National Policies towards Romani Women in the Western Balkans

September 2011

Country Paper on Croatia

Stephan Mller

Commissioned by CARE Northwest Balkans

1. Background
Roma in Croatia constitute a small, but diversified community. According to census data, 9,463 (0.21%) persons declared being Roma, however, estimates range between 30,000 and 40,000 Roma in the country.1 The largest group live in the Medjemurje county (2,887 persons), in city of Zagreb (1,946) and Osijek-Baranja county (997). Despite the small numbers the Roma community is not homogeneous. According to their mother tongue or first language, a large group of Roma speaks Romani, others speak Bajash (an old Romanian dialect used by Roma in several countries) or Albanian, Croatian or Romanian. According to religion 45% are Muslims, 31% Catholics, 17% Orthodox and the rest is of other belief. Many of the Roma migrated in the last decades from other parts of former Yugoslavia to Croatia; the Bajash speaking Roma came from Romania in the 19th century after they were released from slavery. Up to 10% of the Roma in Croatia are not Croat citizen and 3% are de facto stateless (do not possess citizenship documents).2 Country-wide, comprehensive data on the situation of Roma and Romani women do not exist though the relatively small size of the Romani community in Croatia and the legal situation would allow for the collection of improved data.3

2. General Policy Framework

Roma-related Policies 2.1.1. General Government Policy Towards Inclusion of Roma In general, the Government Office for National Minorities is in charge of co-ordinating and monitoring Roma-related policies and activities at central level while the implementation is primarily within the responsibility of the relevant line ministries and relevant county and municipal institutions. In January 2003, the Government of the Republic of Croatia formed the Commission for Monitoring the Implementation of the National Program for Roma which is presided over by the current Prime Minister who is also the Decade National Coordinator. Out of the 23 members, eight are Roma and of the Roma representatives three are Romani women.4 The other members represent primarily central, county or local authorities. The Commission actually decides on the policies and measures to be implemented. The Commission established five working groups: (i) social life and the implementation of international documents; (ii) status issues and non-discrimination; (iii) education, science and sport; (iv) social and health care and employment and (v) physical planning and housing. 5 In May 2009, Romani representatives formed the National Roma Forum, an umbrella organisation of Romani NGOs. It provides inter alia assistance to state bodies in policies regarding the integration of Roma in the Croatian society and monitoring the implementation of the National Programme for Roma and the Action Plan of the Decade of Roma Inclusion. 6 2.1.

UNDP, At Risk Roma and the Displaced in Southeast Europe, Bratislava, 2006 UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 3 For the discussion of the 2003 Law on the Protection of Personal Information see inter alia UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 4 Interview with Office for National Minorities, Government of the Republic of Croatia, Zagreb 7 July 2011 5 Protection of Roma in Croatia (October 2010) available at: http://www.europarl.europa.eu/document/activities/cont/201011/20101124ATT00191/20101124ATT00191EN.p df (accessed 1 June 2011). In the following: Protection of Roma in Croatia (October 2010) 6 Protection of Roma in Croatia (October 2010)
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In 2002, Croatian parliament adopted the Constitutional Law on the Rights of National Minorities (CLNM) that ensures high protection of minorities and in 2008 the AntiDiscrimination Law. In addition to the Serb, the Hungarian and the Slovene minorities that all have guaranteed seats in the Parliament, the CLNM ensures also the representation of smaller minorities in the Parliament. They are represented by one common representative, since January 2008 by the representative of the Romani community, Mr. Nazif Memedi.7 At central level exists a National Council for National Minorities. In units at local and regional level where Roma make up more than 1.5% of the total population, Councils of the Roma National Minority have to be established that are only advisory bodies. In addition, representative of Romani NGO could be members of specialised bodies at local level, e.g., dealing with the allocation of funds for minorities. 8 In general, the government of Croatia recognises the importance of improving the situation of Roma. Already in 2003, Croatia adopted a National Programme for Roma and within the framework of the Decade of Roma Inclusion Action Plans in the sectors of education, employment, health and housing. 2.1.2. National Programme and Action Plans for Roma In 2003, Croatia adopted a National Programme for Roma. In the framework of the Decade of Roma Inclusion it adopted overall Action Plans in education, employment, health and housing with gender as one of the cross-cutting issues for the whole period of the Decade. In addition, Croatia develops regular annual or biannual action plans, the latest for the years 2001-2012. (i) National Programme for Roma The National Programme contains eleven chapters: inclusion of Roma in social and political life; preservation of the Romani traditional culture; status-related issues; combating discrimination and legal aid; education; health care; employment; social welfare; protection of the family, maternity and youth; physical planning; monitoring and the implementation of the National Programme. 9 Some of the goals of the different chapters of the National Programme refer directly to Romani women: The chapter inclusion of Roma in social and political life contains as one of its goals: higher representation of women in representative bodies and their involvement in decision-making processes; the chapter health contains the goal monitoring the health protection of all Roma, and especially women and children The chapter protection of the family, maternity and youth contains the following goals: (i) learning about the rights pertaining to the system of protection of the family and maternity; (ii) elimination of stereotypes on male and female roles in the family; (iii) development and distribution of educational materials on the rights pertaining to the system of family protection in Romani languages; (iv) development of the programme of popularisation of successful parenting; (v) stimulating the implementation of a programme of awareness-raising of Roma women on gender equality and elimination of all forms of discrimination. (ii) Overall Decade Action Plans

UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 9 See website of the Government of the Republic of Croatia http://www.vlada.hr/nacionalniprogramromi/content/blogcategory/13/29/lang,english/ (accessed 9 June 2011). In the following: Government of Croatia, National Programme (2003)
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Croatia is one of the founding member countries of the Decade of Roma Inclusion and developed overall Action Plans for the whole period of the Decade 2005 2015 in education, employment, health and housing with gender as one of the cross-cutting issues. According to the introduction to overall Decade Action Plans, the relevant ministries and government bodies determine (bi-)annually during the Decade period the measures to be implemented over the following year(s) and submit their proposals to the Commission for Monitoring the Implementation of the National Programme for Roma. All implementing agencies are obliged to plan the necessary funds (from the government budget) for the implementation of the measures. In 2005, it was estimated that HRK 60,845,700 (ca. 7.95 million) are necessary for the implementation of all measures in the period of the Decade; an amount which became obsolete in the meantime. In previous years, the following amounts (in Euro!), including funds from the European Commission was spent:
Funds allocated from the state budget for the implementation of the NPR10 Year 2004 2005 2006 2007 2008 2009 Funds () 122,000 374,000 1,600,000 1,900,000 2,383,300 5,287,400*

(iii) Bi-annual Action Plans 2011 2012 For the implementation of the Action Plan of the Decade of Roma Inclusion for 2011 and 2012, covering the four Decade priority areas, the state budget provided funds in the amount of 28,064,900 HRK (ca. 3,77 million).11 It should be noted that both the government website and the website of the Decade of Roma Inclusion only display the overall Decade Action Plans and the annual Decade Action Plan for 2005. 2.2. Gender-Related Policies National Policy for the Promotion of Gender Equality 2006-201012 The document acknowledges the need for further research on the situation of Romani women, but in particular the need for addressing their social marginalisation and proposes some relevant measures. One of the sub-chapters (1.4 Eliminate discrimination of Roma women, both in society in general and within their communities, and undertake activities and programmes aimed at raising awareness of respect of their human rights and monitor/analyse the position of Roma women to assess the impact of policy and programme measures) of the document is dedicated to Romani women, however, it remains general. 2.3. General Social Inclusion Policies National Plan for the Promotion of Employment 2011 201213 Within two goals (Goal 3.1: Increase the employability and participation rate of prime-age women; Goal 3.4: Addressing the long-term unemployment problem) measures are foreseen that either include Romani women (Goal 3.1.) or directly target Roma, with regard to the latter, the indicators are gender-disaggregated (number of gender of). The majority of the measures

Protection of Roma in Croatia (October 2010) Government of the Republic of Croatia, Office for National Minorities, Action Plan of the Decade of Roma Inclusion for the Years 2011 and 2012, Zagreb 2011 (non-official translation). In the following: Government of the Republic of Croatia , Action Plan 2011/2012 12 National Policy for the Promotion of Gender Equality 2006-2010 available at http://www.uredravnopravnost.hr/lib/attachment.php?id=58 (accessed 7 June 2011). In the following: Gender Equality Policy 13 See website the Croat Employment Service: http://www.hzz.hr/docslike/NPPZ_2011-2012_Final.pdf (accessed 7 June 2011)
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proposed to achieve Goal 3.1) reflect the measures proposed in the (Roma) Action Plan on Employment 201-2012. 2.4. Millennium Development Goals of the United Nations (MDG Goals) Croatia committed itself to ambitious specific employment- and poverty-related targets with regard to the Millennium Development Goals (MDG). The report of the Government on the achievements in the period 2006 to 2010 refers only briefly to Roma in relation to fight against poverty stating that the National Programme for Romani, which includes measures for employment, as well as co-financing of employment for Romani national minority constitutes an integral part of the activities.14 The report doers not refer to Roma with regard to other relevant goals such as MDG 2 (Achieve Universal Primary Education) and MDG 3 (Promote gender equality and empower women).

