Instituto de Estudios Políticos y Derecho Público "Dr. Humberto J. La Roche"
de la Facultad de Ciencias Jurídicas y Políticas de la Universidad del Zulia
Maracaibo, Venezuela
Publicación cientíca en formato digital
ISSN-Versión Impresa 0798-1406 / ISSN-Versión on line 2542-3185
Depósito legal pp 197402ZU34
ppi 201502ZU4645
Vol.40 N° 74
2022
Recibido el 14/06/2022 Aceptado el 03/08/2022
ISSN 0798- 1406 ~ De pó si to le gal pp 198502ZU132
Cues tio nes Po lí ti cas
La re vis ta Cues tio nes Po lí ti cas, es una pu bli ca ción aus pi cia da por el Ins ti tu to
de Es tu dios Po lí ti cos y De re cho Pú bli co “Dr. Hum ber to J. La Ro che” (IEPDP) de la Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas de la Uni ver si dad del Zu lia.
En tre sus ob je ti vos fi gu ran: con tri buir con el pro gre so cien tí fi co de las Cien cias
Hu ma nas y So cia les, a tra vés de la di vul ga ción de los re sul ta dos lo gra dos por sus in ves-
ti ga do res; es ti mu lar la in ves ti ga ción en es tas áreas del sa ber; y pro pi ciar la pre sen ta-
ción, dis cu sión y con fron ta ción de las ideas y avan ces cien tí fi cos con com pro mi so so cial.
Cues tio nes Po lí ti cas apa re ce dos ve ces al año y pu bli ca tra ba jos ori gi na les con
avan ces o re sul ta dos de in ves ti ga ción en las áreas de Cien cia Po lí ti ca y De re cho Pú bli-
co, los cua les son so me ti dos a la con si de ra ción de ár bi tros ca li fi ca dos.
ESTA PU BLI CA CIÓN APA RE CE RE SE ÑA DA, EN TRE OTROS ÍN DI CES, EN
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nes Cien tí fi cas y Tec no ló gi cas Ve ne zo la nas del FO NA CIT, La tin dex.
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Eduviges Morales Villalobos
Fabiola Tavares Duarte
Ma ría Eu ge nia Soto Hernández
Nila Leal González
Carmen Pérez Baralt
Co mi té Ase sor
Pedro Bracho Grand
J. M. Del ga do Ocan do
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Joan López Urdaneta y Nil da Ma rín
Re vis ta Cues tio nes Po lí ti cas. Av. Gua ji ra. Uni ver si dad del Zu lia. Nú cleo Hu ma nís ti co. Fa-
cul tad de Cien cias Ju rí di cas y Po lí ti cas. Ins ti tu to de Es tu dios Po lí ti cos y De re cho Pú bli co
“Dr. Hum ber to J. La Ro che”. Ma ra cai bo, Ve ne zue la. E- mail: cues tio nes po li ti cas@gmail.
com ~ loi chi ri nos por til lo@gmail.com. Te le fax: 58- 0261- 4127018.
Vol. 40, Nº 74 (2022), 246-267
IEPDP-Facultad de Ciencias Jurídicas y Políticas - LUZ
Intercultural Communication and
Community Participation in Local
Governance: the EU Experience
DOI: https://doi.org/10.46398/cuestpol.4074.13
Aisulu Parmanasova *
Iryna Tytarchuk **
Iryna Titarenko ***
Olena Ivanova ****
Yana Kurgan-Bakoveieva *****
Marina Järvis ******
Abstract
Interaction based on equality is a determining factor in an
intercultural approach to mutual cross-border integration.
States direct their policy vectors towards creating provisions for
positive and constructive cooperation between people of dierent
backgrounds and lifestyles with government institutions. The recognition
and testing of policies and practices that promote intercultural interaction
and inclusion by local governments are of particular importance in this
context. The aim of the article was to identify and reveal current problems
and the current state of regulation of intercultural communication and
community participation in local governance in the European Union
and Ukraine. Observation, analysis and survey methods were the main
methodological tools. The study showed that the eective development
of intercultural communication and community participation in local
governance requires progress in the implementation of the overall strategies
declared by the European Union. The adequacy and prospects of the
intercultural cities network (ICC) are presented. Analysis of the survey of
* Department of Economics, Kyrgyz National University named after Jusup Balasagyn, Bishkek,
Kyrgyzstan, ORCID ID: https://orcid.org/0000-0002-5885-0812
** Department of Public Relations, National University of Kyiv-Mohyla Аcademy, Kyiv, Ukraine. ORCID
ID: https://orcid.org/0000-0001-5838-974Х
*** Department of Public Relations, National University of Kyiv-Mohyla Аcademy, Kyiv, Ukraine. ORCID
ID: https://orcid.org/0000-0002-3180-6926
**** Department of Advertising and Media Communications, Odessa I. I. Mechnikov National University,
Odesa, Ukraine. ORCID ID: https://orcid.org/0000-0003-3834-1946
***** Department of Management, Information and Analytical Activity and European Integration,
Drahomanov National Pedagogical University, Kyiv, Ukraine. ORCID ID: https://orcid.org/0000-
0001-7028-6022
****** Estonian Entrepreneurship University of Applied Sciences, Tallinn, Estonia; Department of
Business Administration, Tallinn University of Technology, Tallinn, Estonia. ORCID ID: https://orcid.
org/0000-0002-4541-4632
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cities surveyed in the Intercultural Cities Index showed a high level of local
government transformation and public participation in regional decision-
making.
