Final Report

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Final Report

Swiss Fund for Needy Victims of the Holocaust/Shoa Swiss Fund for Needy Victims of the Holocaust/Shoa for Fund Swiss Final Report COVER_1teil_E 29.4.2002 16:14 Uhr Seite 2 SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 2

Final Report Swiss Fund for Needy Victims of the Holocaust/Shoa

Final Report from the Fund Executive, first part SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 4

Introduction by Kaspar Villiger, 5. Evaluation 62 President of the Swiss Confederation 7 5.1 The Humanitarian Dimension 64 Foreword by Rolf Bloch, Fund President 10 5.2 Significance as a Personal Recognition Foreword by Barbara Ekwall-Uebelhart, and a Commemoration 70 Secretary General of the Fund 12 5.3 The Recollection of the Fate of the Different Groups of Victims and the Recognition of Minority Groups 74 1. Editorial 16 5.4 Consolidation of the Victims’ Organizations 76

2. Background Information 18 5.5 Pioneer Role for Future Initiatives for the Benefit of Nazi Victims 77 2.1 The Genesis of the Fund 18 5.6 Consolidation of Relations between Switzerland and 2.2 Organs of the Fund 18 Foreign Countries 78

2.3 The Legal Framework 20 6. Closing Word 80 2.4 Internal Directives 21 Chronology 81 2.5 Particularities of the Fund’s Working Methods 22 Overview on Finances and Payments 86

3. Context – A World First 24 Auditors’ Statement 90

Excerpts of the Address of the Ambassador 4. The Different Phases of the Fund’s Work 31 of the Republic of Poland, Marek Jedrys, given on November 22, 2000 93 4.1 Phase 1 – The Coordination and Information Phase 31 Executive Ordinance Concerning the Special Fund for 4.2 Phase 2 – The Humanitarian Phase 43 Needy Victims of the Holocaust/Shoa 94

4.3 Phase 3 – The Conclusion Phase 54 SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 6

Introduction by Kaspar Villiger, President of the Swiss Confederation

The Swiss Fund for Needy Victims of the Holocaust/Shoa is an example of tangible solidarity with victims, with the weak, the needy, and the disadvantaged. It emerged in the wake of the debate on dormant assets and the role of Switzerland in the Second World War that was revived in the second half of the 1990s. It would therefore be inappro- priate, in retrospect, to interpret the creation of the Fund as merely a spontaneous action and an unexpected initiative on the part of decision-makers. Yet it remains a fact that the activity was not confined to empty statements and futile discussions but that firm action was taken.

Now that the activities of the Fund have come to a successful conclusion, it behooves us first of all to acknowledge our satisfaction at the results. A substantial capital endowment was brought together by means of voluntary donations made not only by the Swiss National Bank and the two major Swiss commercial banks, but also by numerous corporations and private donors. The Fund capital was further increased thanks to accrued interests and distributed in the course of these last years to a large number of persons throughout the world.

Whoever is confronted with the task of allocating scarce financial resources to a multitude of uses and users, knows what difficulties and challenges lay in wait for those in charge of the Fund’s operation. He or she is well acquainted with the difficulty of finding a scale of distribution acceptable to all of those concerned and of determining those who are entitled to benefit. The Fund Executive and the Fund Council exercised this task judiciously, arriving at a solution which was accepted and supported by the participating organizations further to numerous discussions, consultations and clarifica- tions. Therefore, all of those who took part in this task deserve my heartfelt thanks and praise.

The sums distributed to the beneficiaries cannot undo what was done. The financial assistance is not a compensation for the sufferings endured. The recipients are not seeing justice being done for what they were forced to suffer. Indeed, what the assistance does provide to the beneficiaries even fifty years later is the assurance that their fate still evokes anxiety and bewilderment, together with the unfailing sympathy of those who were fortunate enough to be spared Nazi persecution. The feedback received from a large number of beneficiaries confirms that this aspect, above and beyond the monetary element, was of great significance to them and was duly appreciated.

Kaspar Villiger, President of the Swiss Confederation 7 SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 8

First distributions in Minsk, October 29, 1998. Meeting between the President and a beneficiary of the Fund. (Photo: Vasily Fedosenko)

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Foreword by Rolf Bloch, Fund President This gesture is therefore not a question of We are all entitled to look with satisfaction atonement, compensation, or restitution, upon what has been achieved; our com- but rather an expression of human commitment was well justified. Therefore, this The Swiss Fund for Needy Victims of the Holocaust/Shoa came into passion and a recognition of the fate suf- Fund created by the Swiss confederation is fered. It is the moral dimension which is at thankful to all of those who contributed at existence in the spring of 1997 once the issue regarding an active the core. the time to the donation of the Fund means or subsequently lent their support search for entitled beneficiaries of dormant accounts in Swiss banks In setting up this Fund, Switzerland also in any way: the Swiss National Bank, got things moving on all continents. I industrial and service corporations, as well had expanded into a general debate on the role of Switzerland in the myself was privileged to learn during my as individual donors. I would also like to on-site visits – so as to personally make the extend my cordial thanks to all of those Second World War. In setting up this federal Fund, it was acquaintance of the beneficiaries as well as who made it possible to carry out this to remove the veil of anonymity from the ambitious undertaking which had to be Switzerland’s desire to take up its humanitarian tradition and, free Fund – that the assistance provided was constructed from the very groundwork on understood and perceived as a humani- up and with the mere discretion called for from any type of legal investigations and long drawn-out procedures, tarian gesture. It was appreciated by the in myriad details, along with all of those Holocaust survivors and also deeply who made this possible thanks to their set a prompt sign of solidarity. In substance, this meant that those touched them. In many countries, notably ideas, guidance, and enthusiastic coopera- in the eastern regions of Europe, the Swiss tion: the members of the Fund Executive victims of persecution still suffering from want and need today were Fund was the first time that such a sign of and of the Fund Council, the Fund’s solidarity had been forthcoming. For General Secretariat, the Auditors, and the to receive a support in form of a gesture. Albeit on the surface this many of the needy and destitute, this national organizations – both Jewish and financial assistance provided them with a non-Jewish – in the different countries gesture was one of a material nature, representing an ever-present possibility to somewhat enhance the quali- who located the potential beneficiaries and ty of life in their twilight years whether by who participated in carrying out and sympathy with those heartbreaking human beings who were obliged purchasing new medicines, paying for op- monitoring the distributions. Constructive erations to improve their health, or shop- cooperation and mutual confidence were to endure such a terrible ordeal, it was also an expression of ping for warm clothing or things to bright- developed during the implementation pro- en up every-day life. Above and beyond its cess of this common task carried out in a gratitude on the part of those of us Swiss citizens who, despite the impact on the individual beneficiaries, the spirit of full harmony. This proves that in activities of the Fund permitted the various the minds and hearts of those who partici- privations imposed by the war, remained spared from any such groups of victims to consolidate the net- pated, the Fund was a worthy cause, one work of their relief organizations, in cer- that could be brought to a successful persecution. tain cases bringing them recognition at a conclusion. national level for the very first time.