3. Education
3. Summary 3.1. Overview There are very few comprehensive nation-wide and recent data on the situation of the Roma in the education system in Croatia. Further, available data are often contradictory. The few available data on the situation of Romani women in the education system paint a bleak picture. Low level of formal education dominates the picture which affects severely the access to the labour market. An assessment of the Roma Education Fund in 2007 criticised the slow and non-systematic implementation of the available policies and the lack of an efficient monitoring process as well as certain practices and provisions which lead to actual segregation of Romani children.15 The majority of Roma in Croatia has another mother tongue/first language than Croat language. Many speak Romani or Bajash (an old Romanian dialect used by Roma in several countries) or Albanian or Romanian as first language. However, schooling is neither offered in Romani nor in Bajash language, which creates serious obstacles for children, since many have only limited or no command of the Croat language when starting with schooling. 3.1.1. Literacy The available indicators point at low literacy rates and low enrolment rates in secondary school and higher education. According to UNDP (2008), illiteracy rates range between 15.6% and 38.5%, depending on the research.16 Gender-disaggregated literacy data, demonstrate an improvement of the situation, considering that the youngest cohort (15-25 years) the literacy rate is 92% while it decreases with the older cohorts to 48% (above 45 years).
Table: Literacy Rate Gender Disaggregated17 Literacy rates (UNDP 2006)* Romani women Romani men

Non-Romani

Non-Romani

14 Ministry of Foreign Affairs and European Integration, Overview of achievements of the Republic of Croatia in the fulfilment of Millennium Development Goals during the period from 2006 to 2010, September 2010 available at http://www.mvpei.hr/custompages/static/gbr/files/101006_millennium_development_goals.pdf (accessed 1 June 2011). In the following: Ministry of Foreign Affairs, MDG Report 2010 15 Roma Education Fund, Advancing Education of Roma in Croatia, Budapest 2007 16 UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 17 UNDP, At Risk The Social Vulnerability of Roma, Refugees and Displaced Persons in Southeast Europe, Bratislava, 2006; data sets available at http://vulnerability.undp.sk/ (accessed 1 June 2011). In the following: UNDP, Roma and Displaced (2006)

Total 15-24 years 25-34 years 35-44 years Above 45 years

81% 92% 85% 82% 48%

90% 91% 92% 89% 89%

women 98% 98% 100% 100% 97%

men 99% 98% 98% 100% 99%

3.1.2. School Enrolment The government of Croatia provided the following data in absolute numbers on the schooling of Romani children in Croatia which shows a steady increase of Romani children in schools. Over the years from school year 2005/2006 to school year 2009/2010 the number of enrolled children quadrupled, with a particular strong increase in the school year 2009/2010 of children attending secondary schools and higher education. The overall Action Plan on Education 2005-2015 did not include pre-school education, which however, has been included in the meantime in the biannual action plans. Activities (including the creation of mobile outreach teams) have been undertaken to increase the participation of Romani children in pre-schooling which lead to doubling the number of Romani children in pre-school education over the period. Unfortunately, gender-disaggregated data are not available.
Schooling of Roma children in Croatia 2005/ 2006/ 2006 2007 Pre-school education Roma children provided 345 707 with schooling Elementary education Roma children provided 1013 3010 with schooling Secondary education Number of enrolled 72 108 Roma pupils Higher education Number of enrolled 7 11 Roma pupils receiving scholarship Total of enrolled 1437 3836 Roma pupils 2007/ 2008 640 3224 82 2008/ 2009 661 3940 98 2009/ 2010 734 4186 304 2010/ 201118 799 4435 341 (164 girls) 31 5606

11 3957

12 4711

26 5250

All high school pupils and students in the higher education system receive scholarships.

Former data from a UNDP survey (2006) provide for a comparison with non-Roma which look less optimistic.
Table: Enrolment Rate Gender Disaggregated19 Enrolment at different levels* Romani women Romani men Non-Romani women Primary 86% 91% 100% Secondary 33% 40% 79% Tertiary 3% 3% 8%
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Non-Romani men 100% 8% 11%

Data for 2010/2011 from Government of Croatia, Decade of Roma Inclusion Progress Report 2010, Zagreb 2011 UNDP, Roma and Displaced (2006)

* non-Roma living in close proximity to Roma Table: Enrolment Rate Primary School20 Highest attained education level Roma Age 7 86% Age 8 100% Age 9 93% Age 10 92% Age 11 97% Age 12 98% Age 13 87% Age 14 67% Age 15 70%

Non-Roma 100% 100% 100% 100% 100% 100% 100% 100% 100%

3.1.3. Further Issues According to an assessment of the Roma Education Fund, the education system in Croatia still faces serious inequities despite policy documents such as Action Plan on Education. Some of the provisions in the education system directly or indirectly lead to segregation and lower quality education of Roma. 21 Special schools and adjusted programmes for Roma students: A large portion of Roma students get substandard education because they are enrolled in special schools or, more often, they receive education in regular schools but in an adjusted programme with lower requirements. Segregated/remedial classes: Especially in Meimurje County in schools with many Roma children, those Roma children with the best skills and knowledge of the Croatian language are usually sent to integrated classes, and the other Roma children are sent to segregated classes. Segregated classes also result from the fact that Roma children make up the majority of students in junior elementary grades in Meimurje. According to the government, in 2008 there were 52 Roma only classes, in 2009 the figure fell to 37 classes, while in 2010 there was an increase (44 classes), also due to the decision to establish classes with a smaller number of children.22 According to assessments of Romani women, based on the experiences in their communities, ca. 70% of the girls who start primary schools, actually finish primary schools.23 3.2. Government Approach Towards Inclusion of Roma in the Education System General The Government focuses its activities on the integration of Romani children into the mainstream education system at all levels. It inter alia provides scholarships, introduced 25 Romani Teaching Assistants (2010), facilitated the inclusion of Romani children into preschool institutions, inter alia through the creation of mobile outreach teams, or provided free textbooks and free transportation. 24
UNDP, Roma and Displaced (2006) See also for the following bullet points Roma Education Fund, Advancing Education of Roma in Croatia, Budapest 2007 22 Government of Croatia, Decade of Roma Inclusion, 2010 Progress Report, Zagreb 2011 23 Interview with Romani women, Zagreb, 6 July 2011 24 According to the Government Office for National Minorities, ca. thirteen of the Teaching Assistants are women. Interview with Office for National Minorities, Government of the Republic of Croatia, Zagreb 7 July 2011
20 21

The data quoted above, already demonstrated that the government successfully developed and implemented activities in the field of education in order to increase the number of Roma finishing quality education. The activities were implemented with financial resources from the state budget, European Commission and donors such as Roma Education Fund as well as with contributions from administrations at county and local level. 25 In July 2010, significant changes to the Law on Education in Primary and High Schools were made through amendments to Art. 43, obliging schools to help children with insufficient command of Croatian language. In general, three models for minority education exist in Croatia.26 Model A: entire education/teaching in the language and letters of national minorities, with compulsory learning of Croatian language (exists for Italian, Serbian, Hungarian, Czech minority). Model B: bilingual education, so that the natural sciences education is in Croatian, while the humanities classes are in the minority language (exists for Hungarian, Czech, Serbian minority) Model C: the education of the national minority language and culture, geography, history, etc is practiced in the minority language in duration of two to five school hours a week (exists for Albanian, Czech, Hungarian, Macedonian, Austrian/German, Serbian, Ruthenian, Slovakian, Slovenian and Ukrainian minority). Roma, though constituting the second largest minority group among pupils (2008: Serb: 4094, Roma: 3 628; Italian: 3 061; Hungarian: 1 241; Czech: 959 and Slovakian: 510) can not attend schooling in Romani language or learn their language and culture. 27 3.2.1. The National Programme and the Relevant Action Plans Roma National Programme The chapter on education of the National Programme for Roma does not make any reference to Romani women or girls.28 Overall Action Plan on Education The overall Action Plan on Education is divided into several sub-sections: primary education, secondary education, higher education, adult education and informal education. However, it does not include a section on pre-school education. In most of the sections, the Action Plan on Education refers to women (e.g., within goals: increase the number of Roma students (male and female) or the indicators mention: number of Roma students (male and female)), however not consistently. Sometimes the goals or the indicators do not mention Romani women or girls. As an example, Goal 4 of Primary Education refers to drop-outs from primary schools, however, does not propose gender-sensitive indicators though in general in particular Romani girls drop out of schools. The main implementing agency is the Ministry of Science, Education and Sports in cooperation with schools. The time-frame provided in the Action Plan for the implementation of most of the activities is in the course of the Decade.
Overview of the Most Relevant Goals of the Education Action Plan Primary Education

