Serbia

2012 UNHCR country operations profile - Serbia (and Kosovo: SC Res. 1244)

Working environment

The context

Serbia

Serbia hosts one of the largest populations of displaced people in Europe. It has nearly 71,350 registered refugees from the conflicts in the 1990s, many of whom are still in need of durable solutions. Serbia also hosts approximately 210,000 IDPs from Kosovo, of whom some 97,000 are in need of assistance, according to an IDP Needs Assessment Survey carried out by the Serbian Commissariat for Refugees and UNHCR in 2011.

In 2010, some 520 people sought asylum in Serbia; in 2011, this number rose to 1,370 in the first half of the year alone. Most asylum-seekers who arrive in the country, however, leave for Western Europe within weeks. New migration and reintegration challenges have arisen owing to the increasing number of failed asylum-seekers forcibly returned from Western Europe as a result of readmission agreements.

UNHCR also works to reduce statelessness among groups at risk, in particular the Roma, Ashkali and Egyptian (RAE) communities. According to a 2010 UNHCR survey, some 30,000 people belonging to this group are at risk of statelessness.

Kosovo (UN Security Council Resolution 1244/1999)

UNHCR in Kosovo focuses its protection and assistance on minority returnees (voluntary and involuntary), vulnerable IDPs in search of durable solutions, asylum-seekers and refugees, and people at risk of statelessness. Some 18,000 people remain displaced within Kosovo.

Asylum is an emerging issue for the Kosovo authorities, although they are not yet ready to provide adequate reception and protection. Some 158 people applied for asylum in the first half of 2011. Nearly 200 refugees from Croatia and Bosnia and Herzegovina who fled during the 1991-1995 conflict are supported by UNHCR in Kosovo, along with 26 mandate refugees from Cameroon, Ethiopia and Iraq.

UNHCR assists people at risk of statelessness due to lack of civil documentation and birth certificates, a situation affecting RAE communities the most.

It is projected that some 2,500 people will return to their areas of origin voluntarily in 2012. However, since 2010, forced returns from Western Europe have greatly outnumbered voluntary returns to Kosovo. This trend is likely to continue in 2012, raising major concerns about Kosovo's reintegration and absorption capacity as well as practical protection issues.

The needs

Serbia

Unmet needs hampering the attainment of durable solutions for the remaining refugees in Serbia will be discussed at a Regional Donors' Conference in early 2012. Activities foreseen under the regional project are expected to start as soon as contributed funds are materialized.

Some 3,200 people (680 refugees and 2,520 IDPs) still live in 33 collective centres. A large number of refugees and IDPs reside in substandard temporary housing or in illegal settlements that lack basic facilities. In order to improve the living conditions, alternative and durable housing solutions are necessary.

According to the findings of the 2011 IDP Needs Assessment, unemployment among IDPs stands at 39 per cent. Some 74 per cent live below the poverty line. Female heads of households constitute almost 31 per cent of vulnerable people. A need for support in finding durable housing solutions is expressed by some 80 per cent of IDP households. A quarter of the IDPs suffer from chronic diseases and 8 per cent are disabled. Only 20 per cent of IDPs expressed a willingness to return to Kosovo, while the vast majority indicated their willingness to remain in their place of displacement.

Although UNHCR continues to facilitate the voluntary return of IDPs to Kosovo, reintegration opportunities remain limited, discouraging returns. This explains why the majority of IDPs have opted for local integration in the place of displacement as their preferred solution. UNHCR continues to play a catalytic role in mobilizing support for this durable solution.

Although the Government has opened a reception centre on temporary basis, there is a strong need to bolster reception capacity in a permanent manner. The continued monitoring and capacity-building of civil servants working in the asylum system is another important requirement.

Kosovo (SC Res. 1244)

In Kosovo, UNHCR has the specific mandate under UN Security Council Resolution 1244, to supervise the "safe and free return of all refugees and displaced persons to their home". However, the potential for return is almost exhausted. The lack of civil documentation and property deeds, as well as insufficient housing and high unemployment remain the key issues affecting reintegration and the sustainability of return. RAE communities remain the most marginalized in Kosovo.

UNHCR will pursue a comprehensive durable solutions strategy for displaced persons in Kosovo which will address their protection and reintegration needs.

Continued capacity-building for the authorities involved in the Refugee Status Determination (RSD) procedure is needed. The development of the overall asylum framework calls for continuous support so that people of concern to UNHCR can enjoy access to basic rights, services and durable solutions.

Main objectives and targets for 2012

Serbia

Favourable protection environment

Law and policy are developed and strengthened.

• Two seminars are held to promote compliance with protection standards.

Basic needs and services

Services for people with specific needs are strengthened.

