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Summary
1.
Introduction
2.
A short overview of minority issue in Romania in the last decade
3. The
legal framework of Romanian linguistic policy
3.1
The Constitution of 1991 and constitutional amendments of 2003
3.2
Linguistic rights and education
3.3
Linguistic rights, public administration and police forces
3.4
Linguistic rights and media
4.
Roma minority
5.
Conclusions
6.
Bibliography
1. Introduction
It is submitted
that language policy as regards national minorities in Romania is still a matter of
political bargaining although its basic principles were set up already in Constitution and
special laws. In my opinion it is too early to declare it a success story as
the politicians likes to do but nevertheless it can be considered an example of good
practice in a highly sensitive matter, in a country and in a geographical region where minority issue
represented always a hot potato. It should be emphasized the fact that a combined pressure
from European Union, NATO, Council of Europe and Hungarian minority political
representatives has proved to be decisive in order to convince Romanian political class to
accept reforms as regards minority rights in general. It is obvious that some domestic
legislative and institutional measures have been taken in the last decade due to pragmatic
political reasons and not because local politicians were eager to regulate the matter.
NATO and EU membership depends also on political criteria and this conditionality pushed
the treatment of national minorities as a priority on the Governmental agenda.
Unfortunately, Romania still doesnt have a framework law on national minorities but
what is quite certain is that the situation of minority rights looks very different from
ten years ago. On the other hand, it should not be forgotten that laws success
depends not only on their wording but mainly on their correct and timely implementation.
What are the
main characteristics of Romanian language policy? I will answer to this question following
the language policies classification made by Kymlicka and Patten (1) who organized them by distinguish between: (1) tolerance vs
promotion-oriented rights; (2) norm-and accommodation vs official-languages rights
regimes; (3) personality vs territoriality rights regimes; (4) individual vs collective
rights. Tolerance rights permit to individuals to use whatever language they want in
the private life while the promotion-oriented rights means that individuals may use
minority languages in public sphereadministration, courts, education system.
Romanian linguistic policy is characterized by both tolerance and promotion rights.
Norms-and-accommodation regime is that one in which the language of majority
has the main role being used normally in all sectors of the society but, under specific
terms, minority languages may be used as well in relation with public institutions.
In
official-languages regime, certain languages are declared official and any
public service may be received in no matter which of these languages that enjoy an equal
legal status. It is submitted that Romania has a norm-and-accommodation
linguistic policy. Personality principle implies that citizens may enjoy linguistic
rights, under the terms of law, wherever they live in the country. On the contrary,
according to territorial principle, linguistic rights are connected with certain
territorial areas of the country. It is undoubtedly true that in Romania it is applied the
personality principle. The dispute around individual and collective rights is a classic
one and it doesnt need more comments. The fact of the matter surely is that in
Romania the concept of collective rights is strongly rejected by authorities.
Although some representatives of Hungarian minority, for example, speak often about
collective rights, officially, there are no such rights but only individual linguistic
rights which are exercised together by persons belonging to national minorities.
The purpose of this paper is to analyze the main features of minority
language policy in Romania from a legal perspective. Thus, the focus will be on the
linguistic rights guaranteed to national minorities by the existing legal framework. For a
better understanding of the matter, I considered necessary to present briefly, in the
first part, the context of minority rights issue in Romania in the last decade. The second
part deals in detail with the Constitutional and national laws which regulate the status
of the official language, education in minority language, use of minority language in
public administration and police forces, minority language and mass-media. Third part is
reserved for several considerations regarding the situation of Roma minority. The
conclusions are outlined in the last part.
2. A short overview of minority issue in Romania in the last decade
In Romania, the last phase of the Communist system was characterized by a
virulent nationalistic discourse and its negative effects were visible long time after the
dictatorship regime was overthrown in December 1989. The minority issue became clock bomb
from the first days of freedom. Officially the largest minority in the country, Hungarians
(2) were the first minority group to ask
for specific rights. In Transylvania they have requested immediately education in the
mother tongue at all levels and segregation of the schools on the base of ethnic criteria.
Romanians have reacted strongly against such requests considering them as first steps of a
Hungarian revisionist movement. The tension became explosive in Transylvania and the worst
scenario became true in March 1990 in the city of Targu-Mures (Marosvasarhely
in Hungarian) where ethnic hatred erupted. Romanians and Hungarians were fighting
each other and people were dying in the streets. Hopefully the violent conflict was a
short one but the trauma it left has deepened the historical mutual mistrust between the
majority and Hungarian minority.
It is
submitted that in the next six years, at official level, almost nothing was done as
regards minorities rights. Moreover, the nationalist Greater Romania Party was a partner
in the coalition which was in power. In December 1991 was approved by referendum the new
Constitution which declares that Romania is a sovereign, independent, unitary and
indivisible National State (Article 1), but "the State recognizes and
guarantees the right of persons belonging to national minorities, to the preservation,
development and expression of their ethnic, cultural, linguistic and religious
identity" (Article 6). (3)
In 1991, the
Parliament passed the Law no. 69/1991 on public administration which didnt reflect
all the expectation of national minorities and has been strongly criticized by ethnic
Hungarian political elite. It contained only two provision regarding minority languages:
Article 30 which stipulated that decisions of the local Council are made public also in
the minority languages in the administrative-territorial units where a significant number
of persons belonging to national minorities leave and Article 54 which allowed minority
persons to use their mother tongue, written or orally, in relation with public
administration authorities under the condition to attach a Romanian translation of the
documents, respectively to use the service of a translator. The most important right
obtained by minorities in the early 90 was the representation in the Parliament. Law
no 68/1992 on the election of Chamber of Deputies and Senate assured a deputy mandate for
each national minority, under certain conditions. Article 4(1) of Law no 68/1992
stipulates that "legally constituted organizations of citizens belonging to national
minorities which fail to obtain at least one seat in the Chamber of Deputies or the Senate
in the elections shall have the right to one seat in the Chamber of Deputies, in
accordance with Article 59 paragraph (2) of the Constitution, provided that their share of
the vote is at least 5% of the average number of validly cast votes in the entire country
for the election of a Deputy.
