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ROMA in an EXPANDING EUROPE Public Disclosure Authorized BREAKING the POVERTY CYCLE Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Mitchell A. Orenstein EXPANDING EUROPE EXPANDING ROMA IN AN BREAKING THE POVERTY CYCLE Dena Ringold Erika Wilkens Roma in an Expanding Europe: Breaking the Poverty Cycle By Dena Ringold Mitchell A. Orenstein Erika Wilkens Washington, D.C. © 2005 The International Bank for Reconstruction and Development / The World Bank 1818 H Street, NW Washington, DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org E-mail: [email protected] All rights reserved. This volume is a product of the staff of the International Bank for Reconstruction and Development / The World Bank. The findings, interpretations, and conclusions expressed in this paper do not necessarily reflect the views of the Executive Directors of The World Bank or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank con- cerning the legal status of any territory or the endorsement or acceptance of such boundaries. Rights and Permissions The material in this work is copyrighted. Copying and/or transmitting portions or all of this work without permission may be a violation of applicable law. The World Bank encourages dissemination of its work and will normally grant permission promptly. For permission to photocopy or reprint any part of this work, please send a request with complete information to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, USA, telephone 978-750-8400, fax 978-750-4470, www. copyright.com. All other queries on rights and licenses, including subsidiary rights, should be addressed to the Office of the Publisher, World Bank, 1818 H Street NW, Washington, DC 20433, USA, fax 202-522-2422, e-mail [email protected]. Library of Congress Cataloging-in-Publication Data Ringold, Dena, 1970– Roma in an expanding Europe : breaking the poverty cycle / Dena Ringold, Mitchell A. Orenstein, Erika Wilkens. p. cm. Includes bibliographical references and index. ISBN 0-8213-5457-4 1. Romanies—Europe, Eastern—Social conditions. 2. Romanies—Europe, Central —Social conditions. 3. Poverty—Europe, Eastern. 4. Poverty—Europe, Central. I. Orenstein, Mitchell A. (Mitchell Alexander) II. Wilkens, Erika, 1970– III. Title. DX210.R56 2004 305.891’49704’091717—dc22 2004053003 Cover photo courtesy of Dusan Guzi from the Slovak Republic. See the work of Mr. Guzi at www.fotoagent.sk. Contents Foreword vii Acknowledgments ix Abbreviations xi Overview xiii Chapter 1 Introduction 1 Who are the Roma? 3 Poverty in Transition 5 History 6 Roma Diversity, Culture, and Social Exclusion 10 Policy Approaches and Debates 13 Conclusions 23 Chapter 2 An Overview of Roma Poverty and Welfare 24 Measurement Challenges 25 How Is Poverty Measured? 26 An Analysis of Roma Poverty in Three Countries 27 Correlates of Poverty 30 Multivariate Analysis of Roma Poverty 32 Housing 34 Labor Market Status 38 Developments in Transition 40 Education Status 41 Health Status 48 Conclusions 53 Chapter 3 Poverty and Exclusion: Roma Settlements in the Slovak Republic 55 Roma in Slovakia 56 Poverty in Roma Settlements 61 Economic Activities and Coping Strategies 72 Access to Social Services 78 Reducing Poverty in Settlements 86 iv Contents Chapter 4 Roma Diversity in Romania 88 From Slavery to Ceaus˛escu 89 The Transition Period and Beyond 91 The Diversity of Roma Settlements 92 Income Sources and Economic Opportunities 95 Access to Social Services 99 Social and Ethnic Relations 116 Current Policy Developments 118 Conclusions 121 Chapter 5 Project Experience in Hungary 123 A Regional Frontrunner 124 Government Policies and Approaches 129 Project Experience: An Overview 135 Project Case Studies 139 Project Experience: Lessons Learned 148 Conclusions 151 Chapter 6 Roma in Spain 153 Roma in Spain: A Western European Example 155 The National Program for the Development of Roma 158 European Union Support for Roma in Spain 171 Conclusions 174 Chapter 7 The Road Ahead 176 The Nature of Roma Poverty and Policy Context 177 Policy Implications and Approaches 182 Policy Directions 192 Conclusions 202 Notes 203 References 211 About the Authors 223 Index 225 BOXES 1 In Their Own Words xxvii 2.1 Who Are the Roma? 28 2.2 Spatial Segregation within Roma Settlements 35 2.3 Measuring Unemployment 39 2.4 School Dropouts: The Case of the Missing Children 44 2.5 Entrance to Remedial Special Schools in the Czech Republic 47 Contents v 2.6 Heroin Addiction in Varna, Bulgaria 54 3.1 The Study of Roma Settlements in Slovakia 57 3.2 Typology of Perceptions of Social Status 65 3.3 Housing Conditions in a Village in Stará Lúbovˇna 69 3.4 Zero Grade Classes 82 4.1 A Qualitative Study of Roma Communities in Romania 92 4.2 Government Education Initiatives Targeting Roma 103 4.3 The Partnership Fund for Roma: Pilot Projects 120 5.1 Public Foundations in Hungary 127 6.1 The History of Roma in Spain 155 6.2 The Andalusian Plan for the