Protection of Roma in Croatia (October 2010) See Ana, Blazevic, Language Minority Education in Croatia: Current Issues and Challenges in Practice and Theory in Systems of Education, Volume 5 Number 1 2010 available at http://www.freeweb.hu/eduscience/1102BlazevicAna.pdf (accessed 9 June 2011) 27 For the data on minority pupils see Ana, Blazevic, Language Minority Education in Croatia: Current Issues and Challenges in Practice and Theory in Systems of Education, Volume 5 Number 1 2010 available at http://www.freeweb.hu/eduscience/1102BlazevicAna.pdf (accessed 9 June 2011) 28 Government of Croatia, National Programme (2003)
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Goal 1: Informing Roma children and parents on the importance and need of education with the aim of encouraging the enrolment of all Roma children in primary school Indicator: inter alia: number of enrolled Roma children (male/female) Goal 4: Individual approach to the pupil Indicator: Number of Roma school children dropping out of primary school Goal 5: Inclusion of Roma pupils in desegregated classes Indicator: Number of classes in which Roma pupils are included Secondary Education Goal 1: Systematic efforts to increase enrolment of Roma students (male/female) in the first year of secondary school (especially in four-year schools): Indicator: Number of Roma students (male/female) enrolled in secondary school Goal 1.1: Scholarships for needy Roma students (male/female) Indicator: Number of scholarships Goal 2: Creating preconditions for successful graduation from secondary school Indicator: Number of Roma students (male/female) who have graduated from secondary school Goal 2.3: Vocational guidance for Roma students (male/female) through seminars, forums questionnaires Indicator: Number of Roma students (male/female) received vocational guidance for employment after graduation from secondary school; number of Roma secondary school graduates who found a job Higher Education Goal 1: Systematic efforts to increase the number of Roma students (male/female) enrolled in institutions of higher learning (assistance with enrolment) Indicator: Number of Roma students (male/female) enrolled in institutions of higher learning Goal 1.3: Awarding scholarships to needy Roma students (male/female) Indicator: Number of scholarships Goal 5: Inclusion of Roma pupils in desegregated classes Indicator: Number of classes in which Roma pupils are included Adult Education Goal 2: Effective and economical literacy campaigns and training Indicator: Number of Roma (male/female) in literacy campaigns and training programmes; number of Roma (male/female) who have successfully participated in literacy campaigns and training programmes Goal 3: Systematic efforts to motivate women and young people for adult education and encouraging the parents in the community to support these efforts Indicator: Number of lectures, round tables and forums Informal Education Goal 2: Creating the conditions and training for active participation in public life and decisionmaking processes at all levels Indicator: Number of seminars given to date; number of Roma (male/female) participating in public life and government bodies

Action Plan 2011 2012 In addition, Croatia developed regular annual or biannual action plans, the latest for the years 2001-2012. Romani girls are in the narrative part of the Action Plan 2011-2012 generally identified as target group (Roma pupils of both genders), however, it does not include any tailor-made or targeting activities for Romani girls in the education system. With the exception of adult education and informal education, the Action Plan requests gender-disaggregated indicators. 9

For the period 2011-2012, the Action Plan proposes priorities for each education level:29
Preschool education Measures 1. Subsidizing of the parental share for members of the Roma national minority in preschool education programs 2. Subsidizing of preschool programs for members of the Roma national minority Primary education 1. Enrolment of Roma children of both genders in primary schools 2. Creating preconditions for the inclusion of Roma pupils in extended day programs 3. Qualification/training of associate assistants 4. Creating preconditions to reduce the number of segregated classes (with Roma pupils only) Secondary education 1. Enrolment of Roma children of both genders in secondary schools 2. Provision of scholarships for Roman students of both genders enrolled in full-time secondary schools 3. Provision of accommodation in dormitories 4. Creating preconditions to increase the number of Roma students of both genders who successfully graduate from secondary school, by classes Higher education 1. Providing for scholarships for needy Roma students of both genders Adult education and informal education 1. Inclusion of adult Roma of both genders in literacy campaigns and qualification programs

3.2.2. National Policy for the Promotion of Gender Equality 2006-201030 The document acknowledges the need for further research on the situation of Romani women and the collection of relevant data, but in particular the need for addressing their social marginalisation. With regard to education, the document in particular requests an increase of the number of scholarships and grants for secondary and university education of Roma women (time-frame for implementation 2006 2010).

4. Employment
4.1. Overview Country-wide, comprehensive data on the situation of Roma and Romani women do not exist though the relatively small size of the Romani community in Croatia and the legal situation would allow for the collection of improved data.31 The few available data on the situation of
29 30 31

Government of the Republic of Croatia, Action Plan 2011/2012

Gender Equality Policy 2006-2010 For the discussion of the 2003 Law on the Protection of Personal Information see inter alia UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008). However, it has to be mentioned that the Croatian Employment Service made considerable progress with producing gender- and ethnicity-disaggregated data (see below data on implemented measures).

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Romani women in the labour market paint a bleak picture. High level of unemployment and limitations in formal education dominate the picture though the government of Croatia undertook a few measures targeting an improvement of the employment situation. 4.1.1. Poverty The available poverty rates demonstrate the difference between Roma and non-Roma with regard to (material) poverty.
Table: Poverty Rates Roma Non-Roma USD 4.30/day World Bank Absolute Poverty Line32 Income-based 2006 11% 2% Expenditure-based 2006 10% 1% USD 2.15/day World Bank Extreme Poverty Line33 Income-based 2% 0% Expenditure-based 2% 0% KUNA 1539,40/month Croat Poverty Lines (UNDP 2006)34 Income-based 76% 20% Expenditure-based 73% 20%

4.1.2. Unemployment According to estimates of the Croatian Employment Service, in 2009 there were 4,731 unemployed Roma and 4,553 unemployed Roma in 2010. 35 According to UNDP research in 2006, 25% of the non-Roma living in close proximity to Roma were unemployed or considered themselves as unemployed while the rates among Roma were 62% and 72% (subjective perception). Gender-disaggregated data on employment and unemployment rates demonstrate an even worse situation for Romani women with an unemployment rate of 67% and an employment rate of 16% - among Romani men 44% and among non-Romani women 57%. The Lisbon Agreement of the European Union targets an employment rate of 70% overall and 60% for women.
Unemployment rates Unemployment (15-55 years) 2006 Subjective perception of unemployment 76% 200637
36

Roma 62%

Non-Roma 25% 25%

The following gender-disaggregate data reveal the even more disadvantaged position of Romani women:
Available gender-disaggregated employment and unemployment rates Roma Roma Non-Roma Non-Roma men women men women 38 52% 76% 16% 33% Unemployment rate (2006)
UNDP, Roma and Displaced (2006) UNDP, Roma and Displaced (2006) 34 UNDP, Roma and Displaced (2006) 35 Government of Croatia, Decade of Roma Inclusion, 2010 Progress Report, Zagreb 2011 36 UNDP, At Risk Roma and the Displaced in Southeast Europe, Bratislava, 2006 37 UNDP, At Risk Roma and the Displaced in Southeast Europe, Bratislava, 2006 38 UNDP, Roma and Displaced (2006)
32 33

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Employment rate (2006)39

44%

16%

74%

57%

4.1.3. Quality of work The data, however, do not reflect the quality of work, e.g., level of income, dangerousness of work, long-term and/or formal employment or eligibility to social benefits. Many Roma are involved in informal small trade, in collecting recycle material or in seasonal work which do not provide for social security or guarantee a long-term and stable income. UNDP mentions a research conducted by the former Croatian Office for Family, Motherhood and Youth, that concluded that 89% of Roma households have no members with permanent income and only 6% with a person permanently employed. 40 According to 2006 UNDP publication 10% of the Roma are employed in the informal sector while data for 2004 identified that 6 percent of Roma have full-time job and about 10 percent of Roma are employed part-time while the remaining 84% have difficulties accessing the labour market.41 The low level of education certainly contributes to the low quality of work placed available for Roma taking into account that based on data of the Croatian Employment Service (2006), 74 percent of Roma adults that are registered did not finish elementary school, 21,5 percent finished elementary school education, and only 4,5 percent graduated from secondary school.42 A small research conducted already in 2004, demonstrated that Romani women are particular involved in informal activities such as part-time trading (e.g. scrap metal 16%) and domesticrelated activities (19%).43 4.1.4. Access to social transfers Roma are overrepresented among the recipients of basic social transfers (e.g., support allowance, one-off financial allowance, allowance for the purchase of firewood and allowance for the purchase of obligatory textbooks). According to data from the National Programme for the Roma, Roma make up 13.5% of the recipients of these forms of social welfare.44 According to Joint Inclusion Memorandum (JIM)45 Roma are excluded from formal employment and make instead use of social assistance in disproportionately large numbers (ca. 75% of Roma households live only on social assistance or combine social assistance with other incomes). 4.2. Government Approach Towards Improving the Situation of Roma on the Labour Market