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Foreword by Barbara Ekwall-Uebelhart, The work with the Fund Executive, the tions who made it possible for the assis- Secretary General of the Fund Fund Council, and the Fund Auditor was tance of the Fund to be distributed in over characterized by strong commitment, a sixty countries around the world. To all of sense of responsibility, and mutual trust, them I address my sincere thanks for their This year, an unparalleled humanitarian initiative, unique in every for which I would like to express my pro- excellent cooperation. The Secretariat found gratitude. My thanks go out in par- enjoyed particularly close contacts with way, will be brought to conclusion. Never before has there been such ticular to the Fund President, Rolf Bloch, Eli Spanic, General Director of the WJRO and to the Chairpersons of the sub-groups in Jerusalem, who coordinated the vast an interplay between actors from the world of politics, civil society, of the Fund Council, Anne-Marie distribution of Fund means to the Jewish Holenstein and Sam Bloch. survivors of the Holocaust, and to whom economic circles and the administration. Groundbreaking relations I should like to take this opportunity to The Secretariat has a “technical” function. express my particular thanks. also materialized within the Fund bodies and with the victims’ The main thing was to identify the problems and to adequately resolve them, at In carrying out our mission, we were organizations. This humanitarian initiative, pioneer in character, times seeking out innovative solutions. always able to rely on the efficient support These so-called “technical” challenges of the local Swiss embassies, along with ventured out into unknown territory by virtue of its very mission. were complex and varied. They ranged, on that of the Federal Department of Foreign the one hand, from purely practical prob- Affairs, the Department of Home Affairs, When the Fund began its work in 1997, the Fund Secretariat too, lems, to at times complicated issues rela- and the Department of Finance. They too ting to the legislation of each particular deserve my most sincere thanks. stepped onto virgin land. country on the other hand. Lastly, there was the question of communication and of Many were the individuals in the confidence-building with the partner Secretariat putting all their strength and organizations. I found it an immensely energy to tackle this extraordinary and Five years after its creation, the Swiss Fund has distributed the exciting challenge, in cooperation with the demanding challenge, and they did so numerous actors both within and exterior conscientiously and with strong commit- entirety of its endowment – a total of 295 million Swiss francs to the Fund, to be able to endeavor slowly ment. My thanks to every one of them. but surely to construct, to form, to com- My profound gratitude goes in particular including interest – to roughly 312,000 needy Holocaust survivors plete, and now to achieve this work. to those staff members who are ready and willing to sustain the activities of the Fund worldwide. For all of those involved in this project, the work The daily work of the Secretariat was Secretariat to the very end: Carole marked by close contacts with the victims’ Baeriswyl, Helena Danis, Mikulas Danis, signified a steep upward learning curve, a large dose of public organizations. These victims’ organiza- Barbara Horber, Stéphanie Niklaus. tions facilitated the work of the Fund by relations work, and intense activity under tight deadlines. providing a wealth of important informa- The contact and the personal conversa- tion and insights. It is impossible to list by tions which I was privileged to have with name all of those persons and organiza- the survivors of this human tragedy –

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whose life stories are presented in a separate publication entitled “Stories and Faces of Victims of the Holocaust” – were for me personally an utmost enriching experience and a key source of motiv- ation. To all of them, my cordial thanks. The dignity, commitment, and courage of these Holocaust survivors have left a deep mark on me.

The activity of the Swiss Fund is coming to an end. It remains my hope, however, that the knowledge and experience gained will continue, with renewed vigor, to in- spire other humanitarian projects for the benefit of survivors of the Holocaust.

First distributions in Minsk, October 29, 1998. Meeting between the Secretary General and a beneficiary of the Fund. (Photo: Vasily Fedosenko)

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1. Editorial And last of all, as a gesture fully in keep- the Fund bodies, the legal framework, the ing with Switzerland’s humanitarian trad- methods applied in implementing its task, ition, the government (Federal Council) the division of competencies, and the In connection with the role of Switzerland during the Second World created the Swiss Fund for Needy Victims monitoring of the Fund’s work. Further of the Holocaust/Shoa back in February on, the concrete operation of the Fund is War, various processes are currently underway in order to conduct a 1997, a Fund whose endowment was outlined including the decision-making financed by contributions from the Swiss processes, treatment of the applications, probe into our past. Different investigating committees have been set economy, notably the major Swiss banks. technical difficulties encountered, and the Since then, the Fund Executive has made auditing control. Finally, a balance sheet is up, each one contributing in its own manner to this revolutionary decisions on the distribution of the 295 presented with the figures on incoming million Swiss franc endowment and ef- capital, expenditures, and residual funds. undertaking: the internationally composed Independent Commission fected extensive payments of assistance to the beneficiaries. With the capital now A second part of the Final Report which of Experts, chaired by Prof. Jean-François Bergier, has investigated exhausted, the Fund has terminated its bears the title “Stories and Faces of activities and can be dissolved. Victims of the Holocaust” contains se- the historical and legal aspects of Switzerland and the Second World lected background information intended The Swiss Federal Council’s executive to chronicle the historical context. Cold War; the Swiss Bankers Association has set up a central information ordinance on the Special Fund stipulates facts and data alone yield an imperfect that the Fund Executive is to inform the reflection of the past for they are unable to service; and in cooperation with the latter, the Volker Commission of public about the activity of the Fund. The grasp and transmit the meaning that the Fund Executive has chosen to do so by events which took place had for the indi- Eminent Persons has undertaken a series of measures to facilitate the way of a Final Report which it has divided vidual persons involved. It is for this into two parts differing according to reason that the main portion of this quest of the victims of the Holocaust and their descents for justice. content, manner of presentation, and tar- publication is dedicated to the beneficia- geted public. ries and to their stories. The symphony of facts and data accompanied by these The present first part of the Final Report personal histories facilitates a perception is dedicated to a portrayal of the Fund’s of the full picture of the events which history, together with an explanation, unfolded at the time. analysis, and assessment of its work. This portion of the publication provides information on aspects such as its justification,

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2. Background Information The Federal Council Executive Ordinance – Rolf Bloch, President of the Fund Council were appointed by the Federal envisaged that close cooperation be car- Executive Council, 9 of which upon recommenda- ried out with victims’ organizations in the – René Bacher tion of WJRO. 2.1 The Genesis of the Fund implementation of the Swiss Fund’s mis- – Edgar Bronfman sion. The contribution made by the repre- – Josef Burg On May 28, 1997, the Federal Council It was in connection with the public de- sentatives of these organizations, whether –Avraham Hirchson nominated the following members of the bate on the role of Switzerland in the within the structure of the Fund bodies or – Josi J. Meier Fund Council: Second World War that the Swiss govern- on the terrain as operational partners in – Bernard Ziegler ment (Federal Council) created the Swiss the distribution of the Fund capital, was a – Rajko Djuric Fund as a humanitarian initiative to key factor, one which was indeed decisive During its work, the composition of the –Ernst Ludwig Ehrlich provide immediate assistance to needy in making the project a success. Fund Executive changed as follows: – Ruth Grossenbacher survivors of the Holocaust. The concept – Edgar Bronfman was replaced by – Anne-Marie Holenstein regarding the form this initiative would Benjamin Meed in September 1997; – Robert Huber take was worked out in discussions with 2.2 Organs of the Fund – Josef Burg passed away in January 2000 – Francesca Pometta the donors, with representatives of Jewish and was replaced by Noah Flug in August – Christoph Stückelberger and non-Jewish Holocaust victims in The ordinance foresees the following Fund 2000. – Klaus Urner Switzerland and abroad, and with repre- bodies: – Beat Wagner sentatives of the Swiss government. According to the ordinance, the Fund – Rabbi Moshe Sherer a) the Fund Executive Executive decides on the use of means – Benjamin Meed The legal basis for the activity of the Swiss b) the Fund Council within the framework of the Fund’s pur- – Michael Schneider Fund was laid down in the February 26, c) the Fund Secretariat pose, adopts the rules of procedure and – Sidney Clearfield 1997 Executive Ordinance of the Federal d) the Fund Auditor annually presents a report to the Federal – Moshe Sanbar Council concerning the Special Fund for Council on its activity. Furthermore it – Rabbi Israel Miller Needy Victims of the Holocaust/Shoa, The Fund Executive informs the public on Fund activity. It is –Avraham Burg which took effect on March 1, 1997. interesting to note that neither the donors – Israel Singer The Fund Executive is composed of seven nor the Swiss government, which created – Charles Goodmann The financial endowment consisted of a members, consisting of four Swiss eminent the Fund, are represented in the Fund total 273 million Swiss francs donation on persons, among them the President, and bodies. During its work, the composition of the the part of the three major Swiss banks at three eminent persons recommended by Fund Council changed as follows: the time (today the Credit Suisse and the the World Jewish Restitution Organ- The Fund Council – Sam Bloch succeeded Benjamin Meed in UBS), the Swiss National Bank, and the ization (WJRO). The Federal Council January 1998; private industrial sector. This endowment, appoints the President and the members of The Fund Council is composed of 18 – In September 1998 Rabbi Chaskel O. including the interest accumulated on the the Fund Executive. members, among them representatives of Besser succeeded Rabbi Sherer, who passed capital, was destined in its entirety to the Swiss and international institutions and away in May 1998; Holocaust victims. In May and April 1997, the Federal organizations which are dedicated in spe- – Heinrich Rusterholz replaced Christoph Council appointed the following members cial ways to serving the interests of the Stückelberger in January 1998; of the Fund Executive: beneficiaries. The members of the Fund – Robert Huber resigned from the Fund

