-_strategie_nationale_pour_lintegration_des_roms_-

_be.pdf. 2 Available at: https://www.google.com/rm.coe.int/1680088ea9. 3Available at: https://equal.belgium.be/fr/que-fait/plans-daction/plan-daction-contre-le-racisme. 4 Available at: https://equal.brussels/fr/. 5 Available at: https://coppieters.wallonie.be/home/communiques-de-presse/presses/labels-2026-un-soutien-durable-aux-acteurs-

engages-pour-la-citoyennete-l-interculturalite-et-l-egalite-des-droits.html . 6 Available at: https://www.mi-is.be/nl/themas/armoede/integratie-roma/belgisch-nationaal-roma-platform/werkingsjaar4-2019-

2021.

4

a general measure rather than a dedicated area of intervention. CSOs also call for strengthened discrimination-reporting

systems through targeted outreach to Roma and Traveller communities, media campaigns countering negative

stereotypes, and historical recognition through school curricula and public memorials.

ASSESSMENT: Belgium could strengthen its approach to combating antigypsyism by developing non-discrimination

into a dedicated policy area supported by targeted funding and measurable actions. Institutionalising the recognition of

antigypsyism as a specific and structural form of racism would provide a clearer basis for addressing anti-Roma

discrimination. While legal constraints on ethnic data collection exist, the development of proxy indicators and

disaggregated data - in collaboration with Roma and Traveller communities - is vital to transition from ad hoc projects

to a systemic and evidence-based inclusion policy.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Progress is reflected in a mix of targeted and mainstream interventions. Long-standing

organisations such as Foyer vzw7, and the Centre de Médiation des Gens du Voyage et Roms8 continue to provide vital

mediation services, improving access to housing, social services, and rights. In Wallonia, the mandatory integration

pathway equips Roma newcomers with language skills, civic knowledge, and tailored9 guidance through structured

regional support. The Walloon anti-racism plan (2023–2026) and, since 2023, specialised mediation services for

Travellers further reinforce this framework. Efforts have also been made to increase awareness of the Belgian equality

body among Roma and Travellers to address underreporting.

FEEDBACK FROM CIVIL SOCIETY: CSOshighlightthe need to prioritise the development of permanent halting

sites for Traveller communities to ensure stable living conditions and access to essential services, while engaging local

stakeholders to overcome resistance and promote inclusive solutions. Further investments in support structures and

innovative initiatives that address evolving community needs are required. CSOs also mention the importance of: (i)

strengthening measures within the NRSF to tackle child poverty; (ii) enhancing protection for Roma minors; and (iii)

improving welfare support for homeless Roma children to prevent further marginalisation.

ASSESSMENT: Belgium could build on existing social inclusion measures, such as the Wallonia integration pathway,

by addressing the lack of structural numerical data through the development of proxy indicators (e.g., service uptake

and regional poverty data). A key priority remains the expansion of equipped stopping places for Travellers, which has

faced significant bureaucratic obstacles. Transitioning from project-based support to systemic welfare protection for

Roma minors—particularly those facing homelessness—is essential to breaking the cycle of intergenerational poverty.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: A key achievement is the development of a community-based Roma stewardship model

within Foyer vzw’s Roma and Traveller service in Brussels, supported by the Flemish Community Commission10.

Through trained Roma stewards acting as trusted mediators, the initiative has strengthened links between Roma

families and local institutions, improving access to education, healthcare, and employment. Through coordinated

outreach and collaboration with local services, the initiative has contributed to more inclusive neighbourhoods and

improved access to public services for Roma families.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight advancements in specific local models but call for greater

structural support and involvement of Roma CSOs in decision-making. They emphasise the need for: (i) formal

mechanisms allowing Roma-led organisations to actively shape, plan, and monitor social inclusion policies; (ii)

enhanced functioning of the National Roma Platform with broader participation and transparent processes to ensure

community input translates into political influence; and (iii) increased funding for Roma-led organisations to enable

sustainable operation and an effective policy contribution.

ASSESSMENT: Belgium could build on existing community-led models, such as the Roma stewardship programme

in Brussels, while addressing institutional factors that affect structural participation. Strengthening the mandate of the

NRCP could be considered, as it is currently consulted without having a leading role in integrating Roma issues into

7 Available at: https://www.foyer.be/dienst-roma-woonwagenbewoners. 8 Available at: https://actionsociale.wallonie.be/home/thematiques/gens-du-voyage-et-roms/centre-de-mediation-des-gens-du-

voyage-et-des-roms.html. 9 Available at: https://www.caw.be/over-caw/organisatie/caw-brussel/. 10 Available at: https://be.brussels/en/about-region/structure-and-organisations/community-associations-and-committees/flemish-

community-commission-vgc.

5

broader social inclusion policies. The NRCP also has no formal involvement in decisions related to EU funds. Roma

organisations could be involved in ESF+ programming and monitoring committees. Supporting Roma organisations

financially and using the National Roma Platform to facilitate the inclusion of community perspectives in regional

decision-making would further strengthen participation.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The ‘Promoting literacy and training for Travellers and Roma’ project, led by the

Mediation Centre for Travellers and Roma in Wallonia (CMGW), provides French and numeracy courses for Traveller

children aged 6 to 12, to prevent school dropout during the travel period. Roma mediators also provide school-related

guidance, particularly for Roma children from Central and Eastern Europe, bridging the gap between families and

schools. In Flanders, the ‘Bridge Figures’ (Brugfiguren) initiative under the plan Samenleven11 further support

inclusion by connecting vulnerable families, including Roma, to educational and municipal services.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in mediation and literacy initiatives but

highlight persistent barriers facing Traveller children, including low attendance, early dropout, and illiteracy. They

emphasise the need for targeted NRSF measures to improve attendance and reduce dropout rates, supported by stable

housing solutions that minimise disruptions to schooling. Addressing the shortage of legal residential sites is essential

to ensure consistent school participation and uphold children’s right to education. Dedicated research and monitoring

initiatives are needed to better understand and overcome these persistent barriers.

ASSESSMENT: Belgium is encouraged to build on positive progress by strengthening early and sustained

participation, particularly by increasing access to preschool education and reducing early school leaving among

Traveller children. Continued support through Roma mediators and literacy programmes provides a strong foundation

and could be complemented by more tailored guidance during key educational transitions. Addressing the structural

challenges of Considering Belgium’s federalised education system, it will be crucial to ensure that community-level

insights inform the broader implementation of the strategy and that successful pilot projects receive sustainable

funding. Strengthening data collection and monitoring systems would support more evidence-based policymaking.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Progress under this objective is mainly reflected in the implementation of targeted,

project-based employment initiatives. The ‘Rom Werkt’12 project in Brussels builds on the earlier ‘Roma&Work’13

initiative by targeting unemployed Roma from Romanian and Bulgarian backgrounds and Syrian Doms, offering

tailored support to overcome complex challenges and promote sustainable labour market integration. In parallel, ESF

Call 457 ‘Outreach & Activation’14 in Flanders supports integrated, outreach-based measures targeting inactive

jobseekers, including projects focusing on Roma. These initiatives adopt a holistic approach, combining employment

support with assistance in addressing administrative, social, and legal barriers. The involvement of Roma stewards

helps build trust and improve access to services.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge the importance of projects such as Rom Werkt but call

for stronger employment inclusion through tailored programmes for Travellers and refugees addressing housing

instability, low qualifications and language barriers. They stress the need to better mainstream Roma employment

support into regional policies with sustainable funding and coordination. They also highlight the need to reinforce anti-

discrimination in hiring, enforce anti-racism policies, and promote digital literacy to improve access to labour markets.

Clear benchmarks, sector-specific data and regular national reporting are needed to effectively monitor progress in

Roma employment.

ASSESSMENT: Belgium demonstrates continued commitment to Roma labour market integration through ESF+-

funded measures. Within the Belgian ESF+ programmes, EUR 302.6 million has been allocated to employment

measures, from which Roma may benefit indirectly. Initiatives such as ‘Rom Werkt’ and ESF Call 457 demonstrate a

11 Available at: https://www.vlaanderen.be/plan-samenleven. 12 Available at: https://maksvzw.org/roms-doms/. 13 Available at: https://jobroad.be/en/about-jobroad/project-13-romawork-2-0-bxl/. 14 Available at: https://www.esf-vlaanderen.be/nl/oproepen/oproep-outreach-activering.

6

growing emphasis on integrated, outreach-based approaches addressing multiple barriers to labour market

participation. At the same time, further efforts are needed to strengthen the structural dimension and targeting of

employment policies. Improved coordination, sustainable funding, and clearer monitoring mechanisms would enhance

impact. In this context, inclusive initiatives such as the Flemish ESF+ Local Partnerships can contribute to more equal

access to employment by addressing complex, individual needs.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Belgium did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: CSOshighlight the need todevelop targeted health outreach campaigns in

Roma communities on the topics of sexual and mental health and raise awareness about LGBTQ+ issues. They also

call for the creation of national health education programmes tailored specifically to the needs and specific health

challenges of Roma, promoting early marriage prevention, nutrition, and chronic illness management.

ASSESSMENT: Belgium is encouraged to strengthen its approach by considering targeted outreach and health

education measures, in cooperation with Roma organisations and intercultural mediators, to support preventive care,

reproductive health, and chronic disease management. Despite universal healthcare coverage, engagement with

services may be affected by limited awareness of preventive care, stigma around sexual and mental health, and cultural

sensitivities. Strengthening and sustainably funding community health worker and mediation networks may improve

trust, communication, and access. Flemish local partnerships, supported by ESF+15, may also contribute to improving

access to social services.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Progress under this objective was reported in Wallonia through the implementation of the

‘Housing First’16 pilot project in partnership with public housing authorities in Namur, which provided vacant

buildings for Roma families and combined housing with integrated social, educational and employment support. The

CMGV supports Roma families facing administrative, legal and housing challenges, facilitating access to services,

residence procedures and housing solutions through mediation. In addition, Wallonia provides support to municipalities

to host Travellers, including subsidies and the appointment of local coordinators. No comparable measures or progress

were reported for other regions.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge the importance of projects such as ‘Housing First’.

However, they emphasize the need to expand authorised halting and residential caravan sites, particularly in Flanders,

to provide long-term, legal housing options for Travellers while addressing local resistance. Housing segregation and

poor living conditions should also be tackled, by involving Roma in urban planning, and by collecting disaggregated

data to monitor access to social and emergency housing. A coordinated, long-term national housing strategy is needed

to move beyond temporary or CSO-driven solutions, supported by strong political commitment and enforceable

measures that guarantee adequate housing for Roma communities.

ASSESSMENT: Belgium is encouraged to continue utilising available funding instruments to improve housing

conditions for Roma and Travellers. While the ‘Housing First’ pilot in Wallonia reflects a promising integrated

approach, measures remain largely project-based and regionally concentrated, with no comparable actions reported in

other regions. Expanding authorised halting and residential caravan sites - particularly in Flanders - remains a key

priority, as highlighted by civil society. Strengthening the targeting of housing investments and ensuring that Roma and

Traveller needs are more explicitly reflected in programme design would increase effectiveness. Developing proxy

indicators and disaggregated data to monitor access to social and emergency housing would support more evidence-

based policymaking and contribute to more equitable housing outcomes.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP promotes exchange and alignment through the national Roma platform and

15 Available at: https://www.esf-vlaanderen.be. 16 Available at: https://housingfirsteurope.eu/country/belgium/.

7

informal contacts with regional actors. Due to Belgium’s federal structure, the design and implementation of most

social inclusion policies rest with the regional governments and there is no central system of coordination or reporting.

The Belgian equality body, UNIA, follows up on case laws on hate crimes against Roma. Based on reported

discrimination and hate crimes, UNIA provides training, writes policy recommendations and conducts research on

discrimination and equality, while actively participating in the national Roma platform.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that Roma civil society plays a limited and largely symbolic

role in NRSF-related processes, with involvement mainly confined to project delivery in education, employment, and

mediation. Roma participation remains low, informal, and without institutional representation, and no formal

monitoring processes include Roma CSOs. The Roma Civil Monitor remains the sole independent oversight

mechanism. While the equality body leads national efforts against hate crimes, Roma and pro-Roma CSOs lack

coordinated tools to monitor or report incidents. There is a need to establish inclusive mechanisms that empower Roma

CSOs, institutionalise meaningful participation, and strengthen the response to hate crimes.

ASSESSMENT: To strengthen Roma inclusion in Belgium, authorities could consider moving beyond consultative

engagement by ensuring Roma CSOs have meaningful influence on NRSF design and implementation.

Institutionalising Roma representation in monitoring and policymaking may enhance their contribution and visibility.

Improved coordination among Roma and pro-Roma organisations to monitor and report hate crime incidents, supported

by appropriate institutional frameworks, could reinforce responses to discrimination and complement existing equality

efforts led by UNIA. In Flanders, the Roma Expert Network offers a platform for Roma experts to share knowledge

with municipalities and regional authorities, supporting more informed and inclusive policymaking.

PROMISING PRACTICES

The ‘Housing First’ pilot project17, conducted in partnership with the Walloon Housing Society in Namur, is identified

as a key promising practice. The project provided two vacant buildings for Roma families, combining housing with

integrated social, educational, and employment support, thus marking a concrete step towards sustainable housing

inclusion.

In Flanders, policies focus on concrete issues faced by individuals and families - such as housing, health, education and

training, language and digital skills, exclusion and unemployment. This approach is reflected in the Flemish ESF+

Local Partnership projects operating across Flanders and Brussels, which support sustainable labour market

participation of persons with multiple complex challenges. Municipalities such as Antwerp, Ghent and Roeselare

received additional support due to relatively high numbers of EU-13 citizens, many of whom are Roma. Local

Partnerships provide tailored one-stop-shop support based on a 360-degree needs assessment and can engage external

expertise when needed, thereby also supporting Roma in overcoming barriers to labour market participation.

17 Available at: https://housingfirsteurope.eu/country/belgium/.

8

Table 2 - Bulgaria

Bulgaria

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

National strategy of the Republic of Bulgaria for equality, inclusion, and

participation of the Roma 2022-2030 (national Roma strategic framework,

NRSF)18.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

266 720 (according to the 2021 census) or 4.4% of the Bulgarian

population.19

Council of Europe estimates: approximately 750 000 Roma live in Bulgaria

(9.94% of the population)20

NATIONAL ROMA CONTACT

POINT (NRCP)

Secretariat of the National Council for Cooperation on Ethnic and

Integration Issues - Department for Prevention and Protection from Domestic

Violence, Cooperation on Ethnic and Integration Issues, and Interaction with

Civil Society (DPCEI).

NATIONAL ROMA CONTACT POINT

The NRCP operates with an annual budget of approximately EUR 30 600 and three staff members for the 2023-2025

period. It reports to the Chief Secretary of the Council of Ministers and supports the coordination and monitoring of

Roma inclusion policies. A key function of the NRCP is mainstreaming Roma issues across sectoral policies and

ensuring their integration into national strategies. It also plays an active role in the programming and monitoring of EU

funds, including participation in the Joint Monitoring Committee of the 2021-2027 Partnership Agreement and in the

Monitoring Committee of the 2021-2027 Human Resources Development Programme. Through these roles, NRCP

contributes to integrating Roma inclusion priorities into national development and EU-funded interventions.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: A key achievement is progress in strengthening the implementation of European Court of

Human Rights (ECtHR) judgments. A proposal for a national mechanism to support execution of ECtHR decisions was

prepared, alongside a review of analyses and measures on Roma housing conditions and proportionality in eviction

cases. An action plan was also developed to support national commitments, including practical guidelines for

proportionality assessments in forced evictions and a coordination mechanism for municipal authorities. These results

were enabled by strong cooperation with the Department for the Implementation of ECtHR Decisions in the Council of

Ministers, the use of Council of Europe member states’ best practices and comparative law, and the involvement of

expert panels bringing together key institutional stakeholders.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that anti-Roma attitudes and discrimination remain widespread

and inadequately addressed in Bulgaria and that current measures receive insufficient priority within the NSRF. Key

actions needed include: (i) raising awareness in Roma communities about their rights; (ii) providing mandatory anti-

discrimination training for public staff; (iii) ensuring strong political commitment and public statements against hate

speech; and (iv) strengthening the Commission for Protection against Discrimination through additional resources and

expanded enforcement powers.

ASSESSMENT: Bulgaria has taken important steps to strengthen the implementation of ECtHR judgments, including

through the development of coordination mechanisms, practical guidance on proportionality assessments in evictions,

and enhanced institutional cooperation. These measures provide a stronger basis for improving safeguards in cases

18 National Strategy of the Republic of Bulgaria for equality, inclusion and participation of the Roma (2021 - 2030). Available at:

https://commission.europa.eu/system/files/2021-12/national_strategy-_english_google.docx.pdf 19 National Statistical Institute, Ethno-cultural characteristics of the population as of 7 September 2021, Available at:

https://www.nsi.bg/en/press-release/ethno-cultural-characteristics-of-the-population-as-of-september-7-2021-6833 20 Available at: https://rm.coe.int/1680088ea9.

9

affecting Roma communities. Moving forward, effective implementation and sustained political commitment will be

essential to ensure that these frameworks translate into concrete improvements on the ground. Further efforts could

focus on: (i) strengthening protection against antigypsyism and discrimination; (ii) improving access to justice for

Roma in remote communities; and (iii) ensuring more structured participation of Roma civil society organisations in

policy design, monitoring and implementation processes.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Bulgaria reported thatthe Food and Basic Material Support Programme has contributed to

poverty reduction and improved access to quality care and social services for Bulgaria’s most vulnerable children,

while indirectly helping families build parenting capacities and find sustainable solutions to poverty. Achievements

have been supported by targeted outreach, the involvement of Roma mediators, and efforts to engage new

municipalities. This has been accompanied by strong coordination between the SACP, Child Protection Departments,

schools, healthcare facilities, and social services, ensuring high-quality, rights-compliant support.

FEEDBACK FROM CIVIL THE SOCIETY: CSOs acknowledge progress in social assistance, notably the 2023

reform replacing the guaranteed minimum income and linking monthly assistance to 30% of the national poverty line.

The 2024 National Map of Social Services further standardised access to local state-funded social and health services.

While support increased and Employment Office registration was eased, the base amount of minimum income remains

very low. Benefits remain below the poverty line and fail to address extreme poverty among Roma families.

Conditionalities such as reducing benefits by 70% if a child misses five school hours and reliance on registered

addresses exclude the most vulnerable, while services remain largely passive and insufficiently targeted.

ASSESSMENT: Bulgaria has made progress in poverty reduction and improving access to care for vulnerable

children, supported by outreach and Roma mediators. The minimum income reform has strengthened the social

assistance system. Affordability, accessibility and quality of social services have improved. However, further efforts

are needed to address extreme poverty among Roma families, as 53% of Roma remain at risk of poverty or social

exclusion21 compared to 21.7% of the general population22. Roma communities also remain less effectively covered by

social and employment services, indicating a need for more proactive and targeted support to ensure inclusive and

equitable access.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Bulgaria did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: CSOs note thatbetween 2023 and 2025, Roma and pro-Roma NGOs

participated actively in Monitoring Committees of key national ESF+ co-financed programmes, influencing decisions

and coordinating targeted Roma initiatives. The Civil Society Council was re-established in 2025, and EU and

international funding channels supported NGO activities effectively. However, challenges remain, including: (i) limited

Roma input in national bodies; (ii) financial and administrative barriers to EU-funded projects; and (iii) lack of state

budget support for civil society capacity building. Improvements are needed to ensure meaningful Roma participation

in decision-making, expand partnerships with ministries, and strengthen institutional support for NGOs.

ASSESSMENT: Bulgaria has increased Roma participation and supported CSO activities through EU and

international funding. However, challenges remain, including: (i) limited Roma input in national, regional and local

decision-making bodies; (ii) financial barriers to accessing EU funds; and (iii) insufficient state support for civil society

capacity building. The NRCP is also widely perceived as ineffective and in need of reform. Positive results from

targeted funding, such as the Norway Grants and ESF+, highlight the importance of continued support under EU

programmes’ for strengthening Roma and pro-Roma CSOs. Addressing these gaps is essential for meaningful Roma

participation in policymaking and stronger NGO engagement, while ensuring tailored approaches to address the

vulnerabilities of Roma communities.

SECTORAL OBJECTIVES

21European Union Agency for Fundamental Rights – Roma Survey 2024, availale at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 22Available at Eurostat, (online data code ilc_li02),

https://ec.europa.eu/eurostat/databrowser/view/ilc_li02__custom_22314605/default/table .

10

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Bulgaria has taken steps to improve educational inclusion for Roma and other vulnerable

groups, focusing on increasing pre-school and school participation, preventing early school leaving and strengthening

support systems. Reintegration efforts have returned thousands of children to school and expanded enrolment of

previously unenrolled children. Additional Bulgarian language support and personal development programmes help

students succeed in mainstream education. Bulgaria has also expanded the use of educational mediators, improving

communication with Roma families and supporting attendance. Desegregation measures, including transport and

learning materials, have been introduced in several municipalities. Teacher training and intercultural education

activities have also expanded to promote inclusion and improve outcomes for disadvantaged students.

FEEDBACK FROM CIVIL SOCIETY: CSOs report progress in educational inclusion through increased state

support for educational mediators, assistants and social workers, alongside expanded access to free early childhood

education and care, and secondary education support. CSOs also note positive developments in reducing early school

leaving. However, they stress that school segregation remains a major concern, affecting both general and vocational

education. According to CSOs, addressing this challenge requires stronger legislative and policy measures promoting

desegregation and inclusive schooling. They also highlight the need for enhanced intercultural education, language

support, improved access to higher education, and stronger involvement of NGOs in education policy implementation

and monitoring.

ASSESSMENT: Bulgaria has taken an important institutional step by transferring funding for educational mediators

and social workers to the state budget, providing a more sustainable basis for community outreach. However, this

progress is accompanied by persistently low educational outcomes and continuously rising school segregation. Only

around 42% of young Roma complete upper secondary education, compared to 90% of the general population, while

70% of Roma children attend schools where most or all pupils are Roma23. To address remaining gaps towards the

2030 objectives, Bulgaria is encouraged to complement project-based approaches with more structural measures to

tackle segregation. Improving the availability of disaggregated data could support better assessment of inclusiveness.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Bulgaria reported that employment measures aim to improve Roma labour market

participation mainly through mainstream measures, mediation and training. During the reporting period, between June

2023 and March 2025, 29 975 unemployed persons self-identifying as Roma were employed, largely through Labour

Office mediation and increased employer demand. Roma labour mediators play a key role in activating inactive

jobseekers, with 15 726 Roma activated. Training and guidance activities, including vocational training and job-search

workshops, were also implemented. However, over 90% of registered unemployed Roma are unqualified and around

60% have only primary or lower education, which remains the main barrier to sustainable employment. Monitoring is

constrained due to the lack of ethnicity-disaggregated labour market data.

FEEDBACK FROM CIVIL SOCIETY: CSOs confirm a positive trend in Roma employment in Bulgaria, supported

by post-Covid recovery and subsidised programmes. The public sector Roma mediator network had expanded to over

400 members by the end of 2024, strengthening links between communities and institutions, with NGOs contributing to

mediator selection, training and support, and some municipalities co-financing costs. Despite progress, structural

reforms are needed. Employment programmes should diversify opportunities, expand vocational training and skills

validation, and target stable, higher-qualified jobs. Participation of Roma women and youth should be increased

through flexible work, incentives and services such as childcare and transport, alongside integrated programmes,

stronger Roma involvement and improved transparency.

ASSESSMENT: Recent employment measures, including labour mediation, vocational training and increased numbers

of Roma mediators, have contributed to improving Roma labour market participation. The 2024 amendment to the

Employment Promotion Act also provides a stronger basis for improving access to employment services. However,

significant structural challenges remain, particularly linked to low educational attainment and qualifications. Around

23 Available at: Eurostat, (online data code edat_lfse_03),

https://ec.europa.eu/eurostat/databrowser/view/edat_lfse_03__custom_22314661/default/table.

11

46% of Roma youth are estimated to be neither in employment, education nor training (NEET), compared with

approximately 11%24 of the general population25. Moving forward, further efforts will be needed to: (i) expand skills

development aligned with labour market needs; (ii) diversify employment opportunities; and (iii) improve access for

Roma women and youth through integrated and targeted support measures.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Bulgaria reported that health policies focus on improving access to healthcare and

preventive services for Roma and other vulnerable communities mainly through mainstream public health measures. A

key component is the health mediator system, with 332 mediators working in municipalities in 2024 to facilitate

communication between Roma communities and health services. Mediators provided over 160 000 consultations and

supported access to preventive examinations, immunisations and medical services. Mobile medical units conducted

gynaecological, paediatric and screening examinations in underserved areas. Public health campaigns addressed HIV,

tuberculosis and vaccination awareness. However, improving health outcomes remains challenging due to low health

awareness among Roma communities and persistent barriers to accessing healthcare services.

FEEDBACK FROM CIVIL SOCIETY: CSOs report progress in Roma health inclusion, including more Roma

healthcare professionals and medical students, with over 90 young people supported through mentoring (2023-2025).

The health mediator network remains central, with over 320 mediators nationwide, some employed by hospitals and

trained in maternity care and paediatrics. Amendments to Ordinance 26 expanded maternity care for uninsured women

and guarantee newborn screening. However, inequalities and access barriers persist. Further measures should: (i) cover

health insurance for vulnerable Roma; (ii) expand mediator roles; (iii) integrate health and social services; (iv) train

medical staff to address discrimination; (v) incentivise work in underserved areas; (vi) ensure sustainable funding; and

(vii) strengthen Roma participation.

ASSESSMENT: To support progress towards health equity, Bulgaria could consider strengthening preventive and

outpatient care, including in underserved areas. Addressing gaps in health insurance coverage through targeted

measures for vulnerable groups may also be useful. Continued efforts to ensure accessible and effective complaint

mechanisms could contribute to addressing discrimination in healthcare settings. Improving the availability of reliable

and appropriately disaggregated health data, in line with data protection standards and in cooperation with Roma civil

society organisations, may support evaluation of health interventions and inform policies aimed at reducing disparities

in health outcomes and improving overall system responsiveness and inclusiveness.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Bulgaria reported that measures to improve access to adequate and desegregated housing

are mainly implemented through mainstream regional development and urban infrastructure programmes, notably

Integrated Territorial Investments led by the Ministry of Regional Development and municipalities. Under the ‘Regions

in Growth’ operational programme, four housing rehabilitation projects improved 106 homes owned by marginalised

groups, including Roma, benefiting 191 people. Social housing construction also progressed, with 780 units built

against a target of 642, improving conditions for 1 503 people. Additionally, 17 projects upgrading social infrastructure

are expected to benefit over 42 000 people. Despite these efforts, disparities remain, with 67.5% of Roma living in

overcrowded housing in 2024, compared with 33.8%26 overall.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that Bulgaria has taken steps to improve access to rights and

services for Roma, including introducing a ‘service address’ for those unable to prove residence, enabling applications

for municipal housing without permanent registration, and linking reforms to ECtHR rulings through action plans.

However, implementation gaps remain, with uneven application by municipalities. Clear obligations and guidance are

needed to operationalise the service-address reform. Housing legislation should better protect the right to housing and

prevent evictions without alternatives. Bulgaria should also develop a comprehensive desegregated housing policy

24 Available at: Eurostat, (online data code edat_lfse_20),

https://ec.europa.eu/eurostat/databrowser/view/edat_lfse_20__custom_22314486/default/table. 25 See previous footnote. 26Available at: Eurostat, (online data code ilc_lvho05a),

https://ec.europa.eu/eurostat/databrowser/view/ilc_lvho05a/default/table?lang=en .

12

addressing informal settlements and ensuring access to basic services.

ASSESSMENT: Recent investments in social housing, housing rehabilitation and social infrastructure provide a

stronger basis for improving housing conditions for vulnerable groups, including Roma communities. The 2024

amendment to the Civil Registration Act introducing an ‘service’ or ‘official address’ is also a positive step towards

improving access to housing rights and services. However, significant disparities persist, with 79% of Roma living in

overcrowded housing compared with 34% of the general population27. Moving forward, further efforts will be needed

to: (i) ensure consistent implementation at municipal level; (ii) strengthen safeguards against evictions without

adequate alternatives; and (iii) develop more comprehensive desegregated housing policies addressing informal

settlements, access to basic services and long-term housing inclusion.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP has strengthened coordination and methodological support for regional and

municipal authorities in implementing the NRSF. It issued guidelines requiring inclusive participation of Roma

communities, civil society and institutions in developing regional strategies and municipal plans for 2024-2027.

Despite the T.E.A.M.3 National Roma Platform not being operational for a time, cooperation between institutions,

local authorities and Roma stakeholders continued, supporting participatory planning and monitoring. Regional and

local councils on ethnic and integration issues remain operational, with designated experts liaising with the NRCP and

reporting annually. The National Council for Cooperation on Ethnic and Integration Issues (NCCEII) resumed dialogue

in 2024, while Roma civil society engaged in national and EU platforms. The Commission for Protection against

Discrimination continued joint awareness activities and promotion of its certification scheme.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that the partial reform of the National Roma Contact Point

initially excluded Roma and pro-Roma organisations, and the proposed new unit lacked a reference to ethnic policies

until several Roma NGOs intervened to change its name. They noted that the new National Action Plan was drafted

without targeted consultation and that Roma organisations remain excluded from monitoring the national framework,

participating instead mainly through the Roma Civil Monitoring (RCM) coalition. Civil society also pointed out that

Roma NGOs left the NCCEII due to structural issues, stressing that meaningful partnership will require deeper

institutional reform.

ASSESSMENT: In order to make progress, Bulgaria is encouraged to ensure Roma and pro-Roma organisations are

actively included in the reform of the NRCP and have a significant role in the monitoring of the NRSF. Engaging

Roma organisations in drafting the National Action Plan through targeted consultations can ensure their perspectives

are included. Addressing structural issues within the NCCEII will foster meaningful partnerships and strengthen

institutional reform.

FUNDING

Bulgaria’s Roma inclusion measures are financed through national, EU and international sources, although most

programmes are mainstream and do not report Roma-specific expenditure. Targeted funding includes EUR 1.34 million

for combating antigypsyism and discrimination and over EUR 43 million from ESF+ for inclusive education of

vulnerable groups. Mainstream education measures earmarked EUR 71.6 million from ESF+, while EUR 79 million

has been allocated for targeted social inclusion and labour market integration of vulnerable groups, including Roma.

Health-related actions received EUR 230 081 from national and international funding. Under the 2014-2020 ‘Regions

in Growth’ operational programme and the 2021–2027 ‘Development of Regions’ (ERDF) programme, eligible

activities include social and health infrastructure, affordable housing, education infrastructure and neighbourhood

renovation. However, no mandatory requirements, evaluation bonuses or resource set-asides are in place to support

Roma inclusion.

MONITORING AND EVALUATION

The NRSF for Bulgaria sets quantitative targets for all objectives except participation and qualitative targets for all EU-

level objectives. It also includes indicators to monitor implementation across all EU-level objectives, with the

27Available at: Eurostat, (online data code ilc_lvho05a),

https://ec.europa.eu/eurostat/databrowser/view/ilc_lvho05a/default/table?lang=en.

13

exception of participation. These indicators cover the majority of the EU-level headline indicators, and the NRSF sets

targets to be achieved by 2030 for each of them.

In addition, the country has put in place a monitoring and evaluation mechanism for the NRSF, with monitoring reports

produced on an annual basis. Roma and pro-Roma CSOs are involved in monitoring the implementation of the

framework.

PROMISING PRACTICES

The Food and Basic Material Support Programme is a key measure aimed at reducing poverty and supporting

vulnerable families, including Roma. It combines two main interventions: (i) providing nutritional support for children

aged 10 months to 3 years through meal vouchers distributed via children’s centres; and (ii) distributing basic material

packages for newborns. By the end of 2025, around 5 000 children and 5 000 families are expected to benefit, while by

the end of 2024, 883 children had already received support. The programme contributes to improving early childhood

conditions, strengthening parental capacity, and facilitating access to social services, thereby supporting longer-term

social inclusion.

The educational mediators scheme. Educational mediators serve as a bridge between schools and vulnerable

communities. The number of mediators was increased thanks to the Ministry of Education and systemic ESF-funded

projects (‘Support for Success’ and ‘Active Inclusion’). In July 2023, changes in the Financing Decree secured EUR 5

million annually from the state budget for 1 260 educational mediators, teaching assistants, and social workers in

schools with vulnerable students. Mediators were officially added to school staff roles (Dec. 2023), gaining equal

rights, and training opportunities were approved (Aug. 2024). This marks a successful transition of a good practice

from ESF to permanent national funding.

Roma labour mediators are a central component of Bulgaria’s employment approach, working within public

employment services to activate and support Roma jobseekers. Their role includes outreach in communities, motivation

of inactive individuals, and facilitation of registration with Labour Offices. Between June 2023 and March 2025, 15

726 Roma were activated through mediator’s work, and mediators also engaged employers, including holding 1 707

meetings in 2024. They are funded through the state budget under the ‘Activation of inactive persons’ national

programme with EUR 731 767 allocated in 2024 to cover their salaries. This model represents a structured, state-

funded mechanism linking community outreach with mainstream employment services.

14

Table 3 - Czechia

Czechia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

National Strategy for Equality, Inclusion and Participation of Roma (Roma

Integration Strategy) 2021–203028

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 250 000 Roma in Czechia

(1.91% of the population).29

In the 2021 census 21 691 self-declared as Roma30.

NATIONAL ROMA CONTACT

POINT (NRCP) Office of the Government Council for Roma Minority Affairs

NATIONAL ROMA CONTACT POINT

The NRCP operates with a budget of CZK 9 million (EUR 360 000) for 2023-2025, financed entirely from the national

budget. Four employees are responsible for coordinating and monitoring the NRSF, managing six committees and

working groups, and the Government Council for Roma Minority Affairs. The NRCP also administers three grant

programmes, cooperates with international institutions, and supports the Government Commissioner for Roma

Minority Affairs. It contributes to mainstreaming Roma inclusion by taking part in programming and monitoring for

EU funds, and by commenting on calls under the Johannes Amos Comenius31 and Employment Plus32 programmes.

The NRCP has reported challenges related to limited human resources. As of July 2026, the Office operates under the

Ministry of Labour and Social Affairs.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: A key achievement was the adoption of the definition of antigypsyism by the Government

of the Czech Republic and the Senate, fulfilling an important objective to reduce antigypsyism. This resulted from

coordinated efforts by public authorities, advisory bodies, and civil society actors, who highlighted its alignment with

national and international commitments and its value for awareness-raising. In addition, the Czech Republic introduced

a notable measure in April 2025 by extending for five years the deadline for compensation claims related to illegal

sterilisations. This was complemented by a dedicated subsidy programme supporting NGOs in assisting victims with

applications and conducting outreach, thereby strengthening access to justice and improving public awareness.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge some progress in recognising antigypsyism in CZ’s

national Roma strategy. However, implementation remains weak, in particular penalties for specific manifestations of

antigypsyism are limited and often dependent on a broader interpretation of existing legal provisions. Insufficient

funding for Roma civil society further restricts effective monitoring and responses to antigypsyism.

ASSESSMENT: Czechia is encouraged to build on the formal recognition of antigypsyism by translating the adopted

definition into more systematic implementation across public policies, awareness-raising activities and institutional

practices. Going forward, strengthening the effective enforcement of anti-discrimination and hate crime legislation,

alongside improving monitoring and reporting mechanisms, could support a more consistent response to manifestations

28 CZ National Strategy for equality, inclusion and participation: https://commission.europa.eu/document/download/abfe2680-8b7f-

48e1-a93c-2d639cc3f109_en?filename=strategie-2021-2030_final.pdf. 29 Available at: https://rm.coe.int/1680088ea9. 30 According to the 2022 governmental Report on the State of the Roma Minority. Available at:

https://vlada.gov.cz/cz/ppov/zalezitosti-romske-komunity/aktuality/zprava-o-stavu-romske-mensiny-v-ceske-republice-za-rok-2022-

212008/. 31 Available at: https://opjak.cz/. 32 Available at: https://www.dotaceeu.cz/en/evropske-fondy-v-cr/kohezni-politika-po-roce-2020/programy/programy2021_2027/op-

zamestnanost.

15

of antigypsyism. Ensuring sustainable support for Roma and pro-Roma civil society organisations may further enhance

community outreach, advocacy and victim support. Continued efforts to facilitate access to the sterilisation

compensation scheme, including through accessible procedures and targeted outreach, could also help ensure effective

access to justice for affected women

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Czechia did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: CSOs report progress through the Employment+ programme, which funds

social inclusion projects involving Roma CSOs, and through the Social Inclusion Strategy (2021–2030)33. However,

the socio-economic situation of Roma has worsened due to inflation, rising costs, and the energy crisis, deepening

poverty and exclusion. The housing crisis and debt trap remain critical, aggravated by discrimination and the lack of an

affordable housing strategy. CSOs also highlight limited funding, weak implementation, and the failure to scale

effective practices, while an ethnically blind approach continues to hinder targeted support for Roma.

ASSESSMENT: Czechia is encouraged to strengthen the implementation of its NRSF by placing greater focus on

reducing persistent poverty and social exclusion affecting Roma communities. Despite existing inclusion measures,

Roma remain disproportionately affected by poverty, labour-market exclusion and inadequate housing conditions.

Poverty is widespread, with 52% of Roma at risk compared with 9.5% of the general population34. Severe material

deprivation affects about a quarter of Roma households, although this has improved since 201635. Going forward,

Czechia could prioritise measures addressing over-indebtedness, access to debt relief and affordable housing, while

ensuring stable funding, regular evaluation and wider scaling-up of effective inclusion practices. Strengthening targeted

support mechanisms may also help address the disproportionate impact of rising living costs on Roma households.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Czechia seeks to strengthen Roma participation in decision-making by ensuring that they

are represented in advisory and consultative bodies across key ministries, including health, education, and labour. It

also supports Roma involvement in the working bodies of EU operational programmes for 2021–2027, with one to two

representatives in each, contributing to the design and monitoring of social inclusion policies. In terms of progress,

authorities continued grant programmes in 2024 focused on community work and organising, aimed at enhancing civic

competences, particularly in socially excluded localities. Additionally, a new subsidy programme was introduced to

support NGOs assisting victims of illegal sterilisation and raising awareness, contributing to both individual support

and broader community empowerment.

FEEDBACK FROM CIVIL SOCIETY: Progress in capacity building is noted, with the Employment+ programme

funding around 40 Roma projects and the ROVA initiative36 under the Citizens, Equality, Rights and Values

Programme (CERV) supporting Roma NGOs. However, short-term funding, limited institutional support, and

understaffing in public bodies continue to hinder long-term planning and meaningful Roma participation in

policymaking.

ASSESSMENT: Czechia is encouraged to build on existing participation mechanisms by strengthening the long-term

institutional capacity of bodies responsible for Roma inclusion, particularly within the Government Office and the

Office of the Commissioner for Roma Minority Affairs and ensuring more sustainable support for Roma civil society

organisations. Going forward, stable and predictable funding could help Roma NGOs move beyond short-term project-

based activities and participate more consistently in policymaking, implementation and monitoring processes. Further

efforts to reinforce the role of Roma representatives in advisory bodies and EU operational programme structures may

support more meaningful participation in decision-making across sectors. Strengthening coordination between public

authorities and Roma civil society could also contribute to more effective and inclusive policy design at national and

local levels.

SECTORAL OBJECTIVES

33 Available at: https://natlex.ilo.org/dyn/natlex2/natlex2/files/download/116675/CZE-116675%20(EN).pdf . 34 Available at: Eurostat dataset ilc_li02, https://ec.europa.eu/eurostat/databrowser/view/ILC_LI02/default/table?lang=en. 35 Available at: https://fra.europa.eu/sites/default/files/fra_uploads/fra-2025-roma-survey-2024_en.pdf. 36 Available at: https://ergonetwork.org/project/rova/.

16

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The NRCP in cooperation with the Office for Personal Data Protection and relevant

ministries, has developed a standardised methodology for collecting ethnicity-based data on Roma children and youth.

This initiative aims to improve the reliability of data used to monitor and address educational segregation, in line with

national legislation and European Court of Human Rights requirements. A further significant development is the

inclusion of Roma history and culture in the revised elementary school curriculum. This was achieved through the

active involvement of Roma representatives and experts, including members of advisory bodies and civil society, who

contributed to the Ministry of Education’s revision process and supported the integration of this content.

FEEDBACK FROM CIVIL SOCIETY: Progress has been made through targeted education measures, including: (i)

a specific call for Roma CSOs under the 2024 Johannes Amos Comenius programme; (ii) support for disadvantaged

schools under the National Recovery Plan; and (iii) new methodologies to combat segregation developed by the

Ministry of Education, the National Pedagogical Institute, and PAQ Research. The creation of a Children’s

Ombudsperson is also seen as a positive step forward. However, segregation of Roma pupils remains widespread and

low educational attainment persist among Roma adults. Civil society highlights the need for stronger desegregation

measures, better data collection, and impact evaluation to assess the real outcomes of education policies for Roma.

ASSESSMENT: Recent initiatives, including the development of a standardised methodology for ethnicity-based data

collection and the inclusion of Roma history and culture in the revised curriculum, provide a stronger basis for

addressing educational inequalities and segregation in the future. The involvement of Roma representatives and civil

society in these processes is a positive step towards more inclusive policymaking. However, major challenges remain.

Participation of Roma children in early childhood education and care (ECEC) remains low, at 48% in 2024 compared

with 85%37 among the general population. School segregation also persists, with 58% of Roma children aged 5–16

attending schools where most classmates are Roma38, while around one third follow a reduced curriculum39. Further

efforts are also needed to support upper secondary completion, strengthen desegregation approaches and promote equal

educational opportunities for Roma pupils.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The main achievement is the creation of opportunities to complete qualifications within

active employment policy programmes, which should also support Roma employability. The measures under these

programmes include support for first work experience, job placements, apprenticeships, and career development. The

Law on Integration Social Enterprises40 has been proposed to support the employment of vulnerable groups.

FEEDBACK FROM CIVIL SOCIETY: CSOs recognise progress in promoting employment and social

entrepreneurship, notably the new legislation on social enterprises and Ministry of Labour ‘integration jobs’41, which

combine wage subsidies for target groups and individual social work for new employees. However, labour market

discrimination, limited targeting of Roma, and the inability to collect ethnic data hinder effective policy evaluation.

CSOs call for better-targeted measures, including Roma counsellors, employer incentives, and stronger support for

social enterprises. They also highlight the need to address debt traps, low skills, and weak project sustainability.

ASSESSMENT: Czechia is encouraged to build on recent labour-market initiatives, including the proposed Law on

Integration Social Enterprises and integration job schemes, to further strengthen the labour-market inclusion of Roma.

Despite ongoing efforts, Roma continue to face significant employment disparities, with an employment rate of around

55% in 2024 compared with 82.3%42 among the general population43. Over 300 segregated localities where Roma

37 Available at: Eurostat, (online data code educ_uoe_enra21),

https://ec.europa.eu/eurostat/databrowser/view/educ_uoe_enra21/default/table?lang=en. 38 Ibid. 39 Available at: https://edu.gov.cz/wp-

content/uploads/2023/04/Final_Vyzkumna_zprava_%C2%A7_16_9_MSMT_PAQ_STEM.pdf 40 Available at: https://ceske-socialni-podnikani.cz/zakon-o-isp/pravni-predpisy. 41 Available at: https://www.mpsv.cz/pilotni-overeni-integracniho-pracovniho-mista. 42 Available at : Eurostat, (online data code lfsi_emp_a),

https://ec.europa.eu/eurostat/databrowser/view/lfsi_emp_a__custom_22320967/default/table. 43 Ibid.

17

represent majority of the population have a 90-100% unemployment rate44. Going forward, further attention could be

given to scaling up targeted support measures, including skills development, counselling and pathways to stable

employment, particularly in socially excluded localities with very high unemployment. Strengthening support for social

enterprises, improving the sustainability of employment programmes and enhancing monitoring and evaluation

mechanisms may also contribute to more effective and inclusive labour-market policies.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Czechia continued to operate the regional health support centres and health support

mediators through the EU-funded ‘Effective Health Support’ project, which has enhanced healthcare accessibility at the

regional level. These initiatives focus on improving health literacy and navigating the healthcare system for

marginalised communities. However, retaining staff and transitioning to systemic national financing after the

conclusion of EU project cycles remains a critical challenge for the long-term sustainability of these services.

FEEDBACK FROM CIVIL SOCIETY: CSOs characterise existing health measures as insufficient relative to the

scale of disparities and report that systemic bias and antigypsyism in healthcare settings continue to undermine trust.

They highlight those significant barriers - including out-of-pocket expenses, co-payments, and the limited availability

of primary care in disadvantaged regions - continue to obstruct equal access. Furthermore, CSOs call for the collection

of ethnically disaggregated data to make health inequalities statistically visible and to allow for evidence-based policy

evaluation.

ASSESSMENT: While significant investments in healthcare infrastructure have been made through ERDF and ESF+

support to improve primary, psychiatric, and urgent care, the specific impact on Roma communities remains unclear

due to the lack of disaggregated data and limited targeting of marginalised groups. Roma continue to face barriers in

accessing healthcare, including discrimination and reduced service availability in remote or disadvantaged areas. To

address these gaps and reduce persistent inequalities, such as the life expectancy gap, Czechia is encouraged to: (i)

strengthen the enforcement of anti-discrimination rules; (ii) institutionalise the health mediator model through stable

national funding; and (iii) invest in culturally sensitive services.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The primary achievement is the 2025 approval of the Housing Support Act45.This

legislation establishes systemic support for those in housing need, specifically addressing ethnic discrimination against

Roma. It introduces essential tools like housing advice, assistance services, and a rental guarantee system to de-risk

private market participation for landlords. This milestone resulted from effective coordination between the Ministry of

Regional Development and the Ministry of Labour and Social Affairs, ensuring targeted support for vulnerable groups.

