policies should be based on respect for the rights of all and take into account the legitimate interests of all members of society, regardless of whether they are citizens or not.38 Separation between communities and groups is generally not a good basis on which to build a well-functioning society with good prospects for sustainable stability. Integration involves interaction, not just tolerating a plurality of cultures.39 Integration is a process involving all. Not only the rights, but also the duties of members of society are shared by all equally. In addition to respecting the law and the rights of others40, these duties include a responsibility to contribute to society and its integration as well as to its democratic processes. Minorities 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. In this context, the establishment of parallel isolated minority or majority communities is not conducive to integration of society. Inter-community relations 11. Integration policies should include measures that encourage cross-community dialogue and interaction based on tolerance and mutual respect. This covers a broad range of initiatives in various fields, including education, media and language policy. When possible, it is preferable to use positive incentives to ensure compliance rather than punitive measures. Integration policies should promote contact and exchange between communities and individuals through incentives and by raising awareness of the mutual advantages of interaction, dialogue and participation. 41 Within the context of education, measures such as exchanges between schools providing education to minority and majority pupils, can promote interaction and mutual understanding.42 In the area of media, permitting or even encouraging the 38 39 40 41 42 UN HRC General Comment no. 23, The rights of minorities (article 27), 8 April 1994, paragraph 5.1; European Commission for Democracy through Law (Venice Commission) (hereinafter: “Venice Commission”), “Report on Non-Citizens and Minority Rights”, (CDL-AD(2007)001). Bolzano/Bozen Recommendations, Explanatory Note to Recommendation 7, and FCNM, articles 5 and 6. FCNM, article 20, and UN Declaration of Human Rights, article 29.1. FCNM, article 6. See Guidelines 44 and 45. Guidelines on Integration of Diverse Societies 21