Roma Community 159 6.3 The Acceder Program: Training and Employment Services 166 6.4 Roma Housing Re-Accommodation Program in Madrid 168 6.5 The School Monitoring Program in the Municipality of Madrid 172 7.1 The Decade of Roma Inclusion, 2005–15 184 7.2 Monitoring and Evaluating School Success for Roma Children 189 7.3 Promoting Roma Employment 193 7.4 Alternative Secondary Schools in Hungary 195 7.5 Desegregation of Roma Schools in Bulgaria: The Vidin Model 196 7.6 Lessons from U.S. Welfare Reform 200 FIGURES 1 Poverty Rates, 2000 xv 1.1 Estimated Roma Populations in Selected European Countries 4 1.2 Poverty Rates in Selected Transition Countries 5 2.1 Household Size in Bulgaria, Hungary, and Romania, 2000 37 2.2 Unemployment Duration, 2000 40 2.3 Enrollments in Education, 2000 43 2.4 Age Structure of Roma and the Total Population in the Czech Republic, 1991 49 3.1 Registered Unemployment by Ethnicity, 1999 73 3.2 Unemployment by Duration, June 30, 1999 74 TABLES 1.1 A Typology of Roma Policy Approaches in Europe 14 2.1 Roma Population Sizes by Type of Identification, 2000 29 2.2 Poverty Rates among Roma and Non-Roma Households, 2000 29 2.3 Main Poverty Correlates, 2000 31 2.4 Housing Characteristics by Ethnicity, 2000 37 vi Contents 2.5 Educational Attainment by Ethnicity, 2000 42 4.1 Main Features of the Case Study Sites, 1999 93 4.2 Roma Population in Case Study Communities 95 4.3 Income Sources and Economic Stratification, 1999 98 4.4 School Attendance Trends for Roma, 1993 100 4.5 Share of Roma Students in Valcele, 1999 101 4.6 Access to Education in Case Study Communities, 1999 102 4.7 Access to Local Medical Services in Case Study Communities, 1999 110 4.8Access to Social Assistance in Case Study Communities, 1999 112 5.1 Hungarian Minorities in Other Countries 126 5.2 Government Budgetary Support for Minorities 130 5.3Roma MSG Local Development133 Initiatives, 1998 5.4 Project Inventory, 1990–99 136 5.5 Projects by Region, 1990–99 137 5.6 Distribution of Projects by Sector, 1990–99 138 5.7 Projects by Donors, 1990–99 139 5.8Program and Activities Supported under the Social Land Program 145 6.1 Roma Population Estimates in Selected Western European Countries 157 6.2 Roma Population by Autonomous Community 164 7.1 PHARE-Funded Programs for Roma in Central and Eastern Europe, 1993–2001 181 Foreword Roma have suffered from severe poverty and exclusion throughout European history. For many Roma in Central and Eastern Europe, the period of transition from communism has been especially dire. Low education and skill levels, compounded by discrimination, have led to widespread long-term unemployment and deteriorating living condi- tions. Even in some of the new member states of the European Union and those countries on the brink of accession to the European Union, Roma are likely to live in poverty and lack access to education, health care, housing, and other services. Their plight has not gone unnoticed. Over the past decade, govern- ments, civil society, and the international community have actively supported initiatives to keep Roma children in school, expand access to jobs, and overcome discrimination. Many of these interventions have helped, and the time is right to scale up. Lessons from these projects can make policies more inclusive and expand their reach. This study calls for an inclusive approach to overcoming Roma poverty, based on increased Roma involvement and participation in society and respect for their diversity. There is reason for optimism. The European Union’s recent and ongo- ing enlargement has focused attention on the need to address Roma exclusion at the national level and has highlighted common European challenges. Most importantly, a small but growing core of experienced and dedicated young Roma leaders now can work both within their com- munities and with governments to advocate for change. This study was prepared for the conference “Roma in an Expanding Europe: Challenges for the Future” in Budapest, Hungary, June 30–July 1, 2003. This event catalyzed an ongoing dialogue between the new Roma leadership and the wider policy community, which aims to improve the living conditions and future opportunities of Roma over the long term. James D. Wolfensohn President The World Bank vii Acknowledgments This study brings together analysis done by teams of researchers in dif- ferent countries. The authors benefited from the guidance and inputs of peer reviewers Christine Jones and Ana Revenga. Useful comments and contributions at various stages were received from Ziad Alahdad, Asad Alam, Warren Bass, Tünde Buzetzky, Ian Conachy, Mukesh Chawla, Armin Fidler, Richard Florescu, Clare Gillsater, Boryana Gotcheva, Daniela Gressani, Richard Hirschler, Franz Kaps, Alexandre Marc, Veronica Nyhan, Alexey Proskuryakov, Michal Rutkowski, Ana Maria Sandi, Merrell Tuck-Primdahl, Nick van Praag, Julius Varallyay, and four anonymous reviewers.
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