By transitioning from temporary projects to a permanent legal framework, the Act provides a sustainable foundation for

equal housing access and incorporates mechanisms to track outcomes for the Roma community.

FEEDBACK FROM CIVIL SOCIETY: CSOs note progress through updated housing subsidy rules and the 2025

Housing Support Act recognising discrimination as a vulnerability. They also noted that Roma are still facing severe

housing poverty, limited access to municipal housing and insufficient state support for municipalities.

ASSESSMENT: Czechia is encouraged to build on the 2025 Housing Support Act by ensuring effective

implementation, adequate funding and measurable impact for Roma communities. Despite the new legal framework,

major disparities persist: in 2024, 81% of Roma lived in overcrowded housing compared with 17%46 of the general

population47, while home ownership among Roma remained extremely low. Roma also continue to face high risks of

eviction, housing insecurity and discrimination in access to municipal and private housing. Going forward, Czechia

should: (i)strengthen municipal capacities; (ii) ensure sufficient financial support; (iii) improve monitoring of

outcomes for Roma; and (iv) reinforce anti-discrimination and anti-segregation measures to achieve sustainable equal

access to housing.

44 Available at: https://ergonetwork.org/2024/11/research-report-on-roma-access-to-decent-and-sustainable-employment/. 45 Available at: https://socialnibydleni.mpsv.cz/mitdomov. 46 Available at: Eurostat, (online data code ilc_lvho05a),

https://ec.europa.eu/eurostat/databrowser/view/ilc_lvho05a/default/table?lang=en. 47 Available at: https://fra.europa.eu/sites/default/files/fra_uploads/fra-2025-roma-survey-2024_en.pdf.

18

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP facilitates the involvement of Roma and pro-Roma civil society, regional and

local authorities, and other stakeholders in the design, implementation, monitoring, and review of the National Roma

Strategic Framework (NRSF). Representatives of these actors, including Roma NGOs, are members of the Government

Council for Roma Minority Affairs and its committees and working groups, where they provide input, most recently

during the 2024 NRSF revision. The NRCP also ensures they take part in working bodies for EU funds and provides

methodological support to regional coordinators and Roma advisers. However, the National Roma Platform has not

been established, and there is no formal cooperation between central and local authorities in the design or

implementation of EU-funded programmes.

FEEDBACK FROM CIVIL SOCIETY: CSOs participated in the review of the NRSF in 2024 via Roma

representatives on the Government Council for Roma Minority Affairs and RomanoNet. However, final decisions

remained with ministries. Roma CSOs complement official monitoring through their own reporting and advocacy. The

Council and the Commissioner for Roma Minority Affairs provide key dialogue platforms.

ASSESSMENT: Czechia is encouraged to build on existing consultation structures by further strengthening the

institutional participation of Roma civil society and local stakeholders in the implementation and monitoring of the

NRSF. Going forward, establishing the National Roma Platform could support more structured cooperation between

central, regional and local authorities, particularly in the design and implementation of EU-funded programmes.

Further efforts to enhance the role of Roma CSOs in monitoring, advocacy and policy evaluation may contribute to

more inclusive and evidence-based policymaking. Strengthening coordination mechanisms and ensuring meaningful

stakeholder participation throughout all stages of programme implementation could also support more effective

responses to antigypsyism, discrimination and social exclusion.

FUNDING

Roma inclusion measures in Czechia are financed through a combination of national, EU and international funding.

However, most objectives do not report dedicated budgets, as Roma-specific spending cannot be reliably disaggregated

from mainstream measures. The most clearly identifiable funding concerns participation, with EUR 9.48 million from

national, EU and international sources, including the Employment Plus programme, the Johannes Amos Comenius

programme, and EEA and Norway Grants. Additional support is provided through specific objectives promoting the

socio-economic integration of marginalised communities, with EUR112 million allocated under the operational

programme JAC and EUR 38 million under the operational programme Employment Plus. The Integrated Regional

Programme further supports social inclusion through ERDF funding of EUR 1.3 billion. Although not specifically

targeted, these measures include Roma among their beneficiaries and contribute to improving their living conditions.

MONITORING AND EVALUATION

The NRSF sets quantitative targets for all objectives except Objective 2 (Poverty and social exclusion) and Objective 3

(Participation). It does not set any qualitative targets. It also includes indicators for monitoring implementation in all

EU-level objectives except Objective 2 (Poverty and social exclusion). These indicators include many of the EU-level

headline indicators. The country also sets targets to achieve by 2030 for all these indicators. It has set up a mechanism

for monitoring and evaluating the NRSF with monitoring reports produced on annual basis. Roma or pro-Roma CSOs

are involved in monitoring the implementation of the NRSF.

19

PROMISING PRACTICES

A subsidy programme launched in 2024 by the Office of the Government Department for Human Rights and Protection

of Minorities supports NGOs assisting victims of illegal sterilisation48. The programme enables CSOs to help

applicants prepare and submit compensation claims under the 2022 Law on the Provision of a Lump Sum to Persons

Sterilised in Violation of the Law, and to conduct information and awareness-raising campaigns on the issue. This

funding mechanism has proven to be an innovative and responsive solution to fill a gap in financial support for NGOs

providing direct assistance to victims.

The Johannes Amos Comenius programme supports measures to improve educational outcomes for disadvantaged

pupils, including Roma children. The programme includes support for Roma civil society organisations working with

disadvantaged pupils and students. In addition, targeted support was provided to disadvantaged schools under the

National Recovery Plan, including methodological and financial assistance to improve educational quality in schools

serving socially disadvantaged communities49.

48 Ibid. 49 Available at: https://opjak.cz/.

20

Table 4 - Denmark

Denmark

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Denmark does not have a standalone NRSF. Policies affecting Roma are

incorporated within a broader set of policy measures aimed at social

inclusion.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

2 500 according to Council of Europe (CoE) estimates50.

NATIONAL ROMA CONTACT

POINT (NRCP)

Agency for Immigration and Integration (SIRI) under the Ministry of

Immigration and Integration.

NATIONAL ROMA CONTACT POINT

The NRCP reported that Denmark does not have integration policies tailored to specific ethnic groups, nor do the

authorities collect data disaggregated by ethnicity, as they avoid registering residents’ ethnicity. Instead, all individuals,

including Roma, have equal access to services provided by the universal welfare state – such as integration measures,

childcare, education, healthcare, and employment – funded mostly through general taxation. The NRCP has a budget of

EUR 30 000 for 2023-2025, with one person listed as an employee.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Denmark did not report any specific achievement. Measures to prevent discrimination,

including against Roma, are addressed through the mainstream equality and anti-discrimination framework rather than

Roma-specific policies

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that progress in combating antigypsyism and discrimination

against Roma remains limited with no concrete measures, targets, funding or monitoring. Instead, there is a reliance

mainly on general anti-discrimination laws and universal welfare policies. CSOs also highlighted persistent

antigypsyist stereotypes in public and political discourse and observed that criticism from bodies such as the Council of

Europe and the Danish Institute for Human Rights has not yet led to significant policy changes.

ASSESSMENT: In Denmark, antigypsyism is addressed mainly through general anti-discrimination and equality

frameworks. No specific measures targeting Roma were reported.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Denmark did not report any specific achievement. Poverty and social exclusion are

addressed through the universal welfare system and mainstream social policies rather than through Roma-specific

measures.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that Denmark relies mainly on its universal welfare system to

address poverty and social exclusion, providing formal access to healthcare, education and social benefits. However,

this mainstream approach does not adequately address the specific barriers faced by Roma. In particular, intra-EU

migrant Roma - often from Romania and other Central and Eastern European countries - face homelessness, precarious

work and exclusion from the labour market, while administrative requirements such as obtaining a national registration

number limit their access to social assistance and housing

ASSESSMENT: In Denmark, poverty and social exclusion are addressed mainly through the universal welfare system

50 CoE estimates of Roma population: https://rm.coe.int/1680088ea9.

21

and mainstream social policies. No specific measures targeting Roma were reported.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Denmark did not report any specific achievements. Participation is promoted through

cooperation with civil society within the broader integration and social inclusion framework rather than through Roma-

specific structures. Civil society organisations working with vulnerable groups and people with foreign backgrounds

are supported through initiatives focused on volunteering, network-building and community activities, from which

Roma may also benefit.

FEEDBACK FROM CIVIL SOCIETY: CSOs noted that Roma participation remains limited. They highlighted the

absence of structured mechanisms for involving Roma or pro-Roma organisations in policymaking, monitoring or

evaluation of Roma-related initiatives. According to CSOs, the reliance on general integration and equality frameworks

means that Roma civil society is not systematically involved, and there are no dedicated platforms or funding schemes

specifically supporting Roma participation.

ASSESSMENT: Participation in Denmark is mainly addressed through general civil society cooperation and broader

integration policies. No specific mechanisms for Roma participation or structured involvement of Roma civil society

organisations were reported.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Denmark did not report any specific achievement. Access to education is ensured through

the mainstream education system.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that Roma in Denmark have formal access to education

through the general public education system but no specific measures addressing Roma pupils’ needs or barriers to

access. They noted that the situation of intra-EU migrant Roma, particularly those without a national registration (CPR)

number, can limit their effective access to education and other services.

ASSESSMENT: Education in Denmark is addressed through the general education system, which provides equal

access to free and compulsory schooling. No Roma-specific measures or monitoring mechanisms were reported.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Denmark did not report any specific achievement. Employment support is provided

through the mainstream active labour market policies rather than Roma-specific measures.

FEEDBACK FROM CIVIL SOCIETY: CSOs noted that the national Roma strategic framework in Denmark does

not include specific measures targeting Roma employment and relies mainly on general labour market policies. While

Roma formally have access to employment support services, CSOs indicated that some Roma, particularly intra-EU

migrants, may face challenges in accessing stable employment and often rely on temporary or informal economic

activities.

ASSESSMENT: Employment in Denmark is addressed mainly through general active labour market policies and

services provided by municipal job centres. No Roma-specific employment measures were reported.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Denmark did not report any specific achievement.Access to healthcare and social

services is ensured through the universal public health system.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported Roma in Denmark are formally covered by the universal

healthcare system, but access in practice can be uneven. In particular, Roma without a registered address or national

registration (CPR) number—often intra-EU migrants—may have only limited access to healthcare services, mainly

restricted to emergency treatment.

22

ASSESSMENT: Healthcare and social services in Denmark are provided through the universal public welfare system.

No Roma-specific measures or monitoring mechanisms were reported.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Denmark did not report any specific achievement. Access to housing and essential

services is addressed through the mainstream social and housing policies.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that Denmark does not have specific measures addressing

Roma housing needs. They noted that while Roma with legal residence formally have access to social housing and

support services, many intra-EU migrant Roma face homelessness and precarious living conditions, partly due to

difficulties in accessing the registration number required for housing assistance.

ASSESSMENT: Housing in Denmark is addressed through general social and housing policies, including municipal

homelessness support and access to the public housing sector. No Roma-specific measures or monitoring mechanisms

were reported.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: Denmark did not report any specific achievement. There were no specific cooperation

mechanisms with Roma or pro-Roma civil society organisations and no National Roma Platform in place. Regional and

local authorities were not specifically involved in Roma-related policies, and the NRCP has no role in the programming

or monitoring of EU funds related to Roma inclusion.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that Roma participation in Denmark remains very limited

with the absence of structured dialogue mechanisms. They highlighted that there are currently no active Roma civil

society organisations supported to engage with public authorities. As a result, participation tends to occur on an ad hoc

basis through individual initiatives rather than through institutionalised cooperation.

ASSESSMENT: Denmark reported no specific mechanisms for involving Roma civil society in the design,

implementation or monitoring of the national Roma strategic framework. No dedicated dialogue structures, such as a

National Roma Platform, or specific roles for regional or local authorities were reported.

PROMISING PRACTICES

Denmark did not report any specific promising practices.

23

Table 5 - Germany

Germany

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

In 2022, Germany adopted its National Roma Strategic Framework (NRSF),

“Tackling Antigypsyism, Ensuring Participation”51, which closely aligns

with the EU Roma Strategic Framework 2021-2030.

ESTIMATED ROMA

POPULATION

Council of Europe estimates

Council of Europe estimates: approximately 105.000 Roma and Sinti live in

Germany52.

NATIONAL ROMA CONTACT

POINT (NRCP)

Federal Ministry for Education, Family Affairs, Senior Citizens, Women and

Youth

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating and monitoring the national Roma Strategy. It employs 5 people. Its annual

budget of EUR 1 270 000 is earmarked specifically to supports the Antigypsyism Reporting and Information Centre

(MIA)53. The NRCP facilitates interministerial cooperation through a working group meeting twice yearly, involving

federal ministries and key agencies addressing anti-discrimination, migration, antigypsyism, minority affairs, and

culture. The NRCP also holds an annual federal-state meeting on monitoring antigypsyism. It additionally sits on the

advisory committee for the ESF+ programme known as EhAP Plus (Integration helps counter the exclusion of the most

deprived), in a primarily consultative role.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The Federal Government Commissioner against Antigypsyism has established key

structures, including the Federal-State Commission to Combat Antigypsyism54 and the Sinti and Roma Forum (Bund-

Länder-Kommission)55 - a recurring nationwide exchange between state authorities, foundations, and Sinti and Roma

organisations. The independent MIA systematically records and evaluates instances of antigypsyism, documenting

1.233 in 2023. The 'Live Democracy‘56 federal programme raises awareness and empowers Sinti and Roma

communities. A cooperative alliance against antigypsyism was founded in January 2025 under its third funding period

(2025 - 2032). The adoption of the International Holocaust Remembrance Alliance (IHRA)57 working definition on

antigypsyism in March 2021 further supports this work. The Federal Anti-Discrimination Agency (FADA)58 has

initiated a participatory dialogue process to develop community-based demands for anti-discrimination surveys and

data collection.

FEEDBACK FROM CIVIL SOCIETY: Germany has taken steps to address antigypsyism, including a 2023

parliamentary resolution59 calling for 27 measures, the establishment of a Standing Commission of federal and

51 Available at: BMI - Homepage - 2022 - Tackling Antigypsyism, Ensuring Participation - National Strategic Framework to

Implement the EU Roma Strategic Framework in Germany. 52 Available at: https://rm.coe.int/1680088ea9. 53 Available at: https://www.antiziganismus-melden.de/en/. 54 Available at: https://www.bmbfsfj.bund.de/bmbfsfj/staendige-bund-laender-kommission-gegen-antiziganismus-und-fuer-das-

leben-der-sinti-und-roma-nimmt-arbeit-auf-250606. 55 Available at: https://www.bmbfsfj.bund.de/bmbfsfj/aktuelles/alle-meldungen/michael-brand-sinti-und-roma-leisten-wertvollen-

beitrag-fuer-unser-land-274176. 56 Available at: https://www.demokratie-leben.de/en/. 57 Available at: https://www.holocaustremembrance.com/resources/working-definitions-charters/working-definition-antigypsyism-

romani-discrimination. 58 Available at: https://www.antidiskriminierungsstelle.de/EN/. 59 Available at: https://dserver.bundestag.de/btd/20/097/2009779.pdf.

24

regional authorities, and strengthened monitoring through the MIA. The Federal Anti-Discrimination Agency

coordinated NGO consultations on data collection, while the Educational Forum Against Antigypsyism60 cooperates

with the Federal Criminal Police on training. High-level participation in Roma Holocaust commemorations has

increased awareness. However, antigypsyism remains widespread. The NRSF lacks targeted measures to address it, and

many elements of the parliamentary resolution have not yet been implemented. Funding for the MIA has also been

uncertain, with the 2025 budget initially proposing only EUR 25 000 before emergency funding was secured on a

temporary basis.

ASSESSMENT: Germany could benefit from strengthening its efforts against antigypsyism by ensuring sustainable

and predictable funding for key structures like the MIA. Implementing targeted measures within the NRSF, which

currently lacks defined goals, indicators, and action plans — and addressing unfulfilled parliamentary demands will

reinforce the progress made. The Federal-State Commission aims to foster a more effective and better coordinated

policy for the protection and participation of Sinti and Roma across federal and regional levels. Enhancing

sustainability and expanding the scope of existing initiatives, including those fostering dialogue and awareness, can

further help combat widespread antigypsyism.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: The EhAP Plus ESF+ programme - (2021–2027) aims to improve the living conditions

and social integration of particularly deprived newly arrived EU citizens and their children under the age of 18, as well

as homeless people or people at risk of homelessness. It includes measures to raise awareness and train employees in

public administrations on the issues of antigypsyism and anti-discrimination. The Federal Foreign Office supports

various projects that raise awareness of the situation of Roma and could pave the wat for reducing poverty and

exclusion. Germany continues to engage with the Berlin Process: building on the 2019 Poznan Declaration61, a

ministerial meeting on Roma integration reaffirmed commitments to strengthen the socio-economic inclusion of Roma

communities and address antigypsyism.

FEEDBACK FROM CIVIL SOCIETY: No specific measures targeting the Sinti and Roma communities have been

developed or implemented. For historical reasons, no ethnicity-based data are collected by the Federal State making it

difficult to estimate the overall scale of the issue. Independent complain offices should be set up in public institutions.

A reform of the General Equal Treatment Act (AGG)62 is necessary as complaints cannot currently be filed against

anyone acting in an official capacity in the state sphere (except in Berlin). Institutional antigypsyism continues to be a

blatant problem in unemployment offices, youth welfare offices, immigration authorities, municipal administrations

and the education sector.

ASSESSMENT: Germany could set up mainstream efforts to combat exclusion and improve Roma living conditions

by implementing targeted anti-poverty measures for Sinti and Roma. Establishing independent complaint bodies within

public institutions and reforming the General Equal Treatment Act to address discrimination by state authorities would

provide stronger safeguards. Furthermore, gathering ethnicity-based data, with community support, could help assess

the scale of exclusion more accurately and shape effective interventions. The absence of a National Roma Platform and

formal monitoring mechanisms for the NRSF represents a significant structural gap, compounded by the NRSF lack of

specific anti-antigypsyism measures. In addition, of the 2023 parliamentary resolutions , 27 measures have not yet been

implemented.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The Federal Government Commissioner is assisted by an advisory body composed of 11

members, including 6 members of the Sinti/Roma minority. Communication between the national minority of German

Sinti/Roma and federal policy makers/ the federal administration has been institutionalised through: (i) the Sinti and

Roma Forum and the Federal-State Commission to Combat Antigypsyism, (ii) policy and press monitoring and (iii) an

annual meeting of the Consultative Committee set up at the Federal Ministry of the Interior. A Romanes Academy is

being established to further develop teaching materials for the Romani language, train lecturers, and develop digital

language courses and further educational services. In March 2025, the Consultative Committee’s new rules of

60 Available at: https://dokuzentrum.sintiundroma.de/en/education/education-center-against-antiziganism/. 61 Available at: https://www.rcc.int/docs/464/declaration-of-western-balkans-partners-on-roma-integration-within-the-eu-

enlargement-process. 62 Available at: https://www.gesetze-im-internet.de/englisch_agg/englisch_agg.html.

25

procedure came into force, explicitly including minority youth in the list of members.

FEEDBACK FROM CIVIL SOCIETY: In 2023 and 2024, the Federal Commissioner against Antigypsyism63 hosted

the "Sinti and Roma Forum", inviting Roma and pro-Roma NGOs, community representatives and political figures to

discuss areas for improvement in the participation of communities. However, CSOs often face limited capacity and

resources, which restricts their ability to effectively engage in policymaking and advocacy. They did not participate in

the development of the NRSF and their expertise was not requested in policy development to any extent. While CSOs

take part in the Advisory Committee and will have seats in the new Standing Commission, their influence remains

limited, and they are still excluded from official data-collection processes.

ASSESSMENT: Germany could enhance its integration efforts by ensuring stable resources and capacity-building for

Roma and Sinti CSOs to facilitate more meaningful engagement in policymaking. Involving these organisations in the

design of the NRSF and other policies would strengthen collaboration. Expanding influence within the Advisory

Committee and Standing Commission could strengthen the impact of CSOs.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Although not reported by Germany it is worth noting that in March 2025 the Standing

Conference of the Ministers of Education and Cultural Affairs (KMK) and the Central Council of German Sinti and

Roma adopted a joint recommendation on tackling antigypsyism in schools64. It addresses prevention, intervention, and

teacher training, and calls for a permanent KMK working group on antigypsyism to be set up.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight that Germany has taken steps to strengthen inclusive

education for Sinti and Roma, including new recommendations on addressing antigypsyism in schools, expanding

mediation programmes, and municipal initiatives to support discrimination reporting. However, the NRSF includes no

reference to the structural, institutional and direct discrimination facing Sinti and Roma children, with 484 cases

recorded in 2023 and 2024. Concerns also persist regarding school segregation, including the placement of some

children in special schools without identified needs. In addition, children of recently arrived Roma may be

disproportionately represented in classes where the quality of learning conditions may vary.

ASSESSMENT: Germany has made progress through the 2021 antigypsyism working definition and the 2025 KMK

recommendation addressing the Holocaust and persecution of Sinti and Roma in the history curriculum. However,

structural discrimination persists over 17% of recorded discriminatory incidents in 2023 occurred in educational

settings, with school staff often implicated65. Germany could strengthen enforcement of anti-discrimination measures,

mandate antigypsyism training for educators, and establish binding targets within the National Roma Strategic

Framework. The absence of disaggregated data on Roma children’s educational outcomes - including attainment and

early school leaving rates - remains a critical gap, making progress difficult to measure and targets hard to monitor.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Germany did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that Germany has taken limited steps to support Roma

employment, including some initiatives under the Fund for European Aid to the Most Deprived (FEAD) for migrant

Roma and municipal training by Sinti and Roma NGOs to prevent antigypsyism. These remain isolated examples and

outside the NRSF framework. The NRSF lacks targeted measures for disadvantaged Sinti and Roma and does not

address antigypsyism as a structural barrier to labour-market integration. CSOs point to challenges posed by

administrative practices in employment offices, access to social services and the absence of low-threshold participation

mechanisms, which may disproportionately affect Roma. A focus on persons with a migration or refugee background

may not fully capture the situation of all Roma.

63 Available at: https://www.bmbfsfj.bund.de/bmbfsfj/themen/antiziganismus. 64 Available at: https://www.kmk.org/fileadmin/veroeffentlichungen_beschluesse/2025/2025_03_20-Empfehlung-

Antiziganismus.pdf. 65 Available at: https://www.antiziganismus-melden.de/en/2025/10/01/the-reporting-and-information-centre-on-antigypsyism-mia-

publishes-its-3rd-annual-report-on-antigypsyist-incidents-in-germany/.

26

ASSESSMENT: Germany could further strengthen the employment dimension of the NRSF by developing more

targeted measures addressing the specific situation of Sinti and Roma, including German Sinti and Roma who may not

fall within migration- or refugee-related policy frameworks. Going forward, greater attention to antigypsyism as a

structural barrier in employment and social services could support more inclusive and effective labour market policies.

The development of more accessible employment and support services, alongside stronger outreach and institutional

awareness, may help improve access to employment support. In addition, improving data collection and monitoring

mechanisms could support better assessment of employment outcomes and facilitate the future development of more

measurable objectives and targeted interventions.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Germany did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs, the NRSF contains no targeted measures addressing the

specific needs of Sinti and Roma communities. No ethnicity-based health data are available, limiting the assessment of

disparities. Clearing Centres provide some support to uninsured individuals, including Roma, but fall outside the NRSF

framework. Limited progress is reported in improving access to healthcare and social services for migrant Roma.

Reports also point to instances of discrimination in the health sector affecting Sinti and Roma. EU Roma citizens

without employment may face additional barriers, as access to statutory health insurance is linked to employment

status, which can limit access to coverage.

ASSESSMENT: Germany has yet to develop targeted measures in health and healthcare for Sinti and Roma within the

NRSF. Clearing Centres, while a relevant practice, remain outside the strategy’s framework. Germany should establish

low-threshold healthcare access mechanisms and address institutional antigypsyism in health services. With the

formation of a new government in May 2025, it remains to be seen how the ‘Tackling Antigypsyism - Ensuring

Participation’ national strategy will be further developed, particularly regarding measurable targets and indicators for

monitoring progress.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Germany did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that housing remains a central issue for Sinti and Roma. No

targeted measures have been implemented in recent years to address discrimination in housing. While some municipal

discussions on improving conditions in certain settlements have progressed, reports indicate continued difficulties in

accessing rental housing, including cases of explicit refusal based on Roma identity. EU mobile citizens and Roma

refugees may experience accommodation in less favourable conditions, including in reception facilities located far from

services. Disadvantaged Roma experiencing homelessness may face overcrowded or temporary housing situations.

Overall, rising homelessness trends in Germany may further affect vulnerable groups, including Roma, and highlight

the need for continued attention to housing inclusion.

ASSESSMENT: Germany’s housing approach for Sinti and Roma is primarily based on mainstream policies without

targeted measures. While intended to avoid stigmatisation, this approach may not fully address specific structural

disadvantages. The NRSF does not include specific targets, objectives, or monitoring indicators for housing. Regional

initiatives in cities such as Berlin provide local support; however, reports indicate ongoing challenges in accessing

housing, including discrimination, administrative barriers, and affordability constraints. The government formed in

May 2025 is encouraged to further develop measurable objectives and strengthen policy responses to improve housing

inclusion outcomes.

27

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: Several Roma organisations co-designed the Berlin Participation Act, shaping the

structure and role of the Roma and Sinti Advisory Body. Participation of Roma CSOs is enabled across several German

Länder, where Roma and Sinti CSOs play an active role in shaping and implementing regional action plans and

strategies. Across the country, 9 regional and 12 local action plans are in place. The NRCP cooperates with the FADA

on issues related to equal treatment and non-discrimination of Sinti and Roma. The FADA is part of the

interdepartmental exchange and is involved by the NRCP in all anti-discrimination matters. It also involves the NRCP

in its own projects and strategies.

FEEDBACK FROM CIVIL SOCIETY: No effective mechanisms have been established to ensure the meaningful

involvement of Sinti and Roma in the implementation and monitoring of integration policies such as the NRSF. While

CSOs take part in the Advisory Committee and will have seats in the new Standing Commission, their influence

remains limited. Thanks to the Federal Commissioner against Antigypsyism the ability of CSOs to highlight their needs

to the government has improved. Similarly, the strengthening of the NRCP has enabled organisations like the MIA to

establish regular communications. The MIA works closely with several CSOs to provide data on antigypsyism

incidents. However, CSOs are still excluded from official data-collection processes.

ASSESSMENT: Germany has continued to strengthen participation structures for Roma and Sinti at federal and

regional levels through cooperation with civil society, the strengthened role of the NRCP, and the work of the Federal

Commissioner against Antigypsyism. Regional and local action plans, alongside new advisory and coordination bodies,

provide a solid basis for further developing inclusive governance within the NRSF framework. Going forward, DE

could build on these developments by further institutionalising the participation of Roma and Sinti organisations in the

implementation, monitoring and evaluation of policies affecting their communities. Additional opportunities may also

exist to strengthen cooperation in data collection and to develop more structured and transparent consultation

mechanisms at national level.

PROMISING PRACTICES

The MIA is unique in Europe, as a government-funded body tasked with monitoring, analysing and publishing

antigypsyism incidents on an annual basis. It documented 621 incidents in 2022, 1.233 in 2023, and 1.678 in 202466

and produced a special report on antigypsyism against Ukrainian refugees.

The Federal Commissioner against Antigypsyism has improved the way Sinti and Roma issues are addressed within the

federal government, and the newly established Standing Commission has the potential for meaningful policy

coordination. Despite precarious funding, Sinti and Roma NGOs remain active across Germany in grassroots

organising, incident monitoring, education and community support.

In the reporting period, the Documentation and Cultural Centre received funding from the ‘Remembrance,

Responsibility and Future’ Foundation to conduct the project ‘Forgotten Memory’ project. A first exhibition was

presented in Heidelberg in the summer of 2024.

66 Available at: https://www.antiziganismus-melden.de/en/jahresberichte-von-mia-bund/.

28

Table 6 - Estonia

Estonia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Estonia does not have a specific National Roma Strategic Framework

(NRSF); instead, it addresses EU requirements through its ten-year national

integration strategy, ‘Cohesive Estonia 2021–2030 67,‘ accompanied by the

Integration Adaptation Programme 2022-202568. This programme includes

indicators focusing on Roma education and employment.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 1,05069. According to the 2021

census as of 1 January 2025, there are 690 Roma in Estonia.

NATIONAL ROMA CONTACT

POINT (NRCP) Ministry of Culture, Department of Cultural Diversity

NATIONAL ROMA CONTACT POINT

The 2023-2025 budget for the NRCP has been reported as EUR 1 214 684 and employs one person. The Estonian

NRCP monitors and coordinates national policies for Roma equality, inclusion and participation together with the

Roma Integration Council, which unites representatives of Roma CSOs, local municipalities and relevant ministries. It

can contribute to the design and development of Roma policies, participates in dialogue with local municipalities and

makes budget proposals. However, it is only consulted on the programming and monitoring of Union funds.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS MADE: Estonia integrates anti-racism and anti-discrimination measures within broader

national strategies, including the Wellbeing Development Plan 2023–2030,70 the Cohesive Estonia 2030 plan, the

Culture Development Plan 2021–203071, the Internal Security Development Plan 203072, and the Education

Development Plan 2021–203573. These frameworks address equality, social cohesion, cultural diversity, and inclusion.

Sectoral measures continue to support Roma through education, employment, social participation, and cultural

activities. Awareness-raising initiatives, such as the “We are all the face of Estonia” 74 campaigns, have been

undertaken to highlight cultural diversity and increase the visibility of Roma traditions and community events

within Estonian society.

FEEDBACK FROM CIVIL SOCIETY: Civil society reports that Estonia’s initiatives mainly focus on cultural

promotion. The Integration Adaptation Programme 2022–202575 lack specific measures to combat antigypsyism and

discrimination, with no targeted actions against the systemic exclusion of Roma. Research on antigypsyism is limited,

despite Roma concerns about negative stereotypes. The absence of discrimination indicators in the Integration

Programme further limits data collection and policy responses. NGOs and international bodies have highlighted that

the Penal Code’s provisions on incitement to hatred do not effectively protect minorities, including Roma, from hate

67 Available at: https://www.kul.ee/sites/default/files/documents/2022-02/cohesive_estonia_strategy.pdf. 68 Available at: https://commission.europa.eu/system/files/2022-10/1_1_estonia_incl_adaptation_programme_2022_2025_1.pdf. 69 CoE estimates of Roma population: https://rm.coe.int/1680088ea9. 70 Available at: https://www.sm.ee/heaolu-arengukava-2023-2030. 71 Available at: https://www.kul.ee/en/culture2030. 72 Available at: https://www.siseministeerium.ee/sites/default/files/documents/2025-

01/Siseturvalisuse_arengukava_2020_2030_48lk_final_ENG.pdf . 73 Available at: https://www.hm.ee/sites/default/files/documents/2022-

10/haridusvaldkonna_arengukava_2035_kinnittaud_vv_eng_0%20(1).pdf . 74 Available at: We are all the face of Estonia | Integratsiooni Sihtasutus. 75 Available at: Estonia - European Commission.

29

speech or address hate crimes.

ASSESSMENT: Estonia has continued to support Roma inclusion through broader national strategies promoting

equality, social cohesion, and cultural diversity. Educational, cultural, and social participation measures, alongside

awareness-raising campaigns, have helped increase the visibility of Roma communities. Going forward, policy

development could further strengthen the focus on discrimination and antigypsyism through enhanced monitoring

tools, research, and dialogue with civil society. Improved data collection may also support more evidence-based and

responsive policy approaches in future programming cycles.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS MADE: Efforts are being made to support local-level initiatives and foster cross-sector

partnerships, focusing on mentoring services for Roma in socio-economically vulnerable situations. This also includes

strengthening Roma civil society organisations. The Roma mentoring service in Valga provides individual counselling

and practical assistance to families in navigating interactions with local authorities. In 2023, the Ministry of Culture

launched an ESF+-supported initiative to enhance local government capacity for integration and adaptation services,

with specific attention to Roma needs. Between 2017 and 2023, the Ministry of Culture implemented EU-funded

projects to develop a national network supporting Roma integration.

FEEDBACK FROM CIVIL SOCIETY: CSOs report limited progress in reducing poverty and social exclusion

among Roma communities, with no targeted national measures identified. The main initiative remains the mentoring

service in Valga, which supports cooperation between Roma families, local authorities and institutions, while also

providing humanitarian assistance. However, budget constraints have limited the expansion of these services to other

municipalities. CSOs therefore stress the need to broaden mentoring services and establish dedicated funding for

humanitarian aid to better address poverty and exclusion among Roma communities.

ASSESSMENT: Estonia has taken steps to support Roma inclusion through mentoring services, local government

capacity-building, and cross-sector cooperation, with the Valga mentoring service representing a promising local

practice. Going forward, expanding similar support mechanisms to other municipalities with Roma populations76 could

strengthen access to social support and local services. Continued investment in local partnerships, alongside more

targeted measures addressing poverty and social exclusion, may further support the inclusion and wellbeing of Roma

communities within future policy frameworks.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS MADE: Efforts to empower the Roma community in Estonia focus on increasing civic

engagement and promoting Roma culture, language and history. The Platform for Roma Inclusion (ESTROM)77

projects, funded by the EU’s Citizens, Equality, Rights and Values Programme (CERV), have been instrumental. In

2023, the Ministry of Culture completed the ESTROM 3 project, developing cooperation among integration

stakeholders, Roma, local governments, and state institutions, including training for Roma women, youth and

educators. The Roma Cultural Centre in Tallinn and the Roma Youth Centre in Valga have been established to support

these objectives.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that government reporting on the ESTROM 3 project focuses on

activity summaries without assessing the impact of measures. Roma civil society organisations suffer from limited

capacity and no human nor financial resources, which hinders them in policymaking and advocacy roles. CSOs

highlight the need to ensure full participation of Roma NGOs in policy development, implementation, and monitoring.

They also flag the risk of burnout among active members, calling for a dedicated strategy or civil society framework

recognising Roma as a specific target group.

ASSESSMENT: Estonia has supported Roma empowerment through the ESTROM projects, training initiatives, and

the establishment of Roma cultural and youth centres, strengthening cooperation between Roma communities and

public institutions. Further efforts to support the capacity of Roma civil society organisations and their participation in

policymaking could make these initiatives more sustainable and inclusive. More systematic evaluation of programme

outcomes may also help future policy development.

76 Tallinn, Ida-Virumaa and Tartu. 77 Available at: https://www.eestiromad.ee/.

30

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS MADE: The Integration Foundation, supported by the Ministries of Culture and of

Education and Research, offers a mentoring service in Valga, where approximately a third of Estonia’s Roma live, and

assists students in completing compulsory schooling. The initiative, led by two Roma mentors from 2023 to 2025,

provides educational support to Roma children and youth, facilitates cooperation with parents and schools, and offers

additional learning support. In 2023, a Roma Youth Centre was opened in Valga, integrated with the mentoring service.

The school attendance of young Roma students participating in the work of the Valga Roma Youth Centre has

improved.

FEEDBACK FROM CIVIL SOCIETY: CSOs note the absence of new nationwide Roma-specific initiatives, while

local efforts continue, such as the Valga mentorship service and Roma Youth Centre. National educational reforms that

could benefit Roma children include mandatory native language and cultural education upon parental request, the

transition to Estonian-language education, and compulsory schooling until age 18 from September 2025. However, low

kindergarten attendance, insufficient data on school attendance, and the challenges posed by the language transition for

Roma children with limited Estonian skills remain concerns requiring targeted support.

ASSESSMENT: Valga mentorship programme and Roma Youth Centre have contributed to improving school

attendance and support for Roma children and youth at local level. Continued attention to increasing the participation in

early childhood education and care, school attendance data, and language support during the transition to Estonian-

language education may further strengthen secondary education attainment and equitable educational outcomes for

Roma students.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS MADE: The Integration Foundation has initiated the Roma employment project, launched

in March 2025 and funded by ESF+ until December 2027. The project targets Roma women and men aged 18-64 and

young people in grades 7-9, offering workshops, job clubs, professional training programmes, counselling, and

internships tailored to the Roma community. Additionally, a pilot network of Roma support personnel will be launched

in five regions of Estonia: Valga County, Tartu County, Harju County, Ida-Viru County, and Pärnu County. The Roma

employment rate stood at 17.5% in 2025, against a target of 21% by 2028. According to available data, 68.8% of Roma

are economically inactive, while 15.7% are unemployed78.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that whilst the mentoring service in Valga supported ten young

Roma in finding summer jobs in 2023, employment is not its primary focus, which limits its impact on Roma

unemployment. The lack of tailored labour market services continues to pose challenges. CSOs call for mentorship

services to be expanded to municipalities like Tallinn, Ida-Virumaa, and Tartu to make support more accessible, and

argue that providing dedicated employment mentors would offer more focused guidance.

ASSESSMENT: Estonia has recently increased its focus on Roma labour market inclusion through the ESF+-funded

Roma employment project and the planned network of Roma support personnel across several regions. These

initiatives may help improve access to employment support and tailored services for Roma communities. Continued

efforts to expand targeted employment support beyond existing local initiatives, alongside improved monitoring of

labour market outcomes, could further support the development of more effective and inclusive employment policies

for Roma communities.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS MADE: According to the Health Care Services Organisation Act79, anyone in Estonia is

entitled to emergency care, funded by the state for those without health insurance. General medical care for insured

individuals is also state-funded, with health insurance payments made through social tax on gross wages by most of the

78 Available at: https://www.fin.ee/sites/default/files/documents/2022-10/L%C3%B5imumisprogramm%202023-2026.pdf . 79 Available at: https://www.riigiteataja.ee/en/eli/ee/Riigikogu/act/531102013003/consolide.

31

working-age population. These payments cover health services for groups not actively contributing, including children,

pensioners, pregnant women, mothers at home with young children, and registered unemployed individuals. As a

result, unemployed Roma registered with the Estonian Unemployment Insurance Fund have access to free general

medical care and are covered by health insurance.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that no advancements have been made in Roma health or

equitable access to healthcare and social services. The Cohesive Estonia 2030 strategy and Integration Programmes

lack references to Roma healthcare. No data are collected on healthcare coverage for Roma or antigypsyism within the

healthcare system, making it difficult to assess disparity. RCM interviews indicate issues such as lack of health

insurance and occasional discriminatory attitudes. To address these gaps, targeted research and inclusion of relevant

measures in future Integration Programmes are needed.

ASSESSMENT: The healthcare system in Estonia provides universal access to emergency care and state-funded

medical coverage for insured and socially protected groups, including registered unemployed persons. This framework

also applies to Roma communities. However, the limited availability of disaggregated data and the absence of Roma-

specific references in key policy documents make it difficult to fully assess outcomes in practice and the extent to

which Roma communities effectively access healthcare and social services.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS MADE: No progress has been reported. Estonian Roma, who are permanent residents, live

in conventional housing. Social housing applications are governed by local regulations, such as in Valga, where

applicants submit a one-page form to the local government’s social services office or social adviser for a housing

decision. Despite the significant Roma population in areas like Valga and other municipalities, there are no specialised

services developed by the government or civil society to ensure Roma access to housing.

FEEDBACK FROM CIVIL SOCIETY: Estonian Romalive in regular housing, but there are no specialized services

to ensure adequate, desegregated housing or access to essential services specifically for the Roma community.

Challenges in securing affordable rentals, compounded by market conditions and discriminatory attitudes, can lead to

dependency on social housing. Despite no reports of homelessness, poor living conditions have been observed. CSOs

argue that targeted research is essential to better understand these issues and address the lack of comprehensive data.

ASSESSMENT: The housing system in Estonia is based on mainstream measures, and available information indicates

that Roma generally live in conventional housing, with no reported homelessness. At the same time, the limited

availability of disaggregated data makes it difficult to assess housing conditions and access in practice. The available

information points to possible challenges related to affordability and access to the housing market, while no Roma-

specific housing measures or services have been reported.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS MADE: All integration policies, development and action plans incorporate measures for

Roma integration and inclusion. Local civil society participates in the policymaking preparatory process, ensuring

diverse stakeholder involvement. The NRCP coordinates the Roma Integration Council and participates in working

groups, making budget proposals and engaging in dialogue with local municipalities. A Steering Committee has been

established for the implementation of Cohesive Estonia 2030, involving relevant ministries, the Association of Estonian

Cities and Rural Municipalities, and representatives of stakeholders and experts. The NRCP cooperates with the Anti-

Racism Action Plan Network and the Office of the Equality Commissioner.

FEEDBACK FROM CIVIL SOCIETY: Despite some involvement of the European Roma Forum in developing the

Cohesive Estonia Strategy 2021 - 2030, Roma participation in implementation and monitoring remains limited.

Existing mechanisms are mainly consultative, with the Roma Integration Council functioning primarily as an

information-sharing body without decision-making powers. Local involvement is linked to small-scale initiatives,

while Roma representation in public institutions and formal participation in monitoring and evaluation processes

appears limited.

ASSESSMENT: Estonia has integrated Roma inclusion within broader policy and coordination frameworks, involving

a range of public institutions, local authorities, and civil society actors. Existing participation mechanisms, including

the Roma Integration Council and the Steering Committee for Cohesive Estonia 2030, provide platforms for dialogue

and coordination. At the same time, available information indicates that Roma participation in implementation,

32

monitoring, and evaluation processes remains mainly consultative, while data collection and monitoring mechanisms

are still limited.

PROMISING PRACTICES

The project ‘Untold Stories: Roma Youth in Youth Work and Education,’80 led by the Estonian NGO International

House in collaboration with partners from Latvia, Lithuania, and Finland during 2022-2023, was funded by Erasmus+.

It aimed to enhance support for Roma children and youth by strengthening the capacity of professionals in the Baltic

region. The project offered Roma families a platform to share experiences, using storytelling to provide insights into

the impact of stigmatisation and discrimination on education. It also produced guidance materials and inspirational

videos featuring Roma educational journeys. This initiative marked the first major NGO-led effort without state

involvement, offering valuable lessons.

80 Available at: https://kaart.noored.ee/en/projects/arc_9290/.

33

Table 7 - Ireland

Ireland

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

National Traveller and Roma inclusion strategy – NTRIS II (2024-28)81. The

strategy comprises two documents: (1) the overarching strategy; and (2) a

two-year action plan. A second action plan will be developed for 2026-2028

following the mid-term review.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

32 949 Travellers recorded in census figures; according to the Department of

Housing’s 2023 annual count of travellers82, there are 12 360 families

(approximately 50 000).

16 059 Roma according to 2022 census figures83

Council of Europe estimates: approximately 37 500 (0.84% of the

population)84.

NATIONAL ROMA CONTACT

POINT (NRCP) Department of Children, Disability and Equality

NATIONAL ROMA CONTACT POINT

The NRCP comprises six employees and operates without a dedicated budget. It is responsible for coordinating,

implementing, and monitoring the NRSF, while also contributing to its ongoing development. As a cross-departmental

strategy, the NRCP works closely with various government departments, state agencies, and Travellers and Roma

representative organisations. These stakeholders are represented on the NTRIS II Steering Committee, which oversees

the implementation of the strategy and its associated action plan. Chaired by the Minister for Children, Disability and

Equality, the Steering Committee intends to ensure accountability and the effective delivery of NTRIS II commitments.

This leadership also signals to Traveller and Roma communities that government departments and state agencies will

be held accountable for the delivery of agreed actions.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The national action plan against racism (NAPAR)85 was published in 2023, with

implementation, monitoring, and review overseen by the Anti-Racism Committee, which includes Traveller and Roma

community representatives. Dr Ebun Joseph was appointed Special Rapporteur on Racial Equality and Racism on 1

July 202486, tasked with independently monitoring and reporting on the NAPAR’s progress. As part of Action 1 in the

NTRIS II action plan, the Special Rapporteur will specifically report on progress regarding the Traveller and Roma

communities.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that the NRSF aligns with the national action plan against

81 Available at: https://www.gov.ie/en/department-of-children-disability-and-equality/publications/national-traveller-and-roma-

inclusion-strategy-ii-2024-2028-ntris-ii/ 82 Available at: Department of Housing, Local Government, Heritage (2023) Traveller Accommodation Statistics

https://assets.gov.ie/static/documents/2023-annual-estimate-of-accommodation-of-travellers-in-all-categories-of-accommodatio

n.pdf. 83 Available at: Central Statistics Office (2022) CSO population

data.https://www.cso.ie/en/statistics/population/censusofpopulation2022/. 84 Available at: CoE estimates of Roma population: https://rm.coe.int/1680088ea9. 85 Available at: https://www.gov.ie/en/department-of-children-disability-and-equality/publications/national-action-plan-against-

racism/. 86 Available at: https://www.gov.ie/en/department-of-children-disability-and-equality/press-releases/minister-joe-obrien-announces-

the-appointment-of-the-special-rapporteur-for-the-national-action-plan-against-racism/.

34

racism (NAPAR), promoting Traveller and Roma inclusion and recognising intersectional discrimination. The Criminal

Justice (Hate Offences) Act 202487 was adopted and NTRIS II addresses Traveller overrepresentation in the criminal

justice system. However, CSOs highlight weakening political commitment to tackling racism, persistent prison

overrepresentation of Travellers (0.6% of the population), and limited implementation of the Human Rights and

Equality Duty88.

