Participation agreement between the VCW, the City of Antwerp, the Social Welfare Service of the municipality of Wilrijk and the Gypsies of the campsite of Wilrijk

I. Introductory description

Since 1998 the social worker of the organisation Vlaams Centrum Woonwagenwerk (VCW) in the province of Antwerp noticed a lack of concern and motivation in the activities of the local Social Welfare Service of Wilrijk (municipality of Antwerp) towards the group of Gypsies (Rom) who reside on a campsite in the same municipality. The responsible social worker of the welfare service didn’t visit the caravans because he felt a negative approach coming from the Gypsies. The negative contacts escalated in the systematic refusal of Gypsies demands for social aid and the minimum income, even when they were accompanied by the social worker of VCW. Several times the VCW asked to have a meeting with the head of the social service, the answer was always negative: the Social Welfare Service didn’t recognize the VCW as a working partner/collaborator. Even the campsite supervisor, employed by the Integration Service of the City of Antwerp, wasn’t able to have a constructive or positive interview with the Social Welfare Service of Wilrijk.

The social worker of the VCW and the campsite supervisor tried another strategy to force the Social Welfare Service to take action towards the Gypsies: every week they visited the service accompanied by Gypsies, asking to take note of their demand for social aid. Finally, the head of the department gave in and organised a meeting. After this meeting, the head of department was convinced to do something in this matter. There was only one problem: defending his idea before the Council of the Social Welfare Service. To have more impact on the Council, the head of department and the VCW decided to officially involve an important partner: the City of Antwerp (the Integration Service). This was possible in accordance with the new decree on the subject of the Flemish Policy with regard to Ethno-cultural Minorities (see phase 1: description of the general context of Gypsies and Travellers in Belgium, Flanders). The City of Antwerp involved itself in the matter and took the responsibility of organising a conference between the different partners to come to a working agreement. This resulted in an agreements text in where the specific cooperation between the Social Welfare Service, the VCW and the Integration Service of the city was stipulated and also where the conditions to receive social aid were defined. One of the important results of these negotiations was the development of an integration contract, made especially for the Gypsies.

At present other Social Welfare Services apply this working method in their contacts with Gypsies and Travellers. 

II. Process analysis

1. Starting point

The negative contacts and conflicts between the Gypsies of the local campsite and the Social Welfare Service of Wilrijk made it impossible to have a mutual and positive approach. The Social Welfare Service complained about the non-cooperation of Gypsies during the social inquiries and about the confusing family and social situations on the site. The VCW could not convince the responsible social worker of the Welfare Service to observe the situation in a more objective way. After several years of no improvement, the social worker of the VCW tried to force new demands of Gypsies for social aid. Gert only took action when he received support and full cooperation of the Gypsies. He also received the support of the campsite supervisor, employed by the Integration Service of the City of Antwerp. Thanks to the systematic opposition of the VCW when receiving negative results and to the positive attitude of the head of the social department of the Social Welfare Service, a first favourable discussion between the partners took place. The VCW-worker situated the problems of the Gypsies and noticed some interest from the head of the department. They decided to take action to increase the social integration of the local Gypsies. But to convince the Council (the decisive authority) of the Social Welfare Service to approve these actions towards the Gypsies, the partners had to use a stronger means of pressure. The Council consists of members who are elected by the community council. These members are likely to have a political preference and this could interfere their objective regard on the Gypsy issue. A higher political partner could only achieve an agreement from the Council; this partner was the City of Antwerp. There was no personal political involvement to realise the first contacts. The use of the new decree on the subject of the Flemish Policy with regard to Ethno-cultural Minorities was the only important positive political intervention in the approach towards the Social Welfare Service.

2. Development

An official invitation for a first meeting with the VCW, the Social Welfare Service and the Integration Service came from the City of Antwerp. The campsite supervisor, Luc Laeremans, was the key person for the Integration Service, and he kept his department informed. The positive attitude of the head of the social workers of the Social Welfare Service, Leo Wijnants, made it possible that the President of the Council showed no objection to this first meeting. The Council finally understood, also under pressure of the social workers of the service, that they had to find solutions for the specific problems of the Gypsies. This doesn’t mean that the Council itself tried to look for answers, they just gave Leo Wijnants the authority to participate in these meetings and he had to keep them informed about the results. Gert Devolder, social worker of the VCW was the third important actor.

During the first meeting the partners agreed to draw up a kind of manual on how to work with Gypsies and how to approach their demands for social aid and the minimum income. This plan also had to stipulate the concrete participation of different partners.

