Strasbourg, 9 April 2010 ACFC/SR/III(2010)005 THIRD REPORT SUBMITTED BY THE RUSSIAN FEDERATION PURSUANT TO ARTICLE 25, PARAGRAPH 2 OF THE FRAMEWORK CONVENTION FOR THE PROTECTION OF NATIONAL MINORITIES Received on 9 April 2010 1 Report of the Russian Federation on Implementation of the Framework Convention for the Protection of National Minorities under the Third Monitoring Cycle 2 Contents Report summary …………………………………………………………….2 Preamble……………………………………………………………………. 4 1. Development of legislative framework of the Russian Federation for the protection of national minorities…………………………………………….6 2. Prevention and counteraction of extremism in international relations……. 11 3. Development of civil society and cooperation between non-governmental organizations and government bodies…..……………...24 4. Development of ethnic culture of national minorities……………………. 30 5. Ethnically oriented education …………………………………………….. 45 6. National minorities and mass media ………………………………………58 7. Migration policy of the Russian Federation (provision of legal status and protection of rights of national minorities – displaced persons and persons seeking asylum)………………………………………………...….66 8. Financial support of national minorities …………………………………...86 9. Comments on recommendations of the Committee of Ministers of the Council of Europe following the consideration of the Russian Federation report on implementation of the Framework Convention for the Protection of National Minorities under the second monitoring cycle………………………………………....93 Conclusion………………………………………………………………...112 Appendices………………………………………………………………..114 3 Report summary This report is the Russian Federation state report on implementation by the Russian Federation of the Framework Convention for the Protection of National Minorities under the third cycle of monitoring for the period of 2005 through 2008 that has elapsed since the second state report was submitted. The present report has been prepared by federal authorities of the Russian Federation in cooperation with Russian national and cultural autonomies, human rights public associations and ethnic public associations. The report describes national policy of the Russian Federation on national minorities. As a multinational and multiconfessional state, the Russian Federation traditionally pays close attention to the protection of rights and ethnic cultural development of national minorities, also in the context of implementation of the Framework Convention for the Protection of National Minorities. Thematic sections of the report define key moments of the Russian Federation policy in this area as well as practical measures aimed at preservation of the culture and language of its national minorities and counteraction of xenophobia and extremism. The activity of the government authorities of the Russian Federation is based on the integral system of normative legal acts designed to guarantee the rights of national minorities. The report also specifies the measures taken over the reporting period to develop the legislative framework pertaining to national minorities in order to continuously improve their position. The report gives particular attention to the issues of cooperation between governmental bodies and non-governmental organizations. The Russian Federation recognizes the important role played by civil society institutions in the implementation of the state national (ethnic and cultural) policy and strives to enhance in every possible way their interaction with government bodies. Pursuant to the current legislation, the governmental bodies of the Russian Federation in cooperation with non-governmental organizations provide a full-scale support for ethnic and cultural development of national minorities, including measures for encouraging ethnic mass media, ethnically-oriented education, ethnic cultural events etc. 4 Special sections of the report describe implementation by Russia of the FCNM provisions relating to support with regard to development of national minorities ‘ethnic culture, ethnically- oriented education and ethnic mass media. These sections define specific measures carried out in Russia in the above directions and provide the relevant statistic data. A distinguishing feature of the Russian Federation is that it makes budget commitments both at the federal and regional levels to support the culture and language of national minorities. The report provides the relevant data regarding the amount and main directions of the budgetary financing. In modern Europe, including Russia, the position of national minorities is highly influenced by migration processes that are becoming more and more active. In view of the above, this report contains a special section covering the issues pertaining to migration policy, even though they are not considered the direct subject matter of the Framework Convention. The report specially points out that while viewing the Framework Convention as an important constituent contributing to further enhancement and strengthening of international legal guarantees for the protection of rights of national minorities, the Russian Federation consistently and systematically accounts in its law enforcement practices both the assumed obligations and the recommendations received following the previous FCNM monitoring cycles. This report gives special attention to the activities of government bodies of the Russian Federation with respect to complying with the recommendations contained in the resolution of the Committee of Ministers of the Council of Europe dated 2 May 2007. (See ResCMN(2007)7 on implementation by the Russian Federation of the Framework Convention for the protection of national minorities. The information on results of implementation by the Russian Federation of the Framework Convention within the reviewed period is supported in the report by assessment of the areas that will remain topical in the nearest future. Such areas include counteraction of ethnic extremism and hate crimes. These issues will be considered top priority in the work of governmental bodies of the Russian Federation. Preamble 5 The Russian Federation ratified the Framework Convention for the Protection of National Minorities on 18 June 1998. The Convention came into force for Russia on 1 December 1998 and is considered an integral part of the national legal system. This report is the third national report on implementation by the Russian Federation of the Framework Convention for the Protection of National Minorities under the third monitoring cycle in conformity with Article 25 of the Framework Convention for the Protection of National Minorities and covers the period of 2005 through 2008 that has elapsed since the second national report has been submitted. This report gives a special attention to the activities of government bodies of the Russian Federation aimed at ensuring compliance with the conclusions made by the Consultative Committee for the Framework Convention for the protection of National Minorities of the European Council as well as recommendations contained in the resolution of the Minister the Committee of Ministers of the Council of Europe dated 2 May 2007. (See ResCMN(2007)7 on implementation by the Russian Federation of the Framework Convention for the Protection of National Minorities. Considering the Framework Convention as an important element of further enhancement and strengthening of international legal guarantees relating to the protection of rights of national minorities, the Russian Federation consistently and systematically takes into account in its legal practices both the accepted obligations and the recommendations received upon completion of the previous Convention monitoring cycles . Although the Russian Federation admits that legal forms of protection play an important role in protection of national minorities, it still views the establishment and further improvement of normative legal acts system as a top priority task of its internal policy that allows to ensure rights of national minorities. The development of legislative framework is now in process both at the federal and regional levels. Legislation improvement is followed up by political and practical measures including budgetary financing of programs and particular measures aimed at harmonization of inter-ethnic relations on the whole territory of the Russian Federation; development of ethnic and cultural diversity and enhancing inter-ethnic tolerance. 6 Since submitting the Russian Federation second national report on implementation of the Framework Convention, the country has intensified its efforts aimed at facilitating organizational, legal and resource support in the area of inter-ethnic relations, improving mechanisms of interdepartmental cooperation, coordinating actions of federal center and Russian regions, strengthening the system of cooperation between civil society and government bodies. In particular, there have been qualitative changes in the activities of law enforcement agencies related to fulfillment of the current legislation requirements and thorough investigation of any incidents arising on national and racial grounds; establishment of the system of prediction and early prevention of inter-ethnical conflicts. A positive experience of revelation, investigation and proper classification of extremist crimes has been gained, including hate crimes. Actual mechanisms have been created on different authority levels helping to take into account interests of ethnic communities and to prevent ethic confrontations. These mechanisms