ASSESSMENT: Ireland is encouraged to continue efforts to prevent and address discrimination and antigypsyism

affecting Roma and Traveller communities. Building on the adoption of NAPAR and the Criminal Justice Act 2024,

further efforts could focus on ensuring effective implementation, including through the work of the Special Rapporteur

on Racial Equality and Racism. Available evidence indicates ongoing experiences of discrimination and hate-motivated

incidents, including the persistent overrepresentation of Travellers in the criminal justice system. According to the FRA

Traveller and Roma Survey 202489, Travellers in Ireland experienced the highest reported levels of discrimination

across all included countries. Strengthening effective reporting and follow-up systems and ensuring full

implementation of the Human Rights and Equality Duty - would support more targeted and evidence-based action.

Continued engagement with Traveller and Roma organisations in monitoring NAPAR would further consolidate

progress in this area.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Ireland has advanced poverty reduction through mainstream frameworks that explicitly

name Travellers and Roma as beneficiaries. The Roadmap for Social Inclusion 2020 – 202590 provides an overarching

framework for reducing consistent poverty and increasing social inclusion, with Travellers and Roma named as

intended beneficiaries. The First 5 – Strategy 2019 – 202891 includes measures to address early childhood poverty, with

Traveller and Roma children explicitly named as a target group. Under NTRIS II, work is ongoing with National

Traveller MABS92 and national Traveller and Roma organisations to enhance access to banking, payment and credit

initiatives, with a report expected by end 202593. The overall budget to further Traveller and Roma education,

employment and social inclusion increased from approximately EUR 7 million to EUR 8 million between 2023 and

2025.

FEEDBACK FROM CIVIL SOCIETY: NTRIS II includes actions promoting Traveller and Roma culture and arts,

supporting recognition and inclusion. A Traveller heritage strategy is under development, while funding continues for

initiatives such as Traveller Pride Week and International Roma Day. However, poverty remains disproportionately

high among these communities (96%)94. Mainstream anti-poverty policies lack specific targets for Travellers and

Roma, and NTRIS II includes limited measures addressing socio-economic exclusion. Many Roma also face barriers

accessing social protection due to documentation, discrimination and language obstacles.

ASSESSMENT: Ireland could build on existing mainstream frameworks by ensuring that specific targets and

measurable outcomes for Travellers and Roma are embedded within anti-poverty initiatives such as the Roadmap for

Social Inclusion and the First 5 strategy. Bridging gaps in access to social protection — particularly for Roma facing

documentation, discrimination and language barriers — remains a priority. Continued collaboration with Traveller and

Roma organisations, alongside adequate resourcing of NTRIS II actions, would strengthen the delivery of social

inclusion commitments.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

87 Available at:https://www.irishstatutebook.ie/eli/2024/act/41/enacted/en/html and https://www.gov.ie/en/department-of-children-

disability-and-equality/press-releases/minister-joe-obrien-announces-the-appointment-of-the-special-rapporteur-for-the-national-

action-plan-against-racism/ and https://www.gov.ie/en/department-of-justice-home-affairs-and-migration/press-releases/minister-of-

state-colm-brophy-announces-publication-of-the-first-annual-report-of-the-special-rapporteur-for-racism-and-racial-equality-dr-

ebun-joseph/. 88 Available at: https://www.ihrec.ie/guides-and-tools/human-rights-and-equality-in-the-public-sector/what-does-the-duty-require/. 89 Available at: https://www.paveepoint.ie/wp-content/uploads/2026/02/FRA-Report-2026-AF-WEB-1.pdf. 90 Available at: https://www.gov.ie/en/department-of-social-protection/publications/roadmap-for-social-inclusion-2020-2025/ 91 Available at: https://assets.gov.ie/static/documents/first-5-a-whole-of-government-strategy-for-babies-young-children-and-their-

families-20.pdf . 92 Available at: https://www.ntmabs.org. 93 Timeline as set out by NTRIS II Action Plan, though the Report was unpublished at the time of writing. 94 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024.

35

REPORTED PROGRESS: The key achievement for this objective was ensuring adequate representation of Roma

and Travellers on the overseeing structures for the NTRIS II. This representation provides them with the opportunity to

participate in the development of NTRIS II, monitor and scrutinise implementation processes, and advocate for

modifications in delivery as needed. This platform provides Roma and Travellers organisations with a direct

opportunity to monitor and interrogate implementation processes while advocating for necessary modifications in

policy delivery. The development of the current strategy was informed by an extensive local consultation process

across the country. Furthermore, the NRCP staff was expanded in 2024 to strengthen the coordination and monitoring

of these participation-oriented actions.

FEEDBACK FROM CIVIL SOCIETY: Under Theme 9 of NTRIS II, actions aim to assess representative structures

and address barriers to Traveller engagement while evaluating Roma advocacy needs at local level. The appointment

and subsequent election of a Traveller woman to the Seanad marks progress in political representation. However,

Travellers and Roma remain underrepresented in decision-making, highlighting the need for stronger support for

autonomous organisations and their participation in policy processes.

ASSESSMENT: Ireland could improve Traveller and Roma engagement by collaborating with their organisations to

address barriers to participation and advocacy needs. Allocating funding to support both existing and new autonomous

organisations would strengthen their role in policy consultation, design and service delivery. Strengthening Roma

community infrastructure, alongside targeted measures to boost political participation, would help address their

underrepresentation and overcome exclusion in decision-making processes.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The National Traveller and Roma Education Strategy 2024-2030 (TRES)95 has been

developed to address the specific educational needs of children, young people, and adults within the Traveller and

Roma communities. Its aim is to enhance educational experiences and success by improving attendance, participation,

and retention among Traveller and Roma students. As a key action within NTRIS II, the strategy offers a framework to

achieve equality in education outcomes, foster an inclusive school environment, and promote respect for the cultural

identity of Travellers and Roma in educational settings.

FEEDBACK FROM CIVIL SOCIETY: CSOs report on the creation of the first National Traveller and Roma

Education Strategy along with implementation plans to ensure inclusive education across all levels for these

communities. Positive steps also include setting targets within the national access plan for equity of access in higher

education96, which helps monitor and improve educational outcomes for Travellers and Roma. Additionally, the Early

Start programme97 focuses on early years education and aims to employ staff to improve educational results for these

groups. Robust implementation, accurate data gathering, and resource allocation are essential to overcoming

educational disadvantages faced by Travellers and Roma.

ASSESSMENT: Efficient implementation of the TRES and the national access plan for equity of access in higher

education will be key to improve the educational outcomes for the Traveller and Roma children and youth as

significant gaps persist in access and attainment. Their evidence-informed evaluations should inform future policies. To

address the educational gaps affecting Roma and Traveller children, as well those from other vulnerable groups, Ireland

should step up efforts to transition to high-quality public early childhood education and care.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Ireland has made progress in expanding Traveller and Roma access to employment

through targeted initiatives. The Department of Justice launched a pilot Traveller and Roma internship programme in

2023 (TAIP)98, placing eight interns across several government departments, with a pathway to permanent employment

95 Available at: https://www.gov.ie/en/department-of-education/consultations/traveller-and-roma-education-strategy/. 96 Available at: https://hea.ie/policy/access-policy/national-access-plan-2022-2028/. 97 Available at: https://www.gov.ie/en/department-of-education/publications/early-start-pre-school-programme/. 98 Available at: https://www.gov.ie/en/department-of-public-expenditure-infrastructure-public-service-reform-and-

digitalisation/publications/civil-service-traveller-and-roma-work-placement-programme/ .

36

being developed. Traveller unemployment rate fell from 80% (2016) to 61% (2022), with the employment rate

increasing from 11.9% to 18%99 and in 2024 to 22%100. TAIP provides grants of up to EUR 3.000 to support Travellers

in accessing apprenticeships. Targets have been set to increase the employment rate for Travellers overall to 27% and

for Traveller women to 24% by census 2027.

FEEDBACK FROM CIVIL SOCIETY: CSOs note Irland’s commitment to developing a Traveller and Roma

training, employment and enterprise plan under the Pathways to Work strategy, although it has not yet been launched.

Existing initiatives, including the Traveller apprenticeship scheme and civil service work placement programme,

support employment. However, unemployment remains high due to discrimination and low educational attainment.

Roma may face barriers accessing job-seeking supports due to residency rules, while Traveller and Roma women face

childcare costs and concerns about losing essential benefits such as the medical card.

ASSESSMENT: Irland has made progress in expanding Traveller and Roma access to employment through targeted

initiatives and the establishment of quantitative targets. Building on these gains, further efforts could focus on ensuring

effective implementation of the Traveller and Roma training, employment and enterprise plan under the Pathways to

Work Strategy, which has not yet been launched. Addressing persistent barriers — including discrimination, low

educational attainment and childcare costs that prevent Traveller and Roma women from accessing the labour market

— remains a priority. Continued expansion of the internship programme and the Traveller apprenticeship

incentivisation programme could further support sustainable employment pathways.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The implementation of the national traveller health action plan 2022-2027 (NTHAP)101

marks a significant achievement in addressing health disparities faced by the Traveller community. This plan

acknowledges the barriers Travellers encounter in accessing healthcare services and aims to meet their specific health

needs—spanning physical, mental, and social well-being—through a social determinants approach. To support the

plan’s execution, the Department of Health has allocated an additional ring-fenced funding of EUR 1 million in 2023,

with EUR 300 000 dedicated specifically to enhancing mental health services for Travellers.

FEEDBACK FROM CIVIL SOCIETY: CSOs view the NTHAP as significant progress in addressing systemic

racism and social determinants of health, strengthening cooperation between health services and Traveller

organisations. However, its success depends on adequate resources and ethnically disaggregated monitoring. The

planned Roma health action plan under NTRIS II is also welcomed. Nonetheless, Travellers and Roma continue to face

poor health outcomes, barriers to medical cards, and underinvestment in Roma health infrastructure, while the retention

of Traveller community health workers remains crucial for health information access.

ASSESSMENT: Ireland should address persistent health inequalities affecting Travellers and Roma by ensuring

sustained funding and effective implementation of the NTHAP and accelerating the Roma health action plan in

cooperation with Roma organisations. Travellers and Roma continue to face poorer health outcomes due to structural

inequalities, including racism, barriers to healthcare access and limited ethnically disaggregated data. Many Roma

struggle to access medical cards and health services due to residency and administrative requirements, while

community health supports remain under-resourced. Ireland should also expand the Traveller community health worker

programme to strengthen outreach and improve monitoring through better data collection and anti-racism measures.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The Tipperary Roma health and accommodation pilot project102 was launched to enhance

health outcomes for Roma living in insecure or unsuitable housing in Tipperary, alongside findings from the Tipperary

Roma homeless & housing, health & social care needs assessment103. Utilising the public sector equality & human

99 Available at: https://www.cso.ie/en/releasesandpublications/ep/p-cp5dm/censusofpopulation2022-

profile5diversitymigrationethnicityirishtravellersandreligion/. 100 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024. 101 Available at: https://www.drugsandalcohol.ie/37592/1/national-traveller-health-action-plan-2022-2027.pdf. 102 Available at: https://www.hse.ie/eng/services/news/media/pressrel/launch-of-reports-focused-on-roma-community-in-co-

tipperary.html. 103 Available at: https://youthworktipperary.ie/wp-content/uploads/2024/05/Roma-Needs-Assessment-Report-Final.pdf.

37

rights duty104, the project aimed to address the health and accommodation needs of the Roma community. The findings

underscored the necessity of providing advocacy support to help Roma understand their rights and access services. As

part of the accommodation theme, action No 46 of NTRIS II involves reviewing these pilot project findings and sharing

relevant lessons with local authorities to improve housing and homelessness services for the Roma community.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that a new national caravan loan scheme for Travellers105, will

provide preferential loans from local authorities to purchase caravans as primary residences. The scheme raises the loan

limit from EUR 40.000 to EUR 80.000 in certain circumstances and could have positive impacts if implemented

effectively. However, the accommodation crisis among Travellers and Roma continues to worsen amid Ireland’s

broader housing and homelessness challenges. Despite increased budgets and full spending on Traveller

accommodation since 2020, progress remains slow and focused mainly on maintenance rather than new units. NTRIS

II accommodation measures remain limited and insufficiently address the specific housing needs of Roma.

ASSESSMENT: Ireland is encouraged to build on existing initiatives, such as the Tipperary Roma health and

accommodation pilot, which applies the public sector equality and human rights duty to address intersecting needs. At

the same time, available information suggests a gap between national strategies and local implementation. The

expansion of the national caravan loan scheme represents a measure supporting culturally appropriate accommodation;

however, stakeholders indicate that progress has focused largely on maintenance rather than increasing overall housing

capacity. Despite full use of allocated budgets, housing challenges remain significant, indicating the need for continued

attention to implementation and outcomes.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP facilitates participation of Roma and pro-Roma civil society in the design,

implementation, monitoring and review of the NRSFs and local action plans. The NTRIS II Steering Committee,

chaired by the NRCP (Minister of Children, Disability and Equality) includes representatives of Traveller and Roma

civil society groups, government departments and state agencies. Local consultations with Traveller and Roma

community members have contributed to shaping the NTRIS II. Additionally, funding is allocated to the National

Traveller Partnership, which consists of 14 local Traveller organisations.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that NTRIS II strengthens the previous strategy by focusing

more on outcomes and implementation, supported by two-year action plans with clear deliverables and timelines. It

promotes collaboration with Traveller organisations and Roma groups, coordinates efforts at central-government level,

and considers the public sector duty. The strategy also aims to increase Traveller and Roma participation in decision-

making and support Roma civil society infrastructure. Implementation began with the first NTRIS Steering Committee

meeting in May 2025, with regular updates published since late 2024 and a Traveller and Roma Forum planned to

support community engagement.

ASSESSMENT: To further enhance the participation of Roma and Traveller communities in Ireland, ongoing efforts

should focus on strengthening their decision-making and political representation within the NTRIS II framework.

Building a robust network of Roma organisations will help address the need for a more developed Roma civil society

infrastructure. Ensuring effective implementation through detailed action plans and fostering collaboration at the

central government level is vital. The establishment of the annual Traveller and Roma Forum provides a valuable

platform for community voices, offering an opportunity to assess committee progress and influence future strategies

and actions.

PROMISING PRACTICES

Under Action 34 of the NTRIS II action plan, the Department of Justice is developing and implementing a Traveller

and Roma internship programme in the civil service, co-designed with Traveller and Roma organisations. The

programme provides placements across several government departments and includes a pathway to permanency,

allowing successful participants to apply for permanent roles through a confined competition. This positive action

measure aims to address systemic racism, reduce employment inequalities and support greater Traveller and Roma

representation within the public sector.

104 Available at: https://www.ihrec.ie/guides-and-tools/human-rights-and-equality-in-the-public-sector/what-does-the-duty-require/. 105 Available at: https://www.gov.ie/en/department-of-housing-local-government-and-heritage/press-releases/minister-dillon-

announces-new-preferential-caravan-loan-scheme-to-enhance-delivery-of-traveller-accommodation/.

38

Table 8 - Greece

Greece

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

National strategy and action plan for the social inclusion of Roma 2021-

-2030106

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

117 000 (according to the 2021 government mapping) – around 1.1 % of the

population107.

Council of Europe estimates: approximately 175 000 Roma live in Greece

(1.55% of the population)108.

NATIONAL ROMA CONTACT

POINT (NRCP)

General Secretariat for Social Solidarity and Fight Against Poverty -

Ministry of Social Cohesion and Family

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating and monitoring national policies on Roma social inclusion. With an annual

budget of EUR 84 000 in both 2023 and 2024 and a team of four staff members, the Secretariat oversees the

implementation of the national Roma inclusion strategy 2021-2030. It chairs the Governmental Committee for Roma

Social Inclusion, where it coordinates and reviews sectoral policies, and works closely with an advisory committee

composed of ministry officials and Roma representatives. In addition, the Secretariat manages funding for Roma

inclusion measures under the NSRF 2021–2027 (ESF+, ERDF), the Recovery and Resilience Facility, and national

sources.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Greece implemented measures to combat antigypsyism and discrimination against Roma.

Institutional cooperation was strengthened through the Hellenic Police, including training on social mediation, hate

crimes and anti-racism, and the establishment of the Social Policing Directorate in 2025. Awareness initiatives included

anti-racism and cultural events, documentaries and campaigns promoting positive Roma role models. Educational

actions, such as the Romani Language Programme and school activities on Roma history and the Roma Holocaust,

promoted multicultural awareness. The Roma Human Rights Observatory, an NGO-led monitoring mechanism

documenting human rights issues affecting Roma operating since 2021, collected 914 reports of rights violations from

several regions, strengthening monitoring and advocacy efforts.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in establishing a dedicated NRSF pillar on

antigypsyism, developing governance structures such as the Governmental Committee, Advisory Committee, and the

Roma Forum, and creating police units and helplines to combat racist violence. However, they highlight persistent

challenges, including continued hate speech and police brutality, underreporting of antigypsyism incidents, the

inactiveness of the Observatory, low trust in complaint mechanisms, piecemeal implementation of measures, absence

of a legal ban on racial profiling, and ongoing antigypsyism narratives in media and official discourse.

ASSESSMENT: Greece is encouraged to build on recent institutional developments by ensuring the effective and

sustained implementation of measures combating antigypsyism across all sectors. Going forward, priority could be

given to fully operationalising monitoring and reporting mechanisms, including the Roma Human Rights Observatory,

and strengthening accessible, trusted complaint procedures for victims of discrimination and abuse. Further efforts to

improve accountability and safeguards in law enforcement may help reinforce institutional trust. Continued investment

106 Available at: https://commission.europa.eu/document/download/0b001c2c-94d6-494a-a396-

03dc7a7a3904_en?filename=1_1_greece_national_roma_integration_strategy-2021_2030.pdf. 107 Available at: ΕΘΝΙΚΗ-ΚΑΤΑΓΡΑΦΗ-ΠΛΗΘΥΣΜΟΥ-ΡΟΜΑ-2021_FINAL_compressed.pdf. 108 Available at: https://rm.coe.int/1680088ea9.

39

in education, public awareness and Roma participation in policymaking could also help counteract persistent

stereotypes, promote evidence-based public narratives and ensure more coherent implementation of anti-discrimination

policies nationwide.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Reducing poverty among Roma relies largely on access to mainstream social protection

schemes. A key measure is the Guaranteed Minimum Income (GMI), supporting vulnerable households; between 2022-

2024, more than 331 000 applications from Roma households were submitted, covering about 632 000 individuals and

nearly EUR 74 million in benefits. Additional assistance includes child allowances, food support through the Fund for

European Aid to the Most Deprived (FEAD), and the school meals programme, which addresses nutritional needs and

helps prevent school dropouts among disadvantaged pupils. Targeted support is further provided through community

centres with dedicated Roma branches, offering mediation, counselling and guidance on welfare, employment and

education opportunities, reaching more than 61 000 Roma beneficiaries in 2023.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that Roma in Greece are formally eligible for mainstream

social protection schemes, including the GMI, child benefits, housing allowances and the FEAD food-aid programme.

community centres with Roma branches operate in around 70 municipalities, providing counselling and assistance with

benefit applications. However, the impact of these measures remains limited. Poverty, food insecurity and material

deprivation among Roma remain significantly higher than national averages. Digital illiteracy and lack of identification

documents prevent many Roma from accessing income-support schemes. Moreover, some Roma branches are located

near segregated settlements, reinforcing spatial exclusion.

ASSESSMENT: Greece is encouraged to further strengthen the effectiveness and accessibility of mainstream social

protection schemes and community centres for Roma communities. FRA data show that 88% of Roma in Greece are at

risk of poverty, compared with 19%109 of the general population110, which points to persistent structural inequalities.

Going forward, Greece could focus on reducing practical barriers to accessing support, including digital illiteracy and

lack of civil documentation, while ensuring sustainable funding and broader territorial coverage of community centres

with Roma branches. Strengthening monitoring and evaluation of social protection outcomes for Roma may also

support the development of more targeted, evidence-based policies aimed at reducing persistent poverty and material

deprivation.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Greece reported several measures aimed at strengthening Roma participation and

empowerment. Integrated actions were implemented between 2020 and 2024 under the EEA grants programme ‘Social

Inclusion and Empowerment of Roma’111, focusing particularly on Roma youth, women and children and supporting

local initiatives promoting community participation. Participation mechanisms were further supported through the

national Roma platform ‘For Roma with Roma’ (2023-2025), which includes the Roma Forum as an advisory body of

Roma organisations providing input to the national Roma inclusion strategy. Community centres with Roma branches

operating in municipalities with significant Roma populations also support empowerment and access to services. In

addition, Roma CSOs participate in consultation processes and monitoring structures, including EU funds monitoring

committees.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in promoting participation through the

establishment of the Roma Forum, limited internships for young Roma in the NRCP, and small CERV/EEA-funded

capacity-building projects targeting Roma women and youth. However, they stress the following: Roma CSOs remain

severely under-resourced, formal participation mechanisms lack real decision-making power, there is no Roma

representation in senior ministry positions, local action plans are often drafted without community consultation and

109 Available at: Eurostat, (online data code ilc_li02),

https://ec.europa.eu/eurostat/databrowser/view/ilc_li02__custom_22314605/default/table. 110 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 111 Available at: https://eeagrants.org/en/fmo/news/programme-agreement-signed-roma-inclusion-and-empowerment-programme-

greece?utm.

40

Roma influence on ESF+ /ERDF programme monitoring and project selection remains minimal.

ASSESSMENT: Greece is encouraged to build on existing participation structures by strengthening the long-term

capacity and institutional role of Roma civil society organisations in policymaking and implementation. Going forward,

ensuring that mechanisms such as the Roma Forum and local consultation processes have meaningful influence on

decision-making, programme design and budget allocation could support more effective and inclusive policies. Further

efforts to promote the participation of Roma professionals in public administration and advisory structures may help

integrate community expertise into national and local governance. Enhancing the role of Roma stakeholders in the

monitoring and selection of ESF+ and ERDF-funded projects could also contribute to more transparent, responsive and

sustainable inclusion measures.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Greece reported several measures to improve Roma access to inclusive mainstream

education. A key programme, ‘Supportive interventions in Roma communities to enhance access and reduce early

school dropout’112, was implemented between 2020 and 2023 in eight regions, covering 31 settlements and 227 schools.

The programme provided awareness-raising activities, psychosocial support and educational assistance, reaching 27

502 Roma students. Participation of Roma pupils in education increased from 15 834 in 2021-2022 to 19 405 in 2023-

2024, partly linked to the connection between social benefits and school attendance. Additional initiatives include

reception classes, second chance schools and scholarship schemes, including 53 scholarships awarded to Roma

students through the Hellenic Open University to support access to higher education and improve long-term

educational and labour market opportunities for Roma youth.

FEEDBACK FROM CIVIL SOCIETY: CSOs note progress in improving Roma access to education through

measures such as school transportation, class dispersal policies and the presence of social workers in some schools.

Enrolment of Roma children in early childhood education has also increased. At the same time, challenges remain

regarding the consistent implementation of inclusive education measures across all regions. CSOs report that patterns

of de facto school segregation continue to affect some Roma pupils, while a comprehensive national framework for

monitoring Roma school attendance and dropout rates has yet to be fully developed. Limited participation in

kindergarten and language-related barriers, particularly for pupils whose first language is Romani, may also continue to

affect the transition into Greek-language education and broader educational outcomes.

ASSESSMENT: Recent measures to improve Roma participation in mainstream education, including supportive

interventions, scholarships and second chance education, provide a stronger basis for reducing early school leaving and

improving long-term educational outcomes. Increased enrolment of Roma pupils and greater support in disadvantaged

schools are positive developments. However, ensuring consistent implementation of inclusive education measures

across all regions remains essential. According to FRA data, 57% of Roma children attend segregated schools113, while

OECD PISA 2022 results show that only 7.1% of disadvantaged students in Greece reached level 4 or above in at least

one domain, compared with the EU average of 16.3%114. Further efforts are needed to strengthen desegregation,

improve monitoring, address language barriers and ensure equal access to quality education for Roma children.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Measures focused on improving Roma access to entrepreneurship and subsidised

employment through the public employment service (DYPA)115. A subsidy programme for Roma aged 20-44 supported

37 individuals with EUR 14 800 each to start businesses, mainly in Attica, Peloponnese and Western Greece.

Additionally, 51 Roma joined a national programme subsidising employment for 10 000 unemployed people. The

number of Roma social cooperative enterprises (KOINSEP) increased from 3 in 2023 to 14 in 2025, involving around

95 Roma. A training and internship programme for unemployed Roma is also planned to improve skills and work

112 Available at: https://roma-mak.del.auth.gr/. 113 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 114 OECD PISA 2022; European Commission, Education and Training Monitor 2025, Figure 20 . 115 Available at: https://www.dypa.gov.gr/en.

41

experience. However, limited information, application barriers and weak support structures continue to hinder Roma

participation.

FEEDBACK FROM CIVIL SOCIETY: Some progress has been reported in supporting Roma employment through

youth entrepreneurship grants administered by DYPA and pilot initiatives such as the RRP programme on the social

reintegration of vulnerable Roma groups. However, these measures remain limited in scale and impact. Unemployment

and informal work remain widespread among Roma, while large-scale targeted active labour market programmes are

largely absent. Local action plans rarely allocate sufficient funding for employment initiatives. In addition, structural

barriers persist, including limited access to training opportunities and weak outreach to Roma communities.

Discrimination in the labour market and the absence of clear pathways for Roma recruitment into the public sector

further restrict sustainable employment opportunities.

ASSESSMENT: Recent entrepreneurship and subsidised employment measures provide a basis for improving Roma

access to the labour market, including through support for Roma-led businesses, social cooperative enterprises and

training initiatives. The increase in Roma KOINSEP and targeted support for young entrepreneurs are positive

developments that could contribute to longer-term economic inclusion. However, the scale of current measures remains

limited compared to persistent unemployment and informal work among Roma communities. Moving forward, stronger

implementation of local action plans, improved outreach and access to training, and sustainable funding will be

important to expand participation. Further efforts are also needed to address labour market discrimination and create

clearer pathways to stable and formal employment, including in the public sector.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: A notable achievement is the implementation of the project ‘Local Health Teams

(TOMY)’, delivered under the regional operational programmes of NSRF 2014-2020 and financed by the European

Social Fund until December 2023. The programme established 127 TOMY units across all 13 regions of EL, providing

primary healthcare, preventive services and health promotion to vulnerable populations. By 2024, over 600 560 people

were registered. As services are delivered through mainstream structures, no disaggregated data on Roma beneficiaries

are collected. Following Joint Ministerial Decision No. 91986/09-10-2023, the programme continues under ESF+

within the NSRF 2021–2027, ensuring continuity of community-based primary healthcare services.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight progress in improving Roma health through initiatives like

the nationwide ‘Health for All’ programme, which has significantly increased vaccination coverage and provided

primary care services, and the theoretical extension of primary care via Law 4931/22. However, they highlight the

absence of dedicated Roma health mediators, unstable project-based funding, lack of data on health coverage and

outcomes, persistent barriers related to distance, documentation, and mistrust, and very limited access to mental health

and addiction services.

ASSESSMENT: The continuation of the TOMY programme under ESF+ provides an important basis for improving

access to community-based primary healthcare for vulnerable groups, including Roma. Expanding access to

mainstream healthcare services and outreach initiatives could help reduce barriers related to distance, documentation

and mistrust. Moving forward, further efforts will be needed to ensure healthcare reforms effectively reach uninsured

and marginalised Roma populations. Establishing a nationwide system of Roma health mediators with stable funding,

alongside stronger monitoring of health coverage and outcomes, could support more targeted interventions. Increased

attention to mental health and addiction services, as well as continuity of funding beyond project-based schemes, will

also be important for improving long-term Roma health inclusion.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Greece reported measures aimed at improving Roma living conditions and access to

adequate housing through settlement relocation, infrastructure improvements and access to mainstream housing

programmes. A key initiative was the call under the sectoral development programme of the Ministry of Interior,

supporting municipalities in developing organised relocation areas and upgrading infrastructure in Roma settlements.

Relocation plans for 15 settlements were approved, with the aim of benefiting about 13 539 Roma individuals. In

addition, 51 Roma households benefited from the ‘Housing and Work for the Homeless’ programme, which combines

housing support with employment and social services. The report also highlights the closure of the Agioi Apostoloi

Roma settlement in Rhodes, where residents were helped to move into independent housing through coordinated

42

welfare and employment measures. Recent calls for integrated actions implemented at the local level (ITIs) and funded

under ERDF support the establishment of ‘Neighbourhood Centres’ (Kentra Geitonias), including in Dytiki Ellada,

providing employment, learning, psychosocial and community-based support to improve living conditions and social

inclusion.

FEEDBACK FROM CIVIL SOCIETY: Progress in improving Roma housing through legal tools enabling

temporary relocations and infrastructure upgrades, as well as the EU- and nationally funded rent subsidy for Roma

programme, has been noted. However, flagship relocation projects have often failed, many settlements still lack basic

services, and infrastructure upgrades risk reinforcing segregation. Forced evictions continue with limited safeguards,

while mainstream housing benefits rarely reach Roma due to documentation barriers and persistent discrimination.

ASSESSMENT: Recent measures on settlement relocation, infrastructure improvements and access to mainstream

housing programmes provide a basis for improving Roma housing inclusion. Moving forward, it is important to ensure

stronger coordination between ERDF and ESF+ interventions and effective implementation of local action plans will be

important to support sustainable and community-led solutions. Further efforts are needed to ensure that housing and

infrastructure projects contribute to spatial desegregation and do not reinforce existing segregation patterns. According

to FRA data, 68% of Roma experience housing deprivation compared with 18%116 of the general population,

highlighting persistent inequalities in access to adequate housing. Improving access to mainstream housing support,

addressing discrimination and ensuring timely implementation of relocation projects will remain essential for long-term

social inclusion.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP ensures active involvement of Roma and pro-Roma civil society across policy

design, implementation and monitoring, integrating their input into national strategies, EU-funded programmes and

local interventions. Regional and local authorities contribute through local action plans, guiding actions in education,

employment, health, and living conditions. Co-financed by ESF+ and ERDF, these support entrepreneurship, job

placements, housing improvements, education support and strengthening Roma organisations. Thirteen regional

operational programmes (2021-2027) include Roma inclusion actions, with 85 municipalities having submitted local

action plans. The Ombudsman and National Commission for Human Rights participate in the Advisory Committee for

Roma Social Inclusion, while 2024 UN reporting (CEDAW, CCPR, CERD) reflects commitment to zero tolerance of

discrimination.

FEEDBACK FROM CIVIL SOCIETY: Roma and pro-Roma NGOs have participated in the NRSF mainly through

consultation and advisory roles. During the design phase (2020–21), public drafts and surveys allowed some input,

though participation was limited. Implementation (2022–25) introduced the National Advisory Committee and the

Roma Forum, creating formal consultative spaces but without decision-making powers. Monitoring and evaluation

remain largely inaccessible, with the Observatory still unestablished and reliant on ad hoc input. Overall, while

engagement has become more structured, Roma organisations still lack decision-making authority, integration into

monitoring mechanisms, and involvement in hate crime and hate speech oversight.

ASSESSMENT: Existing advisory structures, including the National Advisory Committee and Roma Forum, provide a

useful basis for strengthening Roma participation in policy design, implementation and monitoring. Moving forward,

Greece could enhance the effectiveness of these mechanisms by giving Roma and pro-Roma CSOs a more structured

role beyond consultation, including in follow-up, monitoring and evaluation of the NRSF and local action plans.

Establishing the Observatory and ensuring accessible monitoring data would support accountability and evidence-based

action. Further efforts are also needed to involve Roma organisations in oversight of hate crime and hate speech

responses, and to ensure that participation at national, regional and local levels meaningfully influences policy

decisions and implementation.

FUNDING

Greece’s Roma inclusion measures are funded through national resources, EU programmes and EEA grants, with

investments across all objectives. As the NRCP has reported, EUR 3.1 million from national, EU and EEA sources was

granted for combating antigypsyism, supported by the Roma Task Force Group. Poverty reduction is a major area, with

EUR 60 million allocated through the Guaranteed Minimum Income scheme. Participation measures received EUR

116 Source: Eurostat, (online data code tessi291), https://ec.europa.eu/eurostat/databrowser/view/tessi291/default/table?lang=en.

43

14.29 million, funding community centres, mobile units and small-grant projects. Education is another priority, with

EUR 55 million from national and EU programmes. Employment measures total EUR 689 400, complemented by

business subsidies and training schemes. The largest funding area is health and social services, with EUR 110.49

million from national and EU programmes, including ESF and ESF+. Housing measures, funded nationally, amounted

to EUR 15.7 million, including the “Housing and Work” scheme benefiting Roma households.

MONITORING AND EVALUATION

The NRSF defines objectives and qualitative targets for each of the seven EU-level objectives and includes indicators

to monitor their implementation. These indicators cover areas such as discrimination, poverty, participation, education,

employment, health and housing, reflecting many EU-level headline indicators. Baseline and target values were

established following a special survey coordinated by the Ministry of Social Cohesion and Family, which supplies data

for a large share of the indicators. The framework is monitored through progress reports every two years, with Roma

and pro-Roma civil society organisations involved in the process.

PROMISING PRACTICES

The ‘Housing and Work for the Homeless’ programme117 helps reduce poverty and social exclusion, including among

Roma. It aims to support homeless individuals through a combination of housing assistance, social support and labour

market integration. The programme provides rent subsidies for up to 18 months, covers essential household equipment

and utility costs, and offers employment subsidies for up to 12 months for at least 20% of adult beneficiaries. In

addition, participants receive psychosocial support to strengthen autonomy and facilitate social reintegration. The

programme was introduced in 2017 and later established as a permanent public policy with biennial implementation

funded by the state budget.

117 Available at: https://opeka.gr/stegasi/programma-stegasi-kai-ergasia/.

44

Table 9 - Spain

Spain

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Building on its previous policy from 2012 to 2020, Spain introduced its

current National Roma Strategic Framework (NRSF) in 2021, titled ‘national

Roma strategy for equality, inclusion and participation 2021-2030' 118.

ESTIMATED ROMA

POPULATION

Council of Europe estimates (plus

national census data, where available)

Council of Europe estimates: approximately 750 000 (1.63% of the

population)119.

NATIONAL ROMA CONTACT

POINT (NRCP) Ministry of Social Rights, Consumers and 2030 Agenda

NATIONAL ROMA CONTACT POINT

The NRCP, under the Ministry of Social Rights, Consumers and 2030 Agenda operated in 2023-2025 with a budget of

€13 204 207 and a team of four employees. Its institutional mandate focuses on coordinating and monitoring policies

that promote Roma equality, inclusion and participation. The NRCP plays an active role in mainstreaming Roma issues

across sectoral public policies by encouraging their integration into the design of social inclusion strategies and

services, while working closely with relevant ministries and regional authorities to ensure that Roma needs are

reflected. Additionally, it contributes to the programming and monitoring of EU funds through the Inter-Fund

Committee, a body bringing together the NRCP and the administrative units responsible for ESF+ and ERDF at state

level.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Spain's efforts to combat antigypsyism and discrimination centred on institutional

recognition and structural change, marked by the establishment of a technical commission under the Democratic

Memory Law to address historical injustices against Roma through principles of truth, justice, reparation, and non-

repetition. This initiative was reinforced by the symbolic designation of 2025 as the Year of the Roma, a national

policy to commemorate the 600th anniversary of the Roma arriving in Spain through 40+ events. A 2024 study by the

Council for the Elimination of Racial or Ethnic Discrimination (CEDRE) highlighted persistent structural and

institutional discrimination, particularly in housing, education, and public services, where Roma reported high levels of

perceived bias but often avoided formalcomplaints due to distrust in institutions.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in strengthening the fight against

antigypsyism, notably through the integration of antigypsyism indicators into the national anti-racism strategy, the

publication of CEDRE’s 2024 flagship report, the expansion of the State Victim Assistance and Guidance Service, and

the adoption of the State Pact against Antigypsyism120. However, CSOs underline persistent gaps, including weak

enforcement and monitoring due to the absence of a unified incident database, uneven regional implementation,

persistent underreporting of discrimination cases, and the lack of dedicated mechanisms to address rising online

antigypsyism.

ASSESSMENT: Going forward, Spain could build on recent progress by strengthening implementation and

monitoring mechanisms to address persistent structural antigypsyism more effectively. Expanding Roma visibility and

118 Estrategia Nacional para la Igualdad, Inclusión y Participatión del Pueblo Gitano 2021-2030. Available at:

https://commission.europa.eu/document/download/739e2eaa. 119 Available at: https://rm.coe.int/1680088ea9. 120 Spanish Congress of Deputies (2023), Report of the Subcommittee for a State Pact against Antigypsyism and the Inclusion of the

Roma People, approved on 30 March 2023. https://www.congreso.es/es/notas-de-

prensa?_notasprensa_mvcPath=detalle&_notasprensa_notaId=44751.

45

participation in public life, including through greater support for Roma women’s leadership, could help challenge

stereotypes and promote social inclusion. The development of a centralised incident database and more coordinated

regional implementation would improve monitoring, accountability, and access to justice. Future efforts could also

place greater emphasis on addressing online antigypsyism and encouraging the reporting of discrimination cases,

helping to ensure more effective protection of Roma rights and evidence-based policy responses.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: A key development in this area is the adoption of a more robust strategic framework,

particularly through the national strategy for the prevention and combat of poverty and social exclusion 2024–2030121,

which for the first time explicitly recognises Roma as a target group. This policy tool strengthens territorial

coordination and promotes access to employment, education, and essential services through a rights-based and

multidimensional approach. The new action plan for improving Roma employability 2025–2028122also specifically

targets Roma, introducing results-based and gender-sensitive measures to close employment gaps. These efforts were

further reinforced by an increase in stable funding under the Roma development plan, as well as the sustained use of

ESF resources for targeted, integrated actions.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in expanding poverty-reduction measures for

Roma communities, including improved outreach for the MVI. However, they emphasise that poverty levels remain

alarmingly high, with structural barriers to social protection, disincentives linked to benefit incompatibility, housing

precariousness and exclusion from social housing, and the continued absence of reliable, disaggregated data, all of

which hinder effective monitoring and sustained impact. CSOs recommend expanding MVI eligibility, simplifying

application processes, ensuring compatibility with other benefits, investing in social housing, and establishing

disaggregated data systems to monitor Roma poverty effectively.

ASSESSMENT: Despite some improvements, 94% of the Roma population in Spain and 96% of Roma children

remain at risk of poverty123. Going forward, Spain could strengthen targeted pathways out of poverty by expanding

access to stable employment, vocational training, and inclusive social protection measures, particularly for Roma

women and young people. Simplifying access to the Minimum Vital Income and improving compatibility with other

benefits may help increase uptake and effectiveness. Greater investment in social housing and the development of

reliable disaggregated data systems would also support stronger monitoring, evidence-based policymaking, and more

tailored interventions to reduce long-term inequalities.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Under this objective, the most important achievement was the consolidation of Roma

participation through the State Council of the Roma People, which continued its regular sessions and played a central

role in policy monitoring and consultation. Its working groups strengthened institutional cooperation across ministries,

while regional councils in eight regions ensured territorial participation. Stable public funding enabled Roma

organisations to engage actively in national and local initiatives. The 2025 Year of the Roma further empowered civil

society by amplifying Roma voices in public debate and commemorating their historical presence, reinforcing trust and

cooperation with public institution.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge limited advances in Roma participation, including pilot

Regional Roma Councils (e.g. Basque Country, Catalonia) and planned Roma self-identification in INE statistics.

However, the National Roma Council (CEPG) remains dysfunctional, lacking Roma CSO involvement and decision-

making power. Participation is further hindered by the following: no binding authority; short-term CSO funding cycles;

uneven territorial coverage, minimal Roma representation in public administrations; and the absence of outcome-

focused indicators to evaluate policymaking impact. CSOs demand legal mandates for Roma inclusion, stable funding,

and accountability mechanisms to ensure meaningful engagement.

121 Available at: https://www.dsca.gob.es/sites/default/files/derechos-

sociales/inclusion/docs/Estrategia_Prevencion_Pobreza_EN.pdf 122 Spain, Government of Spain (Council of Ministers), 10 June 2025, Plan de Actuación para la mejora de la empleabilidad de la

población gitana 2025–2028, approved by the Council of Ministers. 123 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024.

46

ASSESSMENT: Going forward, Spain could build on the strong foundations established through the State Council of

the Roma People, regional participation structures, and the momentum created by the 2025 Year of the Roma to further

strengthen meaningful Roma participation in policymaking. Expanding the role and influence of consultative bodies,

supported by stable funding and stronger coordination across territories, could enhance long-term cooperation and trust

between Roma communities and public institutions. Greater investment in capacity-building, particularly for Roma

women and youth, alongside increased Roma representation within public administration and the development of

outcome-based indicators, would further support more inclusive governance and lasting structural change.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Spain’s primary education achievements (2023–2025) focus on mainstreaming Roma

history and enhancing inclusive support services. A key milestone was the 2024 publication of a national curriculum

guide to integrate Roma history and culture into school frameworks124. The Programa Kumpania125 in Valencia

expanded to 28 sites, supporting 782 students with high rates of moving on to the next year of school (646) and

graduation (157) rates in the 2023–2024 term. Additionally, Spain sustained high-level policy attention on equity and

utilised €11.85 million in ESF+ funding for mediation services and regional programmes. These initiatives successfully

addressed absenteeism and early school leaving while fostering greater family engagement and classroom inclusivity to

counter institutional bias.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge some progress in promoting inclusive education,

including pilot initiatives integrating Roma history and culture into school curricula, teacher training programmes, and

the increased use of educational mediators in certain regions. However, they stress that persistent school segregation,

high rates of leaving education early and repeating grade, uneven regional implementation, unstable funding for Roma-

focused programmes, and limited structured parental engagement continue to hinder equal access to quality education

for Roma children. CSOs therefore recommend the mandatory inclusion of Roma history and culture in curricula,

stronger measures to prevent segregation, long-term funding for inclusive programmes such as PROA+, improved

disaggregated data collection, and stricter enforcement of anti-discrimination legislation.

ASSESSMENT: Spain could build on recent progress in educational mediation and the 2024 curriculum guide by

strengthening long-term structural measures to promote equal access to quality education for Roma students.

Addressing persistent challenges—including the rate at which Roma leave education early, low rates of completion of

secondary education, and rising levels of perceived discrimination in schools126 will require stronger regional

coordination, sustained desegregation efforts, targeted but also personalised support to Roma pupils, predictable

funding and collaboration with families to avoid and prevent early school leaving. Expanding successful initiatives

such as Programa Acceder and Programa Promociona, improving access to long-term systemic support, diversifying

educational pathways beyond vocational education, and strengthening access to higher education could help improve

university participation among Roma youth.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The most important achievement was the approval of the action plan for improving Roma

employability 2025–2028, marking the first time ES adopted a dedicated roadmap with concrete objectives, indicators,

and funding for Roma labour inclusion. The plan promotes personalized, community-based pathways to employment,

incorporating active labour market policies and social accompaniment tailored to the barriers faced by the Roma

population. Its design was the result of a broad participatory process involving Roma civil society and expert

institutions. Additionally, during the 2023–2025 period, stable public funding, complemented by the ESF+, sustained

key employment programmes for vulnerable populations, while closer coordination between national and regional

124 Available at : cpage.mpr.gob.es/publicacion/la-historia-y-cultura-del-pueblo-gitano-en-el-aula-2024-164241825-0001/. 125 Available at: https://habitatge.gva.es/es/web/igualdad-diversidad/kumpania. 126 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024.

47

actors strengthened outreach and implementation capacity.

FEEDBACK FROM CIVIL SOCIETY: CSOs note progress in promoting employment for Roma through expanded

vocational training, mentoring programmes, the ‘TándEM’127 youth internship initiative, and the adoption of the first

tailored employment plan for the Roma population 2025–2028. However, they highlight fragmented and short-term

initiatives, levels of high informality and job insecurity, limited disaggregated employment data, widespread labour

market discrimination, and insufficient gender-sensitive measures. CSOs recommend funding the employment plan

with multi-year budgets, expanding Acceder with stable public funding, and mandating disaggregated employment

data.

ASSESSMENT: The adoption of the action plan for improving Roma employability 2025–2028 represents an

important step towards a more structured and targeted approach to Roma labour inclusion in Spain. At the same time,

significant gaps remain, as the employment rate among the Roma population stands at 31%, compared to 71%128 for the

general population, according to the FRA Roma Survey 2024. Building on the current momentum, further expansion of

tailored training programmes, labour inclusion pathways, and anti-discrimination measures could help improve access

to stable and quality employment, particularly for Roma women and young people. Stable funding, stronger

coordination, and improved disaggregated employment data would also help sustainable labour market inclusion.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Roma health and access to healthcare and social services have improved with public

institutions supporting outreach, health promotion, and literacy initiatives. Actions were carried out in collaboration

with Roma CSOs including training professionals to reduce discrimination and address cultural barriers. The national

strategy for the prevention and combat of poverty and social exclusion 2024-2030 explicitly identifies Roma as a

vulnerable group and includes measures to improve access to social services. A new credit tool was announced to

facilitate access to social services. These actions, together with improved coordination across government levels and

Roma CSOs, contributed to a more inclusive system, aligning health objectives with broader efforts to address social

determinants of health. Red Equi-Sastipen-Rroma continues to function as a national coordination platform for Roma

health.

FEEDBACK FROM THE CIVIL SOCIETY: CSOs acknowledge progress in improving Roma health through the

expansion of health mediation services, updated training manuals, integrated social determinants projects, and

preparatory work for a Roma health survey module. However, they also note persistent disparities in life expectancy

and chronic disease prevalence, fragmented and short-term funding for mediators, limited cultural competence training

for health staff, insufficient disaggregated data, and inadequate access to mental health and social care services.

