The Balkans

The U.S. Department of State’s Bureau of Population, Refugees and Migration (PRM) has developed a Balkans strategy in FY 2002 that reflects the evolving humanitarian situation. The region is generally stable now 6 years after the Dayton Accords ended the conflict in Bosnia-Herzegovina and almost 3 years after the NATO intervention in Kosovo led to the return of over one million Kosovar Albanians to their homes. Recent political events -- peaceful elections in Kosovo, the peace agreement in Macedonia, renewed commitment to refugee returns by the moderate government in Croatia, and continued stability in the Federal Republic of Yugoslavia -- continue to offer opportunities to find durable solutions for the thousands of persons who remain displaced by a decade of conflict in the former Yugoslavia. In short, we are witnessing success in our refugee and humanitarian programs in the Balkans as thousands of refugees and IDPs continue to return to Bosnia, Macedonia, or Kosovo. Other refugees and IDPs are finding alternative durable solutions, most notably, local integration.

PRM’s policy engagement in the Balkans will continue, given that assistance and protection of refugees and conflict victims there remains a key aspect of U.S. foreign policy. However, owing to progress in the region as well as more limited funding, we plan to continue to phase-down PRM financial support to the Balkans. PRM has refocused and prioritized its limited assistance and hopes to continue to coordinate closely with other donors across the region to advance refugee/IDP assistance goals in the Balkans despite a decrease in overall funding.

In FY 2001, PRM provided significant funding for programs that directly supported the returns of ethnic minority refugees and displaced persons throughout the region -- more than $92 million, with $60 million supporting international organizations and $32 million supporting NGO activities. These NGO projects will continue well into FY 2002.

PRM has contributed $22 million to support 25% of UNHCR’s 2002 Southeast Europe appeal and approximately $7 million to support ICRC’s 2002 regional appeal.

Serbia and Montenegro remain home to more than 650,000 people displaced by the conflicts of the 1990s. PRM will continue to provide information and documentation/legal assistance to those refugees who intend to return to Bosnia and Croatia and those IDPs who intend to return to Kosovo. In cooperation with UNHCR, significant work will be done with the Yugoslav, Serbian, and Montenegrin governments to identify durable solutions for those refugees unable or unwilling to return home, but the onus will rest with the Government and development partners.

International Rescue Committee
"Balkans Regional Return and Integration Project" ($2,125,000)

The International Catholic Migration Commission
"Individualized Minority Return Assistance (IMRA) and the Identification, Coordinated Care Livelihood Sustainability Assistance for Refugees and Displaced Persons in Serbia and Montenegro" ($1,500,000)

IOCC
"Support for Refugees/IDPs in Serbia" ($150,000)

IDP and refugee returns continue at a high rate. Over 90,000 minorities returned in 2001, and UNHCR predicts at least that many will also return in 2002. PRM will prioritize and refocus its assistance to support minority urban returns and selected rural "breakthrough" returns areas with housing assistance and small-scale economic sustainability inputs. USAID will continue to implement larger-scale infrastructure and economic programs.

In concert with continued housing assistance, we will continue to support the Property Law Implementation Process (PLIP), an effort to evict illegal occupants and reclaim homes for returning refugees and IDPs. Assistance targeted to returnees that enables secondary and tertiary returns as opposed to those returns involving only one family will take priority in FY 2002.

NGO funding will allow critical housing rehabilitation projects and minor economic sustainability inputs to be continued throughout the 2002 returns season and is expected to be sufficient to solidify returns momentum beyond FY 2002. Eastern Republika Srpska remains a fragile but important return area and will be specifically targeted for assistance.

UMCOR
"Integrated Minority Return Program in Bosnia and Herzegovina" ($1,500,000)

Mercy Corps
"Assistance to Sustainable Urban Minority Return in Eastern Republika Srpska" ($1,000,000)

IOCC
"Integrated Inter-Entity Minority Return to Urban and Rural Bosnia-Herzegovina" ($1,000,000)

ICMC -- Bosnia/Croatia
"Regional Assistance for Minority Return in Bosnia and Croatia" ($1,500,000)

The return environment in Croatia remains difficult. In 2002, we will continue to urge the Government to honor its promises to welcome the return of Croatian Serbs and to grant them equal access to all rights and benefits their citizenship entitles them to -- particularly in the area of property rights and reconstruction assistance. In the course of 2001, USAID, under its new Economic and Community Revitalization Activity (ECRA) program, began to assume many of the reintegration activities previously funded by PRM. Although selected communities will soon benefit from the wide range of USAID-funded programs, a gap still exists for basic humanitarian needs of minority returnees immediately following their return. Therefore, PRM will continue to provide basic humanitarian assistance to returnee families through NGO partners in FY 2002, particularly in former UN Sectors North and South and West.

ARC
"Return and Reintegration Program" ($800,000)

CRS
"Regional Minority Return and Development Support Program" ($800,000)

Minority Returns to Kosovo is PRM’s priority in the Balkans region. Given the results of the assembly elections, recent statements by Kosovo Albanian leaders and a relatively stable security situation, we expect 2002-2003 to be the breakthrough year for returns. While we do not advocate quotas and timetables for these returns, we have encouraged UNMIK and UNHCR to develop an action plan for returns, which specifies locations and sectors for donor involvement in order to rationalize and expedite possible returns.

PRM funded programs will return Kosovar IDPs from Serbia and Montenegro to Kosovo through the provision of assistance information dissemination, documentation assistance, minor shelter repair, small-scale agricultural and other economic inputs at the destination. To lay the groundwork for returns, the programs will also support the most vulnerable ethnic minority populations within Kosovo (e.g. Serbs and Roma) and build tolerance between Albanians and minorities.

In Kosovo, PRM will support UNHCR’s protection activities and the work of UNMIK’s Office of Return and Communities. We will continue funding NGO partners working to stabilize minority communities in Kosovo, particularly those with real potential to achieve minority returnees in FY 2002. PRM assistance in Kosovo through NGO partners will increase, rather than decrease as in all other Balkan countries, to support the new environment for returns and success of PRM-funded minority stabilization projects.

ICMC
"Individualized Minority Return Assistance" ($300,000)
"Kosovo Community Stabilization and Return Program" ($900,000)

ARC
"IDP and Refugee Returns from the FR Yugoslavia" ($500,000)
"Community Stabilization and Integration Activities for Minorities and Returnees to Kosovo" ($1,500,000)

UMCOR
"Integrated Cross-Boundary Minority Return Program in the Federal Republic of Yugoslavia" ($1,575,000)

Mercy Corps
"Return and Re-integration Program" ($750,000)

The crisis has subsided and most refugees and IDPs have returned. Limited additional funding will be provided to support vulnerable and provide assistance for the return of minority refugees.

Mercy Corps
"Sustainable Return and Reintegration Program" ($300,000)

IRC
"Assistance and Reintegration of Communities in Kumanovo" ($200,000)