UNDP, At Risk Roma and the Displaced in Southeast Europe, Bratislava 2006 UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 41 UNDP, At Risk Roma and the Displaced in Southeast Europe, Bratislava, 2006; Advancing education of Roma in Croatia, Country Assessment and the Roma Education Funds Strategic Directions, Budapest 2007 available at: http://www.romaeducationfund.hu/sites/default/files/publications/croatia_comprehensive.pdf (accessed 2 June 2011) 42 Advancing education of Roma in Croatia, Country Assessment and the Roma Education Funds Strategic Directions, Budapest 2007 available at: http://www.romaeducationfund.hu/sites/default/files/publications/croatia_comprehensive.pdf (accessed 2 June 2011) 43 European Roma Rights Centre, Shadow Report of the European Roma Rights Centre on the Republic of Croatias combined second and third periodic reports to the Committee on Elimination of Discrimination against Women (CEDAW 32nd Session 10 to 28 January 2005) 44 National Programme for Roma quoted after UNDP, Poverty, Unemployment and Social Inclusion, Zagreb 2006 45 Joint Memorandum on Social Inclusion of the Republic of Croatia available at http://www.delhrv.ec.europa.eu (accessed 7 June 2011)
39 40

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The Government policy aims in the long term at increasing the employability of Roma which is done by combined activities in education and employment. The activities range from information activities and public works to co-financing both training and employment of Romani job-seekers. The Croatian Employment Service (CES) does not collect ethnicity-disaggregated data, therefore, the provided data are based on estimations, knowledge of Romani language, place of residence, etc.46 The 2010 Decade of Roma Inclusion Progress Report of the Government of Croatia provides for a few data on the activities of CES in the field of employment. In total, CES has provided 671,100 EUR for their implementation (ca. HRK 5 million): The 2010 Progress Report reveals however, the existence of gender-disaggregated data and that Romani women were targeted in several employment-related activities and not only included in training programmes as stipulated by the Programme and the Action Plan (2005-2015).
Croatia: Overview of employment-related activities and number of participants (2010) Activity Number of Romani participants women Literacy programs for adults 243 81 (33%) Programs for first occupation 7 2 (28.57%) Preparatory workshop for training and self8112 3909 (48.19%) employment47 Information on employment opportunities, 1,103 568 (51.5%) services, and subsidies for education and employment Individual counselling 6,440 3,150 (48.91%) Training on job searching skills 265 107 (40.38%) Co-financing employment 272 75 (27.57%) Financing of education 32 9 (28.12%) Co-financing employment for 24 months 4 2 (50%) Public works 268 73 (27.24%) Co-financing education 32 9 (28.12%) Professional information and counselling 493 135 (27.38%) Employment on open labour market 226 91 (40.26%) Self-employment 24 Total 17521 8211 (46.86%)

According to government data in 2010, Romani women constituted 46.86% of the Romani beneficiaries (8.211 women out of 17.521 persons in total). In addition, CES targeted employers (1511 visits to employers) and held 79 meetings with employers associations, unions and associations of Roma at local level which led to the employment of Roma on the open labour market. 4.2.1. National Programme and the Relevant Action Plans National Programme The chapter on employment of the National Programme contains five goals:
46 47

Higher employment rate of the Roma population Employment of more Roma in public works campaigns

Government of Croatia, Decade of Roma Inclusion, 2010 Progress Report, Zagreb 2011 This could reflect the activity mentioned in National Programme and Action Plan on Employment

13

Involvement of Roma in vocational training programmes Employment of counsellors for mediation in the employment of Roma

Co-financing of the employment of Roma Within Goal 1), training programmes are proposed that should target women: training and employment in all branches of the economy: In order to enhance the employability of this population segment, besides the employment programmes it is necessary to organise training programmes (especially for young people and women). 48 Overall Action Plan on Employment
Overall Employment Action Plan - Goals

Target: Increasing employment of Roma men and women Goal 1: Training and employment of Roma in all branches of industry (especially young people and women) Goal 2: Inclusion of Roma in preparation for employment programmes; assessment of the remaining physical ability Goal 3: Developing a positive climate for the employment of Roma in society and especially among employers Goal 4: Assistance in self-employment (preparation of business plans, business management courses, initial capital) Goal 5: Employment in public works programmes (Roma for Roma, Roma for the local community) Goal 6: Education and development of a network for collecting secondary raw materials for recycling staffed by Roma Goal 7: Subsidizing the employment of Roma for 24 months by reimbursing the labour costs to the employer to the tune of 1,500 kuna per month

The overall Action Plan on Employment makes very limited reference to women. Only Goal 1 mentions women. The indicators for Goal 1 as the indicators for all other goals are not gendersensitive (e.g., with regard to several goals the indicators just say: number of persons. The only reference to women is a general cross-cutting issue column relevant to all goals Combating discrimination and poverty; promoting gender equality. The main implementing agencies are the Croatian Employment Bureau and regional self-government units. The time-frame provided in the Action Plan for its implementation is in the course of the Decade. Action Plan for Employment 2011-2012 The Croatian Employment Service (CES) secured HRK 6 million (ca. 810.000) in the 2011 Financial Plan for the implementation of measures of the Action Plan while the projections for 2012 are HRK 8 million (ca. 1,08 million). The Action Plans provides for certain activities gender-disaggregated indicators, for other activities however not. However, the table above demonstrated that Croatia collects genderdisaggregated data for almost all measures. Interestingly, in particular the measures targeting employment (and not training or counselling) do not provide for gender-disaggregated data.

48

Government of Croatia, National Programme (2003)

14

Croatia: Overview: Action Plan on Employment 2011-201249 Measures Goal 1 Information on employment opportunities, services, and subsidies for education and employment Assistance in defining a business profile and in defining an individual plan for job-searching Training in acquiring job-searching skills Employment and qualification of unemployed Roma - subsidising employment - financing education - qualification for self-employment Co-financing employment for 24 months Public works Co-financing education Professional qualification for employment without entering into a work contract Qualification for self-employment Goal 2 Vocational informing and counseling employment workshops Vocational informing and counseling for persons over the age of 45 employment workshops Assessment of other work capabilities for purpose of defining jobs a person is capable of performing Assessment of other work capabilities for the purpose of defining jobs (over the age of 45) Goal 3 Production of information materials on the possibilities and subsidizing employment of Roma Targeted visits to employers by employment counselors with the aim of providing information on the possibilities of employing members of the Roma national minority Organizing joint meetings with participants on the local labor market for the purpose of improving employment and education possibilities for Roma
49

Indicators 2011: 1300; 2012: 1500 2011: 6200; 2012: 6400 2011: 400; 2012: 450 2011: 230; 2012: 280 2011: 30; 2012: 60 2011: 20; 2012: 40 2011: 10; 2012: 20 2011: 190; 2012: 210 2011: 30; 2012: 60 2011: 30; 2012: 50 2011: 20; 2012: 40 2010: 550; 2011: 600 2010: 150; 2011: 200 2010: 100; 2011: 150 2010: 80; 2011: 100

Romani women 2011: 700 2012: 800 2011: 3100; 1012: 3300 2011: 200; 2012: 250

2010: 170; 2011: 200 2010: 100; 2011: 150 2010: 50; 2011: 100 2010: 50; 2011: 70

2010: 2500 2011: 3000 2010: 80 meeting 2011: 100 meetings

2010: 2011:

Government of the Republic of Croatia, Action Plan 2011/2012

15

Employment of Roma in the open labor market Goal 4 Organization of group informing on self-employment and possibilities of starting ones own business Informing and counseling on the possibilities of self-employment