Keywords: interculturality; multivariate nations; intercultural
communication; social inclusion; cross-border mobility.
Comunicación intercultural y participación comunitaria
en la gobernanza local: la experiencia de la UE
Resumen
La interacción basada en la igualdad es un factor determinante de
un enfoque intercultural para la integración mutua transfronteriza. Los
estados dirigen sus vectores políticos hacia la creación de disposiciones
para la cooperación positiva y constructiva entre personas de diferentes
orígenes con las instituciones gubernamentales. El reconocimiento de
políticas y prácticas que promuevan la interacción intercultural y la
inclusión por parte de los gobiernos locales son de particular importancia
en este contexto. El objetivo del artículo fue identicar y revelar los
problemas actuales y el estado actual de la regulación de la comunicación
intercultural y la participación comunitaria en la gobernanza local en la
Unión Europea y Ucrania. Los métodos de observación, análisis y encuesta
fueron las principales herramientas metodológicas. El estudio mostró que
el desarrollo efectivo de la comunicación intercultural y la participación
comunitaria en la gobernanza local requiere avanzar en la implementación
de las estrategias globales declaradas por la Unión Europea. Se exponen la
adecuación y las perspectivas de la red de ciudades interculturales (ICC).
El análisis de la encuesta de ciudades encuestadas en el Índice de Ciudades
Interculturales mostró un alto nivel de transformación de los gobiernos
locales en la toma de decisiones a nivel regional.
Palabras clave: interculturalidad; naciones multivariadas;
comunicación intercultural; inclusión social; movilidad
transfronteriza.
Introduction
Modern society, values and identity are facing an increasing number
of internal and external challenges. The complexity and uncertainty of
geopolitical relations, economic and social crises, dicult coexistence with
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Aisulu Parmanasova, Iryna Tytarchuk, Iryna Titarenko, Olena Ivanova, Yana Kurgan-Bakoveieva
y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
new cultures, the gradual erosion of traditional know-how and increased
competition are the main risk factors (Gustafsson and Lazzaro, 2021).
The COVID-19 pandemic has also forced the world community to revise
sustainable concepts of intercultural communication.
Moreover, ethnic groups dier in terms of cultural norms or perceptions
of what appropriate behaviour in a particular context is. This produces
barriers that reduce cultural recognition, including stereotypes and
prejudices, and unreasonable assumptions about similarities, dierences,
and culture shock (Trenholm, 2020). In aggregate, these factors hinder the
citizens’ ability to respond eectively to transformed legal relationships.
Countries are exerting eorts to establish the most consistent legal
background and conditions for law enforcement for all population
segments and cultural groups. A peculiar feature of the processes that are
currently taking place in the European Union is slow evolution of migration
concepts. The issues related to cultural identity, gender, sexual orientation,
gender identity, age, disability status, religion, etc. are on the agenda in the
European Union. Cultural diversity is considered as a value, and eorts are
being exerted to make everyone interested in the life of the local community,
identify with it and does not feel excluded (Ferran Vila et al., 2021).
Besides, an assimilationist is being replaced by an intercultural approach,
which provides for greater inclusiveness of cities and regions and their
taking advantage of diversity. Accordingly, multiculturalism multiplies
the value of diversity for society, as well as the importance of culture and
identity in the course of integration, especially of minority groups. The
updated approach is the basis for cultural practice and the encouragement
of equality and non-discrimination (Tian-Fang Ye and Buchtel, 2021). The
new term “interculturalism” is being widely introduced into the legal eld.
This concept is interpreted as a complex set of common values, regardless of
whether they are jointly developed through the interaction of communities
or rely on generally accepted universal values (Lähdesmäki et al., 2020).
Theorists maintain that intercultural communication is a form of global
communication (Jumaev, 2020). Researchers further argued that such
communication refers to intercultural interactions between dierent cultures
that emerge in a social group with dierent religious, ethnic, cultural, and
social backgrounds (Vejseli and Kamberi, 2021). Intercultural integration
as a political approach contends against all forms of discrimination and
intolerance in the EU. The leading vectors of the struggle are still raising
awareness and education of the population and promoting the benets of
multiculturalism remain (Akaliyski et al., 2021).