In 1993, was
established a Council for National Minorities composed by representatives of national
minorities and civil servants from ministries. This was only a consultative body and its
lack of powers marked its activity which can be described as very discreet.
Romania became a member of the
Council of Europe on 7 October 1993, signed the Framework Convention for the Protection of
National Minorities on 1 of February 1995 and ratified it on 11 of May 1995. This positive
measure was followed by a step back. Representatives of national minorities, especially
Hungarians, have criticized sharply the Law on education no 84 in the form adopted by
Parliament in July 1995. It contained restrictive provision as regards minority rights
which were eliminated few years later. Romania submitted its application for EU membership
on 22 June 1995. In February 1995 entered into force the Europe Agreement establishing an
association between the European Economic Communities and their Member States, of the one
part, and Romania, of the other part. In the preamble it is stressed out the "need to
continue and complete, with the assistance of the Community, Romania's transition towards
a new political and economic system which respects the rule of law and human rights,
including the rights of persons belonging to minorities.
In
November 1996, the opposition parties won the parliamentary elections and invited the
political organization of Hungarian minority to join the new governmental coalition. The
Democratic Alliance of Hungarians from Romania (hereinafter DAHR) accepted the political
deal proposed and thus, for the first time in Romanian history, in the Government were
appointed ministers from a party representing the interests of Hungarian minority. One of
them was the Minister delegated by Prime-Minister for national minorities who had the role
to coordinate the new Department for Protection of National
Minorities established in February 1997. This moment marked the beginning of a new era for
national minorities in Romania because of the wave of legislative and institution changes
it brought. A process of restitution of real estate good which belonged to national
minorities has started. (4) Laws on public administration
and education were amended by means of Governmental Emergency Ordinances in order to
provide linguistic rights for minorities. (5) The Institution of
Ombudsman (6) was established
and, as a premiere in Central and Eastern Europe, a framework law on anti-discrimination
entered into force. (7)
After the elections of 2000, although DAHR didnt enter in a
governmental coalition it made a political deal with the party in power. Point 8 of the
"Agreement on co-operation between the Social Democratic Party and the Democratic
Alliance of Hungarians in Romania in 2002 stipulates that "[t]he two political
parties shall continue to grant priority to the protection of national minorities,
institutional and legislative development of their issues. The conditions to secure the
right to freely express the preservation and development of ethnic identity shall continue
to broaden for all Romanian citizens belonging to national minorities, in order to
manifest themselves in areas of cultural, religious, educational, and public life. Special
attention shall be granted to the issues of minority communities in the localities where
their proportion is small compared to the majority population". In exchange of
DAHRs political support in Parliament and at local level further measures on favor
of national minorities were taken. One of the most important moments was the parliamentary
vote on the new Law on public administration no 215/2001 which provides for the use of
minority languages in administrative-territorial units where a minority represents at
least 20% of the population. The National Council Combating Discrimination, a specialized
body for implementation of equality principle and enforcement of non-discrimination
legislation, was established in 2001. (8)
Provisions regarding linguistic rights were included in 2002 in the new
Law concerning the status of policepersons and new Law on audiovisual (9) despite the tensions brought in
Romanian political life by the controversial Status Law (10) passed by the Hungarian
Parliament in favor of Hungarian minorities in neighboring countries except Austria, a EU
member state where some provisions of the Hungarian law would have been inapplicable due
to their discriminatory effect. (11) In October 2003, Romanian
Constitution was amended and the use of mother tongue, under the terms stipulated in the
specific organic laws, both in relation with public administration and in the Courts
became constitutional principles. (12)
In the last decade there were made public and debated at least five draft
laws on national minorities but none of them received the political and public support
needed to be put on the parliamentary agenda. Another issue still open is the ratification
of the European Charter for Regional or Minority languages. A draft law on ratification
elaborated by the former Department for Protection of National Minorities in 2000 was
blocked by political disputes in an electoral year. It seems that actual Government
prepares a draft law on ratification as well but, my own view is that nothing concrete
will be done this year as politicians are again busy with elections. Most probably the
Charter will not be a priority.
3. The legal framework of Romanian linguistic
policy
3.1 The Constitution of 1991 and constitutional
amendments of 2003
It is submitted that Romanian
Constitution in the form adopted in 1991 didnt reach the expectations of the large
Hungarian minority. The representatives of Roma and other small minorities in the country
adopted a quite neutral position as regards the constitutional principles regarding their
rights. My own view is that while they were not necessary satisfied with the provisions
laid down in the Constitution, being aware of their absolute lack the political power,
they simply accepted the standards proposed by the majority. On the other hand it is
obvious that interests of Roma or small minorities are not always similar the aims of
Hungarian minority. For example, while Hungarian representatives were from the beginning
against the inclusion of Nation State principle in the Constitution, for the
representatives of other minorities this is not really an issue. |