2010: 400; 2011: 460 2010: 30 sessions; 2011: 50 sessions 2010: 50; 2011: 60

2010: 155; 2011: 190 2010: 2011: 2010: 15; 2011:25

16

4.2.2. National Policy for the Promotion of Gender Equality 2006-201050 With regard to education, the document acknowledges the need for further research and data collection, but also proposes that the Croatian Employment Service should undertake in 2007 an analysis and plan for employment of Roma women () on the basis of the estimated number of unemployed women. 4.2.3. National Plan for the Promotion of Employment 2011 201251 Within two goals (Goal 3.1: Increase the employability and participation rate of prime-age women; Goal 3.4: Addressing the long-term unemployment problem) measures are foreseen that either include Romani women (Goal 3.1.) or directly target Roma, with regard to the latter, the indicators are gender-disaggregated (number of gender of). The majority of the measures proposed to achieve Goal 3.1) reflect the measures proposed in the Action Plan on Employment 201-2012.
Relevant Goals and Measures of the National Action Plan for Employment 2011-2012 3. Strategic Goals and Implementation Measures 3.1. Goal: Increase the employability and participation rate of prime-age women52 Implementation measures: 3.1.2. Provide more education, training and work-practice programmes geared to the needs and circumstances of prime-age women (in particular those with low or inadequate skills) returning to the labour market (especially after maternity leave, or after caring for their children/family members or after temporary inability to work). 3.4. Goal: Addressing the long-term unemployment problem Implementation measures: 3.4.3. Implement more effectively the current programmes for the vulnerable groups in the labour market and expand them, in particular with a view to making a significant impact on employment of the Serb minority, the Roma and other minorities. (In this context, launch separate studies to analyse and monitor the employment situation of the Serb minority and Roma minority, assessing the risks they face and identifying appropriate policy responses

Gender Equality Policy 2006-2010 See website of the Croatian Employment Service: http://www.hzz.hr/docslike/NPPZ_2011-2012_Final.pdf (accessed 7 June 2011) 52 Prime-age women are women in the 25-49 age group (Joint Assessment of the Employment Policy Priorities of the Republic of Croatia JAP)
50 51

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National Plan for the Promotion of Employment 2011-2012 Target groups Time limit Activities for implement ation Unemployed women over 40, long-term unemployed women, inactive women, unemployed women from regions with high unemployment rates, unemployed women belonging to national minorities, in particular Roma Persons belonging to the Roma national minority Persons belonging to the Roma national minority Persons belonging to the Roma national minority Persons belonging to the Roma national minority Young persons belonging to the Roma national minority who have acquired secondary or higher education qualifications 2011-2012 3.1.2.4. Implement the "Women in the Labour Market" project (service delivery contract and grant award contract)

Implementation indicators

The "Women in the Labour Market" project has been implemented

Responsi ble/ impleme nting institutio ns CES

Planned funds

New measure Yes/No

IPA funds: 2 million ( 1,700,000 EU, 300,000 RoC) for grant award contract, 871,500 ( 740,775 EU, 130,725 RoC) for service delivery. For 2011 State Budget: HRK 6 million* For 2011 State Budget, HRK 6 million * For 2011 State Budget: HRK 6 million * For 2011 State Budget: HRK 6 million * For 2011 State Budget: HRK 6 million *

NO

continuous until 2015 continuous until 2015 continuous until 2015 continuous until 2015 2011-2012

3.4.3.6. Implement training programmes for Roma 3.4.3.7. Provide subsidies for the employment of Roma in public works programmes. 3.4.3.8. Provide employment subsidies for Roma

number and gender of Roma who have been included in training programmes Number and gender of Roma included in public works programmes

CES CES

NO NO

Number and gender of Roma employed through employment subsidy scheme. 3.4.3.9. Number and gender of Provide training in selfRoma included in training in employment. self-employment 3.4.3.10. Number and gender of Cover the costs of compulsory young Roma included in pension insurance contributions occupational training and monetary allowance during without commencing occupational training without employment

CES

NO

CES CES

NO NO

18

Unemployed persons with disabilities, long-term unemployed young people with low education, unemployed for more than 5 years, unemployed Roma and other national minorities threatened by social exclusion Young people belonging to national minorities and Roma (aged between 13 and 30) and other marginalised groups Persons belonging to the Roma minority, persons with disabilities, refugees, displaced persons and returnees, rehabilitated addicts, older persons, persons entitled to financial assistance

2012

commencing employment. 3.4.3.12. Implement the project "Improving Labour Market Access of Disadvantaged Groups" (grant award contract). 3.4.3.15. Implement activities under the Youth in Action Programme targeted at marginalised groups 3.4.3.17. 1. Annual statistical monitoring. 2. Data analysis. 3. Strengthening interdepartmental co-operation in preparing measures which promote employment of the indicated group. (Long-term unemployed receiving permanent benefit statistical monitoring by gender, age, duration of unemployment, qualifications and occupation, family status, special emphasis on Roma and persons with disabilities.) 3.4.3.19. Seminar on employment of national minorities in the Republic of Croatia, with special reference to Roma

The project "Improving Labour Market Access of Disadvantaged Groups" has been implemented.

CES

IPA 2010-2011: EUR 2 million (EUR 1,700,000 EU, EUR 300,000 RoC)

YES

On a continuous basis On a continuous basis

The number and gender of participants belonging to minorities and other marginalised groups 1. Report 2. Analysis 3. A co-operation agreement has been signed (part of activities under the IPA project "Establishing Support in Social Inclusion and Employment of Disadvantaged and Marginalised Groups")

AMEUP

MHSW, FVEEPD , CES

Total budget for the "Youth in Action" programme amounts to HRK 7,314,699.00 Funds provided by the MHSW and the FVEEPD as part of their regular activities

YES

NO follow up

National minorities in the Republic of Croatia

2011

A seminar has been organised on the topic of employment of members of national minorities.

GONM Coimplemen ting: CES

Funds provided by the implementing subject, State Budget: HRK 40,000.00

YES

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5. Health
5.1. Overview There are very few comprehensive nation-wide and recent data on the situation of the Roma in the health system in Croatia. The UNDP report (2006) provides for a few data, however, it has to be emphasised that since this survey three larger housing and infrastructure projects have been implemented with the assistance of the European Commission in Croatia (see chapter on housing). The 2010 Decade of Roma Inclusion Progress Report mentions a few data. The vaccination rates of Romani children have reached the level of non-Roma in most parts of Croatia, e.g., in Primorsko-Goranska County 75.8 % of the Romani children were included in the complete vaccination programs, while 6.41 % were partially vaccinated. The report also stated that health remains a concern for several reasons, including a lack of comprehensive data, particularly from the regional level. 53 The lack of citizenship and/or of any documents constitutes another problem, since it deprives these persons from participating in health insurances which creates obstacles in accessing health care. Without health insurance, the services have to be paid in cash.54 5.2. Government Approach Towards Improving the Health Situation of Roma In the field of health care, the government activities focused on the implementation of a programme of health education, vaccination campaigns, raising awareness and introducing both preventive and curative health protection measures.55 Indirectly, the conduct of housing and infrastructure measures also contributed to improving the health status. 5.2.1. Roma National Programme and the Relevant Action Plans Roma National Programme The chapter on health of the National Programme for Roma contains the following goals:56
Health-related Goals of the National Programme for Roma 1. Health education and raising awareness of Roma 2. Health-related survey of the Roma population 3. Improvement of immunisation coverage 4. Improvement of working conditions for visiting nurses who work with the Roma population 5. Combating alcohol drug abuse, tobacco smoking and other addictions 6. Monitoring the health protection of all Roma, and especially women and children

Goal 1) targets in particular Romani women and aims at training Romani women to become health assistants. Goal 6) aims at improving access to health care by inviting different actors - representatives of NGOs, Roma communities, schools, social welfare centres, police departments and others - who have information pertaining to violations of the right to health care of Roma women and children, are obliged to inform about it the director of the health care institution, who will thereafter act in accordance with the law. 57
Government of Croatia, Decade of Roma Inclusion, 2010 Progress Report, Zagreb 2011 Interview with Romani women, Zagreb, 6 July 2011 55 Protection of Roma in Croatia (October 2010) 56 Government of Croatia, National Programme (2003) 57 Government of Croatia, National Programme (2003)
53 54

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Overall Action Plan on Health The Action Plan on Health contains five goals; only one of the goals or their indicators refer to Romani women. The main implementing agencies are the Ministry of Public Health and Social Welfare and/or the Croat or County Public Health Administration.
Most Relevant Goals and Indicators of the Health Action Plan Goal 3: Health education focusing on family planning, the protection of reproductive health and measures for safe motherhood, especially for pregnant and parturient women Indicators: 1. Percentage of professionally assisted deliveries among Roma women 2. Number of gynaecological examinations per pregnant Roma woman 3. Number of deliveries of young Roma women under the age of 16 compared to the national average Goal 5: Education and training of Roma community members for health care and medical jobs Indicators: 1. Number of Roma in health care and medical professions 2. Number of scholarships awarded to Roma students training for health care and medical professions 3. Number of Roma training for health care and medical professions

The Action Plan on Health 2011-2012 takes up the goals of the overall Action Plan, however, calls them now measures (sic!). However, with regard to goal/measure 3, the goal/measure and the indicators have been slightly changed:
Measure 3 Health Action Plan 2011-2012 Measure 3: Health education focusing on family planning, the protection of reproductive health and measures for safe motherhood, especially for pregnant and parturient women (education of Roma assistants, education of Roma families through domiciliary care teams) Indicators: Number of Roma women undergoing gynecological examinations Surveys with questionnaires and education with focus on reproductive health

Though the measure proposes education of Roma assistants, it does not propose any relevant indicator and does actually also does not take up Goal 1) of the National Programme. The 2010 Decade Progress Report states to health that Roma have registered in high schools (12) and higher education (2) and that and the authorities are still in process of developing programs for health mediators.58 According to the Government Office for National Minorities, the government intends now to make use of an initiative of the Council of Europe to employ Health Mediators. 59 5.2.2. National Policy for the Promotion of Gender Equality 2006-201060 The document does not refer specifically to health, only mentions that the implementation of measures of the National Programme for the Roma and the Action Plan for "Decade for Roma Inclusion 2005-2015" will be systematically monitored, to improve living conditions and social integration of Roma women.