The cities are becoming increasingly important participants in
migration and integration policy, both in terms of policy development
and implementation, and due to the participation of cities in major
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international networks (White, 2021). European cities are important
centres of intercultural exchange, providing housing for people from
dierent communities. They oer unique intercultural opportunities and
can be an example of encouraging multiculturalism and better integration.
At the same time, we can talk about the relationship between the eective
development of local governance through the prism of the inuence of
intercultural social groups in the region.
Many countries are currently putting eorts to implement EU
practice at the national level. Ukraine is trying to develop intercultural
competence, which is the ability to recognize, respect and eectively use
the dierences in the perception, thinking and behaviour of their own and
other people’s culture in intercultural contacts (Rezunova, 2021). This is
why local governments should take prudent action to prevent tensions
between culturally diverse communities. At the same time, interaction of
people and cultures in this state have already been extended as a result
of the civilizational development, scientic achievements, innovative
technologies, requirements of public life, the priority of foreign policy
(Biletska et al., 2021).
Despite signicant achievements on the research topic, Ukraine has
a frozen archaic inherited doctrine, which is just beginning to transform
towards European intercultural integration.
In view of the foregoing, the aim of the article was to conduct a
comprehensive analysis of the relationship and interdependence of
intercultural communication and innovative integration of local governance
in the EU. This aim involved the following objectives:
1. establish the legal background for the development of intercultural
communication and participation of social groups in local
governance in the European Union;
2. reveal the current innovations of the European Union in the eld
of intercultural communication and community participation in
local governance for further possible implementation of relevant
achievements in the associated states.
1. Literature Review
The selected research topic correlates with modern vectors of scientic
research of theorists in dierent countries. The work of White (2021) was
the main tool and basis for the article. The author quite accurately revealed
the network of inclusion based on cities in a multicultural world. The work
of Malović and Vujica (2021) entitled Multicultural Society as a Challenge
for Coexistence in Europe also had a decisive inuence on the formation of
the author’s position on the research topic.
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y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
The achievements of scholars allowed outlining the vector of research on
the transformation of EU strategies and policies in the eld of intercultural
communication and local governance. In turn, the author found about a
multi-vector approach to interculturalism: from globalized politics to
localized politics and practice through the article by Zapata-Barrero and
Mansouri (2021).
The study took account of the achievements of Akaliyski et al. (2021)
in the eld of analysis of multicultural integration in the EU in the context
of common values. The study by US Jumaev (2020), used in the article,
emphasizes the importance of self-identication and national identity,
national culture in the context of interaction with government institutions.
This work helped to follow the way of the transformation of cooperation
theories both between dierent social groups, and society with the state.
The ndings of the team of authors — Afanasieva et al. (2020) — were also
reected in this article. Among other things, the author takes into account
the viewpoints of researchers in the comparative analysis of multicultural
EU cities in the context of the rule of a polyethnic community. The ndings
of Cappiali (2021) supplemented the abovementioned achievements by
taking into account the transformations of regional urban management in
the context of increasing migration ows.
The ndings of a comparative legal study by Vejseli and Kamberi
(2021) for Northern Macedonia and Kosovo were analysed when studying
the results of intercultural communication and their impact on local
governments. Scientic positions of Trenholm (2020) were taken into
account in the analysis of intercultural communication issues.
The article also covers the results of intercultural dialogue in the EU
member states from the perspective of the implementation of intercultural
principles and creative initiatives. Those results were summarized in
a collective article by Hlebova et al. (2021). The authors also focused on
the changes in social groups and their interests entailed by the COVID-19
pandemic.
The end of the last century was marked by active research on the
intercultural communication issues. This is why modern theory and
practice of jurisprudence repletes with fundamental works, research
and publications on issues related to heterogeneity of society, as well as
transformations of cultural rights and consciousness of the population. The
current challenges of globalization have, however, had a qualitative impact
and continue to have a corresponding reformational eect on legal relations
between social groups and local governments, thus making it urgent to
carry out a study with regard to new criteria of scientic research.
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2. Methods
The research topic determined the choice of variable empirical material
in order to form a comprehensive author’s view of the subject of research.
Figure 1 details the research procedure. A total of forty-ve references were
reviewed and analyzed in the article.
Figure 1. Stage research architecture.
The nature of the object of study, the specics of the sample and the
available resources determined a set of methods of scientic research. It
is worth noting that the authors who partially addressed the subject of
author’s research, also used the methods of analysis and observation in
their studies.
The method of analysis of the selected sample was used to select the
article-specic methods for further research. In turn, socio-cultural
analysis based on historical-analytical, sociological, socio-legal approaches,
revealed the interdisciplinary aspect of complex processes of society life at
the local level. This aspect was also detailed by using the results of the cities
survey — Intercultural Cities Index 2021 (Council of Europe, n.d.). This
methodology also identied the positive multicultural regional innovations
in the area under research.