ASSESSMENT: Spain has taken important steps towards a more inclusive healthcare system through stronger

coordination with Roma CSOs, expanded health mediation, and the integration of Roma health into broader anti-

poverty strategies. However, significant disparities remain. According to the FRA Roma Survey 2024, Roma continue

to face poorer health outcomes and barriers in accessing healthcare and social services. Going forward, expanding

culturally adapted outreach, strengthening health literacy programmes, and ensuring stable funding for Roma health

mediators could further improve trust and access to care. Improved disaggregated data collection and stronger

coordination between health, mental health, and social services would also support more targeted and sustainable health

equity measures.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Themost relevant achievement was the reinforcement of institutional tools to improve

Roma access to adequate, desegregated housing and essential services. The state plan for access to housing 2022-

2025129, through various support programs, and the national strategy for the prevention and combat of poverty and

social exclusion 2024-2030, which explicitly targets Roma in housing-related measures, laid the groundwork for more

127 TándEM is a public programme combining employment and training for young people, used as an active labour market measure

to support the labour market integration of vulnerable groups, including Roma. 128 Available at: Eurostat, (online data code lfsi_emp_a),

https://ec.europa.eu/eurostat/databrowser/view/lfsi_emp_a__custom_22376788/default/table . 129 Available at: https://www.boe.es/buscar/doc.php?id=BOE-A-2022-802&utm.

48

inclusive housing policies. Additionally, a new national study on Roma housing conditions was procured in 2025. This

long-awaited update will provide essential data to inform evidence-based policymaking and monitor progress more

effectively.

FEEDBACK FROM CIVIL SOCIETY: CSOsacknowledge progress in increasing access to adequate housing,

through targeted renovation grants, mapping of 72 segregated settlements, and emergency relocation and rental support

offering immediate relief to many families. However, overcrowding persists, together with entrenched segregation,

discrimination in social housing allocation, reliance on short-term pilot projects, and the absence of an integrated

monitoring framework to assess long-term social and health outcomes.

ASSESSMENT: Spain is encouraged to build on recent policy developments by ensuring sustained implementation of

desegregation and housing inclusion measures across all regions. While strategic frameworks and targeted support

programmes provide an important basis for action, persistent disparities remain. FRA data show that 71% of Roma live

in overcrowded conditions, compared with 9%130 of the general population.131 Spain should strengthen coordination

between national, regional and local authorities, scale up integrated rehousing approaches, and ensure that social

housing allocation effectively addresses discrimination and segregation. The planned national study on Roma housing

conditions offers an opportunity to establish a stronger monitoring framework and support evidence-based policies with

measurable outcomes for Roma communities. The Plan Estatal de Vivienda 2026–2030132 could further support Roma

housing inclusion through its focus on deprived areas, shanty and substandard housing, and increased public and

affordable housing.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: NRCP in Spain ensures Roma participate in civil society through the Roma State Council,

a consultative 40-member body (20 state reps, 20 Roma reps)- linking Roma CSOs and public institutions. Dialogue,

consultations, and joint projects promote inclusive governance, while regional engagement occurs via the Technical

Cooperation Group for Roma Inclusion and sectoral working groups (e.g. education, health), embedding local needs

into policy. The NRCP collaborates with the Council for Racial Equality (Ministry of Equality) to advise on anti-

discrimination policies across housing, health, and employment. It also works with OBERAXE, supporting racism

monitoring, research, and cross-sectoral action. These partnerships strengthen coordinated, rights-based inclusion,

ensuring policies reflect territorial realities and community priorities.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in coordinating the NRSF through the NRCP

and the State Council for the Roma People, with active participation from Roma CSOs in design, monitoring, and

thematic working groups. However, they note that while formal reporting mechanisms exist and CSOs contribute to

implementation and evaluation, challenges remain in ensuring consistent data collection, comprehensive follow-up, and

systematic integration of civil society feedback into policy adjustments.

ASSESSMENT: Spain has established a solid institutional framework for Roma inclusion through the NRCP, the State

Council of the Roma People, and cooperation with equality and anti-racism bodies. Going forward, strengthening

monitoring systems and improving the availability of disaggregated data could support more effective evaluation of

social outcomes and policy impact. Further reinforcing the role of Roma consultative bodies in policymaking, while

enhancing coordination across regions, may help measures to be implemented more consistently. Expanding

opportunities for local participation and increasing Roma representation within public administration could also

strengthen trust, accountability, and the long-term sustainability of inclusive governance.

FUNDING

Spain’s Roma inclusion strategy combines EU (ESF+, ERDF, RRF), national, and private funds. EUR 102.3 million of

ESF+ have been allocated either to targeted measures under the specific Roma objective in ESF+ (EUR 92.8 million)

or, as part of mainstream measures to the support of marginalised groups in education, employment or social inclusion,

as well as support to CSOs working with Roma. The Social Inclusion, Child Guarantee and Fight Against Poverty

130 Available at: Eurostat, (online data code ilc_lvho05a),

https://ec.europa.eu/eurostat/databrowser/view/ilc_lvho05a/default/table?lang=en 131 European Union Agency for Fundamental Rights – Roma Survey 2024 https://fra.europa.eu/en/publications-and-resources/data-

and-maps/2025/roma-survey-2024 132 Available at: https://www.mivau.gob.es/vivienda/info-plan-estatal-de-vivienda-2026-2030.

49

Programme alone allocates EUR 61.2 million to measures promoting Roma socio-economic integration, including

integrated pathways for social and labour inclusion (EUR 25 million), educational services for Roma children and

youth (EUR 22.5 million), socio-economic inclusion of Roma women (EUR 10.6 million), and fight against

discrimination (EUR 3.2 million). The regional programmes allocating most ESF+ resources for Roma inclusion are

Andalusia (EUR 8.5 million) and Valencia (EUR 8.8 million), which corresponds to the regions with the highest

concentration of Roma population. Nearly 93% of ESF+ resources dedicated to Roma socio-economic integration have

been selected, well above EU average of 60.6%. An effective monitoring and evaluation of EU funded programmes,

through a consistent reporting on dedicated indicators, is needed to ensure an adequate follow up of the measures

targeted to Roma people.

MONITORING AND EVALUATION

The NRSF for Spain defines quantitative targets for all EU-level objectives except Objective 3 (Participation) and

qualitative targets for Objective 3. It also includes indicators for monitoring its implementation in all EU-level

objectives. These indicators correspond to the majority of the EU-level headline indicators. Spain also sets out targets

to achieve by 2026 for all 56 indicators included in the monitoring framework. The country has established a

mechanism for the monitoring and evaluation of the national Roma strategic framework with monitoring every two

years. Roma or pro-Roma CSOs are engaged in monitoring the implementation of the NRSF.

PROMISING PRACTICES

The establishment of the Technical Commission in 2024 has been identified as a promising practice. The Technical

Commission was tasked with preparing a report on measures applying the principles of truth, justice, reparation, and

non-repetition regarding historical antigypsyism. Created under the framework of the Democratic Memory Law, the

Technical Commission brings together experts, institutions, and Roma civil society to assess past injustices and

propose structural responses. It marks the first official recognition of historical antigypsyism in Spain and is a

foundational step towards institutional accountability, symbolic reparation, and inclusive public memory.

In June 2025, Spain adopted the plan of action for the improvement of employability of the Roma population 2025-

2028, comprising 14 targeted measures ranging from personalised labour orientation and dual training with hiring

commitments to entrepreneurship support and anti-discrimination campaigns, aimed at supporting 107 000 Roma

towards decent employment.133

133 Fundación Secretariado Gitano, Plan de Empleo para la población gitana (2025-2028), 4 June 2025 (reporting on Spain’s

national employment plan for the Roma population).

50

Table 10 - France

France

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The ‘2020-2030 French strategy in response to the recommendation by the

Council of the European Union of 12 March 2021 for Roma equality,

inclusion and participation’134 acts as the French National Roma Strategic

Framework (NRSF) since 2022.

ESTIMATED ROMA

POPULATION

Council of Europe estimates

Council of Europe estimates: approximately 300,000 to 500,000 Roma in

France (0.62% of the population)135

NATIONAL ROMA CONTACT

POINT (NRCP)

Interministerial Delegation for Accommodation and Access to Housing

(DIHAL)

NATIONAL ROMA CONTACT POINT

The NRCP operates within the Interministerial Delegation for Accommodation and Access to Housing (DIHAL),136

which employs 62 staff members and is responsible for coordinating and monitoring state priorities in housing,

including for Roma and other poorly housed populations. The NRCP plays an active role in mainstreaming Roma

issues across national and local policies and EU-funded initiatives, notably promoting the inclusion of antigypsyism as

an issue in national strategies. It contributes to the National Monitoring Committee for funds overseen by national

managing authorities and supports project leaders and promoters by providing guidance and adapting ESF+ eligibility

criteria for actions targeting homeless people and residents of informal settlements.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: In January 2023, the Interministerial Delegation to Fight Against Racism, Antisemitism

and Anti-LGBT+ Hatred (DILCRAH)137 launched the national plan to combat racism, antisemitism, and discrimination

based on origin 2023 – 2026 (PRADO)138, explicitly addressing antigypsyism. The plan serves as a key interministerial

framework involving all public authorities, in line with the EU Council’s 2021 Recommendation on Roma equality,

inclusion and participation. Measures include training for public officials, awareness campaigns, support for local

initiatives, and a memorial project on the former Montreuil-Bellay internment camp. By May 2025, the monitoring

committee had reviewed progress, with 50% of measures implemented.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in the official recognition of antigypsyism

within PRADO, including the involvement of Roma CSOs in its design and consultation processes. They also welcome

training initiatives for civil servants, police officers and magistrates, as well as growing attention to online anti-Roma

hate speech in discussions with the NRCP. At the same time, CSOs note that funding specifically dedicated to

antigypsyism remains limited and that further efforts could support more systemic and long-term measures. Public

opinion surveys continue to indicate high levels of social distance towards Roma, underlining the importance of

strengthening monitoring and anti-discrimination mechanisms in public services, education and policing.

ASSESSMENT: France has made significant strides in combating antigypsyism through the national plan to combat

racism, antisemitism, and discrimination (2023 – 2026), which explicitly integrates Roma-specific concerns. Notable

accomplishments include the Montreuil-Bellay memorial project and extensive anti-bias training for 700 magistrates

134 Available at: https://www.info.gouv.fr/upload/media/content/0001/11.pdf. English version available at:

https://commission.europa.eu/document/download/france_national_roma_strategic_framework_en_2020-2030.pdf. 135 Available at: https://rm.coe.int/1680088ea9. 136 Available at: https://www.dihal.gouv.fr/. 137 Available at: https://www.dilcrah.fr/en/. 138 Available at: https://www.dilcrah.gouv.fr/wp-content/uploads/2023/01/PRADO-2023-2026.pdf.

51

and 200 police officers. While recorded racist offences increased in 2024, the absence of a dedicated budget for

antigypsyism and the lack of formal monitoring indicators remain structural challenges. Future efforts should focus on

formalising funding for Roma-led anti-discrimination initiatives and institutionalising qualitative data collection to

measure long-term impact.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: The National Consultative Commission on Travellers139 addresses Traveller issues

through consultation with stakeholders, working with the Defender of Rights140. At local level, departmental

consultative commissions enable Travellers to participate in the design of public policies, particularly during the review

of departmental plans. Nationally, social inclusion is promoted through support for associations preventing exclusion,

with DIHAL allocating an annual budget of EUR 3.3 million to local associations running social initiatives An

additional EUR 472 535 supports two associations — FNASAT141 and ANGVC142 — working on housing, access to

rights, and combating exclusion and discrimination, as well as academic research through the École des Hautes Études

en Sciences Sociales (EHESS) on the preservation of memory related to Traveller communities.

FEEDBACK FROM CIVIL SOCIETY: Mediation by Roma and pro-Roma civil society organisations improved

Roma access to social services, especially for families in informal settlements, and integrated local strategies were

adopted in some cities such as Bordeaux, Nantes and Montpellier.143 In certain departments, collaborative frameworks

between CSOs and public services led to more inclusive anti-poverty practices. However, many Roma continue to be

excluded from social rights due to complex administrative procedures, lack of digital literacy, language barriers, and

discriminatory practices by local authorities. Roma lacking residency or address documentation are frequently denied

access to basic services, while funding remains limited, project-based, and without long-term continuity.

ASSESSMENT: France has made tangible progress in reducing poverty and social exclusion through mediation,

targeted national programmes, and integrated local strategies in several cities. However, persistent barriers — including

complex administrative procedures, lack of digital literacy, language barriers, discriminatory practices, and insufficient

funding — continue to limit Roma access to social rights. Establishing a national enforcement mechanism, simplifying

administrative procedures, and moving beyond project-based funding would strengthen France’s approach to ensuring

more consistent and sustainable progress across territories.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: In recent years, significant progress has been made in involving Travellers and European

citizens living in shanty towns in the implementation of policies that affect them. For Travellers, participation is mainly

ensured through the National Consultative Commission on Travellers and departmental commissions, particularly

during the review of departmental plans. For shanty town residents, the most significant progress has been made under

the school mediation programme, with a quarter of mediators having themselves lived or grown up in shanty towns,

enabling trust-based relationships with children and families. In 2023 and 2024, DIHAL organised two national

meetings bringing together people active in the field — social workers, school and health mediators, team leaders and

researchers — to share experiences and mobilise stakeholders around the eradication of informal settlements.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that participation is largely limited to ' Gens du voyage ' and

intra-EU citizens living in slums, leaving the majority of Roma unrepresented. Some progress has been achieved

through ANGVC (National Association of Citizens Gens du Voyage) empowerment initiatives, notably training, and

through civil society projects such as La Voix des Rroms '144 the Nevi Yag Bari project and PECAO (Peer Education

to Counter Antigypsyism Online)145, which seek to better involve Roma youth. CSOs argue that meaningful

participation requires more active recognition of Romani identity and support for projects on Romani history, identity

and culture. Local initiatives remain geographically isolated, and CSOs lack stable funding.

139 Available at: https://www.info.gouv.fr/organisation/delegation-interministerielle-a-l-hebergement-et-a-l-acces-au-

logement/commission-nationale-consultative-des-gens-du-voyage-4906-presentation. 140 Available at: https://www.defenseurdesdroits.fr/en. 141 Available at: https://www.fnasat.asso.fr/. 142 Available at: https://www.angvc.fr/. 143 Available at: https://resorption-bidonvilles.dihal.gouv.fr/en. 144 Available at: https://www.lavoixdesrroms.com/. 145 Available at: https://ergonetwork.org/projects/pecao/.

52

ASSESSMENT: France is encouraged to build on existing participation mechanisms by further broadening the

involvement of diverse Roma communities in the design, implementation and evaluation of policies affecting them.

Existing initiatives involving Travellers, residents of informal settlements and Roma youth provide a basis for

strengthening participatory approaches and trust-based engagement at local level. Going forward, continued support for

projects promoting Romani history, identity and culture, alongside capacity-building initiatives for Roma and pro-

Roma civil society organisations, could contribute to more inclusive participation. Further efforts to ensure continuity,

coordination and wider geographical coverage of local initiatives may also support more sustainable and representative

engagement across different Roma communities.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: As part of its multi-year anti-poverty strategy and the slum clearance policy steered by the

NRCP, the school mediation programme " Toutes et tous à l'école! "146 has been deployed since 2020. The programme

plays an essential role in the inclusion and retention of Roma children in the education system, particularly regarding

compulsory education enrolment from age three and the transition from primary to secondary education. By 2024 –

2025, 52 mediators were deployed across 17 of France's 101 departments. Following convincing results with Roma

children, a similar scheme is being implemented for itinerant families and Travellers.

FEEDBACK FROM CIVIL SOCIETY: School mediation initiatives, financed by the NRCP and implemented by

local CSOs, have shown initial promise in bridging access between marginalised communities and mainstream

education. Eduscol147, the official French website for education staff, now includes components on antigypsyism;

projects such as Barvalo-MUCEM148 and the Rivesaltes memorial149 promote historical awareness; and antigypsyism

was formally included in PRADO150. However, these efforts remain uneven across regions and implementation

contexts. Challenges continue to include administrative procedures related to distance learning authorisation, enrolment

practices, classroom placement, limited data on attendance and educational outcomes, and logistical difficulties

affecting families experiencing housing instability or displacement.

ASSESSMENT: France is encouraged to build on recent efforts supporting the inclusion and retention of Roma

children in education, particularly through the expansion of school mediation initiatives. Access to early childhood

education has improved; according to the latest Roma survey (2024), 44% of Roma children in France attend early

childhood education, compared to 26% in 2019 (EU: 53%). However, the share of Roma/Travellers aged 20–24 who

completed at least upper-secondary education remains at 12%, well below the EU average (32%) and the national

average (90%151).152 Going forward, continued expansion of mediation programmes, alongside improved monitoring of

attendance and educational outcomes, could help continuity in education and address barriers linked to mobility,

housing instability and administrative procedures.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: France has implemented a national programme to support the social and professional

inclusion of marginalised communities. For 2021 – 2027, the national ESF+ programme 'Employment, Inclusion,

Youth and Skills'153 funds actions promoting the social integration and socio-professional inclusion of people from

marginalised communities, including Traveller populations. The programme supports multidisciplinary

accompaniment, outreach, access to rights and services, housing solutions, and educational support, with special

attention to children from itinerant populations and those living in shantytowns. Since the programme's launch,

departmental councils have published seven calls for projects dedicated to Travellers, representing a total of EUR 1.3

146 Available at: https://blog.resorption-bidonvilles.dihal.gouv.fr/blog-résorption-bidonvilles/toutes-et-tous-à-lécole-retour-sur-un-

événement-donnant-la-parole-aux-premiers-concernés/. 147 Available at: https://eduscol.education.fr/. 148 Available at: https://mucem.org/en/expositions/barvalo/. 149 Available at: https://www.memorialcamprivesaltes.eu/en. 150 Available at : Plan national de lutte contre le racisme, l'antisémitisme et les discriminations liées à l'origine (2026-2029) . 151 Available at: Eurostat, (online data code edat_lfse_03),

https://ec.europa.eu/eurostat/databrowser/view/edat_lfse_03__custom_22314661/default/table. 152 Available at: https://fra.europa.eu/en/project/2024/roma-s. 153 Available at: https://www.fse.gouv.fr/.

53

million in ESF+ funding and an estimated 1,500 people supported.

FEEDBACK FROM CIVIL SOCIETY: Local employment initiatives have shown some promise, with project-based

pathways developed in coordination between public employment services, associations, and local authorities, employer

charters formalising commitments around fair recruitment and decent working conditions, and growing awareness of

exploitation risks in the agricultural sector. However, discrimination persists both at the hiring stage and in the way,

jobseekers are received by employment services. Local projects remain isolated and experimental, with a lack of

national coordination or scaled models offering durable employment integration. Informal middlemen still mediate

access to seasonal work, often with exploitative conditions.

ASSESSMENT: France is encouraged to build on existing employment and inclusion initiatives by further

strengthening pathways to sustainable labour market participation for Roma and Travellers. In 2024, 39% of

Roma/Travellers aged 20 – 64 in France were in paid work, with significantly lower employment rates among Roma

women (18%).154 At the same time, 40% reported discrimination during job searches. Going forward, continued efforts

to improve coordination and scalability of local employment initiatives, strengthen anti-discrimination measures and

support access to stable employment could help enhance labour market inclusion. Further attention to women’s

participation, fair recruitment practices and monitoring of employment outcomes may also support more sustainable

integration measures.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Two important achievements can be highlighted. The transposition of Directive

2020/2184 (the Drinking Water Directive)155 into French law introduced the right for every person to access a sufficient

daily quantity of drinking water at or near their place of residence156. Additionally, health mediation has demonstrated

its relevance in reconnecting people excluded from the healthcare system with appropriate care, by addressing

individual and systemic barriers that fuel health inequalities. DIHAL organises various commissions and project groups

to enhance collaboration and coordination, with programmes developed together with civil society, including NGOs

and Roma organisations.

FEEDBACK FROM CIVIL SOCIETY: France's 2020 – 2030 Roma strategy features a dedicated health access

component, with health mediation bridging gaps between Roma communities and healthcare, regional studies linking

poor health outcomes to housing conditions, and the creation of a dedicated centre addressing administrative barriers to

health coverage for inactive EU nationals. However, residents in precarious habitats face widespread lack of access to

water (22%), electricity (24%) and sanitation (41%), compounded by proof of residency requirements and delayed

access to care under the AME (Aide Médicale d'État)157. Forced evictions interrupt medical follow-up and have

occurred during active disease screenings. Roma patients report systemic bias, and health mediation remains

inconsistently implemented and poorly coordinated across regions.

ASSESSMENT: France is encouraged to build on recent efforts to improve healthcare access for Roma communities,

particularly through health mediation, outreach actions and cooperation with civil society organisations. Going forward,

strengthening coordination between healthcare, social and housing services could further support continuity of care and

access to treatment for people living in precarious conditions. Continued development of health mediation, including

more consistent implementation and support structures across regions, may help improve accessibility and trust in

healthcare services. Further attention to administrative barriers, living conditions and access to basic services such as

water and sanitation could also contribute to more sustainable improvements in health outcomes and healthcare access.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: In recent years, housing and accommodation projects for Travellers have improved in

quality, with DIHAL introducing a new call for projects setting requirements for localisation, construction, security and

participation. Progress in slum elimination is evident through better coordination among those involved and clearer

154 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 155 Available at: https://eur-lex.europa.eu/legal-content/EN/TXT/?uri=CELEX%3A32020L2184. 156 Available at: Décret n° 2022-1721 du 29 décembre 2022: https://www.legifrance.gouv.fr/jorf/id/JORFTEXT000046837783. 157 Available at: https://www.romacivilmonitoring.eu/countries/france/

54

direction from state services, with most territories now adopting a global approach. More human resources are being

mobilised in local authorities, including Marseille, Montpellier, Lyon, Bordeaux and Nantes. Between 2023 and 2025,

EUR 18 million was allocated to improving living and housing conditions, supporting around twenty departments and

co-financing around sixty associations and services.

FEEDBACK FROM CIVIL SOCIETY: Some local authorities have implemented targeted strategies to facilitate

housing access and avoid forced evictions. However, only 26 out of 95 departmental schemes comply with their legal

obligations; caravans are banned in 96% of zoning documents, and many Roma and Travellers live in a cycle of

displacement. 158 Roma settlements frequently lack basic infrastructure, and adapted social housing developments are

often grouped together, reinforcing segregation. Intersectoral coordination remains weak and limited data hinders

monitoring and accountability.

ASSESSMENT: France is encouraged to build on recent progress in improving housing conditions and coordination

mechanisms supporting Travellers and residents of informal settlements. Initiatives supported by DIHAL, including

increased financial support for local actors, provide a basis for more integrated housing approaches. Going forward,

continued efforts to promote sustainable housing solutions, strengthen coordination between relevant sectors and

improve implementation of departmental schemes may lead to greater housing stability and inclusion. Further attention

to access to basic infrastructure, monitoring tools and locally adapted housing solutions could also contribute to

improving living conditions and reducing situations where Roma are repeatedly displaced.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The National Consultative Commission for Travellers (CNCGV)159, a French

interministerial body established in December 2015, aims to adapt public policies to the specific needs of the Traveller

community, focusing on reception, housing, support and cultural preservation. Composed of representatives from

various ministries, elected officials, associations and qualified individuals, it facilitates dialogue between public

authorities and civil society organisations. The National Commission for the Elimination of Shanty Towns coordinates

efforts to address informal settlements. The NRCP supports national and local associations promoting Roma and

Traveller inclusion and rights, with total annual grants of approximately EUR 12 million, maintaining close

cooperation with the Defender of Rights and DILCRAH to coordinate awareness campaigns and integrate equal

treatment principles into local policies.

FEEDBACK FROM CIVIL SOCIETY: Roma and pro-Roma CSOs have limited, largely consultative involvement

in the NRSF, with consultations focused on operational rather than strategic matters. No unified cross-sectoral

monitoring structure with civil society participation exists, leaving local implementation uneven. CSOs have actively

documented evictions and supported victims in filing complaints, though underreporting and lack of trust in police limit

effectiveness. The work of the Defender of Rights represents a positive step but remains disconnected from a systemic

approach to hate crime monitoring involving Roma stakeholders.

ASSESSMENT: France is encouraged to build on existing institutional structures supporting dialogue and cooperation

with Roma and Traveller communities, including the CNCGV and local partnership mechanisms. Continued

cooperation between public authorities, civil society organisations and independent bodies may further support

coordination and the exchange of expertise on inclusion and equal treatment policies. Going forward, strengthening

cross-sectoral coordination and monitoring approaches could contribute to greater coherence in the implementation of

inclusion measures across areas such as education, employment, healthcare and housing. Further opportunities to

support the participation of Roma and pro-Roma civil society organisations in policy design, implementation and

evaluation may also lead to more inclusive and sustainable policy outcomes.

PROMISING PRACTICES

The Résorption-Bidonvilles online collaborative platform acts as a valuable observatory, providing up-to-date data on

shantytowns and squats where European nationals live in mainland France. It enables stakeholders to collaborate, share

challenges and good practices, and serves as an institutional memory of slum clearance strategies, with ongoing efforts

to mainstream its use among practitioners.160

158 Available at: https://www.romacivilmonitoring.eu/countries/france/ 159 Available at: https://www.legifrance.gouv.fr/loda/id/JORFTEXT000030621425 160 Available at: https://app.resorption-bidonvilles.dihal.gouv.fr/connexion.

55

Integrated local strategies combining housing, employment and education initiatives have been developed in several

cities, including Bordeaux, Nantes and Montpellier, where collaborative frameworks between civil society

organisations and public services have led to more inclusive anti-poverty practices. These locally driven approaches

demonstrate the potential of territorial partnerships in advancing Roma inclusion, even in the absence of systematic

national scaling.161

161 Available at: https://www.info.gouv.fr/organisation/delegation-interministerielle-a-l-hebergement-et-a-l-acces-au-logement.

56

Table 11 - Croatia

Croatia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

National Plan for Roma Inclusion (2021–2027) and the Action Plans for the

Implementation of the National Plan for the Inclusion of Roma (2021-2022

and 2023-2025)

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

For the 2021 census 17 980 self-declared as Roma (0.79% of the

population).162

Council of Europe estimates: approximately 35 000 Roma living in

Croatia163.

NATIONAL ROMA CONTACT

POINT (NRCP)

Office for Human Rights and the Rights of National Minorities of the

Government of the Republic of Croatia (GOHRRNM)

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating and monitoring Roma-related national policies, together with the

Government Commission for the Monitoring of the Implementation of the National Plan for Roma Inclusion (NPRI)

(the Commission). The Commission comprises of 16 members with equal representation from state authorities and

Roma representatives and oversees the implementation of the NPRI during the period 2021-2027. The Commission is

led by the Deputy Prime Minister for Social Affairs and Human Rights, while Deputy President Veljko Kajtazi

represents the Roma minority in Parliament. The NRCP also acts as the Commission’s technical secretariat. The NRCP

had a budget of EUR 1 650 000 for 2023-2025 period. ESF+ constitutes the main EU funding source for Roma

inclusion measures in Croatia for the 2021-2027 period.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Croatiahas implemented three key Roma-inclusion measures under its National Plan for

Roma Inclusion. In the period 2023-2025, the Ministry of Justice, Administration and Digital Transformation funded

a legal aid programme, supporting 23 projects- including seven Roma-focused initiatives- providing primary legal aid

to vulnerable social groups in six counties. Meanwhile, the Ministry of the Interior has integrated anti-discrimination

training into police curriculum and runs preventive campaigns (e.g. ‘Together Against Hate Speech’the ) while

collaborating with Slovenia, Hungary, and Italy to combat antigypsyism and hate crime. Additionally, Roma civil

society organisations, such as Kali Sara, deliver government-backed advocacy, media, and capacity-building projects,

empowering Roma councils, women, and youth nationwide. Together, these targeted programmes improve legal

protection, police-Roma relations, and community leadership, aligning with EU anti-discrimination and empowerment

objectives.

FEEDBACK FROM CIVIL SOCIETY: CSOs report progress in combating discrimination, with the NRCP funding

initiatives to address harassment and violence, and the Ministry of the Interior increasing Roma participation in the

police. This initiative aims to foster acceptance and reduce misunderstandings between police and Roma and has been

supported by strong media coverage of Roma culture and history. However, the Roma community remains the most

discriminated against minority, with inadequate penalties failing to deter discriminatory practices. Civil society

organisations have called for greater investment to enable legal professionals to provide continuous support to Roma

individuals, since lengthy court proceeding, frequent staff changes or cuts of funding for legal assistant NGOs

providing legal assistance further hinder justice for individuals.

ASSESSMENT: Croatia has made progress in addressing antigypsyism and discrimination through targeted legal aid,

police training, and Roma civil society engagement. Building on these efforts, further preventive measures - including

162 The 2021 census is available at: https://ljudskaprava.gov.hr/nacionalne-manjine/nacionalne-manjine-u-republici-

hrvatskoj/romi/371?utm. 163 Council of Europe estimates of Roma population: https://rm.coe.int/1680088ea9.

57

strengthening legal support continuity, ensuring adequate deterrents against discriminatory practices, and sustaining

police-Roma cooperation - would contribute to more systemic change. As discrimination and hate speech remain

significant challenges, consolidating existing initiatives and ensuring their long-term funding and institutional

anchoring remains an important consideration going forward.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Measures to accelerate Roma integration largely align with other national strategies, such

as plans to combat poverty and promote children’s rights. The establishment of the Međimurje community service

centre (CPUZ) in 2024 represented a significant achievement. CPUZ offers new social welfare services for children

and families at risk, including residential services in three Roma settlements and psychosocial support throughout

Međimurje County. It also provides social mentoring for 184 Roma via the National Recovery Plan. In its first year,

CPUZ developed social services that had not previously existed in Međimurje County, enhancing support for

vulnerable children and families.

FEEDBACK FROM CIVIL SOCIETY: The Action Plan facilitated funding opportunities for Roma civil society

organisations through the Office for Cooperation with NGOs, and integrating these activities into its routine operations

represented a real progress. Under the UNICEF project 'Guarantee for Every Child', four community centres were

completed in Roma settlements in 2024-2025, enhancing local social services, although the planned centre in Osiječko-

Baranjska County is yet to be built and requires action from the NRCP. Improvements are still needed in monitoring

poverty reduction related to housing, education, and employment under the NRSF. Social exclusion remains a

significant problem for Roma in segregated rural settlements, highlighting the need for more frequent public

transportation services and reduced costs.

ASSESSMENT: Croatia has made tangible progress through tin establishing CPUZ Međimurje and completing

community centres in Roma settlements. To build on these gains, better monitoring of poverty reduction impacts across

housing, education, and employment would strengthen the evidence base for future action. Integrating Roma-focused

strategies with broader national plans on poverty and children’s rights presents an opportunity for a more joined-up

approach. Improving access to services in rural settlements, including public transportation, remains important for

Roma social inclusion.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The Croatian government continues to implement policies in support to minorities,

including Roma, by increasing funding for cultural, educational, and sports centres (e.g. Zagreb’s Roma Library,

Uštica’s WWII Memorial) and expanding Roma civil society activities. Political participation among Roma has

increased, evidenced by high voter turnout and a rise in the number of Roma minority councils (38 councils in 2023

compared to 33 in 2019) and representatives after the 2023 elections. Kali Sara played a significant role in

strengthening capacity-building, while high-level political backing (e.g. a Deputy Prime Minister chairing the Roma

Inclusion Commission) and rising voter turnout reinforced trust in institutions.

FEEDBACK FROM CIVIL SOCIETY: While no major progress has been made in the past two years, CSOs report

consistent implementation of the Action Plan 2023–2025. Roma participation in councils and commissions reflects

efforts to include their voices in strategic planning. However, trust in institutions remains low, and greater transparency

is needed, particularly in the NRSF Monitoring Commission, all Roma members of which are affiliated with Kali Sara.

The appointment process to the NRSF Monitoring Commission has also been delayed, as no new call has been issued

following the latest elections.

ASSESSMENT: Croatia has made progress in promoting Roma participation, increased funding is available for Roma

civil society and there are a growing number of minority councils and representatives. Strengthening the capacity of

Roma councils and representatives would result in more effective engagement in policy processes. Ensuring diverse

Roma representation in the NRSF Monitoring Commission and addressing delays in appointing commission members,

would contribute to broader ownership and more inclusive governance. Efforts to foster trust between Roma

communities and institutions continue to be important.

58

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Central and local funding for educational initiatives has continued to increase,

contributing to higher participation in kindergarten, preschool, extracurricular activities, and Boyash Roma language

and culture classes. The number of Roma students completing high school and attending university has also risen.

Support measures for secondary and higher education will continue due to their positive impact on reducing dropout

rates and encouraging educational attainment. At the same time, spatial segregation remains a challenge, and there are

still some Roma-only classes. In response, EUR 1.9 million in ESF+ funding has been allocated to support educational

desegregation and stronger cooperation between schools and local stakeholders.

FEEDBACK FROM CIVIL SOCIETY: CSOs report progress in targeting educational desegregation for Roma

communities, namely by funding transportation for Roma children to enable them to attend non-segregated schools and

developing strategies to desegregate educational departments. However, Roma segregation in education remains a

major issue that affects around 40% of Roma students164. Challenges include a lack of awareness among Roma families

of the effects of segregation, underutilisation of the Roma curriculum due to resource gaps, and insufficient funding

mechanisms to facilitate desegregation efforts, highlighting the need for increased community engagement and support

for Roma teacher training programmes.

ASSESSMENT: Croatia has made measurable progress in improving Roma education, with increasing participation

across all levels and growing financial support available for educational initiatives. Continued investment in early

childhood education and care -where participation remains low - and in desegregation measures would strengthen long-

term outcomes. Expanding the pool of teachers qualified to teach the Roma curriculum and increasing community

awareness on the benefits of desegregated education would further support progress. The ESF+ funding allocated for

desegregation presents an important opportunity to address structural barriers in a sustainable way.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The registered number of unemployed Roma has fallen further. This reduction is in part

due to the increase in Roma participation in empowerment activities, including labour market inclusion, activation

programmes, and skills development through work competency vouchers. Additional measures to support employment,

included on-the-job training, first work experience opportunities, and financial support for those who wish to start their

own businesses or by co-financing employers’ wage costs and providing support for individuals to gain their first work

experience. The Croatian employment service has also implemented support measures.

FEEDBACK FROM CIVIL SOCIETY: Civil society highlights that Roma employment gains stem mostly from

mainstream schemes, with public works absorbing 90% of funding- yet lacking Roma-specific adaptations. Recent

progress reflects labour shortages more than targeted policies. Critical gaps persist: Roma women and NEET

youth require urgent, tailored support under the Action Plan, while employer discrimination remains unaddressed.

Reviving ‘Decade for Roma Inclusion’45 strategies- like bespoke hiring initiatives-could strengthen impact.For

sustainable change, intersectional measures, anti-bias employer engagement, and reinstated proven frameworks should

take priority.

ASSESSMENT: Croatia has recorded a fall in the number of Roma registered as unemployed, which has been

supported by increased participation in activation and skills development programmes. Greater efforts to extend long-

term employment pathways beyond public works programmes would support more sustainable outcomes. Improved

data collection on Roma participation in mainstream employment measures could strengthen the evidence base for

policy assessment. Addressing the specific needs of Roma women and NEET youth, alongside continued employer

engagement on anti-discrimination, remains important.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

164 Available at: https://www.romacivilmonitoring.eu/countries/croatia/?utm_source=chatgpt.com.

59

REPORTED PROGRESS: The vaccination rate among Roma children remains high,and efforts have been made by

the Croatian Public Health Institute to enable the collection of disaggregated health data for Roma. Central-level

measures are largely mainstream, except in education, and there are many targeted measures at regional and local level.

Localised health programmes- such as free screenings, reproductive health initiatives, outreach by NGOs- have boosted

Roma access, but systemic inequities persist, including an 18% difference in life expectancy between Roma and

general population and 50% teen pregnancy rate (2020). 165Assistance is provided to vulnerable households through

government-funded minority organisations. The diverse and dispersed nature of the Roma population in the country

makes local measures more efficient and effective compared to central-level initiatives.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs, progress in this sectoral objective has been minimal,

with activities largely dependent on EU-funded projects led by the NRCP and planned for late 2025. Improvements are

needed in the collection of disaggregated data on Roma to better address health disparities, notably the 10-year gap in

life expectancy between Roma and the majority population. The scope of interventions could be broadened, and focus

on preventive measures for addiction, and on addressing mental health, physical activity, and nutrition.

ASSESSMENT: Croatia has maintained high vaccination rates among Roma children and developed localized health

programmes that have improved access to services. Strengthening the collection of disaggregated health data would

allow outcomes to be more clearly assessed and interventions to be more targeted. Broadening the scope of health

measures to include addiction prevention, mental health, and nutrition, alongside continued investment in community-

driven outreach models, could contribute to more comprehensive and equitable health outcomes for Roma

communities.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Croatia invested EUR 5.1 million (2023-2025) in housing legalisation, infrastructure (e.g.,

water, sanitation), and emergency aid, enabling some Roma families- particularly in Međimurje County- to transition

from segregated settlements to mixed communities. While there are no targeted measures for Roma, mainstream

measures also benefit a number of Roma families. These tend to be national and local level, targeted at young persons

and mostly subsidies for buying of the first house. Although precise data are unavailable, improved employment and

educational opportunities have facilitated the relocation of many Roma families from segregated settlements to villages

with majority Croat populations, notably in Međimurje County. However, systemic gaps persist, with 69% of Roma

categorised as housing-deprived (2020 baseline) and 85% living in overcrowded conditions.

FEEDBACK FROM CIVIL SOCIETY: CSOs report continued investment in Roma settlements in Croatia,

including infrastructure, cultural centres, sports facilities, and community development. However, they note that

measures remain focused on improving conditions within segregated settlements, with limited efforts to desegregate or

physically integrate Roma into wider communities.

ASSESSMENT: Croatia has invested significantly in housing infrastructure for Roma settlements, contributing to

improved living conditions for several families. Developing a more strategic approach to housing - including measures

to aid physical integration alongside infrastructure improvements within settlements- could strengthen long-term

outcomes. Expanding local capacity to implement housing measures and ensuring that mainstream housing subsidies

effectively reach Roma families remains important. Improved data collection on Roma housing conditions would also

help to assess progress more clearly against existing baselines.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP supports the participation of Roma and pro-Roma civil society in the design,

implementation, monitoring, and review of the NRSF, local action plans, and EU funds monitoring committees. Roma

CSOs also implement integration measures and lead independent initiatives. The GOHRRNM has supported civil

society involvement in local action plans in Zagreb and Rijeka, while operational programmes for the Roma national

minority have contributed to policy initiatives in areas such as housing and welfare and informed the preparation of

post-2027 Roma policy.

FEEDBACK FROM CIVIL SOCIETY: Civil society organisations note that the NRSF’s monitoring committee, co-

165 Available at: Uključivanje Roma u hrvatsko društvo - istraživanje baznihpodataka.pdf.

60

chaired by Deputy Prime Minister and Roma representative Veljko Kajtazi, includes ministry officials and Roma

delegates selected via public call. Transparency concerns have arisen over potential conflicts of interest, as many

appointees are linked to Kali Sara. Roma representatives also oversee project coordination, with some roles held by

Kali Sara staff, raising questions about undue influence. The Ombudsperson’s office engages Roma civil society in

advisory roles, while non-Roma NGOs employ Roma- often from the Roma Youth Organisation of Croatia- to

document discrimination cases.

ASSESSMENT: Croatia has established participatory structures that support Roma civil society involvement in the

implementation and monitoring of Roma inclusion policies, including through local action plans and operational

programmes for the Roma national minority. Strengthening local capacities, improving the timeliness of data collection

and policy follow-up, and ensuring broad and balanced representation within participatory mechanisms could further

support transparency and accountability. Continued engagement with Roma civil society, alongside inclusive

cooperation between institutions and community organisations, may contribute to more effective and sustainable Roma

integration policies.

PROMISING PRACTICES

The Ministry of Justice, Administration and Digital Transformation’s primary legal aid programme funds NGOs and

law faculties via national calls to ensure nationwide access to justice, particularly for vulnerable groups, including

national minorities. Services include legal counselling, rights education, and administrative support.

In 2023–2025, 23 projects were backed, with seven focused on Roma communities across multiple counties. Funding

for Roma-specific legal aid rose from EUR 216 955 in 2023 to EUR 283 081 in 2024, reflecting increased support. The

initiative prioritises territorial balance and targeted assistance to enhance Roma access to legal protection.166

166 Ministarstvo pravosuđa i uprave Republike Hrvatske - Besplatna pravna pomoć

61

Table 12 - Italy

Italy

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Following the previous national Roma, Sinti and Caminanti inclusion

strategy 2012-2020, Italy adopted its current National Roma Strategic

Framework, entitled ‘National Roma and Sinti equality, inclusion and

participation strategy (2021-2030)’167.

ESTIMATED ROMA

POPULATION

Council of Europe estimates (plus

national census data, where available)

Council of Europe estimates: approximatively 150 000 (0.25% of the

population)168

NATIONAL ROMA CONTACT

POINT (NRCP) National Office Against Racial Discrimination (UNAR)

NATIONAL ROMA CONTACT POINT

UNAR, the Italian NRCP, had an annual budget of EUR 2 million and six staff members for the period 2023–2025. It

plays a central role in coordinating and monitoring the implementation of the National Roma Strategic Framework

(NRSF), linking ministries, regional and local authorities, Roma civil society and EU institutions. UNAR also works to

integrate Roma inclusion into broader social policies and programmes through cooperation with ministries and the

National Association of Italian Municipalities (ANCI). In addition, it supports local authorities in developing local

action plans and contributes to implementation of initiatives such as the National Operational Programme Inclusion

(PON Inclusione), PON Equità and Regional Operational Programmes (PORs).

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Improved public recognition of antigypsyism as a systemic barrier to Roma inclusion was

reported as a key achievement. Efforts to address institutional bias included training on antigypsyism, media guidelines

and monitoring of discriminatory discourse. An online platform trained more than 1 000 officials working in education,

policing and healthcare. Awareness raising activities were also expanded, including the 2024 and 2025 editions of the

‘Week for the Promotion of Roma Culture and the Fight against Antigypsyism’, which involved dozens of activities

across the country. Another important initiative was the 2024 ‘Don’t Call Me Gypsy’ 169campaign implemented with

the Italian Football League (Serie A). Institutional reforms, legal support and the involvement of Roma representatives

in policy design were also further strengthened.

FEEDBACK FROM CIVIL SOCIETY: Civil society organisations (CSOs) note that Italy has advanced

antigypsyism awareness through UNAR’s 'two weeks of action', cultural events, and the first municipal celebration of

International Roma and Sinti Day, with growing CSO participation. However, hostility persists, political and legal

progress is limited, and socio-economically disadvantaged groups are often mislabelled in official language,

highlighting the need for non-discriminatory targeted policies.

ASSESSMENT: Italy has taken important steps to increase public awareness of antigypsyism through institutional

dialogue, training initiatives and stronger involvement by Roma and Sinti representatives in public debate. Italy could

further strengthen its approach by expanding policies that address socio-economic disadvantage in an inclusive and

non-stigmatising manner. Continuing to develop political and legal frameworks, alongside sustained cooperation

between institutions and civil society, may help translate growing awareness into more systemic and long-term change.

Further support for awareness raising, training and monitoring initiatives could also contribute to reducing persistent

167 Available at: https://commission.europa.eu/document/download/italy_national_roma_strategic_framework_2021-2030.pdf. 168 Available at: https://rm.coe.int/1680088ea9. 169Available at: https://www.fcinternews.it/news/dont-call-me-gipsy-lega-serie-a-e-unar-insieme-per-contrastare-l-antiziganismo-

951566.

62

prejudice and strengthening equal treatment in practice.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Although poverty reduction is not addressed as a separate objective, IT’s NRSF

approaches the issue across several areas, including education, employment, health, housing and measures combating

antigypsyism. One of the most significant achievements has been the reduction in the number of people living in

segregated settlements, from around 30 000 in 2015 to approximately 15 000 in 2025, by providing targeted support for

the most vulnerable Roma communities. Key initiatives such as ACCEDER-E170, focused on access to employment,

and SALUTE171, to improve health outreach, have provided essential services and support pathways out of extreme

poverty. These efforts have also been complemented by broader national anti-poverty measures, including the

Universal Single Allowance.

FEEDBACK FROM CIVIL SOCIETY: CSOs report the provision of poverty support to Roma and vulnerable

families through the Universal Single Allowance and Inclusion Allowance, The procedures for applying for these

allowances are accessible, and do not involve discriminatory conditions. However, reliance on welfare alone limits

long-term autonomy, and civil society involvement in supporting Roma access to these measures remains sporadic,

highlighting the need for targeted employment policies and stronger CSO engagement.

ASSESSMENT: Having successfully halved the number of segregated settlements, Italy could now transition from

pilot initiatives like ACCEDER-E to structural, long-term scaling within the 2028-2034 programming cycle. To resolve

persistent monitoring gaps, the NRCP should implement integrated financial reporting and define clear quantitative

targets, supported by the recently strengthened ISTAT-UNAR data collection mechanisms. Ultimately, dismantling

systemic antigypsyism across all public institutions remains key for shifting from welfare reliance to true economic

autonomy.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The key achievement is the consolidation of the Piattaforma Nazionale Rom e Sinti, (the

‘Platform’) coordinated by UNAR, which has fostered dialogue, empowerment, and networking among Roma and Sinti

CSOs through biannual meetings. It has supported a new generation of socially integrated, academically trained

Roma/Sinti activists challenging stereotypes and addressing issues such as Roma Holocaust memory, gender-based

violence, and antigypsyism. By 2025, the Platform had evolved into a digital '2.0' model with a CSO coordination

group, a Consulta of Roma and Sinti communities’ representatives, and a youth-led Forum (the ‘Forum’), ensuring

structured participation.