Government of Croatia, Decade of Roma Inclusion, Progress Report 2010, Zagreb 2011 Interview with Office for National Minorities, Government of the Republic of Croatia, Zagreb 7 July 2011 60 Gender Equality Policy 2006-2010
58 59

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6. Housing
6.1. Overview There are very few comprehensive nation-wide and recent data on the housing situation of the Roma in Croatia. The UNDP report (2006) provides for a few data, however, it has to be emphasised that since this survey three larger housing and infrastructure projects have been implemented with the assistance of the European Commission in Croatia
Housing Poverty61 No access to secure housing Majority Roma Available Space Rooms per household member Majority Roma 1.25% 0.66% 2% 10% No access to improved sanitation 4% 60% No access to improved water source 1% 29%

sqm2 per
household member 33 sqm2 14 sqm2

6.2. Government Approach Towards Improving the Housing Situation of Roma The government focused its activities on the legalisation of Romani settlements and housing (re)construction and infrastructure upgrading in Medjimurje county which is the county with the largest Romani community in Croatia. The activities were primarily implemented with financial resources from the European Commission and the state budget. Croatia with the financial assistance of the European Commission implemented three housing and infrastructure projects within Medjimurje county. The PHARE 2005 project, worth 624.796 was awarded for the construction of community roads, water supply and electricity supply in the village of Parag in Medjimurje County).62 The PHARE 2006 project with the budget of 3,254.816 provides for the construction of community roads, water supply and electricity supply in the villages of Lonarevo, Pribislavec and Pikorovec in Medjimurje County. 63 The IPA Annual Programme 2008 foresees a third infrastructure project with a budget of 3,333.333 (EC contribution 2.5 million) in the Romani settlements of Orehovica and Mursko Sredie (Sitnice) in Medjimurje County.64

UNDP, Roma and Displaced (2006). Data sets available at http://vulnerability.undp.sk/ https://webgate.ec.europa.eu/europeaid/onlineservices/index.cfm?ADSSChck=1255945818126&do=publi.detPUB&searchtype=AS&zgeo=35461&aoet=36537% 2C36538&ccnt=7573876%2C7573878%2C7573877%2C7573879&debpub=&orderby=upd&orderbyad=Desc&nbP ubliList=15&page=10&aoref=125888 63 https://webgate.ec.europa.eu/europeaid/onlineservices/index.cfm?ADSSChck=1255944753394&do=publi.detPUB&searchtype=AS&zgeo=35461&aoet=36537% 2C36538&ccnt=7573876%2C7573878%2C7573877%2C7573879&debpub=&orderby=upd&orderbyad=Desc&nbP ubliList=15&page=7&aoref=127530 64 http://ec.europa.eu/enlargement/pdf/croatia/ipa/2008/2008-0101-05_roma_support_project__phase_iii_version_081010_en.pdf
61 62

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According to the project fiche of the 2008 project, the local authorities in Medjimurje County (6000 Roma live in the county constitute the largest Roma community in Croatia) have recently initiated the full legalisation of all illegal Roma settlements, opening the door for structural improvement of the living conditions in these settlements.65 According to a Government document seventeen families of the Romani settlement in Donja Dubrava in received solidly built houses and access to health care and social protection has been improved.66 Infrastructure Development Yet, decisions to legalize Roma settlements have been taken according to the National Program for the Roma and the Action Plan for the Decade of Roma Inclusion. Thirteen out of 14 counties in which Roma settlements exist developed their plans for the legalisation of Roma settlements and improvement of housing conditions. 67 In total, nine Romani settlements were legalised in the Medjimurje county. 68

6.2.1. Roma National Programme and the Relevant Action Plans Roma National Programme The chapter on housing of the National Programme for Roma does not make any reference to Romani women.69 Overall Action Plan on Housing The Action Plan on Housing contains three main goals. None of the goals or their indicators refers to Romani women. The main implementing agencies are the Ministry of Environmental Protection, Physical Planning and Construction and the regional and local self-government units.
Most Relevant Goals of the Housing Action Plan Goal 1: Physical planning and infrastructural development of approved sites inhabited by the Roma Indicator: Number of approved sites (settlements); development of infrastructure (public utilities, roads, social welfare facilities) Goal 1.3.2.: Regulating property ownership patterns (state owned land: cession free of charge/transfer of title to local self-government units/ allocation for free use/sale of property through direct deal; Municipal/city owned land: cession free of charge/allocation for free use/sale of property through direct deal; Privately owned land: purchase/other appropriate method) Indicator: Regulated property ownership patterns Goal 2: Creating the conditions for the integration of the Roma into the local community (housing) Indicator: Number of Roma living in adequate housing Goal 3: Provision of funds for the implementation Indicator: The amount of funds

Action Plan on Housing 2011-2012 None of the proposed measures or indicators of the Action Plan on Housing 2011-2012 refers to Romani women.
http://ec.europa.eu/enlargement/pdf/croatia/ipa/2008/2008-0101-05_roma_support_project__phase_iii_version_081010_en.pdf 66 Protection of Roma in Croatia (October 2010) 67 Protection of Roma in Croatia (October 2010) 68 Joint Memorandum on Social Inclusion of the Republic of Croatia available at http://www.delhrv.ec.europa.eu (accessed 7 June 2011) 69 Government of Croatia, National Programme (2003)
65

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Measures Action Plan on Housing 2011-201270 1: Creating preconditions for physical planning, solutions and development of sites inhabited by the Roma 1.1 Preparation of county activity programs and measures for site improvement and better housing conditions on sites inhabited by the Roma 1.2 Starting the implementation of county activity programs and measures for site improvement and better housing conditions on sites inhabited by the Roma 1.2.1 Physical planning affairs (Building area boundaries, detailed development plans, Program of site improvement and development and designation of public buildings 1.3 Continuous monitoring of the situation in sites inhabited by the Roma 1.3.3 Arrangement and development of the settlements (parcelling out/zoning of land, development of infrastructure: public utilities, roads, social welfare facilities) 3. Provision of funds to facilitate the implementation of the Action Plan

6.2.2. National Policy for the Promotion of Gender Equality 2006-201071 The document only refers in general to the monitoring of the implementation of the action plans.

7. Gender Based Violence

7.1. Overview Croatia still can be considered in general as a patriarchal society which is even more valid for the Romani communities in the country. However, neither the National Programme for Roma nor the Decade Action Plans make any direct reference to the phenomenon of gender based violence within Romani communities. Government Approach Towards Gender-Based Violence Against Romani Women 7.2.1. Roma National Programme and the Decade Action Plans Roma National Programme72 The National Programme for Roma propose as one of the measures in the chapter Social Welfare the organisation of workshops for small Romani groups addressing inter alia issues such as family protection measures and criminal law protection, family relations with particular emphasis on the need to prevent marriages of minors, interventions and assistance in solving the differences between partners and protection from human trafficking and sexual abuse.73 Social welfare centres, county institutes for public health, Roma and other NGOs, local and regional self-government units are the responsible implementing authority and it should constitute a continuous activity. Decade Action Plans The Decade Action Plans (neither the overall action plans nor the action plans for 2011-2012) do not refer to gender based violence towards Romani women. 7.2.