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y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
The author’s position on the strategy of intercultural integration at the
national level of EU member states was formed through the practical method
of observation. This method was also used to consider the conditions that
necessitated the creation of comprehensive maps of reforms in the eld of
intercultural communication of social groups and local governments of the
EU. The observation method also helped to draw well-grounded conclusions
on reforming the legal regulation of intercultural communication in a cross-
border context.
The comparative analysis revealed the reasons that promote constant
changes in legal relations between social groups and government
institutions. This issue was also revealed from the standpoint of historicism.
The process of building legal relations between the variable cultures of one
region with local governments is described by systematization of disparate
materials, generalization and analysis of data from dierent sources.
3. Results
Cultural integration policies must comply with the European human
rights standards, including those relating to social cohesion, equality
and non-discrimination. It covers a number of policy areas and levels of
government. Besides, their development is a complex process that requires
consistent consultation and coordination between all relevant stakeholders.
The ability to achieve eective inclusion by promoting the accountability and
active participation of government institutions, regional, local authorities
and civil society determines the success of innovation.
At the international level, the requirements of international law
determine eective testing of planned reforms. It is safe to say that the
following documents are the key to eective intercultural discourse and
reform of the legal relations: 1) the European Social Charter; 2) Convention
on the Participation of Foreigners in Public Life at the Local Level; 3)
White Paper on Intercultural Dialogue; 4) Intercultural Integration Model;
5) Framework Convention for the Protection of National Minorities; 6)
European Charter for Regional or Minority Languages and others. At the
same time, modern realities transform the sustainable legal order and
require a qualitative update of the doctrinal and legislative fundamental
principles of the existence of a multicultural society.
In today’s world, the eects of the COVID-19 pandemic, economic and
political crises continue to spread around the world, disproportionately
aecting the most vulnerable population groups. In 2021, the number
of displaced persons worldwide reached a record 82.4 million (Rescue
Committee, 2021). The EU territory is no exception. In 2019, 2.7 million
immigrants came to the EU from non-member countries. As of January 1,
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2021, 23 million people (5.1%) out of 447.3 million permanently residing in
the EU were not EU citizens.
In 2019, EU Member States granted citizenship to 706,400 people
permanently residing in the EU, which is 5% more than in 2018 (Eurostat,
2021). These migrations of the population were the reason to revise both the
general policy of the member states and the internal (regional) postulates
of the organization of interaction of the population. The EU Action Plan
on Integration and Inclusion (European Commission, 2020a) is currently
a roadmap for enhancing the integration of asylum seekers, refugees and
others with a migrant background in Europe over the next six years.
Much attention is paid to local governments in the EU, as well as public
participation in decision-making. Local democracy in the EU countries
develops in an ever-evolving environment. In general, European systems of
local governance have the following attributes:
1. the status of local authorities is enshrined in national constitutions,
which guarantee their powers;
2. a very wide range of functions of local government;
3. integration of local authorities into national government institutions,
interdependence and mutual understanding between dierent
levels of social governance;
4. the possibility of political inuence of local authorities on
government agencies through their associations and other
integration institutions of local governance.
The European Charter of Local Self-Government indicates that local
authorities acting under the law must be able to regulate and manage public
aairs under their responsibility for the benet of the local population.
Recommendation 262 (2009) of the Congress of Local and Regional
Authorities of the Council of Europe on equality and diversity in local
authority employment and service provision and Recommendation of the
Committee of Ministers of the Council of Europe on citizen participation
in public life promoted equality and diversity in employment, including
employment in the context of employment and the provision of services by
local authorities. These documents help to eectively involve the public in
plans for intercultural integration in the Member States.
The 11th Principle of the Strategy of Innovation and Good Governance at
Local Level (Council of Europe, 2008) indicates to the respect, protection
and realization of human rights in the eld of local government, and
combating discrimination on any grounds. A comparative analysis of the
12 principles of innovation and good democratic governance identied
municipalities that are closest to all (or most) principles compared to the
Council of Europe standard (Council of Europe, 2021), and therefore have
the right to obtain ELoGE — European Label of Governance Excellence.
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y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
In June 2021, the Council of Europe’s Steering Committee on Anti-
Discrimination, Diversity and Inclusion (CDADI) adopted Intercultural
Integration Strategies at the National Level (Council of Europe, 2021b). This
document is developed through multilevel dialogue as a basis for national
strategies for intercultural integration that are integrated, based on human
rights standards, supported by a realistic understanding of cross-border
mobility and its impact, the one that takes into account human, social and
economic costs of non-integration.