After 5 meetings a final document was prepared. The document consisted of:

-          an introduction

-          a general description of the problem(s)

-          a description of the actual situation on the campsite of Wilrijk,

-          further plans to organise a school project with Gypsy toddlers in the same community

-          the competences of the Social Welfare Service when a demand for social aid is introduced by Gypsies

-          the position of the Labour Law Court when appealing to a negative decision of the Social Welfare Service

-          a proposition for cooperation between the Social Welfare Service, the City of Antwerp and the VCW when doing a social survey of the familial and social situation of the Gypsies 

A brief resume of the points of cooperation during the social survey:

-          the City of Antwerp (the Civil Service) can provide with information about the official situation of the families residing on the campsite in Wilrijk. This is necessary to decide if a person has the right to obtain the minimum income and to determine the amount of the financial support.

-          the VCW can make a social report about the actual situation and can give a motivated advise

-          house calls by the social worker of the Social Welfare Service should be done accompanied by Gert of the VCW

-          the Social Welfare Service demands cooperation of every partner when determining the state of need of the demander (when specifying the social, financial and familial situation)

-          the use of an integration contract: to stipulate the conditions to receive social help. This contents the condition to subscribe in language lessons, the condition to look for a job, the condition of letting the children to school (starting from toddlers), … But these conditions have to be approached within a reasonable way. The age, the lack of education, or the familial situation can discharge someone of these obligations.

-          there will be no obstruction when a person files in an appeal when receiving a negative decision of the Social Welfare Service

-          every new demand has to be considered, taken in account every new element to determine the state of need

When a Gypsy introduces a demand for social help or a demand to obtain the minimum income, the different partners have to act according to the agreement. The Gypsy signs an integration contract with the Social Welfare Service, so both actors are aware of the responsibility they have taken on.

3. Current moment

At present the VCW has frequent contacts with the Integration Service of the City of Antwerp, and especially with Luc Laeremans, the campsite supervisor, to discuss the problems on the site. The supervisor is systematic being involved when the VCW organise different activities (for instance the school project for toddlers in a school near the campsite).

There is also a good collaboration between the Social Welfare Service and the VCW. A social worker of the Social Welfare Service visits regularly the campsite and gives frequent feedback to the VCW. Gert plays an important intermediary role at the decisive Council sessions. He acts as interpreter for the Gypsies but he can gives an exact framework of the situation of the Gypsies. The Social Welfare Service understands the position of the VCW and stays objective when the VCW files an appeal for a Gypsy family who received a negative decision. This doesn’t have any negative repercussions on the relationship of both partners. 

At this moment the VCW has a discussion with other Social Welfare Services of municipalities of Antwerp who deal with Gypsies. The agreement of Wilrijk is used as a discussion text. The different Social Services show a need to adjust their working method to one another. Twice a year the VCW will call on a similar meeting (will be invited: the different Social Services of Wilrijk, Mortsel, Hoboken and Wommelgem, the responsible social workers and their heads of department, the responsible person of the region of South-Antwerp, the Integration Service of the City of Antwerp and the VCW).

Also at present the VCW and a school nearby the campsite are organising a special school project for Gypsy toddlers. This idea rose when the parents were obliged to put their children in kindergarten, as stipulated in the integration contract they signed with the Social Welfare Service.

The school wanted to take some special measures towards these children to integrate them better into our school system. This project is only in the development phase.

III. Results

14 families reside on the campsite of Wilrijk. The amounts of demands for social aid are depending from the social and familial situation of the residents. The Social Welfare Service, before the introduction of the integration contracts, considered none of the demands. At present every demand is being taken in consideration.

The contract has also an impact on the school attendances of the children of the campsite. 10 out of the 14 families of the site have children who are of school age. All the families who receive social welfare support are obliged to send their children to school. This is one of the conditions stipulated in the integration contract.

After the positive results in Wilrijk, other Social Welfare Services of other municipalities and cities have introduced the integration contract for Gypsies in their working method. We now count 5 municipalities who apply this method to include Gypsies and Travellers in the social welfare aid.

IV. Impact

1. Impact on the environment

-          Development of a partnership between the Social Welfare Service, the VCW and the City of Antwerp: results in exchange of information and knowledge during meetings and the development of a mutual agreements and participation text.

-          The Social Welfare Service is regarding the VCW as an official partner. The social worker of the VCW is invited on every Council meeting to defend the Gypsies when a decision about their demand for financial aid. And he is consulted by the social worker of the Service during the social inquiry. His advice is being considered when taking a decision.