Government of the Republic of Croatia, Action Plan 2011/2012 Gender Equality Policy 2006-2010 72 Government of Croatia, National Programme (2003) 73 Government of Croatia, National Programme (2003)
70 71

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7.2.2. National Policy for the Promotion of Gender Equality 2006-201074 The document dedicated a chapter to Romani women. However, it does not mention the issue of gender-based violence. 7.2.3. National Strategy for the Protection against Family Violence (2005-2007) The document does not refer to Romani women, however, proposes as one of the measures to ensure dissemination of information about family violence issues to particularly vulnerable population groups. 7.2.4. Rules of Procedures in the Cases of Family Violence The document does not refer to Romani women.75

8. Participation and Representation of Romani Women

8.1. Overview Participation in public or political life can be considered as an indicator for the social inclusion of a group. With regard to the general living standard, education, employment or health status, Romani women are in a disadvantaged position compared to other groups in Croatia. Croatia still can be considered in general as a patriarchal society with a limited participation of women in public life; the 2010 Progress Report of the European Union, e.g., states that women continue to be under-represented in economic and political decision-making bodies.76 Romani women are even double discriminated as women and members of the Roma community. The general low education level among Romani women, their unemployment rate and the patriarchal attitude prevailing in the Roma communities further compound their difficult situation. Romani women are neither represented accordingly in the overall public life of the country nor within the representative structures of the Romani community. In Croatia various bodies exist at different government levels dealing with Roma and gender issues. At central level exists a National Council for National Minorities. In units at local and regional level where Roma make up more than 1.5% of the total population, Councils of the Roma National Minority have to be established that are only advisory bodies. In addition, representative of Romani NGO could be members of specialised bodies at local level, e.g., dealing with the allocation of funds for minorities. 77 At national level among the 18 Romani representatives, seven are women. In Osijek-Baranja County out of 25 members of the Roma National Minority Council, four are women.78 In total at local level 37 Romani women and 277 Romani men are members of the local councils; the percentage of 11.78% Romani women among the councils members is the lowest among all minorities (overall average 27.54%).79 In January 2003, the Government of the Republic of Croatia formed the Commission for Monitoring the Implementation of the National Program for Roma. Out of the 23 members,

Gender Equality Policy 2006-2010 Protokol o postupanju u slucaju nasila u obitelji (Rules of Procedures on Cases of Family Violence) available at: http://www.mobms.hr/media/7461/protokolopostupanjuuslucajunasiljauobitelji.pdf (access 31 August 2011) 76 Commission of the European Communities, Commission Staff Working Document Croatia 2010 Progress Report, Brussels 09.11.20010 SEC (2010) 1326 available at http://ec.europa.eu/enlargement/pdf/key_documents/2010/package/hr_rapport_2010_en.pdf (accessed 10 June 2011) 77 UNDP, Monitoring Framework of the Decade of Roma Inclusion Croatia (Bratislava 2008) 78 E-mail from Romsko Srce of 30 August 2011. 79 E-mail from Office for National Minorities, Government of the Republic of Croatia of 17 August 2011
74 75

25

eight are Roma and of the Roma representatives three are Romani women.80 The other members represent primarily central, county or local authorities. In May 2009, Romani representatives formed the National Roma Forum, an umbrella organisation of Romani NGOs. It provides inter alia assistance to state bodies in policies regarding the integration of Roma in the Croatian society and monitoring the implementation of the NPR and the Action Plan of the Decade of Roma Inclusion. 81 Two Romani women organisations are members of the Forum.82 In 2003, Croatia adopted the Gender Equality Act. In order to enforce the Act, a Gender Equality Ombudsman was appointed in the same year while 2004 the Office for Gender Equality was established. Co-ordinators for gender equality were appointed in all ministries and other government bodies, while the counties established Commissions for Gender Equality. Currently at central level three Romani women are members of Commissions for Gender Equality; at county level at least in Osijek-Baranja County, one Romani woman is a member of the Commission. 83 Government Approach Towards Participation of Romani Women 8.2.1. Roma National Programme and the Decade Action Plans Roma National Programme84 The National Programme contains the following goals with regard to participation of Roma: Increasing the awareness of the need to participate in decision-making processes Higher representation of women in representative bodies and their involvement in decision-making processes 8.2.

Meeting of formal requirements for the inclusion of Roma representatives in competent state bodies, regional bodies and bodies of local self-government The National Programme further elaborates that it is necessary to raise awareness among Roma, especially among Roma women, about the opportunities and ways in which they can exercise their rights. It defines as an expected effect the establishment of Roma councils in counties, towns and municipalities in compliance with the relevant legislation and proportional representation of women in those councils.
Measure to increase participation of Romani women Training of Roma representative, especially women and youth, for participation in decision-making process, exercising their rights and greater involvement in social life inter alia: - organising courses for Roma representatives who will acquire necessary knowledge on management, on association founding and management, on systematic linking of Roma associations and representatives of areas inhabited by Roma, and especially for women and youth on how to improve the position of women, on the rights as stipulated by the Convention on the Elimination of All Forms of Discrimination Against Women, Convention on the Rights of the Child and other international instruments

The Office for National Minorities is the responsible implementing authority and it should constitute a continuous activity. According to the National Programme the participation of Romani women in the selfrepresentation structures of Roma has further to be improved. Overall Decade Action Plan
Interview with Office for National Minorities, Government of the Republic of Croatia, Zagreb 7 July 2011 Protection of Roma in Croatia (October 2010) 82 E-mail from Romsko Srce of 30 August 2011 83 E-mail from Romsko Srce of 30 August 2011. 84 Government of Croatia, National Programme (2003)
80 81

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The overall Decade Action Plans refers to participation in the chapter on education. The subchapter informal education contains goal 2) Creating the conditions and training for active participation in public life and decision-making processes at all levels with the indicator Number of seminars given to date; number of Roma (male/female) participating in public life and government bodies. Decade Action Plan 2011-2012 The action plans for 2011-2012 do not refer to the participation of Roma or Romani women. 8.2.2. National Policy for the Promotion of Gender Equality 2006-201085 The document provides for one measure related to participation: Support will be provided for cooperation of organisations of Roma women with other nongovernmental organisations, representatives of state administration and local and regional selfgovernment units, by jointly organising forums, round tables and conferences, with a view to exchanging experiences and encouraging Roma women to take part in resolving problems in their local communities.

9. Main Activities of Main Donors In Cooperation with The Government

of Croatia
This section can not provide an exhaustive overview over all current activities in Croatia related to the situation of Romani women. Many bilateral donors or organisations such the European Commission (IPA, EIDHR), OSCE, UNICEF, UNDP, SDC, Sida, Norwegian Foreign Ministry, USAID, OSI, etc provide financial resources for promoting Roma. In general, the majority of the projects is implemented by national and international NGOs. 9.1. European Commission Activities in the Framework of the Instrument for PreAccession (IPA) 9.1.1. Progress Report 201086 The 2010 Progress Report acknowledges with regard to the Roma improvements in education, particularly in pre-school education, but mentions also that problems continue to exist with the participation by Roma in the education system, that segregation persists in some schools and that only modest progress has been towards ensuring Romani children complete primary and secondary schools. The report does not refer explicitly to Romani women or girls. The Report mentions also that problems continue to exist inter alia with regard to access to health care. Further, many Roma could not regulate their status yet, which creates problems also regarding access to health care. With regard to the housing situation, the report identified that some infrastructure improvements to Roma settlements have continued. However, it further states that access to adequate housing, social protection and health care remain persisting problems for Roma (). The living conditions of Roma communities in some suburban areas need to be improved by providing adequate housing and infrastructure. With regard to participation of women the report stresses that women continue to be underrepresented in economic and political decision-making bodies.

Gender Equality Policy (2006) Commission of the European Communities, Commission Staff Working Document Croatia 2010 Progress Report, Brussels 09.11.20010 SEC (2010) 1326 available at http://ec.europa.eu/enlargement/pdf/key_documents/2010/package/hr_rapport_2010_en.pdf (accessed 10 June 2011)
85 86

27

The 2010 Progress Report does not explicitly refer to the phenomenon of gender based violence and Romani women. 9.1.2. Accession Partnership87 The Accession Partnership document from February 2008 describes in particular the priorities in the co-operation between the European Union and Croatia. The only key priority that could prove to be of possible direct relevance to Roma states:
Implement the Constitutional Law on National Minorities, with particular attention to its provisions guaranteeing proportional representation of minorities in employment. Tackle discrimination more widely in the public sector.88

Regarding the Political Criteria (democracy and the rule of law; Human rights and protection of minorities) the following priorities referred to Roma: Ensure access to justice and legal aid and make available the corresponding budgetary resources, promote respect for and protection of minorities; encourage a spirit of tolerance vis--vis the Serb and Roma minorities and take measures to protect persons belonging to minorities who may be subject to threats or acts of discrimination, hostility or violence, continue to implement the strategy and action plan for the protection and integration of Roma and ensure availability of the necessary means, especially as regards employment, education and housing,