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Council in June 1999; assets in Switzerland and abroad and veri- 2.4 Internal Directives The Fund Council set down its procedural – Rajko Djuric resigned from the Fund fies the accounts. regulations at its first plenary session, held Council in April 1999 for health reasons; The Ordinance on the Fund contains stipu- with a quorum, on January 21, 1998. In – Francesca Pometta renounced to pro- lations solely of a general nature in terms of order to facilitate its assignment, the Fund long her membership after the end of the 2.3 The Legal Framework procedure and the type of assistance. Due Council decided to constitute itself into first mandate in April 2000. to the fact that the creation of the Fund was two sub-groups, the one bearing responsi- The Federal Council Executive Ordinance not preceded by any extensive consultation bility for recommendations concerning According to the Ordinance, the Fund determines the purpose of the Fund, those procedure, the various conceptual aspects applications for the benefit of Jewish Council advises the Fund Executive on entitled to benefit, the type of assistance, had to be defined and enlarged upon Holocaust survivors, the other being com- criteria and applications. the tasks of the Fund Bodies, and the during the course of the Fund’s operation. petent for those of non-Jewish victims. monitoring of its activities. The Ordinance The Fund Council was presided over by a The Fund Secretariat also contains stipulations on the Fund’s The working methods and procedural “Bureau” consisting of the chairpersons dissolution and on the use of any residual regulations for the Fund bodies were set of the two sub-groups, Anne-Marie The Fund Secretariat is responsible for the capital. down in various formal decisions made by Holenstein and Sam Bloch, along with the Fund’s day-to-day operations. It takes care these organs. At its first plenary meeting President of the Fund Executive, Rolf of the administrative tasks involved and From a legal perspective, the Swiss Fund is held on July 7, 1997, the Fund Executive Bloch. In the Fund Council too, a written prepares the business to be dealt with by based on a clause of the October 6, 1989 decided that applications could be ap- procedure was introduced and subse- the Fund Executive and the Fund Council. Federal Law on the Federal Budget proved by simple majority, and that a quently often made use of. Its work included intensive contact and (Finanzhaushaltsgesetz, FHG) making it quorum was reached if at least five mem- negotiations with victims’ organizations possible for donors to entrust financial bers of the Fund Executive were present, The Fund Executive and the Fund Council and the preparation of the decisions to be sums to the state for a specific purpose. among whom at least two were members further decided to expedite smaller appli- made in the Fund Executive and in the Whenever the appropriate federal author- proposed by the World Jewish Restitution cations for distributions of up to CHF Fund Council. These decisions were, to a ities accept such donations, a so-called Organization (WJRO) and two Swiss 20,000 by means of a rapid procedure. large extent, made by correspondence. “Special Fund” is created. This type of members. Up until the moment that the When processing applications by rapid fund is then administered outside of the present Final Report is written, the Fund procedure, the agreement of the President The Fund Secretariat took up its activities general federal budget. Such a fund does Executive met in a total of six plenary ses- and that of the Chairperson of the compe- on 1 September 1997 in its office in Bern not have a legal status of its own. The sions in which a quorum was reached. All tent Fund Council sub-group was re- under the direction of Marco Sassòli. Fund bodies, once their members have of its decisions were able to be approved quired. Furthermore, after the deadline for Barbara Ekwall-Uebelhart was appointed been named ad personam by the Federal unanimously. applications had expired in November Secretary General on 5 May 1998 follow- Council, are independent in carrying out 1999, the Fund Executive and Fund ing the resignation of Marco Sassòli. The their tasks. Nevertheless, similar to private At its first meeting, the Fund Executive Council introduced a rapid procedure for staff of the Fund Secretariat was composed foundations in Switzerland, they are sub- also made the decision that outside of the so-called “hardship cases”. The applica- of up to 11 full and part-time employees. ject to monitoring supervision by the plenary sessions, decisions could be made tions, which did not pose questions of Federal Department of Home Affairs. by using a written procedure in which principle, were submitted directly to the The Fund Auditor approval would be contingent on a unani- Fund Executive for decision after having This legal form offered the advantage of mous vote. All in all, 276 decisions on been processed in the Secretariat. The Fund Auditor Ernst & Young moni- allowing the Fund to come into being applications addressed to the Fund were tors the proper utilization of the Fund’s without delay. made in this way.

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The procedural regulations adopted per- have led to an institutional blockade. In submitted applications to the Fund and “Learning on the Job” mitted rapid and efficient decisions to be addition, it would have implied a renun- were responsible for the distribution of made on the 318 applications addressed to ciation of the expertise and the coordina- Fund monies to the individual beneficia- Finally, still another particularity was that the Fund by the various victims’ organization possibilities proffered by the repre- ries. In their capacity as partner organiza- the first applications were received and tions. sentatives of the victims’ organizations, tions, they assured the discharge of pay- processed by the Fund before the criteria and would have brought about unconceiv- ments to the individual beneficiaries. for the allocation of the Fund capital had able practical problems. been definitively determined. The regula- 2.5 Particularities of the Fund’s On the other hand, the representatives of tions and criteria were elaborated hand in Working Methods The parity in the Fund bodies proved to be these organizations were, in their capacity hand with the actual processing of appli- an opportunity. In a very short time, the as members of the Fund bodies within the cations, sometimes after the first benefi- cooperation realized between the Swiss scope of the Fund Ordinance, also respon- ciaries had already been paid. They were Parity in the Fund Bodies and international partners in the Fund sible for determining the criteria for entitle- consolidated and adapted to new findings bodies led to the successful and appro- ment to distribution and for the decisions throughout the course of the Fund’s op- One of the particular characteristics of the priate distribution of Fund assistance to on applications for the benefit of eration. In some instances, the fact that all Fund’s working methods is the parity be- approximately 312,000 needy survivors of Holocaust survivors. They fulfilled this of the criteria had not been established tween Swiss and international members in the Holocaust. The spirit, forged within role ad personam in the general interest of ahead of time led to some confusion. By the Fund bodies. Decisions can be ap- the Fund, of working together for a com- the Fund and of all Holocaust survivors. proceeding in this manner, however, it was proved only with the approval and in the mon cause, the unfailing commitment of the Fund’s desire to avoid losing precious presence of both sides. The committed all involved, the mutual understanding It was not always an easy task to keep time with lengthy preliminary studies and involvement of all participants and the attained, the confidence gained, and in these two roles separate one from the tedious tabulation of all potential appli- good relations within the Fund bodies particular the results obtained – all of other. At the early stage of the Fund’s cants with the result that a good many were indispensable prerequisites in carry- these factors contributed to the creation of activities, critics feared that the WJRO in Holocaust survivors might have passed ing out the work of the Fund. goodwill, goodwill which reached out well particularly would substitute itself for the away before the Fund had even become beyond the cooperation within the Fund. members of sub-group I of the Fund operational. This parity in the Fund bodies did not Council. The representatives of this organ- escape from being the object of certain ization, however, were conscientious in What was at stake for the Fund was to dis- criticisms in the Swiss media during the The Dual Role of the Victims’ Organizations distinguishing between their two roles so tribute the Fund’s endowment as quickly, first year of the Fund’s operation. When that their dual role did not have any efficiently, and carefully as possible to the the extensive preparations for the distribu- The victims’ organizations at times exe- adverse effect on the Fund’s carrying out needy survivors of the Holocaust. It suc- tion of Fund assistance to Jewish victims cuted two basically different functions its mission. On the contrary, it permitted ceeded in reaching this objective to an continued to require longer time than had within the Fund. the experience of the organization to be exceptional degree. initially been expected, critics speculated integrated into the Fund’s work, and the that the administration of the Fund capital On the one hand, organizations such as decisions to be pragmatic, efficient, and should have been placed solely and exclu- the WJRO, the Hilfswerk Evangelischer applicable. sively in Swiss hands. Yet such a procedure Kirchen der Schweiz (HEKS), the Inter- would not have been an option within the national Romani Union, the Radgenossen- context of the Fund Ordinance. It would schaft der Landstrasse, and the Pink Cross