FEEDBACK FROM CIVIL SOCIETY: CSOsunderline that progress on Roma participation in Italy remains

limited. Roma CSOs are few, fragmented, and often lack the capacity to access funding or manage sustainable projects,

restricting their influence on policy and initiatives. Over the past two years, Roma CSOs and representatives have had

little say in defining funding priorities, with UNAR acting as the main spokesperson. The Platform and Forum are

designed to facilitate dialogue and empowerment, but they remain largely inactive and underutilised.

ASSESSMENT: Italy has strengthened institutional dialogue with Roma and Sinti communities by consolidating the

Piattaforma Nazionale Rom e Sinti. The Platform has supported networking, empowerment, and the emergence of a

new generation of Roma and Sinti activists, while its 2025 digital “2.0” model could further expand structured

participation through a coordination group, community consultation body, and youth forum. However, Roma CSOs

remain fragmented and often lack the capacity and resources to access funding or influence policy effectively. Going

forward, Italy should strengthen support for Roma-led organisations, ensure that they are more involved in setting

funding priorities, and make fuller use of participatory structures to support sustained dialogue, representation, and

policy impact.

SECTORAL OBJECTIVES

170 Available at: https://www.invitalia.it/incentivi-e-strumenti/accedere. 171 Available at: https://www.infosaluteromesinti.it/.

63

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The launch of the ‘Project for the Inclusion and Integration of Roma, Sinti and Caminanti

Children’ (the ‘Project’) marked a major development for Roma education in Italy. It was set up under the EUR 40

million National Programme for Inclusion and the Fight Against Poverty 2021–2027172, and is aligned with the EU

Child Guarantee. The Project seeks to address structural inequalities affecting Roma, Sinti and Caminanti children

through intercultural mediation, cooperation with Roma CSOs, support for early childhood education, and the inclusion

of Roma history and culture in school curricula. Implemented in more than 100 municipalities, it promotes stronger

links between schools, families and communities and supports a more inclusive and culturally sensitive approach to

education.

FEEDBACK FROM CIVIL SOCIETY: CSO acknowledged the progress made with the launch of the Project in

promoting the inclusion of Roma, Sinti, and Caminanti children and adolescents. Actions have focused on fostering

intercultural schools, promoting integrated and multidisciplinary approaches, and ensuring stability in social,

educational, and health interventions. Nevertheless, CSOs note that a significant number of Roma children do not

attend kindergarten, resulting in cognitive, language, and development gaps, which can be exacerbated by biases, which

in turn lead to misdiagnoses and further stigmatisation. Strengthening teacher training and parental awareness is also

essential to ensure genuine inclusion.

ASSESSMENT: Italy allocated 591 million EUR through the 'National Programme School and skills 2021-2027' to

quality and inclusive education and training systems on the whole territory, addressing also early childhood education

and care. More specifically, the programme tackles child poverty with about 162 million EUR. Although these

measures are not targeted exclusively to Roma people only, they are inclusive by design and particular attention is paid

to vulnerable groups, including Roma children.

While the mainstreaming of inclusive principles has been successful, persistent systemic antigypsyism and subtle forms

of exclusion within school cultures remain critical barriers. To consolidate the gains it has made, Italy is encouraged to

scale its co-designed community projects and finalise the integration of Roma history and culture into national

curricula, ensuring that Roma students also have the opportunity to be advocates for safe, democratic learning

environments.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The ACCEDER-E programme, co-funded by the ESF under PON Inclusione, successfully

improved access to vocational training and employment for disadvantaged individuals, particularly Roma, Sinti and

Caminanti communities. Its effectiveness was due to tailored training pathways, strong cooperation among institutions

and civil society, and the use of cultural mediators familiar with the obstacles faced by Roma, Sinti and Caminanti

communities, and supported by Invitalia’s173operational capacity. Several funded projects that were funded reported

employment rates in Italy above 25–30% within 3–6 months following interventions, indicating good alignment with

the 2025 target (baseline: 10%; 2029 target: 50%).

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight that efforts to promote Roma employment remain limited.

They note the conclusion of the ‘ACCEDERE-E’ pilot project (2022–2023) and the lack of clear indicators to measure

Roma participation in mainstream employment policies. Many Roma also face legal and administrative barriers,

including lack of documentation or residence permits, which restricts access to formal employment. CSOs also

underline the high percentage (90%) of Roma in monoethnic settlements working without regular contracts174, which

highlights the urgent need for targeted interventions such as skills recognition, vocational training, support for small

businesses, and pathways to stable and formal employment.

ASSESSMENT: Going forward, Italy could build on ESF+ investments and programmes such as 'ACCEDER-E' to

further strengthen pathways to employment and social inclusion for Roma communities. Continued efforts to address

structural barriers, including discrimination, administrative obstacles and labour market exclusion, may help improve

access to stable and sustainable employment opportunities. The significant ESF+ resources allocated to education,

employment, social inclusion and civil society initiatives constitutes an important basis for expanding targeted support,

172 Available at: https://pninclusione21-27.lavoro.gov.it/. 173 Available at: https://www.invitalia.it/en/who-we-are. 174 Istat data, April 2025. Available at: https://www.istat.it/comunicato-stampa/occupati-e-disoccupati-dati-provvisori-aprile-2025.

64

particularly in Southern IT. Further developing of monitoring tools and community-based approaches could also result

in more effective assessment of outcomes and help tailor future interventions to the needs of Roma communities.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The ‘Salute Rom e Sinti’175 project (the ‘Project’), led by UNAR and Università

Cattolica, assessed access to healthcare among Roma and Sinti communities in Italy and identified persistent barriers,

including discrimination and limited use of health services. Under PN Inclusione 2021–2027176, the Project is being

expanded to additional regions while local support mechanisms have been strengthened. An important component of

the Project is the training of Roma health mediators to improve communication, advocacy and health literacy within

communities. A 2024 pilot study identified a life expectancy gap of 7–15 years compared with the general population,

which was linked to housing conditions, geographic isolation and difficulties accessing services. By combining

research, outreach and mediator training, the project provides an important model for more inclusive healthcare

policies.

FEEDBACK FROM CIVIL SOCIETY: CSOs criticize the lack of significant improvements in Roma access to

health and social services during the reporting period, with key obstacles remaining unaddressed such as antigypsyism,

lack of cultural mediation, and legal or administrative barriers. They also emphasize that while the NRSF proposes

measures such as training for social workers, the provision of cultural mediation, legal regularisation, and social

policies tailored to individual and family needs, these measures remain vague and are not implemented in a specific and

structured way, leaving systemic challenges largely unresolved.

ASSESSMENT: Italy could build on existing EU and national initiatives by further strengthening integrated socio-

healthcare approaches that address both medical needs and the broader social determinants of health affecting Roma

and Sinti communities. Continuing to develop research-informed policies, supported by anonymised and voluntary data

collection, may help improve the targeting and effectiveness of healthcare interventions. Expanding cooperation

between health, social and local services could also result in more coordinated and sustainable responses. At the same

time, further efforts to strengthen access to essential social assistance services and reduce regional disparities in service

provision may help ensure more equitable support for Roma communities across the country.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The consolidation of housing transition projects, funded through ERDF (European

Regional Development Fund) PON 'Metro' and municipal resources, marked a major step towards overcoming mono-

ethnic settlements. These initiatives combined personalised pathways for Roma and Sinti families with a shift away

from the misleading “nomad” label, helping to reduce stigma and promote stable, long-term housing solutions. Several

Italian regions (e.g. Emilia-Romagna, Calabria and Sardinia) and metropolitan cities (e.g. Rome, Milan and Naples)

allocated their own resources and ERDF funds to support housing inclusion, often in partnership with CSOs during

project implementation. The National Strategy 2021-2030 emphasises participatory planning and local governance to

ensure sustainable housing transitions.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge that Italian regions such as Puglia and Calabria have

invested significant amounts in housing inclusion for Roma and Sinti, with civil society supporting project

implementation. While progress has been made towards structural housing solutions, long-standing ghettoisation

persists, especially in Naples, Abruzzo, and Calabria. UNAR’s coordination is needed to address mono-ethnic

settlements and promote lasting integration.

ASSESSMENT: ERDF supports social and affordable housing in Italy and does so mainly through investments in

improving energy efficiency and renovating or developing social housing. In some regions, such as Trento, these

investments have recently been further increased. Most housing measures, however, are not specifically targeted at

Roma or other vulnerable groups but are implemented as broader social housing initiatives. As a result, Roma may

benefit indirectly where they fall within the eligible target groups. Ongoing challenges include addressing the specific

needs of Sinti micro-areas, which are ften organised around small family communities, and informal settlements of

175 Available at: https://www.infosaluteromesinti.it/. 176 Available at: https://pninclusione21-27.lavoro.gov.it/.

65

Roma, Sinti and other marginalised groups, which require coordinated and inclusive local planning approaches.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The Italian NRCP has formalised Roma civil society participation in policy processes,

aligning with the EU Roma Framework and Italy’s NRSF. Engagement channels include the National Roma Platform,

thematic working groups, local and regional action plans (‘PAL’ and ‘PAR’, respectively) and EU-funded initiatives

such as PON Inclusione and AMIF. Roma organisations contribute to shaping policy design, implementation and

monitoring, and their activities include shadow reporting, which ensures that their priorities guide inclusion, anti-

discrimination and access to services. The NRCP combines mainstream anti-discrimination measures with targeted

PAL/PAR plans to address housing, education and health gaps, aiming to build a network of inclusive cities and

regions. Between 2023–2025, it strengthened cooperation with equality bodies, supported ISTAT surveys, and

launched the PARI platform for public sector training.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight that during the first NRSF monitoring cycle Roma and pro-

Roma CSOs were involved in its drafting, but that they did not subsequently participate in implementing it in any

structured way. To date, only the CSO 'Associazione 21 Luglio' has monitored the NRSF, carrying out press analysis,

formal requests to authorities, and periodic site visits. No other associations are reported to have engaged in similar

oversight.

ASSESSMENT: Building on the existing participatory structures established under the NRSF, Italy could further

strengthen the role of Roma and Sinti civil society in the implementation and monitoring of inclusion policies at

national, regional and local levels. Expanding monitoring and oversight capacities beyond a single organisation may

help support broader community engagement and a more diverse evidence base. Continued efforts to strengthen

coordination between national and territorial authorities, alongside sustainable support for Roma civil society, could

further enhance the effectiveness and continuity of existing initiatives. Going forward, these developments may

contribute to more inclusive governance structures and help translate participation mechanisms into long-term and

measurable outcomes.

PROMISING PRACTICES

The ISTAT-UNAR ‘Abitare in Transizione’177 surveys- covering municipalities over 15 000- delivered Italy’s first

national data on Roma and Sinti housing, exposing challenges and effective inclusion practices. This evidence-based

approach, combined with participatory co-design via PALs and PARs, offers a scalable, sustainable model for housing

inclusion.

The initiative to reject the term ‘nomads’ represented a critical breakthrough, as it reduced stigma and enabled long-

term housing solutions. The initiative proves how systematic data and community collaboration can tangibly improve

living conditions and social integration for Roma and Sinti populations.

177 Available at: https://www.istat.it/wp-content/uploads/2021/03/Abitare-in-transizione-F.pdf.

66

Table 13 - Cyprus

Cyprus

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The National Roma Strategic Framework (2021-2030) (NRSF) integrates

Roma inclusion into mainstream social policy and covers five areas:

education, employment, housing, health and social support. Its horizontal

goals are equality, inclusion and participation.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

According to Council of Europe estimates, approximately 1 250 Roma live in

Cyprus (0.11% of the population)178.

Under the 1960 Constitution, Roma are included in official statistics as part

of the Turkish Cypriot community rather than as a separate ethnic minority,

creating a data gap.

NATIONAL ROMA CONTACT

POINT (NRCP) The Social Welfare Services Department (Deputy Ministry of Social Welfare)

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating and monitoring implementation of the NRSF. It facilitates inter-ministerial

cooperation through a monitoring committee composed of representatives from key ministries, including Education,

Health, Interior, Justice, Labour, and Transport. The committee is chaired by the Director General of the Deputy

Ministry of Social Welfare. The NRCP also represents Cyprus at EU-level meetings in coordination with the National

Roma Platform. Currently, one staff member within the Social Welfare Services Department is assigned to coordinate

NRCP activities, supported by stakeholder representatives participating in the monitoring committee.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Cyprus reported that antigypsyism has been addressed through broader anti-racism and

human rights initiatives. The National Strategy for the Protection and Promotion of Human Rights179 includes Roma

among its target groups. In addition, the Code of Conduct against Racism and Guide for Managing and Recording

Racist Incidents180 is implemented in schools, providing guidance for preventing and addressing racist incidents and

promoting awareness of Roma culture, language and history and the Roma Holocaust among students.

FEEDBACK FROM CIVIL SOCIETY: CSOs report some progress in the implementation of anti-racism policies in

schools, notably through Cyprus' Code of Conduct against Racism and Guide for Managing and Recording Racist

Incidents. At the same time, CSOs highlight the need for stronger recognition and action against antigypsyism. The

European Commission against Racism and Intolerance (ECRI)181 has recommended reinforcing measures to prevent

and prosecute hate speech and hate crime and improving the effectiveness of equality bodies, noting that these

shortcomings affect Roma as well as other groups.

ASSESSMENT: Cyprus could further strengthen efforts to address discrimination and promote equality by improving

recognition of and enforcement related to antigypsyism. Continuing to develop mechanisms to prevent and address hate

speech and hate crime, alongside a reinforced role for equality bodies, may result in more effective responses.

Addressing gaps in monitoring and data collection on anti-Roma incidents would also contribute to a more

comprehensive evidence base. Together, these steps could improve the overall framework for protecting Roma

communities and other groups affected by discrimination.

REDUCE POVERTY AND SOCIAL EXCLUSION

178 Statistics available at: https://rm.coe.int/1680088ea9. 179 Member States’ best practices on the Charter | European e-Justice Portal 180 Available at: https://naos.risbo.org/wp-content/uploads/2017/04/Cyprus-antiracism-code.pdf. 181 Available at: https://www.coe.int/en/web/european-commission-against-racism-and-intolerance

67

REPORTED PROGRESS: Cyprus reported that efforts have been strengthened to reduce poverty and social

exclusion of the most vulnerable people of the population, including Roma. No specific achievement for this objective

was reported.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that the Guaranteed Minimum Income (GMI) Law

109(I)/2014182 has established a national safety net, offering forms of support such as a housing allowance and

connecting beneficiaries with activation services through the Public Employment Service. On the other hand, there is a

lack of Roma-specific monitoring of poverty alleviation because national anti-poverty measures do not distinguish

outcomes for Roma households, and this makes systematic tracking difficult. Access barriers persist, particularly for

vulnerable families facing difficulties with digital procedures, documentation and debt, pointing to the need for targeted

outreach in Roma communities.

ASSESSMENT: Cyprus is encouraged to continue promoting the inclusion of Roma communities, including through

relevant social and employment initiatives where appropriate. Strengthening monitoring systems and facilitating access

to support, including by addressing administrative and information barriers, could further benefit Roma families.

Targeted outreach may also help to ensure that available support reaches those in need.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The key achievement reported by Cyprus was the close collaboration between

government and non-governmental stakeholders on Roma-related issues, facilitated by the establishment of the

Committee for monitoring the implementation of the National Roma Strategic Framework (the Committee for

monitoring the NRSF), which united all relevant parties in cooperative efforts.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcome the Committee for monitoring the NRSF and suggest

boosting meaningful participation by Roma representatives in NRSF planning, implementation and evaluation

processes, with ECRI advocating for increased involvement across anti-racism and inclusion policies.

ASSESSMENT: Cyprus is encouraged to continue improving collaboration with both governmental and non-

governmental stakeholders on Roma issues. The Committee for monitoring the NRSF is a positive development and

has united relevant parties. To further strengthen these efforts, Roma participation in planning and implementing anti-

racism and inclusion policies should be increased, to ensure that their voices are central to decision-making processes.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Cyprus did not report any specific achievements. TheMinistry of Education, Sport, and

Youth continues to implement measures to address the needs of Roma students. An important challenge remains the

high numbers of early school leavers, disengaged students and students at risk of dropping out, including Roma

students.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcomed some targeted measures concentrated in Limassol and the

Code of Conduct against Racism and Guide for Managing and Recording Racist Incidents183. They also noted that the

introduction of Roma-specific targets and indicators could help strengthen the collection of evidence. The absence of

system-wide monitoring and permanent mediators’ limits sustainability.

ASSESSMENT: Cyprus is encouraged to continue implementing targeted measures to support Roma students,

particularly those who are disengaged or at risk of leaving school early. While existing initiatives provide a useful basis

for action, further efforts to improve data collection and strengthen monitoring could help to track progress more

efficiently, adjust policies accordingly and inform future action.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

182 Ο Περί Ελάχιστου Εγγυημένου Εισοδήματος και Γενικότερα περί Κοινωνικών Παροχών Νόμος του 2014 - 109(Ι)/2014. 183 Available at: https://naos.risbo.org/wp-content/uploads/2017/04/Cyprus-antiracism-code.pdf.

68

REPORTED PROGRESS: Cyprus did not report any specific achievements. The Public Employment Service (PES)

continues to support jobseekers, including Roma, by providing job search and placement services, guidance,

counselling and referrals to training programmes and vacancies. For vulnerable unemployed persons, specialised

services are provided through individualised action plans. The Welfare Benefit Management Service184 has continued

to help beneficiaries of the guaranteed minimum income (GMI) into work. The Ministry of Labour, Welfare and Social

Insurance is supportive of training programmes designed to help participants gain work experience and new skills.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that improved data collection and monitoring of outcomes

for Roma could lead to better assessment of the impact of the employability measures.

ASSESSMENT: Employment support in Cyprus is primarily provided via mainstream measures, which also cover

Roma jobseekers. Cyprus is encouraged to continue these efforts, while paying particular attention to the outreach and

effective inclusion of vulnerable groups, including Roma. Strengthening data collection and monitoring of outcomes

could further support a better understanding of the impact of existing measures and help inform future policy

development.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Cyprus did not report any specific new achievements. The Ministry of Health continues to

implement the National Health Scheme (GESY), with a view of improving the quality and accessibility of healthcare.

In parallel, the Deputy Ministry of Social Welfare provides social support, including social benefits through the Social

Welfare Services and the Welfare Benefit Management Service.

FEEDBACK FROM CIVIL SOCIETY: CSOs noted that the Universal health coverage (GESY) provides access to

healthcare, including income-based protections, and that school health services support children and adolescents in

public schools. However, they highlighted language and system-navigation barriers, as well as the lack of Roma-

specific health data, which makes it difficult to effectively monitor access and outcomes.

ASSESSMENT: In Cyprus, health issues are primarily governed using universal frameworks, which provide the basis

for access to healthcare services. Cypru is encouraged to continue with the efforts outlined above, while paying

attention to potential barriers faced by vulnerable groups, including Roma, such as language and system-navigation

challenges. Strengthening data collection could further improve understanding of the issues around healthcare access

and help to inform targeted responses where needed.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Cyprus did not report any specific achievement. The Welfare Benefit Management

Service continues to provide benefits through the GMI (see above), including housing, care for emergency needs, and

disability support, which are available to individuals in need, including Roma with Cypriot citizenship.

FEEDBACK FROM CIVIL SOCIETY: CSOs noted that housing support for vulnerable households, including

Roma, is mainly provided through mainstream social policy instruments and welcomed the discontinuation of the

prefab settlement in Paphos. At the same time, they highlighted the need to further improve housing conditions and

avoid segregated solutions. They also pointed to the lack of Roma-specific housing data and concerns that growing

housing needs of families are not always adequately addressed.

ASSESSMENT: Housing in Cyprus is primarily addressed through mainstream social policy instruments, including

income support and housing-related benefits. Cyprus is encouraged to continue these efforts, while up-scaling long-

term affordable rental desegregated housing stock for marginalised groups including Roma. The NRSF aims to target

the needs of Roma with interventions in various areas, including housing; however, it falls short in providing clear and

measurable Roma-specific housing indicators. Strengthening data collection and monitoring could further support a

better understanding of housing conditions and help inform targeted responses where needed.

184 Available at: https://www.wbas.dmsw.gov.cy.

69

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: Cyprus reported thatthe Cyprus Roma Association is involved in the implementation and

monitoring of the NRSF and local action plans. They also assist victims in reporting hate crimes and hate speech.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported that Roma and pro-Roma NGOs had limited involvement in

the design of the NRSF. While the Committee on the Progress of the NRSF supports coordination of implementation,

their role within it remains mainly consultative, without formal involvement in decision-making, monitoring or

evaluation.

ASSESSMENT: Cyprus provide a basis for cooperation with Roma civil society, including in the implementation of

the NRSF. Cyprus is encouraged to further strengthen the participation of Roma and pro-Roma organisations,

particularly in the design, implementation and monitoring of policies, including through more structured and inclusive

arrangements. This could support broader engagement in areas such as hate crime and hate speech monitoring, as well

as contribute to more effective inclusion efforts overall.

PROMISING PRACTICES

A promising practice is the set of targeted measures implemented by the Ministry of Education, Sports and Youth to

support the inclusion of Roma pupils in public schools. These measures aim to ensure equal access to education and

include the employment of Turkish Cypriot and bilingual teachers to address language barriers, training for teachers on

teaching Greek as a second language, and initiatives encouraging the participation of Roma pupils in school activities.

Additional support, such as free meals in voluntary all-day schools and language courses for parents, further contributes

to improving Roma children’s participation and integration in the education system.

70

Table 14 - Latvia

Latvia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The Plan for the Implementation of the Roma Strategic Framework for 2022-

2023 (NRSF 2022-2023) was implemented and in 2024 the continuation of the

NRSF was approved - the Plan for the Implementation of Measures within the

Roma Strategic Framework for 2024-2027 (the NRSF 2024-2027)185.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Central Statistical Bureau of Latvia, 2024 data: 4 630 (0.3% of the

population).186 Office of Citizenship and Migration Affairs, 2024 data:

6 441.187

Council of Europe estimates: approximately 12 500 (0.56% of the

population).188

NATIONAL ROMA CONTACT

POINT (NRCP) The Ministry of Culture, Cohesive Society Policy Department

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating, monitoring, developing and evaluating Roma inclusion policy measures. As

Roma inclusion is a horizontal policy area in Latvia, sectoral ministries, including those responsible for education,

welfare, health and economics, share responsibility within their respective areas. The Ministry of Culture also

implements the Latvian Roma Platform189 and participates as a full member of the Monitoring Committee for EU funds

and programmes.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Latvia reported modest but steady progress in improving public attitudes towards Roma,

including more positive perceptions of Roma as co-workers and neighbours. This progress was made thanks to the by

awareness-raising and informative activities organised by the Latvian Roma Platform projects, annual state budget

support to Roma NGOs for cultural and commemorative events, and initiatives arranged by the Ombudsman’s Office190

Activities included publications in national media, a television and social media campaign, the publication of the book

Roma in Latvia191, exhibitions on Roma heritage, and seminars for teachers and social workers on Roma history and

genocide remembrance. However, no specific actions were taken to analyse or address hate crime or hate speech

against Roma.

FEEDBACK FROM CIVIL SOCIETY: CSOs underline that the measures implemented so far have not been

sufficient to significantly improve public attitudes towards Roma. They stress that more targeted action is needed to

address antigypsyism and discrimination, including measures to analyse hate speech and hate crime and to better

understand the situation of Roma in areas such as employment and education.

ASSESSMENT: Latvia has made modest but steady progress in improving public attitudes, particularly as regards

Roma as co-workers and neighbours, supported by cultural and awareness-raising initiatives. It has also established an

evidence base with targets for 2027 to further reduce negative perceptions. However, challenges persist, as a significant

share of the population continues to view Roma as the group the most discriminated against. Going forward, efforts

could focus on complementing awareness-raising with more systematic monitoring of hate speech and hate crime.

185 Available at: https://likumi.lv/ta/id/354561. 186 Statistics available at: https://www.pmlp.gov.lv/lv/fizisko-personu-registra-statistika-2024gada. 187 Statistics available at: https://www.pmlp.gov.lv/lv/media/11043/download?attachment. 188 Statistics available at: https://rm.coe.int/1680088ea9. 189 Available at: Latvian Roma Platform | Kultūras ministrija. 190 Available at: https://www.tiesibsargs.lv/en/homepage/. 191 Available at: https://www.km.gov.lv/en/media/52212/download.

71

Addressing gaps in data collection in ethnicity in education and health, and ensuring sustainable national funding for

civil society monitoring, would help to make anti-discrimination measures more targeted, measurable and effective.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Latvia does not report separate achievements under this objective, as relevant measures

are addressed under other policy areas.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that poverty and social exclusion remain serious concerns for

many Roma families. They highlight the need for stronger targeted measures to improve Roma access to social services

and social protection, and for enhanced professional capacity of social workers. They also underline the importance of

building trust-based cooperation between municipal services, Roma mediators and Roma communities.

ASSESSMENT: In Latvia, the issue of social inclusion is mainly addressed through mainstream policies

complemented by local-level support. LV is encouraged to strengthen targeted measures to improve access to social

services and social protection, while reinforcing cooperation between municipal services and Roma communities.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Latvia reported that Roma representatives had been involved in the Roma Advisory

Council192 and in strategic planning processes. Within the Latvian Roma Platform193, capacity-building activities,

regional training courses, workshops, mentorship and support for local initiatives were provided for Roma youth and

women. Regional NGO centres also contributed to strengthening the capacity of Roma communities. Roma mediators

continued to play an important role in building trust between Roma communities and public institutions.

FEEDBACK FROM CIVIL SOCIETY: Roma NGOs point out that many support programmes remain practically

inaccessible due to limited capacity, a lack of experienced staff, and insufficient funding to implement initiatives

effectively. They also highlight a lack of motivation to apply for funding in the absence of stable and predictable

support. Civil society organisations stress the need to establish a dedicated support mechanism and ensure long-term

funding for Roma NGOs, enabling them to operate sustainably, preserve cultural heritage and represent community

interests. They also emphasise that Roma initiatives should be discussed more systematically and endorsed within the

NRSF framework to strengthen engagement among Roma stakeholders.

ASSESSMENT: Latvia has taken steps to strengthen Roma participation by involving Roma representatives in

advisory structures and capacity-building activities. Latvia is encouraged to build on these efforts by boosting the

effective role of Roma stakeholders in policymaking and by providing more accessible and sustainable support for

Roma civil society.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Progress by reported Latvia in Roma education included a measurable reduction in the

share of Roma children without primary education, and a fall in the number of children leaving school early. The

proportion of Roma with completed primary education increased from 34% in 2015 to 39.4% in 2023194. These

improvements were achieved thanks to programmes to prevent early school leaving, cooperation between

municipalities, schools and Roma families, early intervention measures, the work of Roma mediators, teacher training

and individualised support for students.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight ongoing challenges in ensuring equal access to education,

particularly related to language barriers and the need for more consistent and targeted support measures. They stress the

importance of strengthening support mechanisms, including the role of Roma teacher assistants, and improving

communication between schools, students and families.

ASSESSMENT: Education in LV has benefited from targeted support measures and improved cooperation with Roma

192 Available at: https://www.km.gov.lv/lv/konsultativa-padome-0. 193 Available at: https://www.km.gov.lv/en/latvian-roma-platform. 194 Statistics available at: https://www.km.gov.lv/lv/media/49371/download?attachment.

72

families. LV is encouraged to continue these efforts, including by strengthening inclusive education measures and

ensuring equal access and quality support for Roma students.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Latvia reported improvements in Roma employment patterns, including a reduction in

long-term unemployment and increased participation in labour market initiatives. The State Employment Agency

continued to provide personalised support to Roma jobseekers. In 2024, 292 Roma were registered as having

participated in career counselling, and 157 unemployed Roma found work. Roma mediators also assisted unemployed

Roma to access employment services at local level.

FEEDBACK FROM CIVIL SOCIETY: Civil society organisations emphasise the need to strengthen targeted

employment measures for Roma, including by improving access to lifelong learning and skills development

opportunities. They also underline the importance of addressing discrimination in the labour market and providing

more effective support for long-term unemployed Roma, including through tailored services at municipal level.

ASSESSMENT: In Latvia, employment issues are addressed using mainstream labour market measures. Latvia is

encouraged to strengthen targeted support for Roma jobseekers, including by improving access to training and by

implementing measures to address barriers to sustainable employment.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Latvia reported the launch of Roma mediator services in municipalities, which have

improved access to healthcare and social services, helped build trust between Roma communities and service providers

and represents as a key development. In addition, the Ministry of Health organised public health awareness activities,

including campaigns and seminars on health-related topics such as sexual and reproductive health and addiction

prevention.

FEEDBACK FROM CIVIL SOCIETY: CSOs reports that progress cannot be measured due to the absence of Roma-

specific social service measures under the NRSF, except in Ventspils, where a Roma mediator provides health

promotion services. Improvements could include culturally-tailored sexual/reproductive health education (addressing

low Roma engagement), NRSF-funded studies on social service accessibility, and training for social workers to enable

them to better assist Roma in navigating support systems, thereby ensuring clear, practical guidance on accessing

services.

ASSESSMENT: In Latvia, healthcare services have been improved by community-based support measures, including

the use of Roma mediators. Latvia is encouraged to continue and strengthen these efforts, including by introducing

more targeted health interventions and improving access to healthcare services for Roma.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: LV has made progress in establishing comprehensive policy frameworks and funding

mechanisms, primarily through the social housing renovation and new social housing construction programme195

targeting vulnerable groups.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: In Latvia, access to housing has been strengthened through policy and funding measures targeting

vulnerable groups, including Roma. LV is encouraged to continue these efforts, including by ensuring that Roma

benefit effectively from these measures and have access to adequate and affordable housing.

195 Available at: https://www.em.gov.lv/en/article/funding-available-municipalities-renovation-and-construction-social-housing.

73

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRES: Progress has been made in strengthening coordination and stakeholder involvement in

Roma inclusion policies, including the Roma Council196. The NRSF 2024-2027 was developed through an

interinstitutional working group involving key ministries, the Ombudsman’s Office, and Roma and pro-Roma CSOs.

The Ministry of Culture, as NRCP, continues to coordinate implementation across sectors and levels of governance in

cooperation with public authorities and NGOs.

Capacity-building activities under the Latvian Roma Platform, including training for mediators and support for Roma

youth and women, have strengthened civil society participation and local engagement. Cooperation with the

Ombudsman’s Office and the expansion of number of Roma mediators have further improved outreach and

institutional links with Roma communities.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs, the NRSF 2024–2027 working group brought together

cross-sectoral stakeholders, including ministries and civil society organisations. However, the potential of the Roma

Council to influence policymaking remains underused. CSOs also report that Roma and pro-Roma organisations face

challenges in accessing EU-funded projects and that their involvement remains limited in practice. In addition, Roma

data remains fragmented and largely qualitative, limiting the opportunities to monitor progress.

ASSESSMENT: Latvia has established coordination mechanisms for Roma inclusion involving national authorities,

civil society and other stakeholders, and has taken steps to strengthen cross-sectoral cooperation in developing the

NRSF. Latvia is encouraged to further strengthen effective participation by Roma stakeholders in policymaking and

implementation, including by improving the role of existing consultation structures. Improving access by Roma and

pro-Roma organisations to funding opportunities could result in greater engagement at all levels. Strengthening data

collection and integrating available evidence into monitoring frameworks would further support more effective and

evidence-based policy development.

PROMISING PRACTICE

Under the NRSF 2022-2023, the EU-funded Latvian Roma Platform delivered key initiatives to boost Roma inclusion.

These included recruiting seven municipal Roma mediators, improving access to social services, organising skills

workshops for Roma women/youth (e.g. Sāre Khetane youth projects), civil society training and anti-antigypsyism

campaigns. Those involved included Roma CSOs, regional support centres, and non-Roma advocacy groups, blending

education, cultural awareness and community empowerment.

196 Available at: https://www.km.gov.lv/en/advisory-council.

74

Table 15 - Lithuania

Lithuania

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Lithuania is implementing its Action Plan for Roma Inclusion 2030.197 It

follows the seven EU objectives and includes an additional focus on Roma

culture and intercultural dialogue.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 3000 (0.09% of the population)198

NATIONAL ROMA CONTACT

POINT (NRCP)

Department of National Minorities under the Government of the Republic of

Lithuania

NATIONAL ROMA CONTACT POINT

The NRCP has an annual budget of approximately EUR 225 000 (2023-2025) and is staffed by one full-time

coordinator responsible for overseeing the implementation of the NRSF. While not directly involved in designing

social inclusion policies or monitoring EU funds, the NRCP plays a coordinating role across relevant stakeholders.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Lithuanian’s first criminal conviction for discrimination against Roma in service

provision in 2024 represented a significant milestone for the country. Legal support has been strengthened by the EU-

funded ‘Lithuanian Roma Platform – Going Local’199, which provides regular legal consultations and court

representation for victims. Awareness-raising efforts have been stepped up, with campaigns such as ‘Get to Know’200

generating over 7.7 million digital interactions that challenge stereotypes. Training on antigypsyism has also been

delivered to public servants in Vilnius. The adoption of the Law on National Minorities in 2025201 and the holding of

consultations on establishing an Expert Commission to Combat Antigypsyism highlighted the increased official

recognition of the issues of antigypsyism and discrimination.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge the progress made, however, concerns have been raised

over widespread antigypsyism, under-prosecuted hate speech and hate crimes and discrimination in public sector

interactions. They also highlight the need for targeted training for law enforcement and civil servants, and the

importance of addressing antigypsyism as a structural issue.

ASSESSMENT: Lithuania is encouraged to continue developing its institutional and policy framework to address

antigypsyism and discrimination against Roma. Going forward, the planned Expert Commission to Combat

Antigypsyism could lead to more coordinated dialogue and policy development across relevant sectors. Continuing to

offer training for public servants and law enforcement, alongside awareness-raising activities, may further contribute to

promoting equal treatment and improving responses to discrimination

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Lithuania has reformed social protection systems in a way that also benefits Roma.

Efforts have focused on improving access to social services, including by expanding regional provision, strengthening

social workers’ capacities and digitalising support systems. Measures have also been introduced to increase income

197 “Action Plan for Roma Inclusion 2030”. available at: https://tmde.lrv.lt/media/viesa/saugykla/2024/2/EwBBKB9fONY.pdf. 198 Available at: https://rm.coe.int/1680088ea9. 199 Available at: https://www.romuplatforma.lt/. 200 Available at: https://roma.lt/pazink. 201 Available at: Available at: https://e-seimas.lrs.lt and https://www.idea.int/democracytracker/report/lithuania/january-2025.

75

levels among low-income individuals, including by improving social and pension benefits. However, challenges

remain, including as a result of limited outreach, administrative inefficiencies and regional disparities, highlighting the

need for more integrated support

FEEDBACK FROM CIVIL SOCIETY: Stakeholders emphasise that poverty among Roma is an issue with many

different dimensions and that, as such, it requires integrated sectoral responses. They identify territorial segregation as a

primary structural barrier that isolates families from labour markets and essential services. Furthermore, CSOs

highlight ‘invisible barriers’–such as digital exclusion and a lack of identity documentation or property deeds–which

prevent the most marginalised households from accessing mainstream social protection.

ASSESSMENT: Lithuania uses mainstream social protection measures to improve social inclusion. LT is encouraged

to continue these efforts, to strengthen outreach and to address administrative and regional disparities. Enhancing

coordination across education, housing and employment measures, alongside anti-discrimination efforts, could lead to

more effective and sustainable inclusion.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The ‘Lithuanian Roma Platform – Going Local’ project, employs five mediators across

key municipalities (Jonava, Kybartai, Marijampole, Panevžys and Vilnius) and facilitates cooperation with public

institutions. Roma participation is further supported through targeted empowerment initiatives for women and youth,

such as Vilnius-based daycare centres (‘Roma Community Centre’ and ‘Help to Belong’), which provide informal

education, leadership training and preschool integration. Additionally, Roma and pro-Roma CSOs are formally

included in the interinstitutional working group responsible for monitoring the national Roma strategy.

FEEDBACK FROM CIVIL SOCIETY: While consultation mechanisms exist, stakeholders report that participation

is often tokenistic, with CSOs exerting limited influence on agenda-setting or final policy outcomes. CSOs note that

several of their proposals were excluded from the national strategy due to financial constraints. Furthermore, the short-

term, project-based funding available for mediators is cited as a major barrier to the sustainability and long-term impact

of their work, and there have been calls for better institutional support and professional supervision.

ASSESSMENT: Lithuania is encouraged to continue supporting existing mechanisms for cooperation with Roma and

pro-Roma stakeholders at national and local levels. Going forward, maintaining dialogue through the interinstitutional

working group and community-based initiatives may contribute to continued exchange between public institutions and

Roma communities. Continued support for mediation activities, youth and women’s initiatives, and local outreach

measures could further facilitate access to services and participation opportunities.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Lithuania has taken steps to improve Roma inclusion in education, including by putting in

place targeted measures under the local initiative Vilnius Roma Inclusion Programme for 2024-2026202. Measures

include the introduction of Roma teaching assistants and provision of support for Roma participation in non-formal

education, the aim of which is to improve engagement and educational outcomes.

FEEDBACK FROM CIVIL SOCIETY: CSOs emphasise the need for more tailored policies and measures to address

the specific educational needs of Roma children, particularly in reducing dropout rates and removing bureaucratic

barriers that limit access to quality education.

ASSESSMENT: Lithuania is encouraged to continue supporting inclusive education measures designed to improve the

participation and educational outcomes of Roma children. Going forward, continued attention to reducing early school

leaving and addressing practical barriers to access may further support equal participation in education and improved

educational outcomes.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

202 ‘Vilniaus miesto savivaldybės romų įtraukties į visuomenę 2024-2026 metų programa’: VMS-romu-itraukties-i-visuomene-2024-

2026m.-programa.pdf.

76

REPORTED PROGRESS: In Lithuania, the issue of Roma access to employment is mainly encompassed within

mainstream labour market measures. The Public Employment Service provides career services, puts in place active

labour market measures and organises employment promotion programmes, which also reach Roma. In 2024, 415

Roma were registered with employment services and 152 entered employment. The report identifies low levels of

education among Roma and discrimination in the labour market as key challenges. Targeted support includes

vocational training activities, through which Roma participants have obtained professional qualifications.

FEEDBACK FROM CIVIL SOCIETY: CSOs note the lack of large-scale, Roma-specific employment programmes

and affirmative action in the public sector. They also highlight the need to address the precarious employment

conditions of Roma mediators, who often work under ‘self-employed’ contracts that deny them social protections, and

to tackle the systemic barriers that force Roma to rely on the informal economy.

ASSESSMENT: In Lithuania, the issue of Roma access to employment is mainly encompassed within mainstream

labour market measures. Lithuania is encouraged to continue these efforts, to address structural barriers and to

strengthen access to sustainable employment opportunities for Roma. Further efforts to put in place targeted support

and outreach could enhance labour market inclusion.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The establishment of Roma health mediators by Vilnius municipality is the main

achievement reported. These mediators facilitate access to healthcare services, assist Roma in navigating the healthcare

system and contribute to building trust between Roma communities and healthcare providers. In 2024, Roma mediators

participated in training courses on patients’ rights and healthcare awareness, with the aim of improving their knowledge

of rights and access to services. In addition, community-based services, including daycare centres, have implemented

awareness-raising activities for Roma parents, including on autism spectrum disorder.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight the insufficient provision and bureaucratic nature of

healthcare services, which often have strict eligibility criteria that limit access to care. They also emphasise the need to

acknowledge the impact of displacement and poverty on health outcomes and access to healthcare for Roma

individuals. Furthermore, they stress the importance of developing programmes that address the cultural and linguistic

needs of Roma individuals in healthcare.

ASSESSMENT: Improving Roma access to health services in Lithuania is addressed through targeted and community-

based measures, including the use of Roma mediators. Lithuania is encouraged to continue these efforts, while further

strengthening access to healthcare and inclusive approaches. Building on existing initiatives could further improve trust

and effective access to services for Roma.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Access to housing is primarily provided through mainstream measures, including access

to social housing and rent compensation for low-income households. Additional financial support is available for

housing-related expenses, including rent and utility costs. Local initiatives, particularly in Vilnius, complement these

measures by providing targeted support to Roma families, including assistance in accessing rental housing and linking

housing support with broader social and employment services. These efforts aim to facilitate more sustainable housing

solutions and improve living conditions.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress, while raising concerns about the limited

availability of affordable housing, strict eligibility criteria and instances of discrimination in access to housing. They

also highlight the need to ensure adequate and sustainable housing solutions for Roma, including in situations of

displacement.

ASSESSMENT: In Lithuania, the issue of Roma access to housing is mainly addressed through mainstream support

measures, complemented by local initiatives. LT is encouraged to continue these efforts, while ensuring access to

adequate and non-segregated housing for Roma. Addressing barriers related to availability, affordability and access,

including potential discrimination, could further improve housing outcomes.

77

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRES: A permanent interinstitutional working group supports coordination and monitoring of the

NRSF, bringing together state, municipal and Roma stakeholders, including CSOs. Roma and pro-Roma organisations

are involved in implementation through project activities and community initiatives. The NRCP also engages with local

authorities and Roma communities, including through cooperation with Vilnius municipality and outreach at local

level. The NRCP’s regular meetings with the Ombudsmen of Equal Opportunities provide an additional platform for

addressing issues of discrimination and antigypsyism.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Partnership structures in Lithuania provide a basis for cooperation with Roma stakeholders. Lithuania

is encouraged to continue strengthening inclusive and structured participation by Roma and pro-Roma organisations at

all policymaking stages, which could further improve the effectiveness and sustainability of inclusion efforts.

PROMISING PRACTICE

The Roma mediators programme is a promising practice that has shown potential to increase trust and participation

between Roma communities and public institutions. By acting as ‘bridges’ with public institutions, Roma mediators

provide essential support with schooling, healthcare, employment and social services. Similarly, educational

programmes specifically targeting Roma, with activities such as tutoring, educational trips and school mediation, have

encouraged participation and school attendance. CSO-led empowerment initiatives have also strengthened participation

and collective action among Roma communities, and have the potential to promote social inclusion and empowerment

by providing sustained support. 203

203 Available at: https://www.romuplatforma.lt/en/.

78

Table 16 - Luxembourg

Luxembourg

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Luxembourg does not have a National Roma Strategic Framework (NRSF). In

December 2025, Luxembourg adopted a National Anti-racism Action Plan204,

implementing the International Convention on the Elimination of All Forms of

Racial Discrimination, which covers housing, education, employment, victim

support, awareness-raising and equality data.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 300 (0.06% of the population)205.

NATIONAL ROMA CONTACT

POINT (NRCP)

Ministry of Family Affairs, Solidarity, Living Together and Reception of

Refugees.

NATIONAL ROMA CONTACT POINT

The NRCP is managed by a designated civil servant within the Ministry of Family Affairs, Solidarity, Living Together

and Reception of Refugees206. It is integrated within the existing ministry structure and has no dedicated budget. It

coordinates and monitors Roma-related work and supports relevant civil society organisations but has no role in

mainstreaming Roma issues into social inclusion policy design or in making decisions on Union funds.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: A glossary on anti-racism and ethno-racial discrimination207, including terms such as

‘Roma’ and ‘antigypsyism’, was developed in partnership with Roms sans Frontière208 – the sole Roma CSO in

Luxembourg – and published on the website of the Ministry of Family Affairs, Solidarity, Living Together and

Reception of Refugees. The ‘Forgotten Victims’209 exhibition, highlighting the persecution of Roma and other groups

by the Nazi regime, was showcased at the National Museum of Resistance and Human Rights in Esch-sur-Alzette

(March–December 2024) and displayed in Strasbourg during Luxembourg’s presidency of the Council of Europe

(April–May 2025).

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Luxembourg has taken some steps to raise awareness of antigypsyism and Roma history through

educational and memorial initiatives, including the development of anti-racism terminology resources and public

exhibitions. Going forward, the Law on Intercultural Living Together and the National Anti-racism Action Plan may

provide further opportunities to strengthen measures promoting equality and addressing discrimination, including

antigypsyism. Continued cooperation with civil society actors and support for awareness-raising activities could

contribute to sustaining dialogue on and visibility of these issues.

REDUCE POVERTY AND SOCIAL EXCLUSION

204 Ministère de la Famille, des Solidarités, du Vivre ensemble et de l’Accueil. Plan d’action national Antiracisme. 2025. Available

at: https://mfsva.gouvernement.lu/dam-assets/le-minist%C3%A8re/attributions/zesummeliewen/anti-racisme/01019-mfsva-zl-nap-

ounirassismus-broch-panar-a4-acc-bf-new.pdf. 205 Available at: https://rm.coe.int/1680088ea9. 206 Available at : https://mfsva.gouvernement.lu/en.html. 207 Available at : https://mfsva.gouvernement.lu/en/le-

ministere/attributions/zesummeliewen/panantiracisme/glossaireantiracisme.html. 208 Available at: https://www.ronnendesch.lu/roms-du-luxembourg-letat-aux-abonnes-absents/. 209 Available at: https://mnr.lu/storage/app/uploads/public/66c/dd2/420/66cdd24207bb8411834578.pdf.