It also relies on the positive results of local authorities and Member
States, which have applied an intercultural integration approach as a tool
to achieve real integration at the local level. The principles of the Strategy
include ensuring equality, valuing diversity, promoting meaningful
interaction and active citizenship. In turn, the structure of the intercultural
integration strategy contains 10 main points (Council of Europe, 2021b).
Practical measures are being taken to implement the declared strategies.
The Council of Europe takes a number of steps to protect minorities, including
Europe’s largest minority — the Roma. According to the estimates, 10-12
million Roma living in Europe, approximately 6 million are EU citizens or
residents (European Commission, 2020). Many EU Roma are still victims
of prejudice and social exclusion, despite the prohibition of discrimination
in EU member states.
The EU Roma Strategic Framework (European Commission, 2020)
sets out a comprehensive three-component approach. This approach
complements the socio-economic integration of marginalized Roma by
promoting equality and encouraging participation in political, social,
economic and cultural life. On March 12, 2021, the Council of the European
Union adopted the Recommendation on Roma equality, integration and
participation in all Member States.
The EU Roma Strategic Framework focuses more on Roma diversity to
ensure that national strategies meet the specic needs of dierent groups,
such as women, youth, children, mobile EU citizens, stateless persons,
LGBTI and elderly Roma, as well as people with disabilities. Starting in
2023, Member States will report every two years on the implementation of
the national Roma Strategic Frameworks, including measures to promote
equality, inclusiveness and participation, as well as the full use of the
indicator portfolio.
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Figure 2. Summarized standard structure of the intercultural integration
strategy at the national level of EU member states.
Policies and practices that promote intercultural interaction and
inclusiveness play an important role in enabling cities and regions to
positively manage diversity. Various tools and methodologies, as well as
a mutual learning environment for cities have been developed within the
framework of the Intercultural Cities Network (ICC), bringing together
more than 150 cities in Europe and beyond. Since 2015, it has become a
pan-European standard, which is being adapted to national and multilevel
governments.
The EU countries currently consider the Intercultural City (ICC) as a
place where they are actively trying to achieve real equality, preventing
discrimination and adapting urban governance, institutions and services
to the needs of diverse populations. Equality, diversity and interaction
are three interrelated values that are essential for the development and
maintenance of an intercultural city.
Data are collected through a questionnaire consisting of 90 questions
on the following items (ICC-Index 2019, Council of Europe Program
2019): local conditions and demographic context (1-2); intercultural
policy, structures and actions (3-12); areas of governance/policies that
promote intercultural integration (13-86); additional information that may
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y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
be provided by the respondent city (87-90). Each policy vector is briey
explained from an intercultural perspective. According to the general
information provided about cities within the framework of the Intercultural
Cities Index (Council of Europe, 2020a), the population of ICC cities was as
follows: <500 thousand — 24%, 200–500 thousand — 23%, <100 thousand
— 23%, 100–200 thousand — 30%.
The ICC Index is analyzed on the basis of answers to 83 questions
(questions 3–86), grouped into 12 indices. These are commitment,
intercultural prism, education, good-unneighborly relations, civil service,
business and work, cultural life, public place, mediation and conict
resolution, language, media and communication, international cooperation,
intelligence/competence, newcomer welcome policy, governance.
The completion of the questionnaire is followed by data verication and
processing by BAK Economics, a Swiss research institute specializing in
measuring the eectiveness of regional and local policies. The respondent
cities can score a maximum of 100 points for each index. The data are also
analysed from a political perspective and summarized in a report by Council
of Europe experts.
Their report includes: the city’s performance in various areas of
governance/policy; charts that clearly illustrate the scores that the city
obtained for each indicator, and their comparison with the average for
a city or group of cities with similar characteristics; information on the
city’s best practices that can inspire other cities; recommendations based
on examples of best practices provided by other cities that the respondent
city may consider in order to improve its score in one or more areas of
governance/policy.
Most responses should be fact-based and can be conrmed by real
examples, details, explanations, relevant documents or references. It is
recommended for the cities to evaluate the Index every 3-4 years in order
to track their progress. A working group chaired by the mayor or another
ocial from high-ranking ocials of various municipal administrations is
established to monitor the data collection for completing the questionnaire.
According to the Intercultural Cities (ICC) Annual Report (Council of
Europe, 2021a), in 2021 only, 11 new members joined the initiative; a new
regional network was established in Quebec; 9 evaluation reports were
prepared on the basis of the ICC Index; 14 subject webinars or knowledge
sharing webinars were held; 108 news, 5 issues of the bulletin was published;
86 best practices were collected and disseminated; 5 intercity projects were
implemented; 4 new online courses were created; 3 joint actions dedicated
to the Programme-related international days were organized. The results of
the latest survey of respondent cities are presented in Figure 3.
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Figure 3. Positive multicultural regional innovations identied through the
Intercultural Cities Index in 2021 (grouped by the author).
The study of implementing strategies and concepts of multiculturalism
on the basis of the ICC Index allowed identifying positive features of this
tool (Table 1).