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3. Context – A World First Criticism in the Air

The expectations were great when the Fund embarked upon its Between March and September 1997, the Practically without exception, both the issues concerning the role of Switzerland national and international media paid high mission. For one thing, there were the expectations of the aged during the Second World War and the tribute to the work of the Fund. Individual whereabouts of Jewish assets were in the critical remarks were heard at the time that victims of the Holocaust; for another, those of the Swiss public and spotlight of political debate in Switzerland the first distributions took place. Some of for weeks on end. Despite the seriousness the points of contention had to do with the international community, not to mention those of the of the matter, various groupings and poli- questions of procedure, the composition of tical parties down the line attempted to the Fund Executive or the Fund Council, organizations which themselves were treading out into unknown exploit the situation to their own advan- and with the size of the payments distrib- tage. In this scenario, the creation of the uted. It was further criticized that power Special Fund was an exception. Indeed, plays were being engaged in, all at the territory. The already complex undertaking was rendered all the despite all of the differences of opinion expense of the Shoa victims. It was uttered fueling the polemics, the announcement of that the various international Jewish organ- more difficult by the highly emotionally charged atmosphere the desire to endow a Special Fund for izations or their foremost representatives Holocaust Victims was applauded across were inefficient or had fallen out of favor, reigning in the public, as well as the impassioned polemics on the board. The widespread agreement was and that they were allegedly focusing not to be explained by the fact that the crea- on the welfare of those whom they were dormant assets which characterized the political scene. tion of the Fund was a gesture in keeping pretending to represent, but rather on with the spirit of Switzerland’s long- aggrandizing the image of their own organ- standing humanitarian tradition and was izations and furthering their own political to benefit needy victims. Such a humani- career objectives by putting Switzerland tarian action was also able to calm down under heavy pressure. Even the Fund’s the situation on all sides. When the four administrative expenses came under criti- government parties met at the Von- cism with certain voices saying that, even Wattenwyl talks in September 1997, though they were not being paid for from debate focused on the contribution of the the Fund’s capital endowment, they were Swiss National Bank (SNB), and the deci- out of proportion to the modest benefits sion was made to avoid any conflict on being granted. The criticism encompassed this issue. Notwithstanding the fact that it both the administration of the Fund in would have been fully possible to call for Switzerland, as well as the cost-consuming a popular vote on the question, the parties selection of the victims entitled to assis- came to the agreement that the matter of tance by the WJRO. And finally, the releasing the sum of millions as was allegation that the first payments in Riga projected, lay within the SNB’s sphere of were mounted as a media event for their competence. public relations overtones.

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When the Fund took up its task against Furthermore, the Fund bodies’ agenda Incomplete Information criteria to be applied had to be worked this emotional backdrop in 1997, it was in contained various applications for the out and modified during the course of the many respects also venturing out into un- consideration of special services and One of the special challenges that faced Fund’s operation. known territory. There existed no models materials in lieu of financial payments for the Swiss Fund was the fact that the figu- or precedents upon which it could rely. the benefit of Jewish Holocaust victims res on those who survived the Nazi geno- As mentioned above, due to humanitarian under the heading of so-called “Special cide, that is to say, those who could be considerations, the Fund decided to begin Hardship Funds”. The outcome of discus- considered as the potential beneficiaries of with its distributions of financial assis- Individual Financial Assistance sions on such points was that the Fund the Fund, were unknown. tance despite the absence of comprehensive as Humanitarian Aid capital should be allocated to the benefit statistical documentation which would of the survivors of Nazi persecution, and Added to this was the fact that the circle have enabled reliable plans to be made for One of the innovations brought into being that such assistance should take the form of beneficiaries had also not been more making the payments. The compilation of by the Swiss Fund consisted in providing of financial payments to ensure that the precisely stipulated. Article 2 of the Holocaust survivors and Nazi victims was modest financial assistance directly to the assistance arrives in the most rapid and Federal Executive Ordinance contained a pioneer task from which the organiza- beneficiaries rather than by developing efficient manner possible. the following definition of the circle of tions and their members also drew profit projects with long-term effects. Represen- beneficiaries: “The object of the Fund is above and beyond the financial assistance tatives of various relief organizations In end effect, the method of individual to support persons in need who were of the Swiss Fund. Moreover, finding and within the Fund bodies initially called into assistance grants has proved its worth. persecuted for reasons of their race, collecting documentation confirming the question the sustainability of such one- Monetary sums were able to be distrib- religion or political views or for other persecution was a major challenge for time assistance distributions. Even the fea- uted rapidly and in large quantities. They reasons, or otherwise were victims of the both the applying victims and the organ- sibility of individual financial-assistance also reached beneficiaries in far-off Holocaust/Shoa, as well as to support izations. payments was placed in doubt, particu- regions, and the flow of Fund monies from their descendants in need”. It was incum- larly with respect to the heterogeneous and Switzerland to the individual beneficiaries, bent on the Fund bodies to formulate a less organized groups of non-Jewish Ho- i.e., “from Bern to Vladivostok”, was clearer definition of the criteria for distri- Understood as a Humanitarian Act locaust survivors. For example, there arose clearly comprehensible. All of the groups buting the Fund endowment. uncertainties as to the very possibility of of victims were able to be reached by The Fund began to operate inspired by the effectuating assistance payments to mem- means of these financial distributions, It proved to be particularly difficult to idea that it was vested with a humani- bers of the Roma, Sinti, and Yenish. even minority groups and those which establish criteria concerning the extremely tarian mission. Even if the Fund as an off- were less well organized. Above all, heterogeneous groups of non-Jewish vic- shoot of debate on the role of Switzerland The question of whether it was not more however, this type of assistance possessed tims. For such groups, there existed nei- in the Second World War and particularly advisable to proffer assistance by means of a psychological dimension. It represented ther exact estimates on the number of that of dormant accounts, it was nonethe- projects rather than individual financial recognition of a personal nature, allowing potential applicants, nor a system on less conceived as a humanitarian initiative. assistance came up in a special way with each beneficiary to use the allocation as he which the Fund could rely to compile figu- This fundamental understanding of the respect to disabled persons. This group of pleased. res on all of the victims, such as with the Fund as a humanitarian initiative – and victims concerns persons who were WJRO. The history of these groups of not as compensation, atonement, or resti- exterminated during the Nazi period and victims during the Second World War had tution – was something new in relation to hence can claim neither survivors nor been subject to little research so that the payments made to Holocaust victims. descendents.

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Difficult search for documentation: Mr. Voloschtschenko was registered under a false name in Dachau. In the 90’s, in order to prove his imprisonment, he described in detail the concentration camp. SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 30

