2010 UNHCR country operations profile - Serbia

Working environment

The context

Serbia

Serbia hosts one of the largest populations of refugees and internally displaced persons (IDPs) in Europe. Most live in private accommodation, but some 5,500, including a significant number of vulnerable people, remain in 55 collective centres.

The number of registered refugees in Serbia now stands at 86,000. The figure is expected to decrease as a result of continuing returns to Bosnia and Herzegovina and Croatia, as well as local integration. According to the Government, the number of IDPs from Kosovo is approximately 210,000, though no re-registration has taken place since 2000.

Serbia also faces migration challenges, including people seeking international protection and others moving irregularly. The number of asylum applications remains low. Implementation of Serbia's asylum legislation started in mid-2008 and will require UNHCR's continued monitoring and support.

Serbia is going through an economic transition, while also growing closer to Europe. The changes pose considerable challenges, including the alleviation of poverty resulting from economic restructuring and exacerbated by the global economic downturn. In this context, refugees, IDPs and minority groups (such as the Roma) are particularly vulnerable.

Kosovo

Most of the 210,000 IDPs from Kosovo are from minority communities (Serbs, Roma, Ashkali and Egyptians). Additionally, almost 20,000 people are still displaced within Kosovo itself, with some 2,200 living in collective centres. Poor socio-economic conditions, insecurity and inter-ethnic tensions complicate returns.

Asylum is an emerging issue for the Kosovo authorities. Considering Kosovo's geographic location, it has the potential to become a transit area for irregular migrants and asylum-seekers from many parts of the world.

Recent political developments and related legislative processes have placed some groups at heightened risk of statelessness. Among the estimated 35,000 Roma in Kosovo, up to 20 per cent may be de facto stateless.

The needs

Serbia

UNHCR's needs assessments demonstrate that the main problems relating to the voluntary repatriation of refugees to Croatia arise from unresolved issues of restitution or compensation for occupancy or tenancy rights, while the local integration of refugees and IDPs in Serbia is hampered by the lack of housing assistance, employment and identity documentation.

Domestic violence is a major protection concern for refugee and IDP women, as is the risk of human trafficking. Despite attempts by the authorities to address these problems, the current legislative framework remains inadequate and prosecutions are not pursued.

UNHCR is helping to enhance the capacity of civil servants tasked with asylum adjudications within the Ministry of Interior. The asylum centre accommodates only 80 people. The assistance prescribed by the asylum law may be inadequate if numbers increase, and at present UNHCR's intervention is needed in the areas of housing and the identification of employment opportunities for asylum-seekers and refugees.

UNHCR estimates that there are 17,000 de facto stateless people in Serbia, who cannot benefit from citizenship rights because of a lack of documentation. New laws regarding civil registration will require UNHCR to continue its legal aid programme to assist the vulnerable.

Kosovo

Lack of housing and poor living standards, unemployment, restrictions on access to education and to freedom of movement are the key issues to be addressed in the context of returns. Access to property rights is a major obstacle. Re-designed and strengthened livelihood activities are essential to render returns sustainable.

Main objectives

Serbia

Favourable protection environment

• Help the Government to build an asylum system that is compatible with international and European standards, while undertaking RSD in the interim.

Basic needs and services

• Assist the most vulnerable refugees and IDPs.

Durable solutions

• Support refugees and IDPs who opt for return.

• Aid the local integration of refugees and IDPs who are unable or unwilling to return.

• Work to eliminate current and potential statelessness situations.

Kosovo

Favourable protection environment

• Strengthen the capacity of the authorities to develop and implement an asylum system in compliance with international and European standards, while undertaking RSD in the interim.

Basic needs and services

• Ensure that returnees and displaced people enjoy the same rights as host communities and receive adequate assistance.

Durable solutions

• Facilitate the reintegration of returning IDPs and refugees.

• Support local integration for IDPs who are unable or unwilling to return to their homes.

• Provide access to legal aid and remedies for people who are at risk of becoming stateless.

Key targets for 2010

Serbia

• Develop a revised durable solutions strategy for IDPs and enhance the provision of information to IDPs. Organize go-and-see visits to Kosovo.

• Facilitate returns to Kosovo, including transportation assistance.

• Improve the access of IDPs to documentation, legal counselling, assistance for property restitution and other rights.

• Mobilize resources to assist the most vulnerable refugees and IDPs.

• Close the remaining collective centres by 2011, support the return to Croatia of those who wish to return, and promote the local integration of those who opt to remain.

• Prevent and reduce statelessness by assisting in drafting legislation, promoting civil registration, providing legal assistance and facilitating naturalization.

Kosovo

• Launch targeted information and outreach campaigns to provide information to displaced people.

• Develop mechanisms, jointly with the competent authorities, to sustain returns through livelihood and self-reliance activities.

• Help 3,000 people at risk of becoming stateless register their civil status.

• Conduct training on asylum and protection-sensitive border management for 150 border police officers.

• Provide shelter repair assistance to 100 returnees and 50 IDPs; provide permanent accommodation for up to 500 returnee and IDP families.

