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Structural principles
Sovereignty entails responsibility
1. A sovereign and functioning State is a prerequisite for a stable society.
Sovereignty implies that the State has rights and responsibilities, both towards its
own population and as an actor in the international community. One of a States
sovereign responsibilities should include developing and implementing
integration policies based on a sound institutional and legislative framework.
State sovereignty is a foundational principle of international law and is codified in or
underpinned by a number of ma!or international documents
"n particular, States are obliged to secure the en!oyment of human rights and freedoms,
including minority rights, for everyone within their !urisdictions.
States are accountable to the international community and are therefore obliged to fulfil
their reporting obligations to international supervisory and advisory bodies. Such bodies
play an important role in promoting transparency, understanding and goodwill, and States
should support, develop and fully participate in these mechanisms.
Good and democratic governance
#. $ood and democratic governance serves the needs and interests of a States entire
population. %hile democracy implies ma!ority rule in political decisionmaking,
it also includes safeguards against the abuse of ma!ority power. &his is achieved
by ensuring the protection and participation of minorities, and by facilitating
inclusive processes of governance that involve all members of the population.
'luralistic democracy, separation of powers, the rule of law and respect for human
rights, ine(tricably linked to one another, are preconditions for lasting peace, security and
!ustice.
States must fully respect the rule of law and international minority rights standards,
including those regarding the effective participation of minorities.
&herefore, democratic decisionmaking processes enable everyone to effectively
participate and voice their opinion, including those who are in a structurally unequal
position.
Non-discrimination and effective equality
). *ondiscrimination and effective equality are not only foundational and
crosscutting principles+ they are prerequisites for the effective contribution of all
to the common good. &he prohibition of discrimination entails equality before the
law and equal protection under the law, and that obstacles to effective equality are
removed. ,nsuring effective equality in law and in fact also implies a positive
obligation to adopt targeted policies and, where necessary, special measures.
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%ith regard to minorities in particular, the en!oyment of minority rights without
discrimination is contained in a number of documents.
,qual treatment does not mean identical treatment. &o be effective, the principle of
equality necessarily allows - and in some cases requires - different treatment of some
persons to ensure that they are able to en!oy all rights on an equal footing with other
members of society.
Respect for and protection of human rights, including minority rights
.. /espect for human rights and fundamental freedoms, including minority rights,
enables diverse societies to fully develop in conditions of security, peace and
cooperative relations. "nternational commitments and binding obligations are the
minimum standards States have to observe. 'ositive obligations also entail
proactive policies and the promotion of full respect for the rights of all
individuals.
0inority rights are an integral part of international human rights law and impose legal
obligations upon every member of the international community.
States are obliged to promote the rights of persons belonging to minorities to
effectively participate in public affairs and to maintain their identities by providing
adequate opportunities to develop their culture, to use their language and to practice their
religion.
II. Principles for integration
Recognition of diversity and multiple identities
1. 2iversity is a feature of all contemporary societies and of the groups that
comprise them. &he legislative and policy framework should allow for the
recognition that individual identities may be multiple, multilayered, conte(tual
and dynamic.
0any contemporary societies are marked by an increasing degree of diversity in their
populations. 0eanwhile, migration - both immigration and emigration - is contributing
to changing demography. "t is important to take the potential effects of these phenomena
on the position and situation of national minorities into account.
"ndividual identities can be and in fact increasingly are multiple 3a sense of having
several hori4ontal identities+ for instance, belonging to more than one ethnicity5,
multilayered (various identities coe(ist and overlap in the same person, such as ethnic,
religious, linguistic, gender, professional and the like5, contextual 3the conte(t might
determine which identity is more prominent at a given moment5 and dynamic 3the
content of each identity and the attachment of individuals to it is changing over time5.
it is necessary to recogni4e the distinct characteristics of groups, while also
acknowledging the heterogeneity and fluidity within those groups.
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identification with multiple identities and conte(tual affiliations should be permitted,
including in the census+
everyone should have the right to change his or her affiliation over time.
Primacy of voluntary self-identification
6. "dentities are sub!ect to the primacy of individual choice through the principle of
voluntary selfidentification. 0inority rights include the right of individual
members of minority communities to choose to be treated or not to be treated as
such. *o disadvantage shall result from such a choice or the refusal to choose. *o
restrictions should be placed on this freedom of choice. Assimilation against ones
will by the State or third parties is prohibited.
&he principle of freedom of choice should be reflected in legislation and in integration
policies. &his means, for e(ample, that authorities should not affiliate persons with a
specific group based on visible characteristics or other presumptions without their
consent.
%hile any form of assimilation that one has not chosen - even indirect and involuntary
- is prohibited
Non-isolationist approach to minority issues
7. Since some minority rights are meaningful only when e(ercised in community
with others, this may result in a degree of distinction from other groups in society
in certain conte(ts. *evertheless, isolation or e(cessive separation may weaken
crosscommunity links and undermine the cohesiveness of society.
8owever, it is essential for societies to find the appropriate balance between the degree
of separation that is necessary to the free e(pression and development of diversity on the
one hand and the establishment and strengthening of links between and among the
diverse communities of a society as a whole on the other.
&he 89*0 has observed that the level of separation between communities can become
e(cessive.
Shared public institutions, a sense of belonging and mutual accommodation
:. "ntegration is a process that requires that all members of a given society accept
common public institutions and have a shared sense of belonging to a common
State and an inclusive society. &his does not e(clude the possibility of distinct
identities, which are constantly evolving, multiple and conte(tual. 0echanisms
aiming at mutual accommodation are essential to negotiate the legitimate claims
put forward by different groups or communities.
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Inclusion and effective participation
;. "ntegration policies should be based on inclusion and should thus strive for a
situation in which everyone en!oys full membership in their society, equal access
to public goods and services, and equal opportunities. ,ffective participation on
an equal footing by all members of society in social, economic and cultural life
and in public affairs should be mainstreamed.
,stablishing full membership in society, equal opportunities and equal treatment for all,
including in accessing public goods and services, should be guiding principles when
developing integration policies.
Rights and duties
1<. "ntegration policies should be cogni4ant of the interests of and consistent with the
rights of all members of society, including the rights of persons belonging to
minorities. "n addition to holding rights, all members of society share the duties of
obeying the laws and the responsibilities of contributing to society and to the
integration of society.
"ntegration is a process involving all. *ot only the rights, but also the duties of members
of society are shared by all equally.
0inorities should participate in all aspects of governance in their country of residence
and their involvement should not be restricted to areas that specifically concern them.
Inter-community relations
11. "ntegration policies should include measures that encourage crosscommunity
dialogue and interaction based on tolerance and mutual respect. &his covers a
broad range of initiatives in various fields, including education, media and
language policy. %hen possible, it is preferable to use positive incentives to
ensure compliance rather than punitive measures.
%ithin the conte(t of education, measures such as e(changes between schools providing
education to minority and ma!ority pupils, can promote interaction and mutual
understanding
States may legitimately promote the State language of the country.
Policies targeting both maorities and minorities
1#. &argeted policies should be developed and implemented that address both
minorities and ma!orities. &his reflects the fact that integration of society is a
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process of mutual accommodation and active engagement involving all members
of society as individuals or organi4ed groups.
"ntegration is a process involving all members of society, both ma!orities and minorities.