Being understood as a humanitarian pro- tage of channeling assistance to the reci- 4. The Different Phases of The third phase, known as the final ject also had repercussions on the applica- pients rapidly and without administrative the Fund’s Work control and conclusion phase, began in tion procedure. Further, it defined the role red tape. December 2000 with the last decisions on of the organizations and determined the The work of the Fund can be divided up applications. The lion’s share of the Fund’s approach taken by the Fund bodies. The During the initial phase of the Fund’s acti- into three phases which smoothly unfold- work now consisted in receiving and ana- main point was for the Fund Executive to vity, one of the most crucial challenges ed over time, each bringing with itself its lyzing the distribution reports drawn up decide autonomously on each individual was to convey the idea of the Swiss Fund own particular working conditions, chal- by the organizations, in writing up various application. There existed no legal claim as being humanitarian support. This lenges, and content. reports including the Fund’s Final Report, on receiving assistance from the Fund, and aspect came up almost every time new in formulating a recommendation on the the Fund Executive reserved itself the right relations were being forged with the In the first phase or information phase, use of the residual capital of the Fund, and to adapt the guidelines for distribution of various partner organizations. During the relations had to be established, and the in tackling the various tasks in the Fund Fund capital whenever necessary through- course of operation, the Fund was able to criteria and application procedures devel- Secretariat in relation to its dissolution. out the course of operation. consolidate its identity as a humanitarian oped and communicated to the victims’ project. organizations so that the latter might be Humanitarian projects are characterized able to submit applications for the benefit 4.1 Phase 1 – The Coordination by the fact that the financial resources are Some of the most significant differences of Holocaust victims. Even if there were and Information Phase limited and hence they must be distributed between humanitarian projects and com- gaps in the information existing on the according to established priorities. On the pensation have been summarized in the potential applicants, the Fund Executive The first phase was that of setting up, other hand, they present the huge advan- table here-below: decided on the basis of humanitarian coordinating, and informing. The differ- considerations to begin with the distribu- ent Fund bodies got down to work, The Differences between Humanitarian Aid and Compensation tions and, should the need arise, to review defining their roles and their working the criteria at a later time. The first phase methods. The Fund Executive worked out Humanitarian aid Compensation/restitution/ (e.g. Swiss Fund) atonement/reparations lasted from July 1997 through May 1998. the procedure for application and approved its first decisions on applications, 1. Basic concept Solidarity Justice In the second phase, that of application thus forming a basis on which the criteria 2. Relation between Absence of a causal relation- Causal nexus between the accuser processing, the Fund reached its “cruising could evolve and the Fund endowment be payment source ship between donor and the accused speed”. From May 1998 to December distributed further. The victims’ organiza- and beneficiary and victim 2000, the Fund Executive approved nu- tions had to be informed as to the basic 3. Criterion of need Payment exclusively to Payment to all of those entitled merous applications. Cooperation with conditions and the procedure for applica- persons in need victims’ organizations was intense, the tions, thus enabling them to put together 4. Character of the Donation Legal right objective being to resolve the multitude of their applications on behalf of Holocaust payment questions on how to organize and conduct victims and submit them to the Fund. In 5. Implementation Rapid, little red tape Onerous procedure, legal process these worldwide distributions. In this various countries throughout the world, phase, the Fund confirmed itself to be a the WJRO set up a system supported by 6. Total amount Limited, thus implying No limit imposed, must cover the available the setting of priorities damages and prejudice caused humanitarian initiative. local Jewish organizations intended to standardize processing of all Jewish 7. Individual amount Relatively small, symbolic Generally more significant, calculated applications to the Fund. as a function of the prejudice incurred

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After the difficulties in appointments to On January 20, 1998, the first plenary ses- During its first eight months of activity, the Fund as victims of political persecu- the Fund bodies had been overcome and sion of the Fund Council took place, fol- sub-group II held a total of eight meetings. tion. In its sessions and in written proce- all of the members of both the Fund lowed by a plenary session of the Fund It engaged in intense efforts to establish dure, sub-group II formulated recommen- Executive and Fund Council had been Executive on the next day. These meetings the criteria for processing applications dations on a whole series of applications nominated by late May 1997, the Fund set the course for the work of the Fund coming from the heterogeneous groups of to the benefit of Jewish and non-Jewish Executive met on July 7, 1997 for its first and for its cooperation with the Jewish non-Jewish Holocaust victims. Due to the victims. Lastly, sub-group II also sought plenary session. At this meeting, it ap- victims’ organizations. fact that Nazi systematic extermination out various approaches to solve the proved the basic principles that would was implemented on these groups of vic- problem of insufficient documentation on guide the operation of the Fund, as well as The first plenary session of the Fund tims in various ways, different guidelines certain categories of victims and to lend the manner in which the Fund Executive Council laid the foundation for its work had to be developed for treating their support to those organizations whose ad- would function. Based on experience after the two Fund Council sub-groups applications. ministrative capacities were rather limited. made in other countries, it proposed that had preliminarily settled various open 88% of the Fund endowment be allotted issues concerning criteria and procedure. Sub-group II minutely examined whether The work performed by the Fund Council to Jewish victims, and that 12% should At this meeting, the Fund Council decided or not those Yenish who were victims of paved the way for the numerous recom- be destined to non-Jewish victims. It to create a Bureau to discharge the func- the “Kinder der Landstrasse” operation mendations based upon which the Fund established the principal features of the tion of Council chairmanship comprised conducted in Switzerland between 1926 Executive could come to its decisions. decision-making process and decided to of the chairpersons of the two sub-groups, and 1973 could be taken into considera- allocate the sum of 17 million Swiss francs Anne-Marie Holenstein and Sam Bloch, tion by the Swiss Fund. It reached the The turbulent political atmosphere reign- to the benefit of the so-called “double along with the President of the Fund conclusion that this Swiss operation repre- ing on the outside presented the Fund with victims” in Eastern European countries. Executive, Rolf Bloch. sented a unique case of injustice within the a particular challenge in building up new At this time, however, there had not yet Swiss socio-historical context regarding relations of confidence within the bodies been any specific applications made. During the first phase of the Fund’s oper- minority populations, and thus had of the Fund. To a certain extent, the same ation, sub-group I met in two formal ses- nothing to do with the Holocaust. In addi- organizations and the same individuals Although the meetings of the Fund sions and conducted informal talks on the tion, sub-group II also engaged in in-depth were active both in this external environ- Executive and Fund Council held on occasion of international WJRO meetings. discussions on the possibility of providing ment and within the Fund organs. The September 15, 1997 did not reach a In November 1997, it formulated a support to projects for the benefit of dis- mutual commitment to come to the assis- quorum, important issues were able to be recommendation for the creation of a abled persons as a gesture and to honor tance of the Holocaust victims as rapidly resolved by correspondence. In this way, worldwide system for distributing Fund the memory of those who fell victim to the as possible served to cement the teamwork the Fund Executive made use of written capital to Jewish Holocaust survivors. It Nazi’s “Euthanasia Program” and thus within the Fund, rendering it all the more procedure to approve the first applications presented a proposal on the criteria to be could not be counted among the survivors resolute in face of the external adversity. which led to the distribution of the very applied in connection with distributions to of Nazi persecution. first Fund means to 80 Jewish Holocaust Jewish applicants. Furthermore, it elabor- survivors in Riga, Latvia, on November ated a regional distribution scale together Sub-group II also established its oper- 18, 1997. This was followed one month with a detailed apportionment per country ational budget for the distribution of Fund later on December 18, 1997 by the distri- for distributions to be made within the assets to the various non-Jewish groups of bution of Fund assistance to 23 persons in WJRO system and which will be commen- victims, and defined the circle of persons Tirana, Albania, who had been victims of ted upon here below. who could be taken into consideration by Nazi terror due to political reasons.

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Key of Distribution Under the heading “Other Countries”, a) WJRO System Council sub-group I set down individual On the occasion of its first meeting on country quotas which would later serve as The Jewish organizations represent a July 7, 1997, the Fund Executive laid down the basis for WJRO applications from clearly defined, homogenous group of a provisional key of distribution for the these individual countries. Holocaust survivors; they also have well- allocation of the Fund endowment be- functioning organizational structures at tween Jewish and non-Jewish applicants. Council sub-group II also determined its their disposal. For this reason, the organ- This 88:12 distribution scale corre- working budget for those applicants fall- izations represented in the Fund bodies sponded approximately to the data on the ing under its area of competence. Within proposed that national systems be set up number of systematically persecuted the group of non-Jewish applicants, on a worldwide scale for the forwarding Jewish and non-Jewish categories of vic- apportionment of Fund capital for the of applications and the distribution of tims compiled in a study prepared for the benefit of Roma, Sinti, and Yenish occu- Fund means, and to which all Jewish Fund by Professor Klaus Urner, Fund pied a priority position. The working bud- applicants in a given country could add- Council member and Professor of get was subject to modification during the ress themselves. These national systems Contemporary History at the Federal course of Fund activities. were based on local Jewish organizations Institute of Technology (ETH) in Zurich. which created special committees for this The 88:12 distribution scale was applica- purpose. The extensive information on Sub-group I of the Fund Council proposed ble to the distributions of the initial en- potential applicants provided by the local that the amount of CHF 240 million dowment capital. During the Fund’s Jewish organizations was a particularly (Swiss francs) – corresponding to 170.7 conclusion phase, namely on the occasion crucial factor as in any given country, only million USD – reserved for distributions to of the Fund Executive’s November 30, one sole application procedure was Jewish survivors be broken down accord- 1999 decision on the utilization of the conducted. The WJRO in Jerusalem initi- ing to region as follows: accrued interest on the Fund endowment, ated and coordinated this worldwide sys- the Fund deviated from the above key of tem. It submitted to the Swiss Fund all of distributions to the benefit of non-Jewish the applications on behalf of Jewish Amount Amount applicants. Holocaust survivors, and it bore the Region Percentage (million USD) (million USD) responsibility for the distributions carried Eastern Europe and the former USSR 35% 59.75 84.0 out through this system. Israel 35% 59.75 84.0 Different Application Procedures USA 19% 32.40 45.6 In January 1998, upon the recommenda- Other countries 11% 18.80 26.4 In preparing their applications to the tion of the Fund Council, the Fund Fund, the applying organizations Executive conferred its approval upon the Total for Jewish victims 100% 170.70 240.0 employed different methods according to WJRO system. This did not take place victim group and target country. without any controversies. For one thing, the creation of this worldwide system and the coordination network still to be established in many countries delayed the