• Provide six-month food rations for up to 3,000 returnees, including 500 children.

• Implement 70 community development projects with a 25 per cent contribution from local authorities and communities.

• Support the existing eight safe houses for victims of sexual and gender-based violence.

Strategy and activities

Serbia

In Serbia, UNHCR protects and assists refugees from Bosnia and Herzegovina and Croatia, as well as IDPs from Kosovo. The Office is also working to develop an integrated asylum system and to prevent and reduce statelessness.

In line with the High Commissioner's 2008 Dialogue on Protracted Refugee Situations, UNHCR will seek to resolve the displacement problem in Serbia. The strategy will concentrate on finding durable housing and helping the most vulnerable refugees to become self-reliant. Repatriation assistance for refugees wishing to return to Croatia will be continued until 2011.

UNHCR will advocate for the rights of refugees, both in their countries of origin and in Serbia. It will support local governments' initiatives to integrate the remaining refugees in their municipalities.

UNHCR will also continue to carry out its core mandate activities, including by assisting the authorities to consolidate the legislative and institutional framework on asylum. Legal expertise and technical assistance, training, advocacy and study visits will be provided to this end.

To reduce and prevent statelessness, UNHCR will reinforce its public information and outreach campaign to raise awareness of the need for civil registration and documentation. The Roma in Serbia will be given legal assistance. Amending relevant legislation and administrative procedures will be another priority.

UNHCR will continue to advocate for the right of IDPs to return to or relocate in Kosovo, as well as for their right to integrate in other parts of Serbia. At the same time, it will advocate for the full enjoyment of citizenship rights by IDPs. IDPs, especially those residing in the remaining collective centres and sub-standard private accommodation, will also be assisted by means of housing, income generation and vocational training.

Kosovo

UNHCR's revised return strategy takes into account the recent increase in the interest to return. UNHCR will strengthen its leadership role in the return process and provide guidance to local authorities and other actors on return-related issues.

The Office will support the Roma reintegration strategy developed by the Kosovo authorities by implementing social inclusion programmes. It will also raise awareness on gender-based violence, particularly targeting minority groups to increase the reporting and referral of such cases.

The Office will work to enhance the authorities' capacities in the areas of asylum procedures, refugee status determination, and the management of reception centres.

UNHCR will continue to provide expertise on relevant legislation. It will support the preparation of instructions relating to asylum law in line with international and European standards, and the organization of training events on RSD. To prevent refoulement, the strategy includes training for border police on the identification of asylum-seekers. UNHCR also plans to help local civil society to enhance their ability to advocate for the rights of asylum-seekers and refugees. The Office will enhance cooperation with the competent authorities to ensure that nationality legislation does not lead to renewed displacement or create statelessness.

Constraints

Serbia

A resolution of the displacement situation in Serbia is dependent on domestic and regional political stability, and on sustained economic, legislative and social reforms. The political willingness of authorities will be critical in addressing the issues of civil registration of Roma, and statelessness.

Durable solutions for the remaining refugees from Croatia will depend on finding a fair settlement for former occupancy and tenancy rights holders. Returns of IDPs from Kosovo will depend on the evolution of inter-ethnic relations there, as well as on the Kosovo authorities' implementation of return projects, and their capacity to ensure the sustainability of returns. The current economic crisis may reduce the authorities' capacity to cater for the specific needs of populations of concern to UNHCR, especially the Roma.

Kosovo

The current state of inter-ethnic relations and the political climate will continue to influence returns. Improved security and the gradual enforcement of the rule of law may present opportunities to advance the fragile reconciliation process. Although the present socio-economic situation in Kosovo is one of the major impediments to return and reintegration, it is hoped that the authorities' political commitment to a comprehensive reintegration strategy will change things for the better.

Organization and implementation

Coordination

Serbia

The programme will be implemented in close coordination with the Serbian Commissioner for Refugees, the Ministry for Social Affairs, municipal authorities and local Centres for Social Welfare. Partnership with the Delegation of the European Commission in Belgrade is particularly important; so too are links with the UN Country Team, the Organization for Security and Co-operation in Europe, NGOs and refugee associations.

Kosovo

UNHCR coordinates its engagement in the return process with the authorities, including in the areas of registration and targeted assistance. To boost the capacity of civil society, UNHCR will strengthen its partnership with local NGOs, including IDP associations.

Following the reconfiguration of UNMIK, UNHCR's cooperation with the International Civilian Office and EULEX will be reinforced, while existing contacts with KFOR and the Kosovo Police will be maintained. The Office will continue to work closely with the OSCE in promoting human rights and the rule of law. UNHCR will also seek to bridge the gap between humanitarian and development activities.

Financial information

From 2005 to 2009, UNHCR has sought to reduce care and maintenance activities in Serbia and focus on durable solutions. Despite the decline in the number of people of concern, the budget for 2010 of USD 53 million reflects increased efforts related to finding durable solutions and the High Commissioner's commitment to resolve the protracted refugee situation.

Source: UNHCR Global Appeal 2010-2011