The Portuguese authorities should increase their efforts to advance the inclusion of the Roma population, a community still facing discrimination, particularly in employment and housing, according to a new opinion by the advisory committee monitoring the implementation of the Council of Europe's Framework Convention for the protection of national minorities.
Portugal is becoming increasingly diverse and multicultural, shaped by historical ties and sustained immigration from Portuguese-speaking African countries and Brazil, as well as by more recent migration from Asia and Eastern Europe. The opinion notes that both central and local authorities adopt an open and flexible approach to managing this diversity, which is consistent with the framework convention. Portugal, nevertheless, formally applies the treaty only to Portuguese Roma citizens.
Setback for support architecture for Roma
The advisory committee regrets, however, that, at the end of 2023, Portugal's Roma policy framework suffered a setback: the National Roma Integration Strategy expired, with no evaluation published. While a number of Roma organisations had been consulted, a more inclusive consultation process with Roma from across Portugal would have been needed. No new strategy has been adopted.
In addition, key support bodies, such as the Advisory Group of Roma communities and the Observatory of Roma communities, have ceased to function. Other problems that persist are the insufficient financial support for Roma organisations and the fact that only a few Roma mediators remain active. The opinion points out the need for a permanent, independent national consultative structure to ensure Roma participation in policymaking. Moreover, the Roma population continue to be underrepresented in public affairs and in the public administration. The advisory committee notes that there are no targeted empowerment policies to address this problem and that representatives of Roma communities are not guaranteed effective participation in public life.
Roma in education and the workforce
The advisory committee welcomes progress in inclusive education for Roma but notes that high dropout rates and spatial segregation, while declining, still persist. Efforts to integrate Roma culture and history in schools are insufficient and underfunded, limiting widespread impact.
While some progress has been made in labour market inclusion, additional support is needed for the hiring of Roma, particularly women and youth. The authorities also need to intensify their efforts to combat housing discrimination and improve living conditions through programmes that ensure access to housing through cooperation among authorities at all levels. A problem of particular concern is that some Roma still live in the margins of society, with some of them facing precarious conditions of forced nomadism.
Some positive moves, but work remains
A positive development is the re-establishment, in 2024, of the Commission for equality and combating racial discrimination, though a lack of a regulatory framework still limits its functioning.
The opinion also welcomes the adoption, in 2021, of Portugal's first National Plan to combat racism and discrimination 2021-25. However, its implementation remains limited, partly due to municipal officers' lack of awareness of the national plan. Discrimination against Roma is underreported, the opinion notes. In the light of the direct and indirect discrimination the Roma face, the advisory committee finds that the authorities should consider the recognition of antigypsyism as a specific form of racism.
Welcomed recent legislative changes include amendments to the Criminal Code in 2024, strengthening protection against language and nationality-based hate crimes, and the prohibition of marriage under 18, although the advisory committee stresses that its enforcement within Roma communities needs further assessment.
Urgent action needed
A major concern is the need to address rising hate speech and stereotypes, especially on social media. While acknowledging the authorities' efforts to train the police and the judiciary on this issue, the opinion underlines that stronger institutional responses and public awareness are required to combat intolerance and promote acceptance of Roma. As regards gender equality, it notes that the number of Roma women mediators is insufficient, and greater efforts are needed to combat early marriage and traditional gender roles.
The advisory committee makes several recommendations for immediate action: adopting regulatory legislation providing for support services to the Commission for equality and combating racial discrimination; adopting a new national Roma communities inclusion strategy; ensuring adequate funding for Roma intercultural municipal mediators; and addressing forced nomadism for Roma families by providing suitable support.
The Framework Convention for the protection of national minorities is Europe's most comprehensive treaty protecting the rights of persons belonging to national minorities. It is the first legally binding multilateral instrument devoted to the protection of national minorities worldwide, and its implementation is monitored by an advisory committee composed of independent experts. The treaty entered into force on 1 February 1998 and is now in force in 38 states.
Learn more about the Council of Europe's work for minorities and inclusion
The Framework Convention for the protection of national minorities and Portugal