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beginning of payments to smaller, already b) Procedure for Non-Jewish groups had been received, the Fund organizations under the operational direc- well-organized groups. In addition, on Applications Council decided to automatically revise tion of the Hungarian Red Cross. In several occasions, fears were uttered as to the guidelines for distribution of assis- Ukraine as well, owing to the initiative of a “monopolizing” position being held by Fund Council sub-group II examined tance to a given group of victims whenever the Ukrainian National Foundation, a the WJRO in terms of distributions to whether the WJRO model with country a certain portion of the working budged countrywide procedure was put in place to Jewish applicants. quotas could also be applied to applica- that had originally been planned for this register all Roma. These coordination tions coming from the non-Jewish organ- group of victims had been exhausted. This endeavors consolidated the victim organi- The advantage of the WJRO system was izations of victim groups which fell under type of adaptation was required in the zations and enhanced the self-esteem of to assure that the same criteria would be its competence. It came to the conclusion, summer of 1998 in connection with the their members. applied in every country and that all of the however, that such a procedure could not processing of applications for the benefit Jewish Holocaust survivors could be be put into practice in this case since the of Roma victims. included. The system was linked to a vast non-Jewish groups of victims were not Information information campaign and it allowed homogenous and did not always dispose For the Fund, this system meant that all of extremely large-scale distributions to be of the coordination structures required. In the data on the beneficiaries had to be The Federal Council’s Executive Ordi- conducted rapidly. The Fund was in regu- addition, there did not exist any statistical complete prior to the decision of the Fund nance stipulated that the Fund Executive lar contact with the WJRO, technical data on the number of survivors, data Executive if for no other reason than to should inform the public on the Fund’s points could be solved jointly, and the which would have been a precondition for guarantee that the beneficiaries received activity. Fund was continually informed regarding setting any country quotas. As concerned the Fund’s assistance solely by way of an the progress of payments in the different applications for non-Jewish victims, any organization. The applications were At the December 1997 London Gold countries. organization representing the interests of examined and processed as they were Conference, the Fund President was able – victims was empowered to submit an submitted to the Fund. The amounts per as a member of the Swiss delegation – to For the Fund, this meant that for each application to the Fund, even if it repre- person were determined on the basis of a officially inform the governments repre- instance, the Fund Executive defined the sented only a minuscule group of victims. distribution scale. They varied between sented about the initiation of the Fund’s criteria and the procedure for compiling Notwithstanding the fact that the admin- CHF 600 and CHF 2,000 as a function of activities for the first time. the needy Jewish Holocaust survivors and istrative efforts involved in treating small the purchasing power in the country then decided upon the amount to be allo- applications were at times relatively large, concerned. In view of the disparity and the In Switzerland, information work was con- cated to the country. Once the application this made it possible for minorities and degree of organization of non-Jewish ducted in connection with various press phase was over, this amount was divided poorly organized groups to be taken into groups of victims, this procedure appeared conferences on the occasion of Fund Exec- by the number of eligible applicants. The account. to be the only one possible. utive plenary sessions, in talks with repre- beneficiaries’ personal details along with sentatives of the media, in press releases, the individual amount were only known The advantage of this system was that In certain countries, well-organized na- and in interviews. It is also in recognition after the “application phase” had been payments could get underway relatively tional foundations coordinated and con- of its information mandate that the Fund concluded in the country concerned. quickly. In contrast, the disadvantage was ducted the distributions to non-Jewish vic- Executive is publishing this Final Report. that not all of the non-Jewish survivors tims throughout the country. In Hungary, could be traced at the same time. So as to the applications of Roma survivors could A major task of disseminating information avoid using up the Fund capital before the be centrally processed thanks to the joint was attributed to the victims’ organiza- last applications from less well-organized efforts of the authorities and the victim tions. They were responsible for informing

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the Holocaust survivors. The Fund worked means of disseminating information, and the following: “Applications for services Whenever complicated questions arose in close collaboration with them to coord- permitted the representatives of the Fund are to be directed to institutions and concerning the implementation of pay- inate the wording of the application forms, to explain the meaning and the task of the organizations devoted to the interests of ments, the opinion of the Fund Auditor the text in circulars sent out to potential Fund along with clearing up any possible the beneficiaries. Any institution or organ- was requested. Next, the application was applicants, and the content of public questions in direct talks with the represen- ization devoted to the purposes of the presented to the Fund Council, first to the appearances. The excellent cooperation in tatives of the country’s media. Fund in accordance with Article 2 can appropriate sub-group for its recommen- the domain of informing the beneficiaries apply to the mechanisms of the Fund.” dation, and then to the remaining mem- was an essential factor contributing to the bers of the Council for their comments. smooth running of the distribution oper- First Decisions on Applications and The Fund was not empowered to process ations. Distributions individual petitions from Holocaust survi- Finally, the application was submitted vors, but rather only the applications that together with the recommendations of the Shortly following the initiation of the During the first phase of the Fund’s opera- were submitted by victims’ organizations. Council to the Fund Executive for its deci- Fund’s operational activities, it turned out tion, the Fund Executive approved appli- These organizations verified the individual sion. During this application-processing that certain groups of victims, particularly cations to the benefit of Jewish Holocaust petitions and then submitted to the Fund phase, complementary information and the Roma, Sinti, and Yenish, were at a dis- survivors in Eastern Europe, as well as to an application on behalf of the beneficia- documentation were added whenever nec- advantage in terms of their information the benefit of Roma, Sinti, Yenish, and of ries who met the criteria the Fund had essary. In certain cases, the Fund Auditor and communication capabilities. In the homosexuals. This led to the first pay- established. They also made any decisions was also called in as consultant. first phase of its work, the Secretariat ac- ments: on eventual requests for reconsideration tively sought to locate non-Jewish victim – to 80 Jewish victims in Riga, Latvia, on on the part of victims who had initially After the approval of an application by the organizations and to inform them about November 18, 1997, followed by the not been taken into account. Along with Fund Executive, a so-called Distribution the Fund. During this phase, even mem- onset of distributions to approximately their application to the Fund, they sup- Arrangement or Declaration was drawn bers of the Fund Council and the Swiss 20,000 Jewish Holocaust survivors in plied information on their organization up, and then signed by the organization. embassies in various countries liaised as Hungary on February 12, 1998; and on the distribution methods envis- This document was the binding agreement contact points for non-Jewish applicants – to 23 persons in Tirana, Albania, who aged. Once their application had been based on which the organization was to and fulfilled a crucial function as sources had been persecuted for political reasons approved, these same organizations were proceed with the distribution of the Fund of information. Furthermore, the Fund and had been confined in various concen- responsible for notifying the applicants capital. After this agreement had been Secretariat responded to numerous en- tration camps on December 18, 1997; and for effecting the payments to the bene- signed, the Fund capital was transferred to quiries from interested circles, individual – to two homosexuals over the months of ficiaries. These victims’ organizations the organization responsible for making applicants, and media representatives on March and April, 1998; played a key role in carrying out the dis- the payments to the beneficiaries. application procedures and on the activity – and to 3 out of 44 Roma, Sinti, and tributions of the Swiss Fund. of the Fund. Yenish in Singen, Germany, on March 18, This process can be illustrated schemati- 1998. The applications made by the victims’ cally as shown on page 40. In principle, it The starting point for application proce- organizations were handed in to the was the same for applications that were dures or for payments in a given country Secretariat. The Fund Secretariat examined submitted for consideration at meetings of was often associated with press conferen- Decision-making Process the application, obtained any informa- the Fund bodies and for those decided ces. These events are individually listed in tion still lacking, performed spot checks upon by correspondence. the Fund Chronology in the Appendix. The Federal Council’s Executive Ordi- in individual cases, and appraised the They provided a unique and effective nance stipulates in Article 7, Paragraph 2 feasibility of payment arrangements.