Table 1. Positive features of testing the results of Intercultural Cities Index
(based on the results of the author’s own observation).
Intercultural Cities Index allows the cities to:
initiate a discussion with local authorities on what intercultural integration
means in practice;
raise awareness of the need for horizontal work between dierent depart-
ments and services that promote intercultural issues;
conduct a thorough review of dierent areas of governance/policy that pro-
mote intercultural integration;
assess the city’s status in various areas of governance/policy that promote in-
tercultural integration;
identify strengths and weaknesses and identify areas of governance/policy to
focus future eorts at;
compare the achievements of the city with the achievements of other cities;
identify and study the best practices of intercultural integration in other cities;
cooperate in national intercultural city networks or in international city edu-
cational clusters;
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y Marina Järvis
Intercultural Communication and Community Participation in Local Governance: the EU Experience
assess progress over time and report on achievements and diculties encoun-
tered;
verify dierent hypotheses about the relationship between intercultural policy
and particular policy outcomes, such as economic performance, trust in pub-
lic institutions, quality of life and a sense of security
We can state that the EU countries are doing everything possible to full
the aforesaid objectives. For example, about a million Roma live in Spain
today (Madrid no frills, 2021). Seventy percent of Roma over the age of 16
cannot read, and high elimination rates at various levels of education is
still a serious problem to be addressed. The percentage of Roma children
quitting school is 65%. Only 5% graduate from secondary school. The
average age at which Roma children quit studies is about 12 years.
The percentage of unsuccessful students among Roma children is ve
times higher than among children from other families. Almost 70% of adult
Spanish Roma are illiterate. The life expectancy of Roma is 10 years lower
than in the majority of the population, and infant mortality is three times
higher (Madrid no frills, 2021). In this regard, an example of best practice of
the cities is the School Promotion Programmed with the Roma community
in Barcelona.
The Programmed intends to encourage the full schooling of Roma
students through prevention, diagnosis and early intervention into the cases
of quitting studies, as well as to promote achieving academic success. It also
aims at promoting the socio-economic integration of Roma students and
promoting the values of Roma culture in the school curriculum. The main
gure of this project is the “school promoter” — a professional who belongs
to the Roma community and who coordinates his actions with schools,
families and students to implement the program. This arrangement was
organized by the private foundation Pere Closa in collaboration with the
City Council of Barcelona.
The Social Organization of the Municipality of Patras (KODIP) established
special units to provide support services to all vulnerable groups in Patras,
being funded by the Western Greece Operational Programmed through the
European Social Fund (ESF) (Council of Europe, 2021). KODIP has opened
the Essentials Department, as well as Shelter, Open Day and Community
Centre with the aim of respecting fundamental human rights. The main
beneciaries are migrants, refugees and asylum seekers, both Roma and
the local population. A Roma Branch has recently been established as part
of the Community Centre, which will focus on the provision of eld services
in camps in the surrounding areas of the city of Patras through a mobile
unit.
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The ICC network has inspired the creation of the Intercultural Regions
Network chaired by the Council of Europe and the Assembly of European
Regions. This Network is established to provide knowledge, resource
and experience sharing platform in the regions to promote intercultural
integration at the regional level on the basis of equal opportunities,
recognition of diversity and positive interaction between people of dierent
backgrounds. The Intercultural Dialogue Index (ICDI), which measures
the level of intercultural dialogue at the national level, is currently being
developed to determine the impact that social and structural conditions
may have on the diversity management and intercultural relations.
The proposed ICDI is designed as a tool for understanding how dierent
countries monitor diversity management and intercultural harmony,
as well as the interaction of social groups with local governments. This
country-level analysis can also prognostically identify possible intercultural
conicts and tensions through empirical analysis of combined data in key
sectors of society development.
Speaking about Ukraine, the representatives of more than 130
nationalities and ethnic groups lived in the country according to the All-
Ukrainian Population Census (State Statistics Committee of Ukraine,
2001). In addition to Ukrainians, who make up 77.8%, the country is
home to Russians, Belarusians, Moldovans, Crimean Tatars and Karaites,
Bulgarians, Romanians, Hungarians, Poles, Jews, Greeks and others
(Population and composition of Ukraine (State Statistics Committee of
Ukraine, 2001). But the situation has changed dramatically. The census has
not been updated because of the escalation of the military conict in eastern
Ukraine, so this is a signicant gap in showing real statistics in the country.
The adoption of the Law of Ukraine “On National Minorities” has
given new impetus to the legislative framework of Ukraine on interethnic
relations in connection with the integration of the state into European
and Euro-Atlantic entities. Ukraine’s accession to the Council of Europe
in 1995 became especially important. Among other instruments in this
eld, Ukraine has ratied the Framework Convention for the Protection
of National Minorities and the European Charter for Regional or Minority
Languages. The rules and standards for the protection of the rights of
national minorities, enshrined in the CSCE Final Act, the UN Declaration
on the Rights of Persons Belonging to National or Ethnic, Religious and
Linguistic Minorities and other international instruments were also applied
in Ukrainian law.