• Psychological services are provided to 5,400 IDPs and 2,900 refugees from the former Yugoslavia.
• Some 500 IDP families and 500 refugee families from the former Yugoslavia with specific needs are provided cash grants.

Durable solutions

Greater reduction of statelessness is achieved

• Some 4,500 stateless people are assisted with the acquisition or confirmation of nationality.

The potential for voluntary return is realized.

• Up to 10 Go-and-See Visits will be organized, and assistance in participation in Municipal Working Groups will be provided.

Community empowerment and self-reliance

Self-reliance and livelihoods are improved.

• Some 1,100 IDPs are supported by self-reliance and livelihoods assistance.

Kosovo (SC Res. 1244)

Fair protection processes and documentation

The provision of civil registration and civil status documentation is strengthened.

• Some 1,500 children are registered and issued documentation under regular birth registration procedures, and 1,500 people are registered through late birth registration facilities.

Favourable protection environment

Law and policy are developed and strengthened.

• Advocacy is conducted for the inclusion of people of concern in local, national and regional development plans.
• At least 12 instances where UNHCR provides its comments on legal acts and drafts.

Access to the territory is improved and the risk of refoulement reduced.

• Some 500 interviews are conducted with asylum-seekers and people of concern.

Durable Solutions

The potential for voluntary return is realized.

• Some 3,000 returnees and IDPs receive return packages.

Reintegration is made more sustainable.

• Reintegration monitoring is established and an assessment of protection gaps undertaken.
• A durable solutions strategy for displaced people in Kosovo is pursued.

Strategy and activities in 2012

Serbia

In Serbia, UNHCR will help to bring the protracted displacement caused by the 1991-1995 conflicts to an end in a sustainable manner, as part of the regional "Sarajevo process" that was re-launched at the Belgrade Conference on Durable Solutions held in March 2010. Under this framework, UNHCR will phase down its operational involvement while providing legal assistance and some social support to the most vulnerable refugees.

UNHCR will work with the authorities to find solutions for IDPs in the country, albeit on a reduced scale. However, it will continue its technical support to Serbia and play a catalytic role in getting other development stakeholders involved in the process.

In order to reduce statelessness, UNHCR will advocate for improved access to birth registration.

Kosovo (SC Res. 1244)

In Kosovo, UNHCR will reinforce its protection role for new asylum-seekers, old refugees, IDPs and returnees, while phasing down assistance to IDPs and returnees. It will engage in capacity-building activities to improve the quality of RSD and the management of mixed migration flows. It will also help the authorities to implement durable solutions, mainly local integration for refugees and IDPs, and sustainable reintegration for returnees.

Finally, UNHCR will continue supporting voluntary returns, and participate in human rights monitoring of all minority returnees, whether voluntary or involuntary. UNHCR will also develop protection partnerships to support those at risk of statelessness.

Constraints

Serbia

The political engagement of the authorities is a key component to ending the protracted refugee and IDP situations, improving the asylum system, and increasing the rate of civil registration among those at risk of statelessness.

Kosovo (SC Res. 1244)

The dispute over the status of Kosovo is unresolved. However, under General Assembly Resolution 64/298 adopted in 2010, a technical dialogue has been put in place between Pristina and Belgrade aimed at achieving progress on the path to membership of the European Union (EU) and improving the lives of the people.

The poor socio-economic situation in Kosovo continues to hinder return and reintegration. Inter-ethnic relations and governance pose challenges, although the overall security situation has improved, as has the enforcement of the rule of law.

Organization and implementation

In the course of 2012, UNHCR will close its Field Office in Kraljevo.

Coordination

Serbia

UNHCR works in close coordination with the Serbian Commissioner for Refugees, the Ministries of the Interior and of Social Affairs, municipal authorities and local Centres for Social Welfare. Partnership with the EU, the UN Country Team, the OSCE, the Council of Europe and civil society are also important.

Kosovo (SC Res. 1244)

UNHCR coordinates activities with the United Nations Interim Administration Mission in Kosovo (UNMIK) and the European Commission Liaison Office. It participates in the UN Kosovo Team (UNKT) and the implementation of the UNKT Common Development Plan. UNHCR also works closely with the Kosovo UN Planning Team, the OSCE and IOM.

Financial information

The comprehensive budget for Serbia (and Kosovo: SC Res. 1244) in 2012 amounts to USD 35 million, reflecting a reduction of more that USD 7 million (17 per cent) from 2011. The comprehensive budget for Serbia totals USD 23 million, of which 64 per cent is allocated for IDPs, 32 per cent for refugees and 4 per cent for stateless people. The overall requirements in Kosovo are USD 12 million, of which 28 per cent is allocated for IDPs, 41 per cent to return and reintegration, 25 per cent for refugees and 7 per cent for stateless people.

Source: UNHCR Global Appeal 2012-2013

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