Realigning EU Roma Policy: Social Construction, Participation and Antigypsyism in the first versus the second EU Roma strategic framework

This paper examines the evolution of EU Roma policy by comparing the first EU Roma strategic framework (2010–2020) with its successor (2020–2030). Despite sustained EU-level efforts, Roma communities across Europe continue to face persistent discrimination and socio-economic marginalization. Building on Rostas’ (2019) critique of the first framework, this study asks whether and how the second framework addresses previously identified shortcomings in problem definition, target group construction, and participation. The paper develops an analytical framework by operationalizing Rostas’ Critical Roma Policy Analysis with its references to the Social Construction and Policy Design framework(Ingram et al., 2007). Empirically, it conducts a comparative qualitative content analysis of both strategic framework documents and their accompanying European Commission reports, complemented by dictionary-based quantitative indicators to trace developments over time. The findings show a partial but incomplete realignment of EU Roma policy. The second framework introduces a more explicit rights-based approach, foregrounding antigypsyism and intersectional discrimination as cross-cutting policy concerns. It is more specific in its objectives, expands its policy toolkit, and strengthens monitoring and evaluation mechanisms. However, while Roma participation is more visible particularly in monitoring processes, meaningful involvement in agenda-setting and decision-making remains limited. As a result, Roma continue to be constructed primarily as policy subjects rather than as co-authors of policy. The paper makes three contributions: theoretically, it operationalizes Critical Roma Policy Analysis for systematic comparative research; empirically, it extends the analysis of EU Roma policy to the second strategic framework and its implementation phase; and normatively, it discusses the EU strategic framework as a policy tool that enables agenda expansion while reproducing participatory constraints. In doing so, the study offers insights into both the development of EU Roma policy and the broader capacities and limitations of strategic frameworks in EU governance.