At the same time, the state has shown a certain self-exclusion from the
settlement of ethno-national processes in Ukraine at the state level for
decades. This resulted in Ukraine’s failure to adopt a concept or strategy
of state ethno-national policy. This entailed the lag of political and legal
enshrinement of state ethnopolitics from existing ethnopolitical processes.
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In 2021, the Verkhovna Rada passed the Law “On the Indigenous
Peoples of Ukraine” (Verkhovna Rada of Ukraine, 2021). The concept of
“indigenous peoples of Ukraine” is dened as an autochthonous ethnic
community that has formed on the territory of Ukraine. They are carriers
of original language and culture, have traditional, social, cultural or
representative bodies, identify themselves itself as the indigenous people
of Ukraine, are an ethnic minority in its population, and have no state
establishments outside Ukraine.
According to this denition, the Crimean Tatars, Karaites, Crimean
Tatars are enshrined in the Law as the indigenous peoples of Ukraine.
On March 24, 2021, the Decree of the President of Ukraine approved
the updated National Human Rights Strategy (Oce of The President
of Ukraine, 2021). The Strategy is being implemented in strategic areas,
including the prevention of and combating discrimination.
Between 200,000 and 400,000 Roma currently live in Ukraine.
According to Council of Europe experts, 60 percent of Roma do not have
a job, 40 percent have no documents, and only 1 percent have a university
degree (US Department of State, 2021). About 90% of them inform against
being persecuted on the grounds of their nationality (Ukrinform, 2021).
The imposition of anti-pandemic measures has increased discrimination
against Roma. On May 22, 2020, Mayor of Ivano-Frankivsk called at a
weekly meeting of the City Council for the eviction of all Roma from the
city, stating that the Roma violate COVID-19 quarantine restrictions. Later,
police forcibly relocated 10 Roma from the city.
The Minister of Internal Aairs instructed that the police initiated
a criminal case against Mayor on charges of discrimination (US State
Department, 2021). In 2021, the 2030 Strategy for Promoting the Realization
of the Rights and Opportunities of Persons belonging to the Roma National
Minority was adopted. The implementation of this Strategy will provide
documents, legal protection, education, health services, employment to
Roma and will improve their social protection.
The fact that that on June 15, 2021 O. Bohdan — Chairman of the State
Service of Ukraine for Ethno-Politics and Freedom of Conscience was
elected Vice-Chairman of the Steering Committee of the Council of Europe
on Anti-Discrimination, Diversity and Inclusion (CDADI) is worth noting
(State Service of Ukraine for Ethnopolitics and Freedom of Conscience,
2021). The areas of work of the Steering Committee included: development
of a new comprehensive legal instrument to combat animosity on language
grounds; research on the political participation of youth that belongs to
national minorities; promoting the implementation of the strategic policy
of the Council of Europe on inclusion of Roma and nomads.
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Ukraine has also joined the Intercultural Cities Programme. The national
ICC-UA network was established in 2015 at the All-Ukrainian Forum held
in Melitopol, and includes Melitopol, Lutsk, Odesa, Pavlohrad, Sumy,
Vinnytsia. Among all Ukrainian cities, only Melitopol is a full member of the
international ICC network with privileged access to all international events
and special expert support. Melitopol led the ranking of the Intercultural
Cities Index in 2020 among the ICC member states. In 2020, the overall
score was 88 points (Intercultural Cities Index Charts).
This assessment consisted of the following scores: Commitment 95,
Intercultural Prism 95, Education 95, Good-Neighbourly Relations 100,
Civil Service 88, Business and Labour 100, Cultural Life 100, Public
Place 87, Mediation and Conict Resolution 93, Language 49, Media
and Communications 100, International Cooperation 100, Intelligence/
Competence 100, Newcomers Welcome Policy 100, Governance 33.
The city is currently working on the implementation of the Comprehensive
Intercultural Cooperation Programme of the City of Melitopol for 2021-
2023 (Municipal Site of Melitopol City, 2021). The city administrations
of the ICC-UA member cities have been working to identify the problems
caused by the COVID-19 crisis. One of the examples is the two-week meeting
held by the Civic Engagement Club, a local NGO in Sumy, with migrant
communities on the availability and reliability of information (Council of
Europe, 2020).
4. Discussion
The research found the versatile approaches of the states to testing the
declared postulates of ensuring the opportunities of multicultural social
groups and their participation in state-building processes. It was established
that special attention is currently paid to ensuring the balance of rights and
interests of citizens of EU member states and migrants. Researchers also
support the author’s view that in the current context ethnic groups in the EU
with dierent cultural beliefs and value systems require equal opportunities
to exercise their rights as permanent members of society (Cappiali, 2021).