79

REPORTED PROGRESS: While there are no specific measures exclusively targeting Roma, a key measure under

this objective is the allocation of benefits to low-income households through the National Solidarity Fund210,

including the social inclusion income, allowances for the severely disabled, energy allowances, cost-of-living benefits

and child benefits, designed to reduce poverty and social exclusion.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Luxembourg continues to address poverty and social exclusion through mainstream social protection

measures targeting low-income households. Measures implemented under the National Solidarity Fund, including

income support and social allowances, contribute to the broader framework of social inclusion policies. Going forward,

continued monitoring and evaluation of these measures may result in a better understanding of their overall

effectiveness and accessibility.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: The NRCP actively engages with the only Roma CSO in Luxembourg – Roms sans

Frontière – and has fostered a collaborative relationship, which includes efforts to combat antigypsyism. Through this

partnership, the NRCP solicits the CSO’s input to feed into EU-level NRCP meetings and provides updates on such

meetings, while facilitating connections with other EU-wide Roma and pro-Roma CSOs. The NRCP also informs

Roms sans Frontière of funding opportunities at national and EU level and has encouraged it to apply for ESF+ and the

Citizens, Equality, Rights and Values (CERV) funding.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Luxembourg continues to support dialogue and cooperation with Roma civil society through the

partnership between the NRCP and Roms sans Frontière. Exchanges on EU-level developments, funding opportunities

and antigypsyism keep the channels of communication and participation open. Going forward, continued cooperation

with civil society actors may improve the exchange of expertise and experiences relevant to Roma inclusion and

equality policies.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Under the ESF+ Luxembourg has included Roma children among its target groups, and

has put in place measures to prevent exclusion, integrate new pupils, and support young people facing difficulties in

education and training. Low-income families benefit from childcare service vouchers and social assistance for school-

related expenses, including subsidies for school supplies and extracurricular activities.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Although LU is expanding access to early childhood education and care, language barriers persist, as

childcare services are mainly offered in Luxembourgish and French. From 2027, French literacy will also be taught in

primary schools. LU has implemented the European Child Guarantee effectively, offering free school meals to many

pupils, and adopted a wide-ranging anti-poverty plan in late 2025 that targeted low-income families.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

210 Available at: National Solidarity Fund - Luxembourg

80

REPORTED PROGRESS: Luxembourg has three official languages and has put in place initiatives to enhance

language learning to facilitate labour market entry in this multilingual context. Notable examples include the Ministry

of Education’s ‘Language Integration Course’211, and a CSO-led project enabling low-income non-Luxembourgers in

receipt of the Social Inclusion Income to develop language skills through work-based learning, alongside other ESF+

projects designed to improve access to employment.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Luxembourg continues to support access to employment and training through mainstream inclusion

and language-learning measures adapted to its multilingual labour market. Initiatives promoting language acquisition

and work-based learning may contribute to improving access to employment opportunities for vulnerable groups,

including Roma. Continued monitoring of participation in and outcomes of existing employment and training measures

could help to understand how accessible and effective these are.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Luxembourg provides coverage for a high level of public health expenditure currently

86.1%212. Additionally, the Universal Health Coverage pilot project (CUSS), launched in 2022, provides vulnerable

families with access to statutory health insurance, regardless of their financial means. The project, funded by the

Ministry of Health and Social Security, also provides funding for social worker positions to ensure that regular follow-

up is available for beneficiaries.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: LU continues to provide access to healthcare for Roma primarily through mainstream public health

and social protection measures. The high level of public health expenditure coverage and initiatives such as CUSS

contribute to the broader aim of supporting access to healthcare for vulnerable groups. Continued monitoring and

evaluation of existing measures may help to understand its accessibility and effectiveness of coverage.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Although Roma are not identified as a specific target group, the Affordable Housing Law

(August 2023)213 represents a relevant development under this objective. The law prioritises social inclusion and access

to housing for low-income individuals, with key provisions including state financial participation in affordable housing

projects, a national register for the allocation of affordable housing, and initiatives to renovate and develop the housing

stock.

FEEDBACK FROM CIVIL SOCIETY: CSO did not report on this objective.

ASSESSMENT: Luxembourg continues to address access to affordable housing for Roma primarily through

mainstream housing policies and social inclusion measures. The Affordable Housing Law and the development of a

centralised monitoring tool represent relevant steps within the broader housing policy framework. Going forward,

continued monitoring of housing accessibility and affordability may help to better understand the impact of these

measures on vulnerable groups including Roma.

211 Linguistic integration of newly arrived adults - Education system - Education nationale, Enfance et Jeunesse - Luxembourg. 212 Available at: https://eurohealthobservatory.who.int/monitors/health-systems-monitor/countries-hspm/hspm/luxemburg-

2025/financing/. 213 Available at: https://logement.public.lu/fr/politique/logabo.html.

81

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP has fostered partnerships to strengthen Roma inclusion efforts, notably with

Roms sans Frontière and the equality body, Centre pour l’Égalité de Traitement 214. The equality body provides expert

advice to ministries, reviews legislative proposals, conducts awareness and training campaigns, monitors equality

policies, and offers support to individuals facing discrimination. The NRCP has partnered with the Roma CSO on

antigypsyism initiatives, although the CSO has limited capacity for monitoring, hate crime reporting and victim

support.

FEEDBACK FROM CIVIL SOCIETY: CSOs did not report on this objective.

ASSESSMENT: Luxembourg continues to support cooperation between the NRCP, the equality body and Roma civil

society actors in equality and inclusion. The partnerships with Roms sans Frontière and the Centre pour l’Égalité de

Traitement contribute to ongoing awareness-raising and exchange on discrimination and antigypsyism issues. Going

forward, continued dialogue and cooperation between relevant institutions and civil society actors may improve the

implementation and visibility of inclusion and equality measures.

PROMISING PRACTICE

The ‘Forgotten Victims’ exhibition, held at the National Museum of Resistance and Human Rights in Luxembourg

from March to December 2024, raised awareness of the persecution of Roma and other groups during World War II.

Educational materials and a mobile version were subsequently exhibited in Strasbourg in 2025.

214 Available at: https://cet.lu/en/home.

82

Table 17 - Hungary

Hungary

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Hungary’s National Roma strategy - HNSIS 2030 (2021 - 2030)215

ESTIMATED ROMA

POPULATION

2022 National census: 210,000 (KSH)216

Council of Europe estimates: approximately 750,000 (7.94% of the

population)217

Expert estimation: 876,000218

NATIONAL ROMA CONTACT

POINT (NRCP)

Ministry of Interior, State Secretariat for Social Opportunities and Roma

Relations

NATIONAL ROMA CONTACT POINT

The NRCP is the main organisation responsible for developing, implementing, and monitoring social inclusion policy,

including Roma integration policy, for mainstreaming Roma integration and for drafting social inclusion policies. It

operates on a total budget of approximately EUR 2 052 336. It is consulted when universal services are developed that

affect the Roma and other disadvantaged population. It contributes to the implementation and monitoring of measures

taken in sectors such as education, healthcare and employment. The Deputy State Secretariat for EU Developments,

under the Ministry of the Interior coordinates EU-funded programmes, with the NRCP participating in decision-making

and serving as a full member of the monitoring committee of the human resources development operational programme

plus (HRDOP Plus).

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Most measures under this objective focused on strengthening Roma identity and

showcasing Roma cultural, intellectual and material heritage, including the contribution of Roma communities to

national and European culture. Roma national minority grant schemes provided regular funding for the public events of

the national minority representation. The István Szentandrássy Roma Art Gallery219 presents the work of major Roma

artists, provides exhibition opportunities for talented contemporary artists, and organises art-education programmes.

FEEDBACK FROM CIVIL SOCIETY: Law enforcement officials received training on the hate crime protocol, and

a thematic working group on Roma issues under the Ministry of Justice operated as a consultative body, meeting once a

year. Antigypsyism and discrimination against Roma remain significant concerns. Plans to conclude special agreements

with Roma organisations have not materialised; the president of the national Roma self-government (ORÖ)220 had no

knowledge of any such agreements. The ECRI stresses the need to strengthen law-enforcement capacity to detect hate

crimes and ensure independent legal-aid services, properly functioning public-complaints mechanisms, and anti-

discrimination training for law enforcement officials.221

ASSESSMENT: Hungary has made progress in promoting Roma cultural initiatives, but antigypsyism and

discrimination remain significant challenges. To address them, authorities should bolster the implementation of the hate

crime protocol through improved monitoring and accountability, while ensuring access to independent legal aid for

victims. The Thematic Working Group on Roma Issues could become more effective by systematically involving

215 National Roma Inclusion Strategy: https://commission.europa.eu/document/download/. 216 Hungarian National Census 2022: https://nepszamlalas2022.ksh.hu/en/results/final-data/publication/. 217 Available at: https://rm.coe.int/1680088ea9. 218 János Pénzes, Patrik Tátrai, and István Zoltán Pásztor (2018), ‘Changes in the Spatial Distribution of the Roma Population in

Hungary During the Last Decades”, ‘University. of Debrecen. Available at: https://real.mtak.hu/85799/. 219 Available at: Szentandrássy István Roma Art Gallery. 220 Available at: https://www.oro.hu/. 221 Available at :https://rm.coe.int/ecri-6th-report-on-hungary-translation-in-hungarian-/1680aa687b.

83

Roma civil society in its decision-making. Establishing clear indicators to measure progress, such as the number of

resolved discrimination cases and improved law-enforcement responses, would help improve accountability. To ensure

that cultural progress leads to systemic change there need to be complementary measures, including mandatory anti-

discrimination training for public officials, and more accessible public-complaints mechanisms.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Several programmes have been implemented to reduce poverty and social exclusion

among Roma communities. The catching up settlements programme222, launched in 2019, provides the 300 most

disadvantaged settlements with tailored services such as social work, early-childhood interventions, health

improvements, sports, crime and drug prevention, housing improvements, advice on energy consumption, and

economic development. The Complex Settlement Programme is designed to improve the social inclusion of

disadvantaged communities living in segregated housing and deep poverty, involving 95 municipalities and 126

segregated areas. The 177 sure start children’s houses support223 children aged 0-3 from Roma and other disadvantaged

backgrounds living in severe poverty, with more than 2,400 children attending annually with their parents.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge some improvements in family benefits but note that

spending on social protection as a share of GDP has fallen and, in terms of reducing poverty, the impact of transfers has

deteriorated. In 2024, 64.5% of Roma were at risk of poverty or social exclusion (AROPE), compared to 18.3% of non-

Roma 224. The number of recipients of regular child protection allowance decreased, and extended housing subsidies

favour higher-income households. The lack of a progressive tax system and poorly targeted subsidies have exacerbated

wealth inequality (the highest in the EU in 2023) and left the poorest people in society unprotected. CSOs call for

significant improvements in social benefits and accessible social services

ASSESSMENT: Hungary’s catching up settlements programme and sure start children’s houses have provided support

to Roma communities, yet 64.5% remain at risk of poverty. To strengthen impact, further efforts could focus on

ensuring that social benefits and housing subsidies are targeted more effectively, improving coordination between local

services, and ensuring Roma participation in programme design. To ensure that measures lead to sustainable inclusion,

it is essential to address the decline in spending on social protection and to reinforce monitoring frameworks. Clearer

alignment with measurable poverty-reduction targets would further support progress.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: A key aim of the complex programme for segregated areas was to empower Roma

women’s communities and to support the establishment of Roma women’s NGOs. This involved focus-group

discussions with 80 participants from 17 settlements, 66 project generation workshops, mentoring, legal assistance and

professional forums. A Facebook group has been set up to support service development for Roma women in segregated

situations. The Roma youth round table, established in December 2024, is an advisory body on issues affecting Roma

youth, as reported by the Hungarian Ministry of Interior. The Roma coordination council225 meets at least twice a year

and provides a major forum for territorial and local stakeholders to discuss the implementation of social-inclusion

policy.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that there are forums for consultation on NRSF

implementation, but they are mostly ineffective, as recognised CSOs are excluded from consultation processes.

Resources for Roma CSOs, regardless of political allegiance, are steadily decreasing. Government funds have

increasingly been channelled into government-affiliated CSOs, limiting the capacity of independent civil society. In

2025, many Hungarian CSOs were confronted with the Law on the Protection of Sovereignty226, which has led the

European Court of Justice to take legal action against Hungary.

ASSESSMENT: Hungary’s efforts to promote Roma participation through the Roma youth round table and women’s

empowerment initiatives are major steps forward. Their impact will be even greater if they can be expanded to ensure

222 Available at: https://felzarkozotelepulesek.hu/. 223 Available: Sure Start Children’s House | European Social Fund Plus. 224 Available at: 5.1.1.2. People at risk of poverty or social exclusion by sex, age, educational attainment level, income quintile, most

frequent activity status, household type (EU2030 target). 225 Available at: https://www.parlament.hu (CXXIV. törvény 2025 - "Törvényhozás.). 226 Hungary’s 2023 Law on the Protection of Sovereignty (Act CXXIV); available at: https://njt.jog.gov.hu/jogszabaly/en/2023-88-

00-00.

84

the meaningful involvement of independent Roma civil society. The potential of the Roma coordination council will be

even greater if there is more involvement grassroots organisations and clearer mechanisms are established for Roma

input in decision-making. Legal and financial barriers, including those posed by the 2025 Sovereignty Law, must be

overcome if we are to create an environment where Roma-led initiatives can thrive. Introducing measurable

participation targets and publishing progress reports would lead to greater transparency and accountability in these

processes.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Compulsory preschool education has been in place since 2015 from the age of three and

has contributed to an increase in the participation of Roma children. There are other measures designed to support

disadvantaged pupils, particularly those from Roma communities, throughout the education pathway. ‘Tanodas’ (are

community-based informal-learning centres run by civil society or local actors)227that provide extracurricular support to

primary school pupils in disadvantaged situations. Currently, around 180 centres serve more than 5,500 pupils every

day outside school hours. The ’For the Road‘228scholarship scheme offers financial support and mentoring to nearly

10,000 disadvantaged pupils and students each year; the aim is to reduce early school leaving and support transitions to

further education. In addition, Roma boarding schools229 support over 300 Roma students in higher education every

year.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that early school leaving a among 18-24-year-olds dropped to

44% (2023), while 43% of Roma aged 20–24 completed upper secondary education230. Teacher salaries rose, with

supplements for those supporting disadvantaged pupils. However, infrastructure upgrades and teacher training fall short

of what is required. A 2023 law cuts 10% of funding from schools with fewer disadvantaged pupils than the local

average231. Social inequalities persist, with segregation and uneven access to support services - primarily in Budapest -

while rural areas face shortages and a 16,000-teacher deficit232. The system still fails to address structural disparities

effectively

ASSESSMENT: Hungary has made progress in access to Roma education, with 73% participation in early-childhood

education.233 Building on these results, further developments could focus on expanding successful initiatives like

’Tanodas’ and scholarship programmes to reach more rural communities. Addressing school segregation, where 62% of

Roma children attend majority-Roma schools (while in several municipalities church schools have low shares of

disadvantaged and Roma pupils), will be a key factor in improving educational equity. Continued investments in

teacher training and school infrastructure in disadvantaged areas can contribute to reducing the teacher shortage. Policy

implementation could be improved by developing stronger monitoring frameworks to track progress in lowering early

school leaving rates and increasing upper secondary completion boost. Ensuring balanced resource allocation across all

regions will be essential for sustained improvements in Roma educational outcomes.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The ‘chances are growing – training embedded in employment’234programme provided in-

house training for unemployed Roma, especially Roma women, and employment opportunities. 1134 Roma people

obtained marketable vocational qualifications for two jobs, a child and youth supervisor and a social worker, and 840

people had obtained open-ended employment contracts at the end of the programme. Additionally, the ’actively

learning for knowledge‘ programme aimed to improve the employability of the registered unemployed, jobseekers or

inactive persons between the ages of 16 and 60 with no more than a completed primary school education or no

227 Available at: Belügyminisztérium. 228 Available at: Útravaló Scholarship Program. 229 Available at: Ministry of Interior. 230 Available at: Roma survey 2024 | European Union Agency for Fundamental Rights. 231 Act No XCII of 2023 on anti-discrimination measures applicable in the field of public education, available at::

https://njt.jog.gov.hu/jogszabaly/2023-92-00-00?utm. 232 Available at: https://dailynewshungary.com/teacher-shortage-in-hungary-critical-tens-of-thousands-are-missing/. 233 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 234 Available at: https://tef.gov.hu/projektek/.

85

education, through training programmes that support the completion of primary school and develop their skills, provide

work experience and/or establish vocational education and training.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs Hungary’s employment rate (81%235 in 2025) is higher

than the EU average, this masks deep inequalities. The National Roma Strategy’s 13 targeted programmes ended in

2023 with no new funding calls, leaving Roma communities without support. In-work poverty persists, particularly in

low-skilled and public work sectors, where labour protections are weak. Roma youth face alarming dropout rates–

exacerbated by the compulsory schooling age going down to 16–leading to high NEET levels, while migrant workers

lack skills training due to state failures. CSOs criticise the strategy’s failure to address cross-border labour migration

and systemic barriers such as discrimination and segregated education. Urgent structural reforms and dedicated funding

are needed to tackle these disparities.

ASSESSMENT: Employment initiatives have contributed to skills development and job placement for Roma, with

1,134 participants gaining qualifications and 840 securing long-term contracts. Further progress could be made by

expanding these programmes to reach more vulnerable groups, particularly Roma youth whose NEET rates are high

(36%).236. To improve job quality, it will be necessary to address structural challenges such as in-work poverty and

weak labour protections in low-skilled sectors. Renewing targeted funding and strengthening links between training

and labour market needs may support more sustainable employment outcomes. Policies will be more effective with

clearer monitoring mechanisms to track progress in reducing employment disparities.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The catching up settlements programme and the complex settlement programme237 helped

to increase the access of the disadvantaged/Roma population to healthcare. Health improvements bringing health close

to the patients including telemedicine healthcare, paediatric ophthalmology, the establishment of 5 Malta Order Health

Points238, mobile clinics and an online live video medical link. Drug-prevention activities are implemented by a

prevention team consisting of mobile (travelling) experts and permanent general services locally, working with local

stakeholders to establish a diagnosis of drug use and develop joint intervention strategies. Each local project of the

complex settlement programme has implemented health screenings, with 7,961 people receiving screenings in 95

municipalities and 126 segregated areas on an ongoing basis.

FEEDBACK FROM CIVIL SOCIETY: The FETE telemedicine measure in catching up settlements239 targets

Hungary‘s most disadvantaged areas, providing screenings, exams, and paediatric eye tests via mobile clinics.

However, it operates in only 36 of Hungary’s 3.000+ municipalities, while vacant General Practitioner (GP) positions

reached 864 by June 2025. Before 2023 the EU funds improved social services and reduced territorial disparities.

However, post-2023 funding has focused solely on FETE, which covers fewer than 10% of municipalities.

Discrimination against Roma patients persists, and a health culture programme remains urgent. While FETE expands

services in small settlements, it is incapable of addressing systemic gaps in independent healthcare. Paediatric primary

care is underfunded, specialist services are overburdened, and there is a shortfall of hospital capacity for newborns.

ASSESSMENT: Health initiatives, including telemedicine and mobile clinics, have improved access for 7 961 Roma

across 95 municipalities. To build on this progress, expanding services to more disadvantaged areas–beyond the current

36 of 3 000+ municipalities–will be key. To ensure equitable care, systemic gaps, such as the 864 vacant GP positions

and persistent discrimination will need to be addressed. Strengthening paediatric and primary healthcare services,

alongside broader social support integration, could enhance sustainability. Developing monitoring frameworks to track

healthcare access and outcomes would boost policy implementation. Ensuring stable funding and comprehensive

coverage will be essential for reducing disparities and improving long-term health outcomes for Roma communities.

235 Available at: Eurostat, (online data code lfsi_emp_a),

https://ec.europa.eu/eurostat/databrowser/view/lfsi_emp_a__custom_22322022/default/table. 236 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 237 Available at: https://tef.gov.hu/projektek/. 238 Available at: https://fete.hu/szakteruletek/egeszsegugy/. 239 Available at: https://fete.hu/.

86

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The catching up settlements programme and complex settlement programme improved

living and housing conditions for disadvantaged/Roma populations, particularly in segregated areas. Key measures

include life-threat prevention (e.g. roof/chimney repairs, window/door replacements) in 1 030 properties, and

restoration of houses damaged by natural disasters. By 30 June 2026, the programme will have delivered 670 new

social rental apartments (120 newly built, 550 renovated), managed by a social housing agency under non-market rental

conditions. Free counselling is provided for debt settlement and housing-related government assistance. Another

purpose of the programme was to reduce housing segregation by facilitating relocation from segregated to integrated

areas; 275 new dwellings have been built and 349 renovated.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that while complex anti-segregation housing programmes

(EFOP, VEKOP, TOP OPs) and the FETE programme’s multi-level measures in 300 disadvantaged settlements were

planned, implementation faces critical delays. According to CSOs, several EU-funded programmes were halted due to

differing interpretations of the definition of segregated settlements and until a consensus is reached, planned projects

under the EFOP and TOP operational programmes have been put on hold. Under the RRF, the pace of housing-unit

delivery has fallen well short of the target, raising concerns about timely completion ahead of the June 2026 deadline.

CSOs call for urgent action to address systemic housing exclusion and to ensure programme continuity.

ASSESSMENT: According to the Hungarian authorities, the catching up settlements programme and complex

settlement programme have contributed to improving housing conditions for disadvantaged and Roma populations

through targeted renovations, life-threat prevention measures, social rental housing, and counselling services. The

authorities also report that the programmes aim to reduce residential segregation by supporting relocation from

segregated to integrated areas. However, implementation delays and uncertainties affecting EU-funded programmes

continue to limit progress. The thematic enabling condition on Roma inclusion has not been fulfilled yet, as the so-

called local identity protection law and municipal decrees undermine prevention and elimination of segregation and

mainstreaming Roma inclusion at local level. According to FRA data, 93% of Roma live in overcrowded households

compared to 15%240 of the population as a whole241, highlighting persistent housing deprivation and segregation.

Further efforts are needed to ensure the timely implementation and continuity of housing programmes, with stronger

focus on adequate affordable housing and desegregation measures.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: The NRCP oversees Roma integration mainstreaming and the development of social

inclusion-policy. Roma and pro-Roma civil society organisations contributed to the Hungarian national social inclusion

strategy through standard consultations and participate as beneficiaries. Selected CSOs, including a Roma organisation

and an 18-member Roma/pro-Roma CSO network, are represented on the human resources development operational

programme monitoring committee242. Five-year local equal opportunity programmes, legally mandated for

municipalities and supported by the equal opportunities mentor network, provide the foundation for local involvement.

The human rights working group’s round table, involving the Commissioner for Fundamental Rights and the president

of the equal treatment President, further facilitates stakeholder dialogue. The purpose of these structures is to promote

inclusive policymaking and monitoring, but their effectiveness will need constant monitoring.

FEEDBACK FROM CIVIL SOCIETY: CSOs reported low participation in the implementation of the national

Roma strategy. Roma and pro-Roma organisations independent of the government, the Egalipe Network243, asked to

comment on the revised strategy under the conditionality procedure but this request was rejected, and the members of

the Roma coordination council were given only four days to do so. In the largest programme, FETE, only seven out of

300 municipalities had a Roma implementing organisation. There is no institutional monitoring of implementation of

the strategy to which independent civil society actors can be linked. However, several organisations could delegate

members to the monitoring committees of the six operational programmes. The Roma coordination council has not put

240 Available at: Eurostat, (online data code ilc_lvho05a),

https://ec.europa.eu/eurostat/databrowser/view/ilc_lvho05a/default/table?lang=en. 241 European Union Agency for Fundamental Rights – Roma Survey 2024. Available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 242 Available at: https://www.efop.gov.hu/ (Human Resources Development Operational Programme Monitoring Committee). 243 Available at: https://www.egalipe.hu/.

87

the issue of antigypsyism on the agenda, even when requested to do so by one CSO member.

ASSESSMENT: Hungary has established institutional frameworks for Roma inclusion through the NRCP and civil

society participation in monitoring committees. While these structures provide a foundation, CSOs report that their

engagement remains modest. Further progress could focus on strengthening Roma CSO involvement in policy

development and implementation. There could be more meaningful participation if current limitations in consultation

processes are addressed, including restricted timelines for CSO input. Expanding Roma CSO representation in

programme monitoring and decision-making could improve accountability and lead to more successful policy

outcomes. Prioritising antigypsyism on the Roma coordination council’s agenda would further reinforce these efforts.

FUNDING

Hungary’s Roma inclusion measures are financed from a combination of national and EU funding. The total funding

allocated and spent per objective during 2023-2025 was as follows: i) EUR 3 046 905 for fighting antigypsyism and

discrimination; ii) EUR 50 830 492 for reducing poverty and social exclusion; iii) EUR 193 853 for promoting

participation; iv) EUR 33 179 281 for education; v) EUR 1 664 356 for employment; vi) EUR 2 467 023 for health and

social services; and vii) EUR 42 180 037 for housing interventions.

The territorial targeting of the operational programmes also helps to reach people living in disadvantaged areas. This

includes addressing the complex needs of people living in the 300 most disadvantaged settlements (catching-up

settlements). Funding for Roman inclusion measures are mainly from EU funds and there is very little national funding.

MONITORING AND EVALUATION

In this reporting period Hungary did not mention quantitative targets. The country has set up a mechanism for

monitoring the implementation of the NRSF, with progress reports submitted every two years to the Minister of Interior

and to the Hungarian government. The implementation of the strategy is divided into two-year action cycles. The latest

report is from 2023, and the following report was due on 30 November 2025. Roma and pro-Roma CSOs are

monitoring the implementation of the NRSF through their membership in the Roma coordination council244 and the

relevant monitoring committees (HRDOP+245 and the regional and settlement development operational programme plus

(TSDOPP246). There is no funding from the national budget is available for Roma and pro-Roma organisations for

monitoring and reporting on the implementation of the NRSF.

PROMISING PRACTICES

‘Sure start children’s houses’ (a state-funded programme that has been running since 2004)provide early-childhood

development support to children aged 0–3 living in severe poverty, the vast majority of whom are Roma (estimated at

96%). The 177 institutions operating across the country – permanently integrated into the national service system since

2013 and fully funded from the national budget (EUR 8.4 million over 2023-2025, with annual budget increases) –

address EU Objectives 2 and 4 by offering developmental support, ‘comfort services’ and parental skills to over 2,300

Roma children per year. The dual focus on child development and parental involvement is central to the model’s design

and its long-term inclusion potential.247

The after-school educational facilitiesnetwork of 180 ‘Tanodas’ provides extracurricular support to children and young

people in difficult social circumstances, some 95% of whom are Roma. Funded from the national budget (EUR 13.5

million over 2023-2025, with annual budget increases), the 180 ‘Tanodas’ help more than 5,500 pupils daily, providing

educational activities, socialisation, career guidance, cultural mediation and community development. Internal research

indicates that the programme has not led to significantly better educational outcomes, but dropout and class-repetition

rates would have been substantially higher without it. The network has been steadily expanded, and Hungary considers

it an example of good practice in its national inclusion system.

244 Available at: Government Decision 1102/2011. (IV. 15.), 2011. 245 Available at: https://www.palyazat.gov.hu/hrdop. 246Available at: https://www.palyazat.gov.hu/programok/szechenyi-terv-plusz/top-plusz#monitoring-bizottsag. 247 Available at: https://european-social-fund-plus.ec.europa.eu/en/social-innovation-match/case-study/sure-start-childrens-house.

88

89

Table 18 - The Netherlands

The Netherlands

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

In 2021, the Netherlands introduced its national Roma strategic framework,

as a memorandum entitled ‘Policy measures in the Netherlands for the

equality, inclusion, and participation of Roma and Sinti’248.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 40 000 (0.24% of the

population) 249.

NATIONAL ROMA CONTACT

POINT (NRCP) Ministry of Social Affairs and Employment

NATIONAL ROMA CONTACT POINT

During the reporting period, the NRCP was allocated a total budget of approximately EUR 452 000 to support activities

such as the biannual monitoring of Roma and Sinti social inclusion250, dialogue sessions, the Roma and Sinti

Knowledge Platform251, research on challenges faced by Roma and Sinti women and girls, and the Roma Youth

Platform. The NRCP, with 5 full-time equivalent staff, coordinates the country’s approach to promoting equality,

inclusion, and participation of Roma and Sinti communities. While it works to mainstream Roma and Sinti concerns

across general policy areas, the NRCP does not participate in the programming or monitoring of EU funds, and the

ministries involved retain control over their national policy decisions.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Key achievements include the formalisation of the Netherlands’ fight against

antigypsyism through the appointment of a national coordinator against discrimination and racism (NCDR)252 in 2021,

which led to the inclusion of a specific antigypsyism section in the national programme against discrimination and

racism from 2023 onwards. In 2024, the NCDR engaged in consultations with Roma and Sinti representatives to inform

the multi-year plan. The knowledge institute inclusive society253 contributes to awareness-raising initiatives on

antigypsyism targeting policymakers and social workers. Crucially, 2024 research commissioned by the NCDR

identified antigypsyism as a root cause of the shortage of caravan pitches.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in the fight against antigypsyism through its

legal recognition in the 2023 national programme against discrimination and racism, the provision of municipal legal

aid, and awareness-raising initiatives such as Roma culture exhibitions. However, Roma and Sinti communities remain

unrecognised as national minorities, limiting data collection, targeted policies, and meaningful participation, while

broader equality laws may not fully capture Roma-specific discrimination.

ASSESSMENT: Building on recent institutional progress, the Netherlands could further strengthen its response to

antigypsyism by complementing its mainstream approach with more targeted measures addressing the specific forms of

discrimination faced by Roma and Sinti communities. In this context, enhancing data collection mechanisms within

existing legal constraints could support more effective monitoring and policy design. Consideration could also be given

248 Available at:

https://commission.europa.eu/policy_measures_in_the_netherlands_for_the_equality_inclusion_and_participation_of_roma_and_sin

ti.pdf . 249 Available at: https://rm.coe.int/1680088ea9. 250 Available at: https://www.rijksoverheid.nl/documenten/rapporten/2024/03/01/monitor-sociale-inclusie-roma-en-sinti-2023. 251 Available at: https://www.kis.nl/themas/nederlandse-sinti-roma. 252 Available at: https://www.bureauncdr.nl/. 253 Available at: https://www.kis.nl/themas/nederlandse-sinti-roma.

90

to reinforcing the policy and legal framework to gain a better understanding of Roma-specific discrimination, including

in areas such as housing. Strengthening structured participation of Roma and Sinti communities in policymaking

processes may further improve trust and policy relevance. Continued efforts to translate awareness-raising and dialogue

into tangible, measurable outcomes would support more sustainable progress.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Progress under this objective is reflected in mainstream initiatives with potential benefits

for Roma and Sinti communities. The national programme on poverty and indebtedness254 enables close cooperation

between national and municipal authorities and social organisations, with municipal authorities retaining control over

anti-poverty policies so that measures can be adapted to local needs. Measures include the prevention and early

detection of poverty, with special attention given to child poverty. Since 2013, the social inclusion of Roma and Sinti

communities has been analysed using qualitative methods to provide information on their housing and living

conditions; the results are then shared with the House of Representatives.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in poverty reduction through campaigns on

benefits, increased minimum wages and allowances, and improved support for children in low-income families.

However, Roma children remain largely overlooked in national child guarantee plans255, and Roma CSOs lack

sufficient engagement to ensure meaningful participation in relevant processes.

ASSESSMENT: The Netherlands could make its broader policy framework more effective by ensuring that the

specific needs of Roma children are more explicitly set out in mainstream initiatives such as the child guarantee plans.

As 2024 research indicates that antigypsyism can be a root cause of social exclusion - particularly regarding housing -

consideration could be given to encouraging municipalities to implement targeted interventions within their local

discretionary policies to address the specific socio-economic barriers faced by Roma and Sinti families. The qualitative

monitor remains an important tool for identifying community needs in the absence of ethnic registration.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Progress under this objective is reflected in structured exchanges between Roma and Sinti

representatives, CSOs and authorities in 2023 and 2024, addressing issues of discrimination, caravan policy, dual

identity recognition, and mechanisms for sustainable dialogue. Since October 2023, a new procedure has been available

under the Statelessness Determination Procedure Act256 whereby individuals may apply to the civil court in the Hague

to have their statelessness officially recognised. That law enables administrative recognition of evident statelessness by

municipalities and the Immigration and Naturalisation Service (IND)257, and amends the Dutch Nationality Act258 to

allow stateless children born in the Netherlands without legal residence to acquire Dutch nationality after five years of

uninterrupted stable residence while stateless children with legal residence may become naturalised after three years.

Such measures are expected to benefit Roma and Sinti communities.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge that Roma and Sinti representatives have been involved

in discussions on historical persecution and municipal housing policies and were invited to the 2024 ECRI high-level

meeting on equality and integration, signalling a more proactive approach. However, they point out that participation

remains largely symbolic due to limited financial support and outreach, and that available EU funding remains

underutilised and could be better leveraged to strengthen Roma CSOs and provide a central hub for community

engagement.

ASSESSMENT: To bolster meaningful participation, the Netherlands could prioritise the timely establishment of

structured Roma and Sinti involvement in dialogues and policymaking. Addressing persistent distrust identified in the

2023 monitor may require reinforcing the role of Roma and Sinti communities in decision-making processes,

254 Available at: https://www.rijksoverheid.nl/documenten/kamerstukken/2025/06/06/kamerbrief-over-nationaal-programma-

armoede-en-schulden. 255 Available at: https://employment-social-affairs.ec.europa.eu/policies-and-activities/social-protection-social-inclusion/addressing-

poverty-and-supporting-social-inclusion/investing-children/european-child-guarantee/national-action-plans-and-progress-

reports_en. 256 Available at: https://ind.nl/en/determining-statelessness and https://wetten.overheid.nl/BWBR0048458/2023-10-01. 257 Available at: https://ind.nl/en. 258 Available at: https://wetten.overheid.nl/BWBR0048458/2023-10-01 and https://ind.nl/en/news/establishment-of-statelessness-

laid-down-by-law .

91

potentially including greater involvement in the allocation of relevant funding streams. Consideration could also be

given to advancing discussions on the recognition of Roma and Sinti under the Framework Convention for the

Protection of National Minorities259, which could provide a stronger basis for participation. Finally, planned

investments in Holocaust education could be used to support the capacity and visibility of Roma and Sinti

organisations.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The Netherlands integrates mainstream support for at-risk children with targeted

educational initiatives, including a primary school subsidy scheme that provides specific funding to boards with at least

four Roma or Sinti pupils for additional assistance. The government funds a project entitled ‘National education

support for Traveller, Roma and Sinti children (OWRS)’260, which serves as a national helpdesk and facilitates dialogue

between schools and policymakers. A major 2024 milestone is the national plan for strengthening Holocaust

education261, supported by an annual EUR 1 million investment from 2025. The existing mandatory curriculum

requirement (core objective 37) already covers the persecution of Jews, Sinti, Roma, and homosexuals, and the plan

aims to strengthen teaching on this history more broadly. Progress is monitored through biennial qualitative research

assessing social inclusion and educational participation.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcome the annual EUR 1 million subsidy scheme supporting

schools with pupils from non-Dutch cultural backgrounds, which may also benefit Roma and Sinti students, and

acknowledge funding for initiatives supporting school-leavers’ transition to work or further education. However, they

highlight the lack of baseline and disaggregated data on Roma and Sinti pupil attendance, and the scant information on

participation in OWRS meetings which makes it more difficult to assess the effectiveness of existing measures and

design targeted policies.

ASSESSMENT: The Netherlands could build on its combination of mainstream support and targeted measures by

further expanding participation in early childhood education and care through proactive outreach and the removal of

practical barriers. Enhancing parental engagement, including through intermediary or mediation approaches, could

further support attendance and retention. At the same time, improving data collection and monitoring within existing

legal constraints would allow for a clearer assessment of participation, outcomes, and the effectiveness of existing

measures, including the primary school subsidy scheme and OWRS support. Increasing evaluation across educational

pathways could help identify and address potential inequalities in progression.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The Netherlands applies a mainstream approach to labour-market inclusion, relying on

broad initiatives such as the ‘for an inclusive labour market’ (VIA) programme262 and the national action programme

to combat labour market discrimination263. Roma and Sinti jobseekers access universal support measures, including

wage subsidies and job coaching provided by municipalities and the employee insurance agency (UWV)264. Insights

from VIA pilot projects, such as ‘nudging in recruitment and selection’, are being used to address discrimination in this

area.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge that employmen-support measures, including

supplements for low-income unemployed individuals, were implemented in 2023–2024. However, Roma-specific

employment measures remain limited and outdated, with short-term initiatives proving ineffective. CSOs emphasise

that long-term, sustainable measures are needed to address structural barriers in employment such as discrimination and

259 Available at: https://www.coe.int/en/web/conventions/full-list/-/conventions/treaty/157. 260 Available at: https://www.owrs.nl. 261 Available at: https://www.ncab.nl/documenten/2025/3/20/nationaal-plan-versterking-holocausteducatie. 262 Available at: https://www.rijksoverheid.nl/documenten/kamerstukken/2023/12/18/voortgangsbrief-programma-voor-een-

inclusieve-arbeidsmarkt and https://www.rijksoverheid.nl/documenten/publicaties/2025/03/31/werkagenda-voor-een-inclusieve-

arbeidsmarkt. 263 Available at: https://www.bureauncdr.nl/binaries/bureauncdr/documenten/nationale-programmas/2023/12/12/national-program-

2023--english/National+Programme+against+Discrimination+and+Racism+2023-+English.pdf . 264 Available at: https://www.uwv.nl/en.

92

intergenerational poverty.

ASSESSMENT: While existing mainstream frameworks offer broad access to employment support, they do not

specifically target Roma and Sinti communities. Their impact remains difficult to assess due to the absence of

disaggregated data and legal constraints on collecting ethnicity-related information. The Netherlands could consider

other approaches to monitoring, such as qualitative research and stakeholder engagement, to better understand the

situation of Roma and Sinti communities. Addressing persistent structural barriers, particularly discrimination and low

labour-market participation among women and youth, could support more effective and sustainable inclusion

outcomes.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The Netherlands has a generic health policy with the qualitative objective of promoting

healthcare apt to deal with a diverse range of patients. Key measures focus on ensuring access: the CAK (Central

Administration Office)265 can help individuals who are currently uninsured to obtain insurance, withholding premiums

from social benefits or wages to guarantee coverage. The biennial monitoring survey conducted by RISBO (Research

Institute for Social Sciences and Business Economics)266 identifies Roma physical and mental health vulnerabilities

linked to poverty, intergenerational trauma, and caravan pitch shortages. Current efforts focus on overcoming distrust

and cultural barriers through information initiatives and promoting equal access to public social services.

FEEDBACK THE CIVIL SOCIETY: CSOs note that under the IZA (Integral Care Agreement) (2023-2027)267,

transformation funds of approximately EUR 2.8 billion have been allocated to strengthening primary care, digitisation,

and regional cooperation, potentially improving access to more inclusive and flexible healthcare for those facing

barriers. However, the national action plan for the child guarantee has no specific measures for Roma and Sinti

children, and inclusion requires permanent, culturally skilled staff rather than temporary intermediaries

ASSESSMENT: The Netherlands’ mainstream healthcare framework provides broad coverage, but the absence of

specific funding or quantitative targets for Roma and Sinti health limits the scope for targeted action. The country could

consider strengthening preventive outreach and health awareness, particularly regarding mental health and lifestyle-

related risks identified in the biannual monitor. Integrating culturally competent staff within healthcare services could

help build trust and improve access. National initiatives, such as those under the EU Child Guarantee, could address

more explicitly address the specific barriers and health needs faced by Roma and Sinti children. Strengthening

coordination between health and social services, particularly at local level, would help address socio-economic barriers

and support more inclusive access.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The Netherlands has made progress under this objective through specific financial

commitments and mandatory monitoring. In 2023, the government offered EUR 34 million for housing specific groups,

granting EUR 2.5 million to subsidise 279 new pitches, which should be completed within a five-year deadline to

receive the funds. A further EUR 30 million is available for 2025. The 2023 biennial monitor reveals that 55% of

municipalities have conducted needs assessments and 38% have implemented specific policies. Furthermore, an EUR

19 000 study by the University of Amsterdam (2024) identified antigypsyism and ‘territorial stigma’ as root causes for

the pitch shortage.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcome the EUR 5 billion budget allocation for housing and

increased rent and child allowances. While no Roma-specific measures are included, these reforms can benefit low- and

middle-income households, including many Roma and Sinti families, by improving affordability and access to social

housing. However, urban planning policies need to be more inclusive, ensuring culturally appropriate housing and

protecting Traveller and caravan communities from discriminatory local measures.

ASSESSMENT: The Netherlands could build on recent financial commitments by ensuring that the five-year

265 Available at: https://www.hetcak.nl/english. 266 Available at: https://www.risbo.nl. 267 Available at: https://www.rijksoverheid.nl/binaries/rijksoverheid/documenten/rapporten/2022/09/16/integraal-zorgakkoord-

samen-werken-aan-gezonde-zorg/integraal-zorg-akkoord.pdf.

93

completion deadline for the 279 subsidised pitches translates into concrete delivery at municipal level. Integrating

community perspective into urban planning processes could help tackle antigypsyism and ‘territorial stigma’ identified

as root causes for pitch shortages. The EUR 30 million available for 2025 represents an important opportunity for

further expansion. Consideration could also be given to encouraging the remaining 62% of municipalities without

specific caravan policies to adopt more inclusive frameworks. Continued use of NRCP dialogue sessions to promote

culturally appropriate housing solutions could help build trust and protect communities from discriminatory local

measures.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

PROGRESS REPORTED: The Netherlands has strengthened its institutional capacity by expanding the NRCP from

one to five staff members.The NRCP facilitates sustainable dialogue sessions (at a cost of EUR 40 000) and manages

the Roma and Sinti knowledge platform268 (EUR 115 076), which shares expertise with policymakers and social

workers. In 2024, the national coordinator against discrimination and racism (NCDR)269 conducted consultations with

community members to provide information for the multi-year national plan. Multiple CSOs remain actively engaged

in the design and monitoring of the national Roma strategic frameworks and local plans. Local cooperation is

expanding, though there are currently no formal ties with equality bodies.

FEEDBACK FROM CIVIL SOCIETY: Roma and Sinti CSOs are invited to policy discussions, but participation is

largely symbolic due to limited support. Anti-discrimination laws do not explicitly cover ethnicity, and there is no

mechanism for CSOs to monitor or assist victims of hate crimes. Dialogue with ministries is infrequent, and the NRCP

mainly provides information without Roma staff. A dedicated system to track antigypsyism and ensure meaningful

CSO involvement is needed.

ASSESSMENT: The Netherlands has strengthened its institutional framework, through the expansion of the NRCP

and support for dialogue platforms, providing a solid basis for cooperation. Building on this progress, consideration

could be given to formalising cooperation with equality bodies, thereby moving from consultation to more structured

partnerships. While the increase in the NRCP’s capacity is a positive step, its role remains largely consultative, without

involvement in the programming or management of Union funds. Consideration could also be given to expanding its

role to cover funding processes, which could make policy better reflect Roma and Sinti priorities. At local level,

shifting from enforcement-focused approaches towards more inclusive, community-based initiatives involving Roma

and Sinti in implementation could help bridge persistent trust gaps.

PROMISING PRACTICE

The national education support to Traveller, Roma, and Sinti children (OWRS) project serves as a vital bridge for

educational inclusion in the Netherlands. Operating on a budget of EUR 167 674 for 2023-2025, it provides a highly

accessible helpdesk for schools needing guidance on supporting Roma and Sinti pupils. Beyond information sharing,

OWRS facilitates essential networking between national policymakers and frontline professionals. It specifically aims

to raise awareness among staff regarding Roma history and culture while providing tools to combat antigypsyism.

268 Available at: https://www.kis.nl/themas/nederlandse-sinti-roma. 269 Available at: https://www.bureauncdr.nl.

94

Table 19 - Austria

Austria

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Austria’s National Roma Strategic Framework (updated 2021)270. It outlines

priority areas, including Combating antigypsyism, education, employment,

empowerment of Roma women and girls, youth and civil society.

ESTIMATED ROMA

POPULATION

Council of Europeestimates

Council of Europe estimates: 25 000 Roma living in Austria (0.3% of the

population)271.

NATIONAL ROMA CONTACT

POINT (NRCP)

Federal Chancellery of Austria, Department for Ethnic Groups

(Volksgruppen).272

NATIONAL ROMA CONTACT POINT

The NRCP, forms part of the Department for Ethnic Groups (Volksgruppen) of the Federal Chancellery. It does not

have its own budget. The implementation of measures included in the national Roma strategy fall under the

responsibility of the stakeholders and their individual budgets. The NRCP operates with just one employee and is

responsible for coordinating the national Roma strategy, its implementation, and reporting to external stakeholders. It is

involved in drafting and reporting on policy papers covering Roma-specific topics under the responsibility of other

public actors. The NRCP provides consultancy and expertise on Roma-related matters while striving to strengthen its

role in the administration and among the stakeholders.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Key achievements include: i) the publication of an 'anti-racism strategy for public

services' with a view to combating antigypsyism in public services, ii) the annual focus topic of program ERINNERN:

Austria273 dedicated to the genocide of Roma and Sinti which has led to development of new teaching materials, iii) the

establishment of a working group on Travellers that contributes to a better understanding between Travellers and local

municipalities, iv) the establishment of 2 August as national Roma holocaust remembrance day, v) the amendment of

the National Fund Act274 in order to provide further impetus to the establishment of a Roma genocide memorial and

ensuring that the graves of Roma holocaust victims are properly maintained, and vi) the allocation of public funding to

a dedicated Roma radio programme in which members of the community can address self-selected topics in their native

language.

FEEDBACK FROM CIVIL SOCIETY: In 2023 and 2024, Parliament celebrated, International Roma Day and

National Minorities Day, with the involvement of Roma organisations. In 2023, the federal ministry of culture, arts,

public administration and sports established a ‘Competence centre for diversity, anti-racism, and anti-discrimination

(KDA)275 . In 2024 the KDA, in collaboration with representatives of civil society organisations, developed an Anti-

Racism Strategy for that ministry The DSA-Begleitgesetz 2024 (Digital Services Act)276 boosted protection against

online hate. The most recent antigypsyism report was published in 2017. The Austrian government has not adopted an

anti-racism plan. There are still no advisory councils on antigypsyism or Roma media representation. Discrimination

persists in education, housing, and employment. Roma-related educational materials to combat prejudice remain

insufficiently disseminated in schools, and antigypsyism incidents lack a dedicated category in hate crime statistics.