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Application Treatment For smaller applications on behalf of less sive costs for the victims’ organizations, than twenty persons and for distributions costs which they were unable to cover not exceeding CHF 20,000, a rapid proce- within their normal budgets. In particular, Organization dure was introduced for facility sake. the problem emerged in connection with – Preparation Further to an analysis in the Secretariat, victims’ organizations whose degree of – Submission of the application such applications, which posed no princi- organization was rather poor. In addition, ple problems, were submitted for decision however, it also came up with distribu- 1 by the Fund President and the Chairperson tions in countries where special contact of the appropriate sub-group of the points had to be set up and banks had to Fund Secretariat Council. be commissioned to effect the payments to – Processing, analysis the individual beneficiaries. The issue of Still another rapid procedure was intro- the distribution costs incurred by the vic- 2 duced later on when the Fund Executive tims’ organizations was not taken into met on November 30, 2000. The last account at the time the Fund was created. Fund Council applications to the Fund, in that they In September 1997 when the Secretariat – Recommendation, comments posed no problems of principle, were became operative and was ready to accept decided upon directly by the Fund applications from the victims’ organiza- 3 Executive as “hardship cases”. tions, the number of applicants was small. The problem of financing the administra- Fund Executive tive costs appeared, in utmost urgency for – Decision Distribution Costs incurred by the the major part of the organizations in- Victims’ Organizations volved, non-Jewish and Jewish alike. 4 According to the Federal Council’s In December 1997, the three major Swiss Fund Secretariat Fund Auditor Executive Ordinance, the Fund endow- banks – today the Credit Suisse (CS) and – Informationof the decision to the organization 7 – Eventually monitoring ment was intended for distribution to the Union Bank of Switzerland (UBS) – – Proposal of a distribution arrangement – Control individual Holocaust survivors. The prin- expressed their willingness to make a sum

– Preparation of the payments 8 – Confirmation of closure ciple that this capital including the interest of up to CHF 15 million available to reim- – Transfer of the file accrued was to be earmarked for the burse the expenses incurred by the organ- – Analysis of the distribution report beneficiaries was confirmed during the izations in registering the applicants and in first session of the Fund Executive in distributing the payments. This financial 5 6 July 1997. pledge enabled the victims’ organizations to be given an amount corresponding to Organisation The registration of the individual appli- up to 5.5% of the outlay of Fund capital – Distribution to the beneficiaries cants and the distribution of payments to actually distributed to the Holocaust sur- – Making out of the distribution report the individual beneficiaries required a vivors. In the year 2000, the CS and the – Eventually return of remaining funds large amount of effort and entailed exten- UBS increased their financial commitment

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for administrative expenses by CHF 1.5 4.2 Phase 2 – The victims’ organizations went to great million, bringing it up to a total of CHF The Humanitarian Phase lengths to mobilize resources in order to 16.5 million. This made it possible to process the applications of Holocaust sur- ensure that the costs stemming from the After the criteria and the procedures had vivors and carry out the distribution of distribution of the interest which had been developed during the first phase, the payments for the applications approved. accrued on the Fund capital could also be Fund was able to reach a gratifying level Extensive payments were able to be covered. of efficiency. During this phase, numerous brought to conclusion. This phase, during applications were approved in a written which the Fund reached its “cruising The contribution which the CS and the procedure and during the meetings of the speed”, also saw the greatest volume of UBS made to covering the distribution Fund Executive. This phase lasted from work in the Fund Secretariat and the costs incurred by the victims’ organiza- May 12, 1998 up until December 14, highest number of personnel. tions facilitated the careful registration of 2000, the day on which the Fund Fund beneficiaries and the correct organi- Executive met to approve the last applica- The Fund Executive held a meeting on May zation of payments through reliable finan- tions. Throughout phase 2, the Fund con- 12, 1998 with regard to the distributions cial institutions. tinually reexamined the distribution crite- to Jewish beneficiaries in the USA. In addi- ria, especially in view of the ever-diminish- tion, it made decisions on the still out- ing Fund means. standing matters of criteria, in particular Operating Costs of the Fund Bodies those relating to applicants who had been The technical complexity of preparing persecuted for political reasons. It intro- The cost of the General Secretariat was rapid and carefully conducted distribu- duced a rapid procedure for smaller appli- assumed by the Federal Finance Adminis- tions simultaneously in more than sixty cations, and it approved – among others – tration within the framework of a global countries over the world is something an application from the WJRO for distri- budget and with actual expenditures of which is often underestimated. For one butions to Jewish Holocaust survivors in less than CHF 1 million per year. In addi- thing, large-scale distributions such as the USA. tion, the Swiss National Bank financed those connected with Jewish Holocaust the total costs of the Fund Auditor with survivors in the USA and Israel, represent- In its March 10, 1999 plenary session, the a commitment of a maximum CHF 2.5 ed a large practical challenge for the vic- Fund Executive approved applications in million. tims’ organizations in terms of coordina- the range of approximately CHF 130 mil- tion, organization, and implementation. lion. The focal point was on the numerous In other countries, and sometimes even for applications of the WJRO which included relatively small-scale distributions, it was an application amounting to USD 59.75 furthermore necessary to clarify and find million (about CHF 85 million) for over solutions to problems regarding currency 100,000 Jewish Holocaust survivors in exchange, the social security system, fiscal Israel, and an application for assistance to aspects, bank creditworthiness, and inter- “Righteous among the Nations” living in national sanctions as in the case of the Eastern Europe. This group of victims Federal Republic of Yugoslavia. refers to those Christians who “came to