-          Thanks to an introduction by the VCW, the social worker of the Social Welfare Service is reassured when visiting the campsite. She receive counselling and guidance from the VCW when necessary (he can provide with information about the correct situation and about the cultural specifications of the Gypsies).

-          The City of Antwerp plays an important partner role. The city is responsible in registering the legal residences and familial situations of the habitants of the campsite. This information can be given to the Social Welfare Service when necessary in their social inquiry. The intermediary of the VCW is no longer responsible to provide this kind of (delicate) information about his target group.

-          The integration contract and the working method are being copied by other Social Welfare Services in Flanders.

-          The Gypsies address themselves more to the Social Welfare Service, not just for financial problems, but also for administration problems.

2. Impact on the Gypsy population and the Social Welfare Service

To receive financial support by the Social Welfare Service, the Gypsies have to fulfil certain conditions. These conditions are necessary to stimulate further integration of the Gypsies in the society. Some of these conditions can be adapted to the individual or familial situation of the demander.

The fulfilment of the conditions has some positive consequences concerning the attitude of the Gypsies towards the non-Gypsy society.

For example:

1)      Young Gypsies have to follow a Dutch language course:

-          they meet non-Gypsies in a different context/relation

-          some of them realise that they aren’t the most ignorant of the group

-          they have to respect a time schedule and so they learn to plan their day

-          young parents are more capable of understanding the work the kids get at school

2)      Obligation to put toddlers in school:

-          it raises the involvement of Gypsies in a gadgo institution

-          presence of parents and grandparents at school activities

-          they feel the need for child activities during school holidays

-          it gives the parents a feeling of regaining freedom during school hours

-          parents learn to plan a school day: the kids have to be in school at time, they have to make lunch, …

-          it raises the demand to develop initiatives towards adults and older children (lessons to eliminate illiteracy, …)

And progressively the Gypsies turn to the Social Welfare Service not only for financial support, but also for other questions like social administration problems. The Social Welfare Service learns to work with this difficult target group.

V. Comments/Conclusions

These factors led to the success of the process:

-          After several attempts of confronting the Social Welfare Service with the problems and the demands for social aid for Gypsies, Gert finally realized in getting the attention of the head of the social department.

-          The positive contacts (formal and informal) between Gert and the head of department made it possible to organise a meeting. Frequent meetings are resulting in a partnership.

-          The positive attitude of the head of department was an important factor in the progressive evolution of the process.

-          The involvement of the third partner, the City of Antwerp, was necessary to give an official and more formal cachet to the first meeting between VCW, Social Welfare Service and the Integration Service. The Council felt the pressure of the official institute, who used the new decree on the subject of the Flemish Policy with regard to Ethno-cultural Minorities to convince them in agreeing in having meetings with the VCW. They gave the head of the social department the authority to be the actor in these conferences.

-          Gert and the campsite supervisor have frequent contacts about the situation of the habitants on the site. When they take actions towards the Social Welfare Service, it is with combined forces.

-          Gert always involved the Gypsies when he tried to force new demands for social aid or the minimum income. At present he guides the Gypsies when they introduce a new demand or when they receive help from the Social Welfare Service. He informs the Gypsies about the different aspects of the integration contract and tries stimulating them to have a positive attitude towards the Social Welfare Service.

-          The City of Antwerp, the Social Welfare Service and the Gypsies understand the position of the VCW in this process. He is an intermediary who can be consulted by every partner.

-          It is necessary that the VCW take on a guidance role towards the social workers of the Social Welfare Service when concerning the problems of Gypsies. The knowledge and experience of the VCW is important to gain a correct view of the situation.

-          The Social Welfare Service is obliged to keep the VCW informed about their actions towards the Gypsies. This is important to avoid negative conflicts.

-          The mutual agreements between the different partners were made in a positive atmosphere and are being systematic evaluated during partner meetings.

-          After experienced the practice of the integration contract, the Gypsies realise that it is important to fulfil certain conditions when demanding social and financial support of our society. This implicates conditions for them as well as for their children. It makes the contacts with both societies easier. Positive examples are necessary to attract other members of the target group.

Transferability:

The positive results of the agreements and of the integration contract led to a debate with other municipalities of Antwerp. They all saw the need of a constructive and concrete working method when trying to reach the specific target group of the Gypsies. Not only in Antwerp, but also in other parts of Flanders, the VCW invites the local Social Welfare Services to think about similar agreement texts. Also in these new cases, the VCW uses the Flemish decree of the Policy with regard to Ethno-cultural Minorities.