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Promoting the Social Inclusion of Roma www.peer-review-social-inclusion.eu Poland Second Semester Report Promoting Social Inclusion of Roma Irena Topińska Centre for Social and Economic Research, CASE Disclaimer: This report reflects the views of its author(s) and these are not necessarily those of either the the European Commission or the Member States. August 2011 Revised: November 2011 On behalf of the European Commission DG Employment, Social Affairs and Inclusion POLAND Content Summary ...................................................................................................................................... 3 1. Description of national situation .......................................................................................... 4 1.1. Roma population ........................................................................................................... 4 1.2. Geographic distribution of Roma ................................................................................... 5 1.3. Poverty and social exclusion ......................................................................................... 6 1.4. Roma discrimination .................................................................................................... 11 1.5. Data gaps .................................................................................................................... 12 2. Assessment of existing policy and governance framework ............................................ 13 2.1. Overall policy framework and governance arrangements ............................................ 13 2.2. Poverty reduction and social inclusion targets ............................................................. 15 2.3. Roma and the National Reform Programme ................................................................ 15 2.4. Social inclusion and integration in light of the Roma Programme ................................ 16 2.5. Good practice examples ................................................................................................. 18 3. Structural Funds .................................................................................................................. 20 4. Role of civil society and international organisations ....................................................... 21 5. Recommendations .............................................................................................................. 22 Acronyms and abbreviations .................................................................................................... 25 References ................................................................................................................................. 26 2 POLAND Summary The Roma population in Poland is very small. Their total number is estimated at about 13,000 – 50,000, depending on the data source. Altogether, this is much less than 1% of the total Polish resident population (0.03 % - 0.13 % out of ca. 38 million). The Polish Roma community breaks into four ethnic groups (Polska Roma, Bergitka Roma, Kelderari, and Lovari). Over 90% of them live in urban areas, mostly dispersed throughout small towns, but ethnic enclaves are also visible. Roma may be found in all regions of Poland but the majority of them – mostly Bergitka – live in southern provinces. In recent times, they are not nomadic anymore. However, after Poland’s accession to the European Union there is some migration of Roma in and out of the country. The Bergitka Roma differ from other groups in terms of customs, codes (less restrictive) and standard of living (very low for most of the group) making their acceptance by others difficult. Social exclusion and discrimination against Roma remain an issue. Although statistical information is incomplete and often outdated, it allows showing the scale of Roma deprivation in health (high incidence of various diseases, rare use of medical service), education (very high share of Roma with uncompleted primary school), employment (up to 70% unemployed) and housing (lack of sewage, electricity etc, especially among the Bergitka Roma). Discrimination cases are reported by media and NGOs (entrance bans, assaults) and evidenced by surveys (high incidence rate). Policies aimed at Roma social inclusion and integration are implemented by a single government Programme for the Roma Community in Poland scheduled for 2004-2013 and by ESF-funded “Roma component” of the Human Capital Operational Programme 2007- 2013. Both are closely related, given similar goals and areas of interventions. They are also similar in terms of expenditure per year (over 3 million euro). The government programme covers eight areas. Education is the most important one, taking over 50% of expenditure and offering a variety of measures (financing assistant teachers for Roma children, school commuting, textbooks, school meals, stipends and many others). Housing is the second important area of the programme support (repairs, setting up utilities), then culture and maintaining ethnic identity. All others, including health and labour issues, are much smaller. Roma component covers six areas, but most projects regard labour inclusion (supplementing government programme) and, once again, education and culture. Both programmes support development of the Roma civil society, and their implementation has visibly strengthened Roma non-government organisations. Over the last decade, the number of Roma NGOs more than doubled, Roma representatives are members of the government advisory body for ethnic minorities and they also work for regional governments. The design and performance of the Programme for the Roma Community allows concluding that, despite some visible weaknesses and lack of spectacular success, it has brought about a number of positive effects. They may be found in the area of primary education, housing, health prevention or preservation of Roma culture and ethnic identity. Also worth noticing are the increasing role of NGOs, empowerment of Roma activists, and certain changes of the general public attitudes towards the Roma community. But many challenges remain. School enrolment rate is still low, and higher education is beyond the reach of most of the Roma. Unemployment rate is alarmingly high and somehow disregarded by the government programme. Attitudes of the medical personnel towards the Roma as well as 3 POLAND Roma’s customs related to health call for changes. Finally, discrimination should necessarily be raised as an issue for the programme promoting social integration of Roma. 1. Description of national situation 1.1. Roma population The Roma community in Poland is very small. Precise figures are not available but its size is estimated at about 13 – 50 thousand, depending on the data source. Altogether, this is much less than 1% of the total Polish resident population (strictly speaking from 0.033% to 0.132%, out of ca. 38 million). These estimates were made almost a decade ago but are still widely used. However, it is hard to say whether the current figures would be quite similar or would significantly differ since they are influenced by, both, demographic processes (fertility, mortality, migration) and a revealed sense of ethnicity which may change over time. It is also not easy to decide which estimates are the most reliable. National documents and publications usually refer to the lower figures. They were estimated on the basis of the 2002 Census, and additionally by regional (voivodship) authorities during the preparation of the government programme for the Roma (Table 1). The Census shows either 12,731 (number of people who declared Roma ethnicity) or 15,658 Roma living in Poland (number of people who declared using Roma language). The voivodship figure – drawn up during the preparatory work on the government programme for the Roma minority – indicates 20,750. International sources, based on NGOs’, individual or experts’ estimates, provide higher numbers: 50,000-60,000 (Minority Rights Group of the European Council) or about 42,000 (International Organization for Migration).1 The Roma community in Poland breaks down into four main ethnic groups: Polska Roma, Bergitka or Carpathian Roma, Kelderari and Lovari.2 The Polska Roma came centuries ago from the west, and they still reveal some German influence (in their language, for instance).3 Other groups came from the south, and the “southern” flavour is still recognizable in some of their names. The Kelderari (“boiler-making” people) and the Lovari (“horse sellers”) immigrated in the 19th century from the region of today’s Romania. The Bergitka were arriving since the 15th century from Wallachia, as well as from the regions of today’s Hungary and Slovakia. The Bergitka Roma are somehow distinctive. This regards their customs, codes, standard of living as well as the way they are perceived by others. Their group cohesion seems weaker and they are visibly poorer than Kelderari or Lovari. Also, they are often not accepted (or are even rejected) both by the other Roma and by non-Roma. 1 Figures quoted from Mazur S. (2010), Polityki Unii Europejskiej i jej państw członkowskich wobec Romów, in Mazur (2010), Table VI.1, p. 140 (MRG) and Table VI.2, p. 141 (IOM). See also figures quoted by E.Mirga- Wójtowicz in Instytut Obywatelski (2011), p.8. 2 Other groups are also found (Xaladytka or Russian Roma, Sasytka, Vurdonara and Sinti) but the size of their populations is really tiny. 3 All information about Roma groups, their origin and the current status presented in this section comes from Mazur (2010),
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