ASSESSMENT: Austria has made progress in combating antigypsyism through several measures, including the

270 Available at: https://www.bundeskanzleramt.gv.at/themen/volksgruppen/roma-strategie.html 271 Available at: https://rm.coe.int/1680088ea9. 272 Available at: National Ethnic Minority Groups - Federal Chancellery of Austria. 273 Available at: Lehren und Lernen über den Nationalsozialismus und Holocaust. 274 Available at: ERV_2001_1_12.pdf. 275 Available at: Fight Against Racism and Discrimination – BMEIA - Außenministerium Österreich 276 Available at: Digital Services Act - BMJ.

95

recognition of 2 August as the national Roma Holocaust Remembrance Day, the publication of an anti-racism strategy

for public service, and enhanced protection against online hate through the DSA-Begleitgesetz 2024. Building on these

achievements, further efforts could focus on developing a comprehensive national action plan against racism and

antigypsyism. Austria's approach to combating discrimination would be boosted by establishing the advisory councils

provided for in in the NRSF, improving awareness-raising and training across public institutions, and introducing a

dedicated category for antigypsyism incidents in hate crime statistics.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: The most significant measure was the specific funding approach for Roma empowerment

on the labour market. Another welcome measure was the introduction of a compulsory final year of pre-school

education free of charge helping children from poverty-affected households into the educational system and providing

an opportunity to address potential obstacles to a successful school start, including language development and social

skills. During the pre-school year 2022/2023, 99.1% of children of pre-school in Austria attended creche or equivalent

establishment. The current government programme intends to extend this measure to two compulsory pre-school years.

FEEDBACK FROM CIVIL SOCIETY: Poverty-reduction measures have had no meaningful impact on Roma.

Roma in Austria continue to face poverty and material insecurity. A significant number live in highly precarious

conditions, especially in the western provinces, relying heavily on low-threshold services such as Caritas contact

projects or support from CSOs, which are not recognised by the NRSF. Homeless Roma immigrants are particularly

vulnerable, often falling through gaps in Austria’s social welfare system. Beyond material and social hardships, many

Roma have an unfavourable legal status that excludes them from social support programmes. Poverty requires a cross-

sectoral and holistic approach, which the NRSF does not yet provide.

ASSESSMENT: Austria has made progress in empowering Roma but combating poverty requires a cross-sectoral

approach. Many Roma — particularly homeless individuals and those failing to meet eligibility requirements — fall

through gaps in the social welfare system. The absence of Roma-specific social-support strategies at regional and

municipal level, and the failure to formally recognise low-threshold civil society services in the NRSF, represent a

major shortfall in policy that risks leaving the most vulnerable Roma behind. Expanding the scope of the NRSF and

providing dedicated support for organisations working on the ground would strengthen the country’s approach.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Key achievements include the continued operation of the Roma dialogue platform

(RDP)277 which is an important instrument for Roma participation, with three meetings held on education, cultural

identity and empowerment. The amendment of the National Fund Act in 2023 enabled the establishment of a Roma

dialogue platform (RDP) for the development of a Roma memorial, ensuring Roma participation in the development

process under the guidance of historical experts of the national fund (Nationalfonds)278. Throughout this process, the

National Minority Advisory Council for Roma has been consistently included in preparing and running the RDP.

FEEDBACK FROM CIVIL SOCIETY: The RDP is a positive measure but reaches only a narrow segment of the

Roma community. Although representatives of Roma associations take part in the RDP, CSOs report that, in practice,

Roma have little real influence on the final decisions made. They have no impact on the selection of topics or the

outcomes of discussions. Only 36%279 of Roma in Austria are aware of the NRSF. More public campaigns and broader

outreach are needed. They also argue that more school projects and cultural events promoting dialogue between Roma

and the majority population would be beneficial.

ASSESSMENT: Austria has demonstrated institutional commitment to Roma participation with the RDP and the

Roma holocaust memorial process. However, formal participation has not yet translated into meaningful influence on

policy. Commitments would have a better chance of tangible success if we i) Strengthen Roma co-determination within

existing mechanisms, ii) significantly expanded outreach to the broader Roma community, and iii) invested in cultural

and educational initiatives that foster dialogue with the population as a whole.

277 Available at: Datenbank "Integrationsprojekte in Österreich" - Integrationsprojekte Österreich. 278 Available at: https://www.nationalfonds.org. 279 Available at: https://www.romacivilmonitoring.eu/countries/austria/.

96

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS:Key achievements include i) national minority funding for Roma education and inclusion

projects280, ii) the continuation of Romani language education in Burgenland, iii) the development of a Gurbet281

teaching book in Vienna, and iv) the inclusion of Roma in the Forum Minderheitenschulwesen282 (Forum on Minority

Education). The introduction of new school curricula explicitly mentioning Roma exhibitions in Parliament, including

one on Romani language and high-profile events to mark the 30th anniversary of Roma recognition as a national

minority, helped raise the profile of the Roma community. A travelling exhibition on Romani language, displayed in

the Austrian Parliament283 and freely accessible to the public, was an important milestone. Two Roma school mediators

are currently active in Viennese schools, and Romani language classes are offered in Burgenland, though pupil

numbers remain low.

FEEDBACK FROM CIVIL SOCIETY: One positive step was the development of teaching materials for Romani

language classes, by the Burgenland school directorate. Projects such as learning support programmes and Roma

school mediation continue to be implemented. CSOs argue these should be structurally strengthened with long-term

funding to better support Roma children. Roma children are overrepresented in Sonderschulen (special schools),

primarily because of language barriers and because teacher may lack sensitivity. Awareness-raising workshops for

teachers and school staff would help reduce prejudice and raise awareness of the problems faced by Roma children.

Formal education and preschool attendance rates among Roma are significantly low, with early school dropout

remaining a critical issue that has yet to be properly tackled.

ASSESSMENT: Austria has made some progress in promoting Roma culture, language and history in the education

system through a range of targeted initiatives, supported by National Minority funding and high-profile initiatives.

Building on these efforts, further attention could be given to addressing the structural challenges highlighted by civil

society, including the overrepresentation of Roma children in special schools, low preschool attendance rates, and early

school dropout. Progress could be consolidated by providing sustained funding for existing initiatives such as learning-

support programmes and Roma school mediation and strengthening early childhood education participation.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS:The most significant achievement was the Ministry of Labour's Roma-specific funding

until 2030 to empower Roma on the labour market, a scheme intended to create more accessible financial support for

smaller organisations. The projects funded follow a holistic approach, addressing not only skills and education but also

other barriers to employment such as health issues, childcare responsibilities and difficult housing situations. EUR 10

million has been allocated for the period from 2022 to 2030, with each project funded with approximately EUR

250,000 over two years. So far, 19 projects have been awarded funding, 9 successfully concluded and 10 in progress.

FEEDBACK FROM CIVIL SOCIETY: Since January 2023, the Ministry of Labour has been financing up to 10

two-year projects aimed at increasing Roma employment until 2030, a measure welcomed by CSOs. However, the

Public Employment Service (PES) has no programmes specifically targeting Roma employment and is not connected to

the organisations running Ministry-funded labour market projects. CSOs argue that, as the first point of contact for

employers and job seekers, better use should be made of the PES's potential. They also call for improved access to

information on training courses, education support programmes and diploma recognition, and for the expansion of

skills training and qualification measures for socially and economically disadvantaged Roma, particularly Roma

women.

ASSESSMENT: Austria's Roma-specific labour market funding approach, which offers a holistic and accessible

model for Roma empowerment, is a significant achievement. However, PES — the main point of contact for employers

and job seekers — lacks Roma-specific programmes and is not coordinated with Ministry-funded projects, shortfall

280 Available at: https://www.bundeskanzleramt.gv.at/themen/volksgruppen/volksgruppen-foerderung.html. 281 Available at:http://romaniprojekt.uni-graz.at/varieties-gurbet.en.html. 282 Available at: https://www.bmb.gv.at/Themen/schule/schulpraxis/ba/sprabi/minderheitenschulwesen.html and

https://www.oesz.at/netzwerke/minderheitenschulwesen/. 283 Available at: https://www.parlament.gv.at/aktuelles/pk/jahr_2023/pk1388 and https://akademie-graz.at/programme/das-

oesterreichische-romanes/.

97

that needs to be rectified. Austria is encouraged to strengthen coordination between the PES and Roma-led

organisations, improve access to information on training and qualification opportunities, and expand skills training for

socially and economically disadvantaged Roma, focusing on Roman women in particular.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS:Austria did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: No progress has been made in improving the health of the Roma population.

Many Roma fall through the gaps of healthcare and social welfare systems due to strict eligibility requirements relating

to citizenship, residency status, and length of stay, a situation compounded by low health literacy, language barriers,

and exclusion from targeted support in the NRSF. CSOs call for the training and deployment of health mediators from

within Roma communities, the development of low-threshold outreach services, stronger links between public health

services and civil-society structures, and public-private partnerships to improve access to inclusive healthcare for

Roma.

ASSESSMENT: While Austria has not yet included health as a dedicated objective in its national strategy, the current

strategy revision presents an opportunity to rectify this. Austria could consider the training and deployment of health

mediators from within Roma communities and the development of low-threshold outreach services. Strengthening links

between public health services and civil-society structures, and formally recognising the role of civil-society

organisations in health service delivery, would help ensure that Roma — including those with precarious legal status —

could effectively access quality healthcare and social services

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS:Austria did not report on this objective.

FEEDBACK FROM CIVIL SOCIETY: No new nationwide Roma-specific housing initiatives were introduced, and

no significant results were achieved. The only noteworthy development was the publication of the SORA study, which

revealed a high level of discrimination in the rental housing market284. There is currently no targeted housing initiative

for Roma in Austria. Housing services remain difficult to access for many Roma due to legal and social obstacles,

language barriers, and general discrimination. CSOs call for further research, the development of a dedicated housing

strategy, and the expansion of housing counselling services for Roma.

ASSESSMENT: The European Regional Development Fund (ERDF) and the Just Transition Fund (JTF) in Austria do

not fund measures for Sinti and Roma communities in the areas of housing and essential services. The absence of a

dedicated housing objective in Austria's national strategy, combined with the lack of Roma-specific housing initiatives

is a serious problem that needs to be addressed. The SORA study's findings on discrimination in the rental housing

market underline the need for targeted action. Essential steps for Austria to take include: i) developing a dedicated

housing strategy for Roma, ii) expanding housing counselling services, and iii) addressing the legal and social obstacles

and language barriers that prevent Roma from accessing adequate housing

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

284 Available at: 23006 Endbericht Testingstudie Wohnungsmarkt.

98

REPORTED PROGRESS: Roma civil society took part in the Sensiro evaluation study (2021-2022)285, nearly 400

Roma were interviewed, and a nationwide Roma network was created. Based on the results, the national strategy is

currently being revised. The national Roma dialogue platform (RDP), established in 2012, met three times during the

reporting period, covering the topics of 'the language Romanes - language and identity', ERINNERN: Austria on the

Genocide on Roma and Sinti, and Roma empowerment and the role of media. Considering the recent developments,

the NRCP launched a round table with representatives from municipalities and Roma civil society on the topic of

travelling communities, with three meetings held since October 2024. Roma and pro-Roma CSOs are regularly

involved in the implementation, monitoring and revision of the strategy.

FEEDBACK FROM CIVIL SOCIETY: Roma NGOs had limited involvement in the design, implementation,

monitoring, and review of the NRSF. Their main formal participation is through the RDP, organised by the NRCP, but

their influence on policy formulation and final decisions remains limited. There are no individuals or associations from

the Roma community on the teams in public institutions responsible for NRSF processes. The Federal Chancellery's

Roma minority advisory board, established in 1995, exists but is not directly involved in NRSF processes beyond

participation in the dialogue platform. Regarding hate crime and hate speech, networks such as Hatecrimekontern286

and the No Hate Speech Komitee287 include Roma organisations actively engaging in awareness-raising and anti-

discrimination campaigns.

ASSESSMENT: Austria has established meaningful structures for Roma participation, including the Roma dialogue

platform and the Sensiro evaluation process. However, such participation has not led to genuine influence on policy.

The current strategy revision presents an ideal opportunity to move from consultation to co-determination, ensuring

Roma organisations play a real role in shaping, monitoring and evaluating the NRSF. Institutionalising Roma

involvement beyond the RDP would deliver more inclusive and effective Roma policies.

PROMISING PRACTICES

One considerable achievement was the amendment of the National Fund Act in 2023, whereby the Nationalfonds was

putin charge of building a Roma Holocaust memorial in Vienna. The process is conducted through a dedicated

dialogue platform ensuring active Roma community participation, with Roma CSOs closely involved in all stages of

the memorial’s development. This measure combines historical recognition, institutional commitment and meaningful

Roma participation.

285 Available at: https://sensiro.univie.ac.at and https://sensiro.univie.ac.at/strategie/. 286 Available at: https://hatecrimekontern.at/. 287 Available at: https://www.nohatespeech.at/ .

99

Table 20 - Poland

Poland

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

In 2020, Poland introduced its national Roma strategic framework (NRSF),

entitled ‘programme for the social and civic integration of the Roma

community in Poland 2021-2030’288, building upon earlier strategic

frameworks (2004-2013, 2014-2020)289.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Polish census 2021: 17 049.

Estimates from Roma organisations and researchers: 25,000 – 35,000.

Council of Europe estimates: approximately 32 500 (0.09% of the

population)290.

The Roma community in Poland comprises five main groups: Polska Roma

(Polish Roma), Romowie Karpaccy (Carpathian/Bergitka Roma), Kełderasze,

Lowarzy, and Sinti.

It is estimated that between 15 000 and 20 000 Roma refugees from Ukraine

are currently living in Poland.291

NATIONAL ROMA CONTACT

POINT (NRCP) Ministry of Interior and Administration (MSWiA)

NATIONAL ROMA CONTACT POINT

The NRCP reported an annual budget of EUR 2.5 million for 2023-2025. It employs just one person, who coordinates

and monitors the implementation of the NRSF, contributing to its design and development in all areas of intervention.

The NRCP also manages dedicated funds and reports once a year on implementation. The ministry (MSWiA) works

with various stakeholders, including the ministry of national education for educational tasks, ‘voivodes’ acting as

regional coordinators, local government units, CSOs, and others. The ministry of development funds and regional

policy oversees EU fund programming and monitoring.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The national action programme for equal treatment 2022-2030292 and the NRSF provide

the main foundation for monitoring and preventing hate crimes against Roma in Poland. Under this objective, the

national police, the ministry of justice and the government plenipotentiary for equal treatment are tasked with providing

training for police officers on hate crimes against Roma, analysing legislation and coordinating activities aimed at

equal treatment

FEEDBACK FROM CIVIL SOCIETY: While CSOs acknowledge the general protections provided in the Penal

Code, they report that there are no specific legal provisions governing antigypsyism, which currently falls under

general national or ethnic discrimination. There is also no specific definition of the term, which means the strategy

treats discrimination a sa generic catch-all rather than a nuanced term that incorporates a number of distinct areas that

need to be addressed. The CSOs argue that this makes targeted action more difficult. Additionally, while Roma

288 Programme for Social and Civic Integration of the Roma Community in Poland for 2021-2030. 2020.

https://www.gov.pl/attachment/2f8296d9-80d5-4236-a6a8-3e22260e38f1. 289 Programme for the Integration of the Roma Community in Poland for the period 2014-2020. 2014.

https://commission.europa.eu/document/download/poland_national_integration_strategy_2014-2020_en.pdf 290 Available at: https://rm.coe.int/1680088ea9. 291 Experiences of Roma Community from Ukraine in Accessing Government Assistance and Services in Poland. 292 National Action Programme for Equal Treatment for the years 2022-2030. 2022. Available at: Ministry of Family, Labour and

Social Policy - Gov.pl website.

100

representatives have voting rights in regional application evaluation committees, there is a perceived need to move

beyond project-based consultation towards deeper involvement in the design of EU-funded programmes where the

NRCP currently has no role.

ASSESSMENT: Poland could go further in combating antigypsyism by ensuring that non-discrimination is a dedicated

policy area supported by targeted funding and measurable actions. The adoption of an official definition of

antigypsyism could provide a clearer basis for recognising and tackling anti-Roma discrimination within existing legal

and institutional frameworks. Building on the existing network of police plenipotentiaries for the protection of human

rights may also help improve responses to anti-Roma hate crime through specialised training and awareness raising. In

parallel, Roma participation could be reinforced through more systematic involvement in the planning and monitoring

of ESF+ programmes.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Since 2001,Poland has taken steps to reduce the social exclusion of Roma, with progress

made in Roma mobilisation, participation and self-organisation. The NRSF provides for targeted interventions in

education and decent housing, prioritising the improvement of Roma families’ situations through programme benefits

such as the Family 800+293, Good Start294, and Mother 4+295 which support Roma families alongside the general

population. However, post-elementary schooling remains a concern, hindering socio-economic prospects.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs, many Roma continue to face systemic barriers and live

in semi-segregated settlements. They also emphasise the need to expand support programmes and dedicated funding,

including Roma assistant programmes and dedicated support for Ukrainian Roma refugees and Roma seniors, who are

marginalised to an even greater extent than the general Roma population.

ASSESSMENT: Poland could build on existing social inclusion measures by placing greater emphasis on support

during the transition to post-elementary education, which remains vital for improving long-term employment and

socio-economic outcomes for Roma. Continued development of ESF+ interventions may also provide opportunities to

strengthen pathways towards sustainable employment. At the same time, expanding targeted support for groups facing

multiple forms of exclusion, including Roma seniors and Ukrainian Roma refugees, could further enhance the

inclusiveness of current policies. Reviewing the accessibility and impact of housing assistance may also help ensure

that the most vulnerable Roma families can benefit properly from available support.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Roma and pro-Roma CSOs are actively involved in the NRSF’s projects and application

assessment committees, alongside government institutions, and regional and local authorities. They also form part of

the joint committee of government and national and ethnics minorities, and the Roma affairs team. At local level, they

contribute to initiatives such as Roma school mediators, daycare centres and cultural events, while existing strategies in

municipal and voivodeship levels contribute to addressing specific community needs. Roma CSOs also implement

NRSF-funded projects.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight advancements in Roma participation. They call for greater

support for and involvement of Roma CSOs in decision-making, and measures to address burnout among active Roma

leaders and encourage new community representatives to come forward.

ASSESSMENT: To further advance Roma participation in Poland, continued efforts are needed to move beyond

project-based consultation towards more institutionalised and structured representation in broader decision-making

processes. While existing mechanisms, such as regional committees are to be welcomed, their scope could be expanded

to areas such as the programming of Union funds. Support for Roma civil society organisations should also be

strengthened, alongside targeted capacity-building to mentor emerging activists, diversify leadership, and reduce

reliance on a limited number of established representatives.

SECTORAL OBJECTIVES

293 Available at: https://www.gov.pl/web/family/family-800. 294 Available at: https://www.gov.pl/web/family/good-start. 295 Available at: https://www.gov.pl/web/family/parental-supplementary-benefit-mother-4-started-off.

101

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Education remains a central priority in Poland’s NRSF, with census data (2011-2021)

indicating significant progress: the share of Roma attaining higher education increased from 2.03% to 13.42%. Key

achievements include a stable network of approximately 80 Roma school mediators, widely regarded as one of the most

effective tools for improving school attendance and engagement, and a marked reduction in the overrepresentation of

Roma pupils in special schools. The scholarship system addresses financial barriers across all education levels, with

120 scholarships awarded in 2023 and 109 in 2024. Most beneficiaries at post-secondary level are women, primarily

from the Bergitka Roma group. Roma NGOs play an active role in implementation through integration projects and

daycare services, while mediators - over 75% of whom are women - serve as vital links between communities and

schools.

FEEDBACK FROM CIVIL SOCIETY: While some progress has been made in school attendance and the prevention

of early dropout, concerns remain regarding low participation in preschool education and persistent early school

leaving. CSOs emphasise the need for additional support for Roma children with limited Polish skills or from

migrant/refugee backgrounds, and for comprehensive data collection on educational outcomes to inform policymaking

effectively.

ASSESSMENT: Poland is encouraged to build on the progress made in education, by increasing preschool access and

attendance and reducing early school leaving. Continued support through Roma school mediators and scholarship

schemes provides a strong foundation and could be aided by more tailored guidance during key transitions, especially

from primary to secondary education. Inclusiveness would be improved by expanding support for pupils with limited

Polish skills, including Roma children from migrant or refugee backgrounds. Strengthening data collection and

monitoring systems would support more evidence-based policymaking. Ongoing cooperation with Roma NGOs and

inclusive educational practices can further contribute to equitable and sustainable outcomes.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: In Poland, access to employment opportunities for Roma is largely supported by ESF+

funding, which serves as the main policy tool for labour market integration. Progress is reflected in approximately 100

people being employed annually through programme projects and around 200 people benefiting each year from

subsidised employment, training or courses. Vocational and pro-vocational education remains a key focus, with nearly

300 participants recorded in 2024.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcome the progress that has been made, e.g. local employment

projects, vocational training, job placement support and Roma assistants supporting job seekers. However, under-

employment persists among Roma as a result of low education levels and discrimination on the labour market. CSOs

also emphasise the need for expanded employment support services and targeted training.

ASSESSMENT: Poland demonstrates continued commitment to Roma labour market integration through ESF+-

funded measures supporting employment, training and vocational education. These initiatives provide a solid

framework but their impact on sustainable employment remains limited, partly because the same individuals repeatedly

take part in project-based activities. Strengthening pathways into regular employment would enhance effectiveness.

Further work is needed to improve outreach and uptake by helping NGOs, local authorities and social institutions to

access available funds. Attention should also be given to supporting Roma refugees from Ukraine.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Poland continues to implement targeted measures to improve Roma health through the

NRSF, focusing primarily on health education, prevention and awareness raising. Participation in health-related

activities increased from 541 beneficiaries in 2023 to 950 in 2024. Measures promote healthy lifestyles, improve access

to healthcare services and provide psychosocial support, including for adults as part of lifelong learning. These efforts

build on earlier vaccination and prevention programmes. Implementation involves cooperation between national

authorities, local governments and NGOs, and supporting outreach at community level. While progress is noted,

challenges remain, including lower life expectancy linked to lifestyle and long-term social exclusion.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in healthcare coverage and vaccination rates

102

among Roma children. However, as Roma communities continue to face poorer health outcomes and limited access to

healthcare, the CSOs also call for research into Roma health and the inclusion of Roma health measures in national

programmes.

ASSESSMENT: Poland is encouraged to strengthen its approach by complementing existing prevention and health

education measures with more targeted measures to address the specific needs of Roma communities. Expanding

research on Roma health and improving data collection would contribute to evidence-based policymaking. Further

integration of Roma-specific health measures into national health programmes - alongside continued investment in

vaccination, health promotion and disease prevention initiatives - would help tackle persistent health inequalities and

improve access to healthcare, including for Roma refugees from Ukraine.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The NRSF prioritises improving housing conditions, particularly in areas where living

conditions pose risks to health or safety, focusing on the most vulnerable families. Support is provided through local

projects addressing structural challenges such as social housing shortages and unstable incomes, which often have

knock-on effects in terms of school attendance, payment of housing costs and professional activity. A regional task

force has been established to address the situation in the Roma settlement of Maszkowice. Measures are implemented

by local authorities and monitored at regional level by voivodeship offices. In 2024, 526 Roma people benefited from

housing-related measures. Other solutions, such as support for access to housing on the secondary market, are also

being explored.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight ongoing marginalization and spatial segregation of Roma,

who continue to face poor housing conditions, and legal and administrative challenges. They also call for integrated

strategies, increased involvement of local and central authorities, and active participation of Roma in decision-making

regards housing.

ASSESSMENT: Poland is encouraged to continue using the ERDF and broader cohesion policy support to improve

social and housing infrastructure. While these instruments help improve living conditions for disadvantaged groups,

including Roma, access is variable between different programmes and often depends on general eligibility criteria. As

housing measures are frequently implemented as mainstream rather than Roma-targeted actions, their impact on Roma

communities can be indirect. Ensuring that investments are better targeted and that Roma needs are more explicitly

reflected in programme design would lead to fairer housing outcomes.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRES: Poland’s NRSF has strengthened partnerships and institutional capacity through several

mechanisms. Voivodes’ plenipotentiaries for national and ethnic minorities regularly meet local stakeholders, including

Roma CSOs, to assess community needs. Roma representatives also participate in evaluation committees and

consultation meetings organised by the ministry of the interior and administration, to assess the effectiveness of

measures and cooperation with authorities. Continued cooperation with Roma CSOs has increased self-organisation

and participation in state activities at local, regional and central levels. A financial subsidy system helps CSOs to work

with national and ethnic minorities, with a view to boosting capacity building and leadership in Roma organisations.

FEEDBACK FROM CIVIL SOCIETY: CSOs report limited influence in policymaking, token input and minimal

involvement in the NRSF’s development. They also underline the importance of holding local authorities accountable,

particularly in housing and the need for long-term predictable funding and a flexible framework to ensure activity

continuity and responsiveness to crises.

ASSESSMENT: To strengthen Roma inclusion in Poland, authorities should move beyond consultative engagement

by ensuring Roma CSOs have meaningful influence in the design and implementation of the NRSF. They should also

be involved in ESF+ programming and participate in monitoring committees overseeing the implementation of ESF+.

Civil society participation would be helped by ensuring the accountability of local authorities, particularly in housing,

and by establishing long-term, predictable funding schemes. A more flexible policy framework and continued

investment in Roma leadership and organizational capacity are also needed to ensure continuity and effective crisis

response.

103

PROMISING PRACTICES

Under the programme for social and civic integration of the Roma community in Poland for 2021-2030, Poland

achieved significant progress in education. Examples of success include the reduction of Roma pupils’

overrepresentation in special schools and the increase in higher education attainment from 2.03% in 2011 to 13.42% in

2021. Central to this progress is the scholarship programme, which provides targeted financial support for primary,

secondary and university students. Recognised by civil society and the NRCP as a ‘most promising practice’, it helps

reduce financial barriers and supports Roma youth. These measures are backed by an annual budget of approximately

EUR 2.5 million, active Roma CSO involvement, and the permanent employment of around 80 Roma school mediators

promoting attendance and inclusive education296.

296 Available at: https://www.gov.pl/web/mniejszosci-narodowe-i-etniczne/programy-integracji-spolecznosci-romskiej.

104

Table 21 - Portugal

Portugal

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The most recent National Roma Strategic Framework (ENICC) expired in

2023 -– National Strategy for the Integration of Roma Communities297 Some

programmes continued to be implemented during the whole reporting period.

In early April 2026 the Government announced a new ENICC would be

adopted soon.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

24 210 (National Study on Roma Communities) 298

Council of Europe estimates: approximately 40 000-70 000 (0.52% of the

population)299.

NATIONAL ROMA CONTACT

POINT (NRCP) Agency for Integration, Migration and Asylum - AIMA, I.P.

NATIONAL ROMA CONTACT POINT

The NRCP is responsible for coordinating and monitoring the implementation of the National Roma Strategic

Framework. It has a dedicated team of six employees and plays an active role in mainstreaming Roma issues in social

inclusion policies and universal services. The NRCP coordinates key national programmes, including the Roma

associations support programme (PAAC)300, the national strategy support fund (FAPE)301, Roma Educa302, OPRE303

and ROMED304. However, its role remains consultative in both the design of social-inclusion policies and decision-

making on EU funds programming and monitoring, and it is not a full member of the monitoring committees. The

NRCP participates in Roma inclusion mainstreaming at regional and local level, including through the local Roma

integration plans developed in partnership with 19 municipalities, and the network of municipalities for Roma

inclusion.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Portugal reported progress in combating antigypsyism through Roma-focused initiatives

implemented under programmes such as PAAC and FAPE, promoting equal opportunities, citizenship education and

mediation, and combating discrimination. Between 2023 and 2025, 65 training courses on Roma history and culture

were given to 1340 participants, including education professionals, security forces, health and social services staff, and

other public-service workers.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge efforts to tackle antigypsyism, including through the

Escolhas305 [Choices] programme — now in its ninth generation — which with Roma community involvement

supports awareness-raising, deconstruction of stereotypes and combating discrimination and has been particularly

effective in its work with Roma children. However, CSOs point out that antigypsyism remains prevalent, including

297 Available at: https://commission.europa.eu/document/download/7fb47f06-aad5-407d-8126-

78024941fe2d_en?filename=roma_portugal_strategy2_en.pdf . 298 According to National Study on Roma Communities. Manuela Mendes; Olga Magano; Pedro Candeias, Estudo nacional sobre as

Comunidades Ciganas, ACM, I.P., Lisboa, 2014. You can access the study via the following link: https://repositorio.iscte-

iul.pt/bitstream/10071/15587/1/estudonacionalsobreascomunidadesciganas.pdf . 299 Available at: https://rm.coe.int/1680088ea9. 300 The Roma Associations Support Programme (PAAC) was established in 2017 to strengthen the

involvement of civil society (namely Roma communities) in the implementation of national Roma framework. 301 Available at: https://aima.gov.pt/pt/noticias/6-a-edicao-do-fape-resultados-finais. 302 Available at: https://aima.gov.pt/pt/noticias/resultados-finais-roma-educa. 303 Available at: https://aima.gov.pt/pt/noticias/9-a-edicao-opre-candidaturas-ate-20-de-dezembro-de-2024. 304 Available at: https://coe-romed.org/tags/portugal. 305 Available at: Programa Escolhas - IPDJ.

105

through hate speech on social media and by far-right politicians, with 48% of Roma respondents saying that they had

suffered hate-motivated harassment306. CSOs stress the need for stronger national campaigns to combat negative

narratives and for greater awareness of the Commission for Equality and Against Racial Discrimination (CICDR) and

its role in combating discrimination

ASSESSMENT: Portugal has taken steps to address antigypsyism through targeted initiatives, capacity-building and

awareness-raising, including 65 training courses attended by 1340 people. However, antigypsyism remains prevalent,

with 48% of Roma respondents reporting hate-motivated harassment. Strengthening national campaigns to counter

negative narratives — particularly in social media and public discourse — and raising the profile among Roma

communities of the CICDR would strengthen Portugal’s approach to combating discrimination and improving access to

redress mechanisms.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Portugaldid not report on this objective

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge the adoption of the National Strategy to Combat

Poverty (ENCP) and its Action Plan307, but report no significant progress in reducing poverty and social exclusion

among Roma during the reporting period. They highlight the absence of ethnicity-disaggregated statistical data and the

lack of a Roma-specific objective within the strategy and argue that effective measures should address the structural

causes of poverty affecting Roma communities.

ASSESSMENT: In 2023, Portugal adopted the ENCP, which provided robust framework for addressing poverty and

social exclusion, to be implemented through two action plans covering 2022–2025 and 2026–2030. However, no

progress has been reported in reducing poverty and social exclusion among Roma, and the strategy does not include a

Roma-specific objective. The absence of ethnicity-disaggregated data limits monitoring and targeted action.

Strengthening implementation through measures that address the structural causes of poverty and better reflect the

specific needs of Roma communities would improve outcomes for Roma.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Key achievements under this objective include support for projects through the PAAC

and FAPE programmes, promotion of Roma women speech circles initiatives308 in 2023 and 2024, and the delivery of

training and awareness-raising sessions on Roma history and culture. Low Roma participation in targeted projects and

events was identified as a challenge, to which Roma associations and CSOs responded by prioritising participation,

including through initiatives promoting women’s active involvement, encouraging Roma to vote, and social media

outreach.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight the role of the consultative council for the integration of

Roma communities (CONCIG)309 in facilitating dialogue and Roma community participation, and the contribution of

initiatives such as PAAC and FAPE to civic engagement. CSOs emphasise the importance of i) ensuring CONCIG’s

continuity and reinforcing its role and member commitment, ii) further developing the financial and training capacity of

Roma associations, and iii) approving a contrato de carreira [formal career structure] for intercultural mediators to

address their precarious employment conditions.

ASSESSMENT: Portugal has made progress in Roma participation through the CONCIG, PAAC, and FAPE and

targeted community initiatives. Boosting the CONCIG, alongside stable funding and capacity-building for Roma

associations, would consolidate these gains. Ensuring that intercultural mediators — highlighted by civil society —

have a formal career structure would be a helpful step towards addressing their precarious employment conditions,

which would boost their contribution to dialogue between Roma communities and public institutions.

306 European Union Agency for Fundamental Rights – Roma Survey 2024.available at: https://fra.europa.eu/en/publications-and-

resources/data-and-maps/2025/roma-survey-2024. 307 Available at: Estratégia Nacional de Combate à Pobreza: Governo apresenta mais de 270 medidas - XXIII Governo

Constitucional. 308 Available at: Novo Programa de Debate entre Mulheres Ciganas - Agência para o Desenvolvimento e Coesão. 309 Portal Autárquico - Conselho Consultivo para a Integração das Comunidades Ciganas (CONCIG).

106

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Portugal reported continued progress in the Roma Educa310 and OPRE311 scholarship

programmes. OPRE is aimed at higher-education students from Roma communities, providing university scholarships,

training, mentoring and monitoring support for scholarship holders and their families, with the overall aim of

preventing early dropout. Roma Educa aims to reduce barriers between Roma and the formal education system, by

supporting the education of Roma children and young people and preventing early school leaving. Between 2023 and

2025, 777 applications were received, and 420 scholarships were awarded under Roma Educa.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge progress in improving access to education for Roma

students through programmes including OPRE, Roma Educa and the educational territories of priority intervention

programme. However, they note that discrimination in education persists, with only 8% of Roma aged 20 - 24 having

attained at least upper secondary education, compared to 85% for non-Roma. CSOs call for wider dissemination of

successful programmes such as OPRE and Roma Educa to reach more Roma students and highlight the prevalence of

hate-motivated bullying and harassment of Roma pupils in schools.

ASSESSMENT: Portugal has developed targeted initiatives to support Roma students' participation and progression in

education. However, deep inequalities persist - in 2024, only 8% of Roma youth aged 20–24 had completed upper

secondary education, and 31% of Roma children and parents said they had experienced discrimination. The absence of

a renewed National Roma Strategic Framework means there is no strategic direction and multiannual financial planning

for Roma education measures. Expanding successful programmes such as OPRE and Roma Educa and strengthening

anti-discrimination measures in schools would contribute to more inclusive learning environments and progress

towards achieving EU-level education objectives.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Portugal reported progress in promoting Roma access to employment through projects

supported under PAAC and FAPE. The Roma women speech circles initiative contributed to women’s empowerment

and participation, while training and awareness-raising sessions on Roma history and culture were delivered to

stakeholders. The '100 prejudice' project312 promoted a campaign with three messages from Roma community

workers, and the 'Roma models II' project provided nine-month training courses on cleaning services for 12 Roma

participants, promoting their employability. Despite these efforts, a significant gap in Roma employment access

persists.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight that the previous calls under the operational programme

supported employability through work-based experience, entrepreneurship and awareness-raising among employers.

They note that a new call under Pessoas 2030 programme which is aimed at helping vulnerable groups to access the

labour market. CSOs stress the need for i) stronger and more systematic engagement with employers to address

persistent stereotypes and discrimination, ii) greater continuity beyond short-term project funding, and iii) increased

investment in education and training to improve Roma access to sustainable employment.

ASSESSMENT: Portugal has implemented targeted initiatives to support Roma access to employment and labour

market inclusion. However, only 21% of Roma declare paid work as their main activity, and the proportion of women

in the labour market is very low313. Building on past experiences, priorities include strengthening employer awareness

to address stereotypes and discriminatory practices and promoting access to the formal labour market. Moving from

predominantly project-based measures towards more sustainable and integrated national approaches would support

longer-term labour-market inclusion. Continued investment in education and training would help improve

employability and narrow the significant employment gap

310 Available at: programa-roma-educa_regulamento-7a-edicao.pdf. 311 Available at: https://aima.gov.pt/media/pages/noticias/9-a-edicao-opre-candidaturas-ate-20-de-dezembro-de-2024/a2c70bd68a-

1733256916/regulamentoopre_9aed.pdf. 312 Example: Já conhece o projeto Gaia 100 Preconceito? - Cidadãos Ativos. 313 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024.

107

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Portugal reported progress in supporting Roma health inclusion through the

implementation of three projects funded under PAAC and four projects supported by FAPE. The projects focused

mainly on awareness-raising campaigns and sessions for healthcare professionals and Roma communities. Training and

awareness-raising sessions on Roma history and culture were also given to health professionals. The main challenges

are: i) reducing the gap in life expectancy between Roma and the general population – estimated at around 6.5 years in

Portugal and ii) improving effective access to healthcare.

FEEDBACK FROM CIVIL SOCIETY: CSOs welcome the diversity and inclusion committee314 established in

Lisbon in 2019, which includes the only Roma mediator formally recognised within a hospital setting in Portugal. They

view the committee as a positive step towards improving access and trust in healthcare services. They underline

persistent challenges, including limited health literacy among Roma communities, the absence of updated and

systematic data on Roma health outcomes, and the lack of a structured framework for the wider deployment of

intercultural mediators. 37%315 of Roma people reported experiencing discrimination in the healthcare sector, and

around one-fifth of Roma women had never visited a gynaecologist.

ASSESSMENT: Portugal has taken initial steps to promote Roma inclusion in healthcare through targeted projects and

awareness-raising initiatives. Further progress could be achieved by i) strengthening the evidence base on Roma health

outcomes, ii) improving health literacy and health education, particularly for Roma women and girls, and iii) expanding

the presence of Roma and intercultural mediators in healthcare settings, supported by a formalised career framework.

Such measures would help reduce access barriers, improve communication with health providers, address

discriminatory practices, and contribute to narrowing the persistent life expectancy gap between Roma and the rest of

the population.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Portugal reported targeted actions to raise institutional awareness and improve local

practices in the housing sector. Training on Roma history and culture was delivered to staff of the Institute for Housing

and Urban Rehabilitation to promote greater sensitivity to the specific situations of Roma communities as well as the

establishment of the Support Unit for Roma Communities (NACI)316. At local level, some municipalities — such as

Paredes — implemented measures to improve housing conditions for Roma families, including the replacement of

informal settlements with access to adequate social housing. These initiatives illustrate the potential impact of locally

driven solutions when adequate support and coordination are in place.

FEEDBACK FROM CIVIL SOCIETY: According to CSOs access to decent housing is the area in which progress

has been slowest. Roma communities continue to face precarious living conditions characterised by i) territorial

segregation, ii) discrimination in the rental housing market, iii) inadequate and overcrowded social housing, and iv)

poor conditions in informal settlements without access to basic services. The expensive rental market further deters

vulnerable groups, as also noted by the ECRI.317

ASSESSMENT: In terms of Roma inclusion in Portugal, the objective with the lowest achievement rate is housing.

78% of Roma in Portugal live in housing deprivation318, compared to 33%319 of the general population. While some

municipalities have taken positive steps, persistent territorial segregation, discrimination in the rental market and rising

housing prices continue to restrict access to adequate housing, including for Roma communities. A more systematic

national approach is needed to deliver meaningful progress. Following the mid-term review, there has been an increase

in ERDF investment in social and affordable housing, albeit not explicitly aimed at Roma. Further consideration could

be given to targeting Roma communities in existing housing programmes.

314 Available at: Comissão da Diversidade e Inclusão – ULS de São José. 315 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024. 316 Available at: Núcleo de Apoio às Comunidades Ciganas (NACI) - gov.pt. 317 Available at: European Commission against Racism and Intolerance (ECRI) - Homepage - European Commission against

Racism and Intolerance (ECRI). 318 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024. 319 Available: Eurostat, (online data code tessi291), https://ec.europa.eu/eurostat/databrowser/view/tessi291/default/table?lang=en.

108

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: At local level, the NRCP enabled Roma representatives and pro-Roma CSOs to take part

in the design, implementation, monitoring and review of national Roma strategic frameworks and local action plans.

The CONCIG comprising eight Roma associations, was responsible for monitoring implementation and reviewing the

strategy until the last NRSF expired in 2023. Cooperation with local authorities through i) the local Roma integration

plans320 developed in partnership with 19 municipalities and ii) the network of municipalities for Roma inclusion

(MUPICC, comprising 35 municipalities)321, which were coordinated by the NRCP with a view to promoting good

practices at local level.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that CONCIG has allowed Roma communities to monitor the

strategy, but express concern that it is unclear whether this structure will continue under the new strategy. Some

CONCIG members — ministries and public bodies — lacked sufficient knowledge of Roma communities, which

hinders the effectiveness of dialogue and monitoring. Following the transfer of responsibilities for Roma inclusion to

AIMA, CSOs note that the focus has shifted largely to migrants and away from Roma communities. The internal

monitoring team still exists but has not been reinforced. CSOs call for Roma associations to be strengthened with

sufficient financial and human resources to enable more effective lobbying and political participation.

ASSESSMENT: Portugal’s National Roma Integration Strategy (2013–2023) expired at the end of 2023. During the

reporting period, Roma-related measures continued to be implemented through mainstream and targeted programmes,

including support for Roma civil society, education, employment and participation. However, the absence of a renewed

National Roma Strategic Framework poses challenges to consistency, coordination and systematic monitoring across

policy areas. The adoption of an updated framework, developed through public consultation and aligned with the EU

Roma Strategic Framework, would support continuity, clearer governance arrangements, stronger partnerships with

Roma civil society and more consistent progress towards EU-level objectives.

PROMISING PRACTICES

The National Strategy for the Integration of Roma Communities 2013-2023 established aconsultative council for the

integration of Roma communities (CONCIG), comprising: i) representatives of seven ministries (internal

administration, justice, economy and labour, housing, health, education, and solidarity and social security), ii) regional

governments of Madeira and the Azores, iii) municipalities and civil parishes (third-level administrative units), iv) two

civil society organisations, v) four Roma associations, vi) two higher education or research institutions, and vii) two

individuals. It played an important role in monitoring the strategy with the participation of Roma.

The Diversity and Inclusion Commission of the Local Health Unit of São José Hospital created in 2019, promotes

inclusive and culturally sensitive healthcare practices. ULS São José was the first public hospital to sign the Portuguese

Charter for Diversity.

320 Available at: Apoio para planos locais de inclusão da população cigana em Lisboa - Portugal 2030. 321 Available at: https://tinyurl.com/4en8svj5.

109

Table 22 - Romania

Romania

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

Strategy for the inclusion of Romanian citizens belonging to the Roma

minority for the period 2021-2027322

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

569 500 (2021 Census of the Population and Households)323;

Council of Europe estimates: approximately 1.85 million (8.32% of the

population in 2012)324

NATIONAL ROMA CONTACT

POINT (NRCP) Ministry of Investments and European Projects.

NATIONAL ROMA CONTACT POINT

The Ministry of Investments and European Projects (MIEP) serves as NRCP in Romania. It was reported that the

NRCP operated with a budget of EUR 203 653 43 and two staff members, which leaves it inadequately resourced for

its workload. Two bodies oversee the National Roma Strategy: the National Agency for Roma (NAR), which develops,

implements, monitors and revises the strategy, and the NRCP, which monitors and evaluates the strategy alongside the

NAR, relevant ministries and local authorities. The NRCP also participates in the Interministerial Committee for the

Implementation, Monitoring and Evaluation of the Strategy (CIIMES). In addition, the NRCP is involved in EU

programme monitoring committees (one national and eight regional schemes). A key project implemented by the

NRCP was an assessment of the impact of ESF-funded actions on Roma poverty and social inclusion during the 2014-

2020 period, providing solid evidence on these actions for the development of public policies.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The most significant anti-discrimination achievement was a collaborative project between

the Romanian Police and the Civic Union of Young Roma (UCTRR) to combat hate crimes and build community trust.

This initiative offered counselling and outreach to over 25 000 people, assisted approximately 1 000 individuals in

obtaining identity documents, and provided institutionalised anti-discrimination training through hundreds of annual

seminars for police and citizens. In addition to this, the Ministry of Education bolstered school inclusion by training

nearly 100 educators in intercultural dialogue and embedding anti-segregation and human rights topics into teacher-

training curricula.

FEEDBACK FROM CIVIL SOCIETY: The COACH programme (‘Countering Online Antigypsyism and

Cyberhate’, 2022-2024), which promoted positive narratives, helped establish dialogue networks between NGOs and

authorities, and developed targeted staff training, has raised awareness and fostered dialogue to combat antigypsyism.

However, efforts remain uneven, with no systematic inclusion of key sectors, such as health, justice and the media, and

persistent gaps in legal frameworks, reporting mechanisms and responses to online antigypsyism. Furthermore, the lack

of measurable indicators, continued underreporting of anti-Roma incidents, and insufficient action by digital platforms

limit the overall effectiveness of measures to combat discrimination.

ASSESSMENT: Romania has taken some concrete steps to tackle antigypsyism which, if scaled up and turned into

long-term programmes, could help improve awareness and tackle discrimination. However, antigypsyism remains

deeply rooted in historical legacies linked to Roma slavery and the Holocaust, which continue to be insufficiently

reflected in public memory, education and institutional practice. Anti-Roma stereotypes and negative narratives remain

322 Romanian Strategy for the Inclusion of Romanian Citizens Belonging to the Roma Minority for the Period 2021-2027 (NRIS):

https://commission.europa.eu/system/files/202210/1_1romania_national_roma_strategic_framework_2022_2027.pdf . 323 Population and housing Census in Romania: https://insse.ro/cms/en/content/population-and-housing-census-romania-2021-

round-synthetic-results . 324 Available at: https://rm.coe.int/1680088ea9.