The Accession Partnership does not explicitly refer to Romani women in the education system, their health status, the housing situation, participation of Romani women and to gender-based violence. One of the priorities of the Partnership is to continue to implement the strategy and action plan for the protection and integration of Roma and ensure availability of the necessary means, especially as regards employment, education and housing, omitting health. 9.1.3. Multi-Annual Indicative Planning Document (MIPD) 2009-2011 The strategic choices for IPA assistance over the period 2009-2011 include in the area of political criteria inter alia taking measures to protect persons belonging to minorities including the Roma. However, the further detailed planning (objectives, expected results, measurable indicators) refers only to minorities in general. Roma are not explicitly mentioned. 9.1.4. Joint Inclusion Memorandum (JIM)89 Education The Memorandum outlines the principal challenges in relation to tackling poverty and social exclusion and presents the major policy measures taken by Croatia.
87 Council of the European Union, Council Decision of 12 February 2008 on the principles, priorities and conditions contained in the Accession Partnership with Croatia and repealing Decision 2006/145/EC (2008/119/EC). 88 The Accession Partnership of 2006 contained the following key priority: Accelerate implementation of the Constitutional Law on National Minorities. In particular, urgently take steps to ensure proportional representation of minorities in local and regional self government units, in the State administration and judicial bodies, and in bodies of the public administration. The proportional representation of minorities in local and regional self government units, in the State administration and judicial bodies is not explicitly mentioned anymore as a key priority in the 2008 Partnership though the 2009 Progress Report still criticises that the implementation of the recruitment plan for national minorities has not seen a significant increase in minority employment in the State administration. 89

Joint Memorandum on Social Inclusion of the Republic of Croatia available at http://www.delhrv.ec.europa.eu (accessed 7 June 2011)

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The Memorandum also defines specific measures for the inclusion of the Roma, complementary to those defined in the National Program for Roma and the Decade Action Plan. The improvement of the inclusion of Roma in the education system is high on the agenda of JIM. It defines the following priorities and measures: all Roma children should be prepared for school through a pre-school programme and be enrolled in compulsory primary education, daily stay programmes for Roma children at elementary schools, with additional and complementary activities and the participation of educated Roma classroom assistants to act as mediators between pupils, parents and school staff and management, increase the number of Roma children of both sexes that enrol and complete secondary and post-secondary education , creation of a school environment in accordance with the principles of intercultural/multicultural education

keep Roma culture, language and customs (building of cultural centres for the Roma in akovec and Zagreb). Employment The measures include inclusion of Roma representatives in local and regional self-government or encourage greater employment of the Roma through public work and training for particular professions. Health Equal access to health services is defined as one of the key challenges without directly referring to Roma. The Memorandum also defines specific measures for the inclusion of the Roma, complementary to those defined in the National Program for Roma and the Decade Action Plan, including improve access to and quality of health care for the Roma population. Housing JIM defines adequate housing for all as one of the key challenges without explicitly referring to Roma. In general, it raises the need to developing a Housing Strategy for Croatia and a Social Housing Concept. The Memorandum also defines specific measures for the inclusion of the Roma, complementary to those defined in the National Program for Roma and the Decade Action Plan, including improve housing conditions of the Roma population (legalisation of Roma settlements and development of their infrastructure. Participation The Memorandum also defines specific measures for the inclusion of the Roma, complementary to those defined in the National Program for Roma and the Decade Action Plan, including three measures relating to participation: create the preconditions for the inclusion of Roma representatives in the bodies of local and regional self-government include Roma women in decision-making processes to a greater extent

empower the Roma to participate more in the projects devised for them and follow up (evaluate) the efficiency of various projects for the Roma. Gender-Based Violence In general, JIM recognises the need for homes for the victims of family violence and for active employment measures for these persons, does, however, not explicitly refer to Romani women.

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9.1.5. Joint Assessment of the Employment Policy Priorities of the Republic of Croatia (JAP)90 In the framework of the objective attract and retain more people in employment, increase labour supply and modernise social protection systems, JAP requests to implement more effectively the current programmes for the vulnerable groups in the labour market and expand them, in particular with a view to making a significant impact on employment of the Serb minority, the Roma and other minorities. In this context, the launch of a study to analyse and monitor the employment situation of the Roma, assessing the risks they face and identifying appropriate policy responses, was requested. 9.1.6. Operational Programme for Human Resources Development The main document guiding the policy in the human resource development is the Operational Programme for Human Resources Development; 91 first conceived for the years 2007 2009, it is adapted on an annual basis.92 The rationale of Priority Axis 2 Reinforcing social inclusion and integration of people at disadvantage, describes that particular groups, including Roma face significant obstacles. One of the proposed measures Supporting access to education by disadvantaged groups could include Roma. Roma are, however, not explicitly mentioned as a target group, but minorities in general and the change of the situation of the Roma in the education sector is not included as an indicator. The programme refers several times directly to the situation of Roma. The chapter National Policy Context states inter alia that the Croatian Employment Service (CES) implements in the framework of the Decade of Roma Inclusion measures explicitly targeting Roma. Similar to MIPD, the Roma are not explicitly mentioned as a target group or the change of their situation as an indicator in the priority axis of the Operational Programme. However, when it comes to the implementation of activities in education, employment or social inclusion in general, it became a requirement to specify Roma and Romani women whenever feasible as target groups and to include the change of their situation and/or their inclusion in the activities as indicators.93 The Operational Programme makes reference to the Joint Inclusion Memorandum (JIM). Croatia and the European Commission agreed therein that one of the policy priorities in combating poverty and social exclusion should be to raise the employability of those groups most affected by long-term unemployment and inactivity, primarily by focusing active labour market policy measures on specific groups, including Roma, and to ensure full implementation of the minority employment provisions of the Constitutional Law on National Minorities. With regard to regional disparities, the paper points at that the number of permanent social assistance beneficiaries is above average in the areas affected by the war and that the only county with an above-average number of beneficiaries and not affected by the war is Medjimurje, where there lives the largest Romani community in Croatia. The document recognises the disadvantaged position of Roma (and mentions the discrimination of Romani women), but does not contain any Roma-specific activity with regard to the health

See website of the European Commission, DG Employment, Social Affairs and Inclusion: http://ec.europa.eu/social/main.jsp?catId=113&langId=en (accessed 7 June 2011) 91 Operational Programme for Human Resources Development 2007 2009, Instrument for Pre-Accession Assistance (2007HR05IPO001), September 2007 92 Interview with Ms. Rima Joujou Delkic, Delegation of the European Commission to Croatia, Zagreb, 7 July 2011 93 Interview with Ms. Rima Joujou Delkic, Delegation of the European Commission to Croatia, Zagreb, 7 July 2011
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situation, the housing situation of Roma, participation of Romani women in public and political life or the phenomenon of gender based violence within Romani communities. 9.1.7. Projects Financed in IPA Framework Education Within the IPA Annual Programmes 2007-2010 no projects targeting or including Romani women in the education sector could be identified. In 2009, the education component of the PHARE 2005 project Improving Access to Education and Employment Opportunities for the Roma National Minority in Croatia finished.94 Employment According to the website of the EC Delegation to Croatia, one project with regard to Roma and employment was implemented: PHARE 2005 Project Active measures for employment of social groups threatened by social exclusion" ( 2,250.000) included a project Initiative for employment of the Roma with a value of 108.326.95 According to the EC Delegation to Croatia, there arent any targeted projects for Romani women. However it is ensured that Romani women could benefit from relevant projects (see also above).96 Within the cross-border co-operation programme with Hungary extensive reference to Roma is made and they are included in proposed activities. The programme constitutes a good practice at least in the planning and development stage. One of the horizontal objectives of the programme ensuring equal opportunities in a multiethnic community explicitly refers to Roma and even more important the programme includes the improvement of the employment situation of Roma as an indicator.97 Health Within the IPA Annual Programmes 2007-2010 no projects targeting health of Romani women could be identified. Housing For the IPA projects see the chapter on government activities. Participation Within the IPA Annual Programmes 2007-2010 no projects targeting or including participation of Romani women could be identified. Gender-Based Violence Within the IPA Annual Programmes 2007-2010 no projects targeting or including the fights against gender based violence within Romani communities. 9.2. Other Institutions and Organisations 9.2.1. Roma Education Fund (REF) In 2006, the Roma Education Fund and the Ministry of Education entered into cooperation on education-related activities, focusing on preschool education and primary education.

http://www.delhrv.ec.europa.eu/?lang=en&content=1905&keyword=roma http://www.delhrv.ec.europa.eu/?lang=en&content=1450&keyword=roma 96 Interview with Ms. Rima Joujou Delkic, Delegation of the European Commission to Croatia, Zagreb, 7 July 2011 97 Hungary-Croatia IPA Cross-border Cooperation Programme. Programming Document for the Programming Period 2007-2013. Internet: http://ec.europa.eu/enlargement/pdf/croatia/ipa/hu-hr_op_final_en.pdf
94 95

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