The author’s substantiation for the intensication of the development
of the multiculturalism concepts has found support in the scientic
community. Bunce (2021) observed that cultural diversity is a dening
feature of humanity and a framework for the development of the external
designation of group identity for reducing the likelihood of miscoordination.
Interculturalism is increasingly being used as a probable background
for policy strategies designed to manage migratory diversity in ethno-
cultural-pluralistic societies, especially at the local level (Zapata-Barrero
and Mansouri, 2021). But interculturalism still needs to clearly formulate
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its position in the context of a sustained multicultural narrative that
has dominated dierent variations of public administration (Mansouri
and Modood, 2021). The foregoing seems well-grounded even though
multiculturalism has recently lost some of its benets as a key paradigm of
diversity policy (Zapata-Barrero, 2019).
The strategies and concepts the author analyzed have been tested at the
level of local governance and showed a high level of involvement of dierent
population groups in decision-making by the government agencies. In this
context, the objective of policy is to create basic values that are acceptable
to all parties, but they must have sucient potential for quality coexistence
(Malović and Vujica, 2021). The low participation of local communities in
public policy is a poor reection of general democracy and a signal that local
authorities need to pay more attention to local communities so that they
can restore trust in them, and develop an active citizen with democratic
values (Vejseli and Kamberi, 2021).
The urged intercultural interaction has qualitatively increased the
signicance of intercultural communication. It is currently a key factor in
the development and liberation of local communities, and policy is another
vector of cooperation between local authorities and local communities.
Cultural literacy also remains a leading competence in the balance between
cultural global characteristics and the development of one’s own identity
(Maine et al., 2019).
The growing diversity of European societies normalizes intercultural
dialogue as a practice, but also creates problems for political discourse.
Politicians need to be more careful about the diculties and variability
of the current diversity. The conceptual language used in their policy
documentation should reect this position (Lähdesmäki et al., 2020).
Therefore, we can argue that it is necessary to approach both individual and
collective identity as multiple, multi-layered, procedural and transformed.
It can also be stated that the Council of Europe’s Intercultural Cities
Programme (ICC) has evolved over its long history not only in terms of
membership and geographical coverage, but also in terms of its attempts to
respond to changes in global political consciousness (White, 2021). During
the COVID-19 pandemic, the communities of ICC intercultural cities
obtained valuable experience in implementing intercultural principles and
creative initiatives required for establishing eective intercultural dialogue
and consolidating society (Hlebova et al., 2021).
So, Melitopol can oer the world unique methods of developing a new
type of community (Afanasieva et al., 2020). Researchers indicate the
need to expand the range of sociological research on the phenomenon of
the modern city, because its existence creates the conditions being formed
under the inuence of urban environment, while aecting the citizens
themselves.
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Conclusion
Globalization challenges and continuous migration require qualitatively
new management decisions. The EU countries, like other countries, has
faced serious challenges in intensifying the individualization of public
interaction, which have been also produced by the latest scenarios of the
COVID-19 pandemic. Modern intercultural integration is a policy approach
that encourages citizens to consider their diversity as a resource for quality
cooperation with local governments, rather than as a problem.
Intercultural dialogue is one of the main conceptual innovations closely
related to interculturalism. It is considered as a political strategy or tool
to promote cultural diversity in order to strengthen social cohesion at the
local level. The dialogue requires certain social actions and conditions to
transform ideas and problems in the eld of local self-government into
innovative processes and new forms of managerial response.
The EU strategies Union provide the ground for the interconnection
and eective interaction of dierent social groups and public authorities
in order to ensure a multilateral balance of interests. Intercultural cities,
where local governments publicly advocate for respect for diversity and
a pluralistic urban identity, are the main sources of good practice in
intercultural integration in the European Union.
Cities are actively coping with deep-rooted discrimination in order
to provide equal opportunities for all by adapting their government
agencies, institutions and services to the needs of the population without
compromising the principles of human rights, democracy and the rule of
law. A high level of trust and social cohesion is conductive to the prevention
of conict and violence, making policy more eective, and makes the city
attractive to both people and investors.
According to the research results, the success of local multicultural
policy is also determined by the balance of national concepts, funding
of mechanisms that ensure equal opportunities, and ensuring the
implementation of regional solutions. All these elements make up the
intercultural integration model promoted by the Council of Europe. This
model was successfully tested in regions and cities across Europe and
beyond, and proved to have a direct impact on public policy.
The analysis of the implementation of strategies declared by the leading
EU cities, as well as the survey of the population on the results of the
transformations will be the areas of further research. This vector of analysis
will enable reecting the real state of the involvement of a multicultural
society in the regional development of cities.
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