110

present in public discourse. Further efforts are needed to address antigypsyism through more structural cross-sectoral

measures underpinned by measurable results and targeted funding.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: Romania did not report on this objective, as it is not explicitly included in the 2022-2027

National Roma Inclusion Strategy. However, related measures under education and employment objectives indirectly

contribute to reducing poverty and social exclusion and narrowing the socio-economic gap between Roma and non-

Roma.

FEEDBACK FROM CIVIL SOCIETY: CSOs note that the NRIS addresses Roma poverty as part of broader

structural inequalities, supported by ESF+ project funding. However, it lacks Roma-specific objectives or targeted

measures, relying instead on project-based initiatives rather than long-term systemic investments.

ASSESSMENT: While the NRIS recognises Roma as a socially vulnerable group and contains some measures that

target them specifically, the lack of clear targets and indicators, such as proxy indicators (e.g. socio-economic situation

or segregation) makes evaluation challenging. It is therefore necessary to better ensure and monitor that Roma have

access to and benefit from mainstream measures that aim to reduce poverty and social exclusion. Further efforts are

needed to reduce poverty and social exclusion among Roma communities (68% of Roma were at risk of poverty in

2024, compared to 19% of the general population) – and especially child poverty (75% of Roma Children were at risk

of poverty in 2024, compared to 25% of children in general)325 – by improving access to integrated social protection,

education and employment services. Sustained and stable funding should also be ensured.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Romania did not report on this objective, referring instead to the NRIS’ general objective

of enhancing the quality of life of Romanian citizens belonging to the Roma minority through active citizenship, socio-

economic inclusion and the promotion of Roma cultural heritage. It was reported that this overarching goal is pursued

indirectly via the pursuit of all the Strategy’s specific objectives, which address areas such as education, employment,

health, housing, anti-discrimination and participation.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that in 2024, the National Agency for Roma and the Ministry

of Internal Affairs developed training for future police and border officers on discrimination, hate speech and ethics.

Thematic working groups comprising ministries and other central institutions responsible for implementing the NRIS

review its implementation and are expected to include Roma NGOs in this work, thereby enhancing civil society

participation. However, the Strategy currently lacks concrete measures to build Roma CSO capacity, and this should be

addressed in future revisions.

ASSESSMENT: Romania has integrated the EU objective of promoting participation into its NRIS as a cross-cutting

goal focused on active citizenship and Roma cultural heritage. Participation is mainly addressed through sectoral

measures, particularly in education and employment, rather than through a dedicated policy pillar. As a result, there is

limited dedicated funding and no standalone targets or indicators. Formal consultation structures exist through CIIMES

and EU fund monitoring committees, which provide a basis for dialogue with Roma stakeholders. Strengthening these

mechanisms through clearer outcome-oriented indicators, dedicated resources and improved monitoring could help

ensure that Roma civil society participation translates more effectively into policy influence and measurable socio-

economic outcomes.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Romania’s most important achievement was the increase in Roma student enrolment,

which reached over 114 000 in December 2024. This progress resulted from expanded support programmes such as the

‘Healthy Meal’ and ‘After-School’ programmes, scholarships and free transport. The hiring of 464 new school

mediators, dropout monitoring via the MATE platform, and Roma parents’ engagement in over 1 300 activities also

325Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024.

111

contributed to this progress. Cooperation between the Ministry of Education, school inspectorates, local authorities and

NGOs was key to achieving this outcome. Meanwhile, the Ministry of Internal Affairs (MIA) increased the number of

places reserved for Roma candidates in competitions organised by MIA-run educational institutions from 5 to 15 per

year. In addition, some intercultural training for teachers was organised, including training on combating discrimination

and on intercultural education.

FEEDBACK FROM CIVIL SOCIETY: CSOs stress that in 2023-2024, the National Programme for Reducing

School Dropout (PNRAS)326 which provides comprehensive support to reduce school dropout rates, reached 25 000

Roma students. At the same time, reserved places enabled over 3 000 Roma to access secondary and higher education.

A dedicated thematic working group in the Ministry of Education monitors implementation, but local capacity gaps,

persistent school segregation and the fact that Roma history courses remain optional limit the impact of inclusive

education policies.

ASSESSMENT: Romania has expanded support measures for Roma education, contributing to higher enrolment and

better access to scholarships, school meals, transport, and dropout prevention programmes. Progress has also been

supported by stronger institutional cooperation, additional school mediators, and affirmative measures. However, Roma

participation in education remains below the national average at all levels. Only 40% of Roma children attend early

childhood education and care (ECEC), compared to 75.7% nationally327, while early school leaving affects 60% of

Roma aged 18-24, compared to 16.8%328 of the general population. School segregation and uneven implementation of

measures, especially in rural and isolated areas, continue to limit equal access to education329. Romaniais encouraged

now to scale up successful measures nationally and strengthen desegregation efforts. Further, the intertwining of spatial

and educational segregation needs to be addressed with legislative actions, that further foster access to mainstream

schools for pupils who attend segregated schools and with an effective implementation of the methodology against

school segregation (nr. 7701/2024).

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: The NRCP reported that Roma have access to the full range of active labour market

measures provided by the National Employment Agency (ANOFM), including job mediation, vocational training, and

apprenticeships. A primary challenge is to foster a safe and inclusive environment for voluntary ethnic self-declaration,

as many individuals remain hesitant due to historical marginalization and the fear of discrimination. Furthermore,

efforts are focused on addressing socio-cultural barriers to employment and promoting the economic empowerment of

Roma women to encourage their active participation in the labour market. While no ESF-funded projects were

implemented during the period under consideration, new initiatives under the 2021-2027 programme were launched in

April 2025, supported by national and unemployment insurance budgets.

FEEDBACK FROM CIVIL SOCIETY: CSOs report that targeted employment measures have supported Roma

labour market inclusion, with over 1 700 Roma employed across 2023-2024 and more than 1 300 participating in

training, along with progress in integrating young Roma not in education, employment or training (NEETs). However,

persistent gaps remain, disaggregated data are limited, skill levels and access to training and counselling remain low,

technological and administrative barriers hinder participation, coordination between education and labour authorities is

weak, the Roma NEET rate remains very high, and stronger action is needed to address discrimination and ensure more

effective and inclusive employment pathways.

ASSESSMENT: Romania has continued to support Roma labour market inclusion through active labour market

measures, vocational training, apprenticeships, and targeted support programmes. In 2023–2024, over 1 700 Roma

gained employment and more than 1 300 participated in training measures, while new ESF-funded initiatives under the

2021-2027 programme were launched in 2025. Despite these efforts, Roma remain underrepresented in the labour

market, with only 59% in paid work. Meanwhile, 42% of young Roma are (NEETs)330 Rising levels of perceived

326 The National Programme for Reducing School Dropout (Programul Național pentru Reducerea Abandonului Școlar) is a

Romanian PNRR-funded programme that aims to reduce early school leaving by supporting vulnerable students through remedial

education, counselling and targeted school interventions. https://pnrr.edu.ro/despre-pnras/. 327 Available at: Eurostat, (online data code educ_uoe_enra21),

https://ec.europa.eu/eurostat/databrowser/view/educ_uoe_enra21/default/table?lang=en. 328 Available at: Eurostat, (online data code edat_lfse_14),

https://ec.europa.eu/eurostat/databrowser/view/edat_lfse_14__custom_22322300/default/table. 329 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024. 330 Available at: https://pnrr.edu.ro/despre-pnras/.

112

discrimination further impede their integration into the labour market (27% of Roma report discrimination when

looking for a job). Romania should strengthen targeted activation measures, improve access to training and counselling,

and reinforce action against labour-market discrimination and antigypsyism.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: The NRCP did not report on this objective, stating that in Romania data on ethnicity are

not collected by health practitioners, which makes it difficult to assess the real number of Roma beneficiaries.

According to the report, Romania ensures equal access to medical services for all citizens, whether insured or

uninsured. Community healthcare services monitor and report on the health status of vulnerable groups, including

Roma communities, based on medical, social and economic criteria. In addition, under the Health Programme, the

ESF+ component of Priority 1 targets vulnerable groups such as the Roma minority by improving the quality of

primary and community healthcare, expanding outpatient services, and strengthening preventive care.

FEEDBACK FROM CIVIL SOCIETY: Romania has expanded Roma health inclusion efforts through integrated

community services in 125 marginalised areas and strengthened coordination structures such as the Technical Working

Group on Community Integrated Healthcare Centres established in 2022 and the Ministerial Commission for Roma.

The number of Roma health mediators has increased since 2022, and partnerships with Roma NGOs have been

formalised. However, gaps remain, including the absence of systematically disaggregated data, limited rural health

infrastructure, low health literacy and continued discrimination. Community health teams and centres require increased

funding and stronger oversight, and there is still a need for trust-building measures and culturally sensitive outreach.

Key shortcomings in the NRSF Health Action Plan, such as low annual check-up rates and insufficient prenatal care

among Roma women, should be addressed as part of the next revision.

ASSESSMENT: Romania has expanded Roma health inclusion efforts through integrated community services in 125

marginalised areas, stronger cooperation structures, and increased involvement of Roma health mediators and NGOs.

ESF+ funding also supports improvements in primary, outpatient, and preventive healthcare for vulnerable groups,

including Roma communities. However, challenges remain, particularly the lack of ethnicity-disaggregated data,

limited rural health infrastructure, low health literacy, and continued discrimination. 14% of Roma in Romania felt

discriminated against when accessing healthcare in 2024 331. Romania should boost funding and improve oversight of

community health services, access to mainstream healthcare services and tailored measures that facilitate this access

(e.g. mobile health reams, screening programmes etc.) and continue scaling up Integrated Community centres. Further

efforts should focus on strengthening maternal and preventive healthcare, establishing more systematic monitoring

mechanisms to track progress, reinforcing partnerships with Roma organisations and expanding community outreach

initiatives to help reduce persistent health inequalities and ensure that services reach Roma communities

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: To tackle residential segregation challenges, the Ministry of Development, Public Works,

and Administration (MDPWA) initiated the ‘Social housing for Roma communities’ pilot programme, as per

Government Decision 1237/2008. This program aims to enhance social inclusion by providing decent living standards

for Roma, including the construction of 300 social units across Romania’s eight regions.

FEEDBACK FROM CIVIL SOCIETY: CSOs consider that Romania still faces major obstacles to equal,

desegregated housing for Roma, including persistent local segregation, frequent forced evictions without alternatives,

and burdensome administrative requirements that limit access to utilities and services. A severe shortage of social

housing and weak anti-discrimination safeguards further hinder progress. A coherent medium-term strategy with clear

indicators, adequate funding, and strong Roma participation is still missing.

ASSESSMENT: Romania has taken initial steps to address Roma housing exclusion through the pilot programme

‘Social housing for Roma communities’, which provides for the construction of 300 social housing units across all

eight regions. However, Roma households continue to face severe housing deprivation: 86% live in overcrowded

housing, 56% experience housing deprivation, and 28% lack running water inside the dwellings332. Romania should

strengthen implementation of its housing and Roma inclusion strategies, increase investments in desegregated social

331 Available at: https://fra.europa.eu/en/project/2024/roma-survey-2024. 332 Available at: https://pnrr.edu.ro/despre-pnras/.

113

housing and complementary social inclusion measures distributed across non-segregated neighbourhoods, improve

accountability of local authorities, and ensure stronger anti-discrimination safeguards and Roma participation in

housing policies.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: In Romania, the NRCP and the NAR jointly oversee the National Roma Inclusion

Strategy, with the NRCP responsible for monitoring, evaluation and cooperation with the NAR, ministries and public

bodies. It also participates in the Interministerial Committee (CIIMES). Local CSOs contribute via consultations, while

mayors and local councils implement the strategy through local action plans, supported by local working groups

(LWGs) comprising authorities, NGOs and community representatives, and Roma-led local initiative groups (LIGs) to

identify needs and solutions. The NRCP works with the Ministry of Internal Affairs (MIA) and the National Council

for Combating Discrimination (NCCD) through thematic working groups and joint events. Under the Evaluation of

Roma Inclusion measures project (ERIM), the NCCD provided guidance on tackling discrimination and shared the

results of evaluations of ESF-funded Roma inclusion measures.

FEEDBACK FROM CIVIL SOCIETY: CSOs noted that the views of Roma NGOs are not always fully considered

during the design of the NRSF, and that their involvement during the implementation process is limited to project-level

activities funded by EEA grants and ESF+ programmes. As regards monitoring, NGOs participate as observers in

CIIMES meetings and in county-level mixed working groups, but they have not yet been involved in the review

process, which remains pending due to political constraints

ASSESSMENT: To strengthen Roma inclusion, Romania should improve the availability of disaggregated data and

strengthen coordination both across ministries and between national and local authorities to better target Roma

communities. Authorities should also ensure that Roma and pro-Roma CSOs are fully involved in the design,

implementation, monitoring and review of the NRSF, and not just in specific projects. Formalising the role of CSOs in

monitoring and evaluation, addressing delays in the review process and strengthening feedback mechanisms within

coordination structures would improve transparency and accountability. Expanding support for Roma-led organisations

and systematically integrating their input into policymaking would help translate local participation into more

sustainable and impactful outcomes.

FUNDING

Roma inclusion in Romania is funded through national, EU, and international sources. The largest investments

targeting education (more than EUR 390 million), encompassed broad national education expenditures and major

programmes such as PNRAS333, the MATE334 platform, school transport, meals, scholarships, and ’Second Chance’

education to reduce dropout rates. Housing and infrastructure received EUR 1.97 billion through national schemes,

informal settlement projects, and programmes like Anghel Saligny programme. Anti-discrimination measures received

EUR 2.35 million, which helped fund the ’Integrated Action to Combat Hate Crimes’ project, including awareness

campaigns, training, and community interventions. Under ESF+, EUR 340.5 million was allocated, including EUR 56.7

million for Roma-specific or mainstream inclusion measures in education, healthcare, and social inclusion, alongside

Community led Local Development and material support for vulnerable groups. Health services were funded through

general health funding, without Roma-specific budgets. A forthcoming JRC report (JRC147984) corroborates this

evidence finding positive impact of ESF-funded interventions on a series of outcomes related to poverty reduction,

access to health services and school enrolment.

MONITORING AND EVALUATION

Romania’s NRSF defines quantitative targets for all EU-level objectives, except Objective 2 (Poverty and social

exclusion) and Objective 3 (Participation), and qualitative targets for Objective 4 (Education) and Objective 7

(Housing). It also includes indicators for monitoring progress achieved under all EU-level objectives, except Objectives

2 and 3. None of these indicators correspond to the EU-level headline or secondary indicators. Instead, they refer to the

outputs of specific measures (number of …). Targets to be reached by 2027 are defined for about half of these

indicators. The country has established a mechanism for monitoring and evaluating the NRSF. Roma or pro-Roma

333 Available at: https://pnrr.edu.ro/?utm_. 334 Available at: https://pnrr.edu.ro/despre-mate/?utm_.

114

CSOs are engaged in monitoring the implementation of the NRSF.

PROMISING PRACTICES

The police has taken important steps to improve its institutional capacity to prevent, discover and investigate antisocial

acts with a discriminatory motive. An important part of the institutional efforts to achieve these objectives are made

within the project ‘Integrated action for combating hate crimes, particularly against Roma communities, and ensuring a

high-quality standard of police service”335. The project is financed by the Norwegian Financial Mechanism 2014-2021,

and the main achievements were presented during a conference held on 2 April 2024 in the city of Constanța. During

this period, 200 police officers participated in academic training courses in the field of preventing and combating this

type of crime. Police officers in operative structures will develop new skills to identify and address issues specific to

the Roma community and other vulnerable groups. The academic training sessions have been developed on the basis of

a partnership agreement between the Romanian police and the Institute for the Research of the Quality of Life in

Romania – the Romanian Academy.

The Ministry of Labour, Family, Youth and Social Solidarity, together with the Ministry of Health and the Ministry of

Education, is implementing a flagship project under the Social Inclusion and Dignity Programme that aims to establish

integrated social, health and educational services in 2 000 rural communities across Romania. The project aims to

support at least 450 000 vulnerable persons. The initiative aims to improve access to social services, healthcare and

educational support through coordinated, community-based work, including outreach to Roma populations in

underserved areas.336

335 Available at: https://politiaromana.ro/en/news-and-media/info/integrated-actions-to-combat-hate-crimes. 336 Available at: https://www.edu.ro/SCI_2000_editabil.

115

Table 23 - Slovenia

Slovenia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The Slovenian NRSF, entitled ‘National Programme of Measures for Roma of

the Government of the Republic of Slovenia for the Period 2021–2030’337,

outlines the situation and the measures to be implemented across horizontal

and sectoral goals. Adopted in 2021, the NRSF contains target deadlines for

2030.

ESTIMATED ROMA

POPULATION

Council of Europe estimates (plus

national census data, where available)

Civil society estimates: the Roma population exceeds 12 000338

Council of Europe estimates: approximately 8 500 (0.41% of the

population)339.

NATIONAL ROMA CONTACT

POINT (NRCP) Government Office for National Minorities

NATIONAL ROMA CONTACT POINT

During the 2023-2025 period, the NRCP operated with an annual budget of EUR 7 000 000, sourced from both EU and

national funds. The tasks of the NRCP are performed by one person on average, and additional resources would be

required for the tasks involved. The NRCP plays a key role in shaping social inclusion policies for Roma. It

collaborates with a network of coordinators from ministries, municipalities, public fund authorities, the Housing Fund

and the Roma Community Council, all of which report on the NRSF’s implementation. It engages in dialogues with

municipalities and offers help with drafting municipal action plans or tackling specific challenges affecting Roma at

local level. The NRCP and Roma Community Council participate in the work of the monitoring committee of the

European Cohesion Policy Programme without voting rights.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: The most significant achievement in combating antigypsyism was improved training for

police officers and public servants working with Roma communities, alongside heightened awareness among both the

majority population and Roma themselves. The Roma Community Council of Slovenia, as the umbrella Roma

organisation, played a key role in these efforts, while also reporting on harmful practices like child marriages and

forced marriages. Under the National Platform for Roma project, activities included an event focusing on

discrimination, antigypsyism and the role of the media. Financial support is provided to Roma and pro-Roma CSOs to

boost Roma inclusion, especially at local level.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight worrying tensions between Roma and non-Roma

populations, exacerbated by local politicians. The rise of discrimination against Roma is evidenced in a series of

incidents between 2019 and 2025, including protests against Roma. CSOs highlight persistent discrimination in

housing and employment, alongside physical abuse, hate speech and hate crimes against Roma. They also recommend

increasing Roma employment in the public sector to counter stereotypes and implementing anti-discrimination

measures at local level. These measures should be designed by the Office of the Ombudsman and monitored by an

independent body.

ASSESSMENT: Antigypsyism in Slovenia has reportedly intensified in recent years, in part due to a violent incident

that reinforced negative stereotypes linking Roma communities to criminality. Increased public tensions and protests

337 Available at: https://commission.europa.eu/document/download/408177c9-7a81-4541-bf59-

c1286bffe78a_en?filename=slovenia_-_national_roma_strategic_framework_21_30_en.pdf.

338 Number agreed upon by the Roma civil monitoring coalition in Slovenia.

339 Available at: https://rm.coe.int/1680088ea9.

116

have contributed to a heightened sense of insecurity among Roma communities. Concerns have also been raised

regarding the proposed ‘Šutar Law’340, notably its potential disproportionate impact on Roma communities through

expanded police powers in designated ’high-risk’ areas. While awareness-raising initiatives continue, stakeholders

stress the need for stronger measures at local level, effective oversight and greater Roma participation in public

institutions to support inclusion and address discrimination in areas such as housing and employment.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: The NRSF does not explicitly target poverty reduction, addressing it instead through

broader objectives related to social security, integration, and social inclusion. Progress includes the annual co-funding

of 6-10 social programmes aimed at empowering Roma communities, the establishment of 19 Multipurpose Roma

Centres and 5 multigenerational centres, and NGO initiatives supporting Roma women and girls. For Roma children,

financial assistance, school assistants, and tailor-made kindergarten programmes support early education and inclusion.

Innovative teaching approaches that promote cultural heritage and individualised learning have also contributed to

improved educational engagement and progression.

FEEDBACK FROM CIVIL SOCIETY: CSOs recommend that future updates of the NRSF align it more closely

with the EU Roma Strategic Framework by explicitly introducing a specific objective on reducing poverty and social

exclusion. This alignment would improve monitoring and reporting processes. They also suggest consolidating

measures from various sectoral objectives under a single section to pursue this horizontal goal more effectively.

Finally, stronger state action is needed to address the needs of particularly vulnerable groups, such as young people not

in education, employment or training (NEETs) and Roma women and children, who are at higher risk of exclusion.

ASSESSMENT: Slovenia could strengthen the effectiveness of its Roma inclusion policies by ensuring that social

protection, empowerment and poverty-reduction programmes are implemented more consistently across regions with

large Roma populations. Future updates of the NRSF could align it more closely with the EU Roma Strategic

Framework through the introduction of a dedicated objective on reducing poverty and social exclusion. Bringing

together measures currently dispersed across sectoral objectives in a more coherent framework could improve

coordination, monitoring and impact. Greater focus on vulnerable groups, including NEETs and Roma women and

children, could also help achieve more inclusive and sustainable outcomes in terms of integration.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: Roma communities have been actively involved in the preparation, design and monitoring

of the NRSF through the Roma Community Council, which also contributes to government annual reports. It co-

finances radio programmes to promote balanced Roma representation, preserve Roma language and culture, and

highlight examples of positive coexistence. Roma representatives and CSOs are involved in decision-making on

measures affecting Roma at national and local level. Locally, Roma communities elect their own representatives to 20

local councils. The Government Working Group for Addressing Roma Issues, established under the 2007 Roma

Community Act, includes state, municipal and Roma representatives in monitoring Roma conditions and fostering

dialogue. Strengthening mutual trust and cooperation between Roma and non-Roma communities remains a key

challenge.

FEEDBACK FROM CIVIL SOCIETY: CSOs recognise the Roma Community Council as an example of good

practice but emphasise the need for a specific horizontal objective to promote participation through empowerment,

cooperation and trust. There is a need to research the level of trust in institutions among Roma communities and to

establish measurable outcome indicators to assess the impact of implemented measures.

ASSESSMENT: Slovenia could build on the established role of the Roma Community Council by further

strengthening and formalising cooperation with Roma CSOs at all stages of policymaking and implementation.

Expanding efforts to foster trust and dialogue between Roma and non-Roma communities will remain essential,

particularly in addressing rising antigypsyism. Developing measurable outcome indicators and conducting research on

Roma trust in public institutions could also support more effective evaluation of policies and strengthen evidence-based

approaches to participation, empowerment and long-term inclusion.

340 Available at: https://www.gov.si/en/news/2025-11-06-prime-minister-golob-the-sutar-act-provides-answers-on-how-to-enhance-

public-safety/.

117

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: The 'Multipurpose Roma Centers as Innovative Learning Environments' project, co-

funded by the EU and Slovenia’s Ministry of Education, represents a major step forward in supporting Roma inclusion

in education. The initiative strengthens Roma children’s skills and participation in early childhood education,

encourages school attendance, and promotes connections between Roma and non-Roma communities through the

recognition of Roma culture and traditions. Innovative teaching methods and individualised learning programmes have

further supported children’s development and cultural identity.

FEEDBACK FROM CIVIL SOCIETY: CSOs point to persistent segregation in education, particularly due to the

provision of education in segregated areas. The rate of transition to secondary education is very low among Roma

children, highlighting the need for incentives such as scholarships and free school supplies to support students at all

educational levels. Slovenia’s punitive approach to Roma non-attendance lacks supportive alternatives for fostering real

change, and adult education opportunities are missing altogether. CSOs also suggest increasing the presence of Roma

assistants to improve inclusion and support throughout the education system.

ASSESSMENT: Slovenia could build on the progress achieved through the ‘Multipurpose Roma Centres’ project by

extending inclusive support measures beyond early childhood education and strengthening pathways into secondary

and higher education. Greater focus on reducing segregation, improving educational continuity and expanding targeted

support, such as scholarships and learning assistance, could help address persistent structural barriers. Aligning future

education reforms more closely with the needs of Roma communities and ensuring sustained long-term investment

would further support equitable access to quality education and more sustainable inclusion outcomes.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Slovenia has focused on empowering socially vulnerable groups and boosting their

chances of entering the labour market. This policy implemented nationwide by the Ministry of Labour, Family, Social

Affairs and Equal Opportunities, promotes the activation of Roma community members, specifically targeting Roma

women and young people in their local environment via psychosocial programmes and job training aimed at improving

employment opportunities. Slovenia has also created jobs in education and is investing in Roma children’s

development in Multipurpose Roma Centres, with the aim of improving their chances of finding employment in the

future.

FEEDBACK FROM CIVIL SOCIETY: CSOs highlight the significant challenges faced by Roma communities in

accessing employment, including discrimination, low education levels and limited access to adult education. The

physical isolation of Roma settlements and their poor connectivity to potential workplaces also represent major

obstacles. CSOs recommend introducing systematic data collection on Roma unemployment, as well as targeted

employment measures and employer incentives to address these challenges. Additionally, it stresses the need for

effective anti-discrimination measures to ensure equal employment opportunities.

ASSESSMENT: Slovenia could boost Roma labour market inclusion by expanding targeted education, training and

employment support, particularly for Roma women and young people. Improving access to adult education,

scholarships and Roma learning assistance programmes, along with stronger anti-discrimination measures and

employer incentives, could help reduce persistent barriers to stable employment. More systematic data collection on

Roma employment outcomes and stronger coordination between education, social and labour market policies would

further support evidence-based interventions and help achieve more sustainable social and economic inclusion.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: Slovenia has increased trust in healthcare institutions and enhanced accessibility for Roma

communities, particularly in underserved areas. Through annual health conferences, localised training and monthly

radio broadcasts on Romic Radio, the Ministry of Health and the Roma association Romani Union have brought vital

health education directly to Roma households. Inconsistent reporting from health centres remains a challenge that

118

hampers progress tracking, while deep-seated disparities require more than outreach. The Advocate for Equality

monitors discrimination, but lasting impact requires sustained funding, access to preventive care and stronger local

health networks. Though progress is visible, systemic integration will take time.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge that some progress has been made. However, they stress

the need for sustainable financing of effectual activities, rather than project-based funding, if long-term impact is to be

achieved. They also point to significant health disparities affecting the Roma community, including higher

hospitalisation rates among Roma children, increased perinatal risks and poor maternal health outcomes. It identifies

limited access to health services, due to geographical isolation and low health literacy, as a major challenge that needs

to be addressed to improve the health and wellbeing of Roma communities.

ASSESSMENT: Slovenia could build on efforts to strengthen trust between Roma communities and healthcare

institutions by improving access to quality healthcare services in areas with large Roma populations. Addressing

persistent health disparities, particularly those affecting Roma women and children, will require sustained targeted

interventions and stronger coordination across health and social services. Improving annual reporting and monitoring

mechanisms could also contribute to more effective progress assessment and evidence-based policymaking. Continued

investment in inclusive healthcare measures and prevention of segregation will be key to achieving equal access to

healthcare and long-term health outcomes for Roma communities.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: Slovenia’s Roma communities have long lived in informal settlements, often on unowned

land, which lack basic utilities like water and electricity. The Government’s desegregation efforts include a centralised

database of settlements to help with municipal infrastructure planning and the legalisation of land ownership. While

primary infrastructures (roads) now reach most areas, access to utilities (water, sewers and electricity) remains limited

due to legal obstacles. The Housing Fund and the Office for National Minorities inform municipalities and residents

about housing options, including co-financed, non-profit housing. Measures in these areas benefit from substantial

funding, yet legal hurdles, bureaucratic delays and land disputes slow progress. Sustained political will and simplified

procedures are vital to ensure equal housing access and end spatial segregation.

FEEDBACK FROM CIVIL SOCIETY: CSOs stress that current measures to integrate Roma are not sufficient, as

they do not specifically target the communities’ needs and do not prioritise desegregation. Many Roma still live in

segregated settlements with poor living conditions and limited access to basic services. CSOs recommend conducting

an impact analysis on the effects of living in an integrated environment (as opposed to a segregated one), to be

followed by the development of a comprehensive long-term desegregation plan.

ASSESSMENT: Spatial segregation of Roma communities remains a significant challenge in Slovenia, despite

progress in improving infrastructure and access to basic services. Going forward, stronger emphasis on targeted

desegregation measures, simplified legal procedures, and coordinated long-term housing strategies could help address

persistent inequalities in living conditions. While cohesion policy funding has contributed to infrastructure and housing

improvements that also benefit Roma settlements, a more targeted and integrated approach may be needed to ensure

sustainable inclusion and equal access to adequate housing. Further assessment of the social impact of integrated

housing solutions could also support evidence-based policymaking and long-term desegregation efforts.

PARTNERSHIPS AND INSTITUTIONAL CAPACITY

REPORTED PROGRESS: In Slovenia, the long-standing Roma Community Council and the Government Working

Group for Addressing Roma Issues have laid the groundwork for establishing partnerships and boosting institutional

capacity. The Roma Community Council plays a key role in representing the communities’ interests in decision-

making processes, both locally and at national level. Co-financed by the national budget, the Council strengthens the

institutional framework and fosters a collaborative relationship with state authorities. Furthermore, the Government has

established a network of coordinators and contact persons across ministries and municipalities to facilitate coordination

and monitoring. It also provides earmarked financial support to Roma and pro-Roma CSOs, with the aim of improving

the situation of Roma communities and promote their integration into society.

FEEDBACK FROM CIVIL SOCIETY: CSOsstress the key role of the Roma Community Council in monitoring the

implementation of the NRSF, representing Roma interests, proposing new initiatives, and ensuring Roma participation

119

in national and local activities.

ASSESSMENT: Slovenia could build on the established role of the Roma Community Council by strengthening its

capacity to support more systematic monitoring of and follow-up to NRSF implementation. Enhanced coordination

between national and local authorities, alongside stable and sustainable funding for Roma and pro-Roma CSOs, could

further boost meaningful participation and ensure policy continuity. Developing stronger monitoring and data-driven

evaluation mechanisms would also help improve accountability, assess the impact of existing measures and support

more effective and inclusive Roma integration policies over the long term.

PROMISING PRACTICES

Multipurpose Roma Centres: in Slovenia, the project ‘Multipurpose Roma Centres as Innovative Learning

Environments’ was implemented from September 2021 to August 2023, coordinated by the Centre for Curricular and

Extracurricular Activities. The initiative was co-financed by the ESF and national funding from the Ministry of

Education. It provides educational and support activities for Roma children and families through multipurpose centres,

with the aim of improving general and vocational skills and promoting Roma children’s inclusion and performance in

the education system and society. The initiative continues in a new European Social Fund project for the period 2023-

2028, which expands activities supporting Roma children’s participation in education.341

341 Available at: https://www.gov.si/drzavni-organi/ministrstva/ministrstvo-za-vzgojo-in-izobrazevanje/.

120

Table 24 - Slovakia

Slovakia

APPROACH OF THE NATIONAL

ROMA STRATEGIC

FRAMEWORK (NRSF)

The Government of the Slovak Republic approved the NRSF, entitled

‘Strategy of equality, inclusion and participation of Roma until 2030’342, in

April 2021. It outlines priority areas, including education, housing,

employment and health, and addresses the fight against anti-Roma racism and

participation. The Action Plans for 2022-2024343, setting out concrete

measures and activities, were adopted in April 2022. The subsequent Action

Plans for 2025-2027344 were adopted in December 2024.

ESTIMATED ROMA

POPULATION

Council of Europeestimates (plus

national census data, where available)

Council of Europe estimates: approximately 500 000 (10% of the population

of the country)345;

67 179 (2021 Census)346.

NATIONAL ROMA CONTACT

POINT (NRCP)

Office of the Plenipotentiary of the Government of the Slovak Republic for

Roma Communities

NATIONAL ROMA CONTACT POINT

Slovakia’s NRCP operates within the Office of the Government, which had an annual budget of EUR 4.688 million for

2023-2025. The Office employs 218 staff, including 6 in the Section of Strategic Policies and the Department of

Inclusive Policies. It coordinates the development and monitoring of the national Roma strategic framework and its

Action Plans and submits annual reports to the Government. As an intermediate body in the EU Cohesion Policy

framework, it supports projects that promote Roma inclusion across sectors. The Office is also a full member of the

Monitoring Committee for Programme Slovakia 2021-2027, participates in Sub-Committees, chairs the Sub-Committee

for marginalised Roma communities, and ensures Roma priorities are integrated into Cohesion Policy programming

and monitoring.

HORIZONTAL OBJECTIVES

FIGHT AND PREVENT ANTIGYPSYISM AND DISCRIMINATION

REPORTED PROGRESS: Under this objective, a major achievement is the introduction of a comprehensive expert

definition of anti-Roma racism in the Concept for the Prevention and Fight against Radicalisation and Extremism 2025-

2028347. Approved by the Government in May 2025, the document was developed by the Committee for the Prevention

and Elimination of Racism, Xenophobia, Antisemitism and Other Forms of Intolerance, with the active participation of

civil society organisations (CSOs) represented in the committee.

FEEDBACK FROM CIVIL SOCIETY: CSOs stress that consideration should be given to strengthening the legal

and institutional framework for combating antigypsyism. They also stress the need to integrate the definition of

antigypsyism across strategic documents and policies to ensure a consistent and comprehensive approach at all levels of

governance.

ASSESSMENT: Slovakia is encouraged to build on the recognition of anti-Roma racism in strategic documents by

supporting consistent implementation across relevant policy areas and institutions. This may include integrating anti-

342 Based on Government Resolution of the Slovak Republic No 181 of 7 April 2021 on the Strategy for Equality, Inclusion and

Roma Participation until 2030. Available at:

https://www.romovia.vlada.gov.sk/site/assets/files/1526/strategy_of_equality_inclusion_and_participation_of_roma_until_2030.pdf. 343 Available at:

https://www.romovia.vlada.gov.sk/site/assets/files/1113/akcne_plany_strategie_2030_na_roky_2022_2024_final.pdf. 344 Available at: https://romovia.vlada.gov.sk/site/assets/files/1113/akcne_plany_strategie_2030_na_roky_2025_2027_final.pdf. 345 Available at: https://rm.coe.int/1680088ea9. 346 Available at: https://www.scitanie.sk/en. 347 Available at: https://rokovania.gov.sk/RVL/Material/30798/1.

121

discrimination training into the professional education of judges, lawyers, healthcare workers, and public officials, and

embedding anti-racism principles in internal procedures, monitoring systems, and codes of conduct. Strengthening

enforcement of anti-discrimination legislation remains important, not least because an estimated 95% of Roma who

experience discrimination do not report it348. Improving the accessibility of equality body may help address barriers. In

parallel, awareness-raising efforts are needed, particularly as 68% of the population are unwilling to have a Roma

neighbour349.

REDUCE POVERTY AND SOCIAL EXCLUSION

REPORTED PROGRESS: While this objective is not explicitly included in the NRSF, it is addressed through cross-

cutting measures designed to bridge access gaps and support Roma children attending kindergarten, such as

investments in early childhood development programmes and funding for Roma assistants and health mediators.

Additional efforts include programmes to increase employability through re-skilling and adult learning programmes for

the low-qualified. Together, these combined efforts contribute directly to reducing poverty and social exclusion among

marginalised Roma communities.

FEEDBACK FROM CIVIL SOCIETY: CSOs stress the need for stronger state-level measures to address regional

inequalities, particularly by supporting job creation in the least developed districts. In the area of poverty reduction and

social inclusion, they point to the importance of increasing minimum pensions, simplifying access to social benefits,

and improving awareness of rights, including through the provision of free legal advice. CSOs further stress the need to

enhance the effectiveness and transparency of the social system. In this context, they recommend revisiting the design

and accessibility of social housing benefits, which remain inaccessible to many people from marginalised Roma

communities.

ASSESSMENT: Slovakia should embark on systemic institutional reforms and move away from the current reliance

on short-term, project-based EU financing for essential inclusion services. To ensure long-term sustainability,

successful initiatives such as early-care assistance and Roma health mediators should be anchored in the national

budget and embedded in the broader social and health service systems. Furthermore, the state is encouraged to address

the lack of political will and administrative capacity at the municipal level, in order to ensure that national inclusion

goals - including essential infrastructure, such as access to drinking water - are implemented effectively at the local

level.

PROMOTE PARTICIPATION THROUGH EMPOWERMENT, COOPERATION AND TRUST

REPORTED PROGRESS: In June 2024, the Slovak National Council amended No.575/2001 on the Organisation of

Government Activities and Central State Administration, strengthening the institutional framework for national

minorities.350 The former Committee for National Minorities and Ethnic Groups was replaced by a new Government

Council for National Minorities with stronger competencies. While the Plenipotentiary for Roma Communities remains

in place, a new permanent Plenipotentiary for National Minorities was created. The reform enhances NGO participation

through grassroots nominations and formal membership, addressing previous concerns about limited focus on minority

issues enabling Roma representatives to engage more directly in policymaking.

FEEDBACK FROM CIVIL SOCIETY: CSOs report a growing gap between formal institutional reforms and

effective Roma participation. Although the transformation of the Committee for National Minorities and Ethnic Groups

into the Government Council for National Minorities has boosted the formal status of minorities, dialogue is seen as

having been weakened in practice. For example, bodies advising the Plenipotentiary for Roma Communities and for

Roma youth have not met since 2023, limiting the involvement of experts and civil society in policy design.

Participation in the monitoring of EU funds is also described as limited, with minimal Roma representation in

Programme Slovakia 2021-2027 structures. In the absence of stable institutional funding and active consultative bodies,

increased formal representation may not translate into meaningful policy influence.

ASSESSMENT: With the establishment of the Government Council for National Minorities, Slovakia has

strengthened its institutional framework. However, further efforts are needed to build up the political and civic

348 Preliminary data provided by the NRCP office, forthcoming publication expected at Špecializované zisťovanie EU SILC_MRK |

Úrad splnomocnenca vlády SR pre rómske komunity. 349 Ibid. 350 Available at: https://www.slov-lex.sk/ezbierky/pravne-predpisy/SK/ZZ/2024/201/20240901.html?utm.

122

capacities of Roma representatives and ensure sustainable support for Roma civil society, so that strengthened

representation translates into tangible policy outcomes. At the same time, measures promoting social cohesion and

meaningful interaction between Roma and non-Roma communities should be reinforced through locally driven,

community-based initiatives that foster trust, solidarity and mutual respect.

SECTORAL OBJECTIVES

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY INCLUSIVE MAINSTREAM EDUCATION

REPORTED PROGRESS: Slovakia has introduced several measures to combat segregation and promote inclusive

education. New standards for prohibiting segregation in education351 and a Methodological Handbook on

Desegregation352 guide schools in their implementation of these measures. In response to the European Commission’s

legal action and country-specific recommendations, Slovakia launched two ESF+ projects: ‘Opportunity for All’353 and

‘Support for Educational Opportunities’354. The national project ‘System of Support Measures’355 now underpins

inclusive education, complemented by grants for early care and interventions in favour of Roma children under the

Recovery and Resilience Plan. Project Development Team I356 supports these efforts, while Amendment Act

No 290/2024357 (in force since January 2025) adjusts school financing and management to further eliminate

segregation.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge the progress made, but notes that the Government

should intensify efforts to end the segregation of Roma children. This requires promoting inclusive, high-quality

education and demonstrating measurable progress towards EU and national targets. Clear desegregation principles and

effective regional coordination mechanisms should be developed and implemented, supported by quality teaching,

adequate transport, and financial assistance to guarantee equal access to quality education for all children.

ASSESSMENT: Slovakia is encouraged to build on recent measures supporting inclusive and desegregated education,

including new desegregation standards, ESF+ projects and reforms of school financing and management. Roma

participation in early childhood education and care (ECEC) for children aged 3-6 has increased to 55% in 2024 (from

33% in 2020). However, barriers remain, including limited availability and accessibility. Despite ongoing efforts,

school segregation of Roma pupils remains high (66%), and early school leaving remains a significant challenge,

despite declining from 72% to 67%358. Continued investment in accessible and affordable ECEC, including Slovak

language support and local coordination mechanisms, may further support school readiness and equal educational

opportunities.

INCREASE EFFECTIVE EQUAL ACCESS TO QUALITY AND SUSTAINABLE EMPLOYMENT

REPORTED PROGRESS: Active labour market measures have been expanded, with a focus on vocational training

specifically tailored to the needs of marginalised Roma communities. This has improved school-to-work transitions and

youth participation. Coordination between labour offices, municipalities and non-state providers has been strengthened,

supported by employer incentives and anti-discrimination initiatives. In February 2024, the ‘Step by Step II’359

programme was launched to engage inactive individuals and young people, including those not in employment,

education or training (NEETs). The programme offers EU-funded, individualised support to boost employability and

social inclusion.

FEEDBACK FROM CIVIL SOCIETY: CSOs stress the need for stronger coordination between education, training

and employment services to ensure that marginalised groups are actually provided with lifelong learning opportunities.

Building on successful project-based approaches, individualised support for unemployed Roma should be

institutionalised to provide sustained and continuous assistance. CSOs also underline the importance of facilitating

351 Available at: https://www.minedu.sk/standardy-dodrziavania-zakazu-segregacie/. 352 Available at: https://www.minedu.sk/odborne-materialy-pre-skoly-azriadovatelov-kdesegregacii/. 353Available at: https://www.minedu.sk/39814-sk/narodne-projekty/. 354 Available at: https://www.minedu.sk/39814-sk/narodne-projekty/. 355 Available at: https://www.minedu.sk/inkluzia-a-podporne-opatrenia/. 356 Available at: https://www.romovia.vlada.gov.sk/narodne-projekty/nprt1/. 357 Available at: https://www.slov-lex.sk/ezbierky/pravne-predpisy/SK/ZZ/2024/290/20250101.html. 358 Ibid. 359 Available at: https://www.employment.gov.sk/sk/uvodna-stranka/informacie-media/aktuality/ministerstvo-prace-vyhlasuje-

vyzvu-krok-za-krokom-ii-predkladanie-ziadosti-nenavratny-financny-prispevok.html.

123

regular meetings and networking opportunities between employers and Roma jobseekers to counter prejudice, foster

mutual understanding and promote inclusive employment practices.

ASSESSMENT: Access to employment for low-skilled and long-term unemployed members of marginalised Roma

communities remains a significant challenge, with limited progress to date. Among young people, 63% of Roma aged

16-24 are not in employment, education or training (NEETs), far above the national average (11%)360. While Slovakia

applies various outreach tools (e.g. social work, online platforms and targeted campaigns), marginalised groups –

especially young Roma – are still not being reached. Around 29% of Roma jobseekers report ethnic discrimination361.

Employment opportunities are often segregated and limited to low-skilled or community-based roles, offering few

prospects for skills development. Stronger coordination between education, training and employment services,

alongside effective implementation of ESF+ and social economy initiatives, could support more sustainable and

inclusive labour market integration.

IMPROVE ROMA HEALTH AND EFFECTIVE EQUAL ACCESS TO QUALITY HEALTHCARE AND

SOCIAL SERVICES

REPORTED PROGRESS: For the first time, the NRSF incorporated data-driven measures in its health action plans.

Under these measures, disaggregated data on health inequalities are systematically collected and analysed, including

data on life expectancy, access to healthcare, prevalence of chronic diseases and infant mortality. These data provide a

basis for evidence-based interventions targeting Roma health outcomes. In addition, the national project ‘Healthy

Communities’, implemented by the state-funded organisation Healthy Regions362, has been involved in these efforts

since 2017.

FEEDBACK FROM CIVIL SOCIETY: CSOs stressthe importance of strengthening measures to prevent

discrimination against Roma in healthcare facilities and integrating training on antigypsyism into the education of

healthcare professionals. They underline the need to develop targeted preventive health programmes, including regular

screenings and accessible dental care, to address higher morbidity and mortality rates in disadvantaged Roma

populations. They also mention the importance of ensuring the sustainability and expansion of evidence-based health

measures to improve Roma health outcomes and support progress towards EU headline targets by 2030.

ASSESSMENT: Slovakia has strengthened the evidence base for Roma health inclusion through data-driven measures

and initiatives such as Healthy Regions, which support outreach and monitoring. Additional efforts are needed to

address structural barriers, including discrimination, limited access to services and poor living conditions. Continued

investment in training and awareness-raising for healthcare professionals, alongside measures supporting culturally

sensitive healthcare provision, may also contribute to improving trust, accessibility and the effectiveness of healthcare

services for disadvantaged Roma communities.

INCREASE EFFECTIVE EQUAL ACCESS TO ADEQUATE DESEGREGATED HOUSING AND

ESSENTIAL SERVICES

REPORTED PROGRESS: The main achievement under this objective is the systematic reduction of the number of

illegal dwellings in marginalised communities. Illegal construction and limited rental housing continue to pose a

challenge, but several systemic measures have been implemented to address it, including municipal social and

economic development plans that provide local solutions. Progress has also been made in regulating land ownership in

Roma settlements and creating municipal zoning plans. Clarity over land ownership enables local authorities to

implement infrastructure projects, including technical infrastructure, owner-occupied housing and rental housing,

supporting improvements in housing conditions for Roma communities.

FEEDBACK FROM CIVIL SOCIETY: CSOs acknowledge that access to water and sewage systems has improved.

However, they also stress that no significant systemic progress has been made in improving effective and equal access

to adequate desegregated housing and essential services. Sustainable desegregation requires a gradual, locally tailored

approach supported by tailor-made plans for each community. Lasting improvements in housing should be linked with

job creation, financial education and awareness-raising among both Roma and non-Roma populations to promote

360 Preliminary data provided by the NRCP office, forthcoming publication expected to be available at Špecializované zisťovanie

EU SILC_MRK | Úrad splnomocnenca vlády SR pre rómske komunity. 361 Ibid. 362 Available at: https://www.zdraveregiony.eu.

124

inclusion.