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the rescue”, putting their own lives in dan- Fund Council sub-group I found it possible Criteria annihilated according to an overall plan ger in order to help the Jews. Among those to dispense with holding formal meetings conceived on a European scale: the Final applications approved with regard to non- in Switzerland by performing its duties by The Federal Council’s Executive Ordi- Solution to the Jewish problem. With over Jewish victims, there was one for six way of written procedure. It coordinated nance, as has already been mentioned six million killed, the Jews represented the handicapped persons who had been able to its recommendations through the sub- above, remains rather general when indi- largest group of victims. As concerns the escape the “Euthanasia Program”. group chairman and on the occasion of cating those potentially falling within the distribution of Fund means, all of the international meetings of WJRO organiza- scope of Swiss Fund beneficiaries. The applications made on behalf of Jewish After the expiration of the deadline for tions. Fund itself was of the view that persons victims who lived under the Nazi regime submission of applications to the Fund were victims of the Holocaust if they had or under regimes that collaborated with it, that had already been announced in In the period running from May 12, 1998 been subject to systematic persecution by were accorded a positive decision. March 1999, the Fund Executive met on to December 14, 2000, sub-group II held a the Nazis or their allies, the objective of November 30, 1999. Within the scope of total of seven meetings. In the second this persecution being to exterminate With respect to non-Jewish persons who decisions pertaining to the use of residual half of 1998, it consecrated considerable them. were persecuted as Jews by virtue of the funds, including accrued interest, it proved efforts in examining and adapting the gui- Nuremberg Laws, the same criteria to be possible for the Fund Executive to delines for the processing of applications The Executive Ordinance also contains applied as for applications on behalf of entirely lift the age limit which had had to for the benefit of Roma, Sinti, and Yenish the provision that the descendents of Jewish survivors. be introduced for former “political” once it had appeared that the capital Holocaust victims could receive support concentration camp inmates. Additionally, earmarked for this group of victims would from the Fund. However, the Fund found Roma, Sinti, and Yenish (gypsies) were also it adopted a decision of general principle to be practically 75% exhausted by mid- itself obliged to renounce granting any persecuted for reasons of race during the examine an application for the benefit of summer of 1998. This sub-group also assistance to descendents. In reality, it was Nazi era. The history of the persecution of Roma victims in Ukraine as soon as it was examined numerous other applications for soon to emerge that the number of those this group of victims has been the object submitted in complete form. And so, the non-Jewish victims of Nazi terror. directly affected by Nazi persecution was of only minor research efforts, and the applications still being expected continued very high, and that there were no means number of victims is only approximate. to be taken into consideration by the Fund In November 1999, sub-group II effectu- available for distribution to descendents. Moreover, there was also the problem of in the sense of “hardship cases”. ated modifications in its working budget insufficient documentation as, particularly so as to be able to take into account addi- Furthermore, given that this was a human- in the German-occupied areas of Eastern On the occasion of its December 14, 2000 tional age groups of former prisoners of itarian initiative, only those persons who Europe, members of this group of victims plenary session, to which the Chairpersons concentration camps. It also recommend- were in need were eligible for assistance were liquidated in countless undocument- of the Fund Council sub-groups were also ed that a rapid procedure be introduced from the Fund. A person was considered ed, or only sketchily documented, mass invited, the Fund Executive made decisions for still outstanding decisions on applica- as being needy if he or she was living on or executions by firing squad. Estimates are on the last applications. From that point tions in the sense of “hardship cases”. In below the poverty line. that the figures on Roma, Sinti, and on, the Fund no longer accepted any new March 2000, sub-group II formulated a Yenish victims lie somewhere between applications. The Fund Executive began to recommendation of principle on how the The Jewish victims were persecuted by the 250,000 and 500,000 persons killed. formulate its recommendation to the atten- residual funds should be used, and dele- Nazis for reasons of race. They suffered tion of the Swiss Federal Council on the gated the decision on this issue to the through all of the stages in the unfolding Not only the figures, but also the where- use of any possibly undistributed amounts Fund Executive. of Nazi persecution as they were systemat- abouts of survivors from this group of of Fund means and of unused reserves. ically disenfranchised, committed to ghet- victims was to a large degree an unknown. tos, transformed into slaves, and finally Notwithstanding the lack of data, the

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Fund Executive decided to begin with its the way to an extermination camp, i.e., The Federal Council’s Executive Ordi- had been persecuted for political reasons distributions for humanitarian reasons. assignation to place of residence, deporta- nance on the creation of the Swiss Fund was difficult to estimate. It proved to be When it turned out in July 1998 that the tion to Transnistria, registration and being provided that persons who had been sys- much larger than had initially been antici- working budget earmarked for this group marked as Roma. tematically persecuted because of their pated. Since the Fund means were limited, of victims had been used up, the guidelines political views could be beneficiaries of an age limit had to be introduced. In the for further payments to this group had to The disabled persons belong to the most assistance from the Swiss Fund. This early phase of the Fund’s activity, it took be reexamined. In so doing, the Fund often forgotten group of Nazi victims. The group of victims is not generally, in other into consideration concentration camp Executive came to the realization that the Nazis implemented population policy contexts, considered as Holocaust victims inmates who had been born up to 1921 persecution of Roma, Sinti, and Yenish measures based on considerations of “eth- in the strict sense since the persecution inclusive. In December 1998, this limit differed in terms of its systematic applica- nic cleanliness” and eugenics aimed at the was a result not of innate racial or eugenic was able to be extended to “up to 1925 tion from one country to another. creation of a homogenous master race. stigma, but rather of acquired, individual inclusive”. This limitation was extremely Sterilization and active death-assistance – features. In particular with respect to the problematic and its justification difficult By virtue of the guidelines adopted in that is to say, murder – were part and par- prisoners from Eastern Europe, there existed to transmit since it excluded, from the November 1998, the Fund’s assistance cel of the measures applied to handi- an additional racial element insofar as Fund distributions, persons who were im- was to be concentrated on those survivors capped and disabled persons, along with these camp inmates, labeled as “subhuman prisoned in concentration camps as child- who had been obliged to endure system- those individuals suspected of harboring a creatures” (registered as Russians, Poles, ren. This age limit was able to be comple- atic persecution in its most brutal forms. genetically transmissible illness. The Slavs), met with extermination by some of tely abolished only in November 1999 at These were the persons who had lived in “Euthanasia Program” encompassed in the most barbaric means. The information the time decisions were being made on the so-called “core countries” of Nazi 1940 the inmates of nursing homes and available to the Fund indicated that bet- how to utilize the interest which had extermination policy during the Nazi era: health care facilities throughout the Reich ween 200,000 and 400,000 political and accrued on the Fund capital. With a few Germany, Austria, the Czech Republic, and subsequently expanded to take in “asocial” preventive prisoners (“Schutz- exceptions, the members of this group of Poland, Estonia, Latvia, Lithuania, more and more new groups of “lives häftlinge”), as well as from 55,000 up to victims who were able to be taken into Belgium, the Netherlands, Luxembourg, unworthy to be lived”. The number of 415,000 non-Jewish Soviet prisoners of account by the Fund reside in Eastern Croatia, Belarus, and Ukraine. In these victims of “euthanasia” is estimated at war were systematically persecuted and Europe. countries, Roma, Sinti, and Yenish were 275,000, while that of persons who murdered during the Nazi era. destined for deportation and extermina- underwent forced sterilization comprises Not only did the Nazis deem homosexual- tion right from the cradle. between 350,000 and 400,000 victims. In May 1998, the Fund Executive came to ity to be a criminally punishable sexual the conclusion that imprisonment in a aberration, they also interpreted it as As was to emerge during the Fund’s oper- The Fund gave a positive reply to applica- concentration camp could be understood sabotage with respect to their population ation, the persecution of gypsies in other tions on behalf of those who were forcibly in the sense of systematic persecution since policy objectives. Homosexuals were sen- countries varied from one to the other. sterilized, as well as those made on behalf no prisoner could ever count on leaving tenced to punishment for personal activi- The Swiss Fund continued to take into of the few handicapped persons who had the camp alive. In this way, former ties, “re-educated”, and finally sent to consideration Roma, Sinti, and Yenish been branded as such by the Nazis, but concentration camp prisoners could as a concentration camps. The figure of those who had been persecuted in these coun- were successful in escaping from the matter of principle be considered as poten- homosexual victims murdered in concen- tries if they had either been imprisoned in “Euthanasia Program”. This group also tial beneficiaries of Fund assistance. When tration camps is estimated at 10,000. a camp, ghetto, transit camp, work camp, comprised those who were victims of the Fund began operation, the number of or prison – or had been victims of other medical experiments and medical inter- former concentration camp inmates who measures that can be interpreted as paving ventions such as the taking of blood.

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Jehovah’s Witnesses, or Biblical research- WJRO on behalf of “Righteous among the ers, refused inter alia to bear arms and to Nations”. The proposed beneficiaries were swear the oath of loyalty to Hitler. non-Jewish persons who risked their lives Therefore, they were persecuted by the to save Jews from extermination in the Nazis as being opponents of the regime. occupied regions of Eastern Europe. The Some 4,500 Biblical researchers – nearly representatives of the Jewish organiza- one out of four – met his or her death as a tions attached great importance to the result of Nazi terror. consideration by the Fund of this group of persecuted persons. WJRO applications Upon the request of Jewish organizations on behalf of this non-Jewish group of vic- and after a thorough examination, the tims were financed from that portion of Fund also approved an application from Fund capital destined for Jewish victims.

ANNOUNCEMENT

Concerns: Accommodation of Jewish refugees It is necessary to draw the attention to the following:

According to the third ordinance concerning restrictions of residence in the General Government of 15.10.1941 (VO.Bl.GG.S.595), Jews who leave their Jewish residence area without permission are subject to death penalty.

Based on the same regulation, persons who deliberately give shelter, provide food or sell foodstuff to such Jews are also subject to death penalty.

The non-Jewish population is therefore urgently warned against

1. Providing shelter to Jews, 2. Giving food to Jews, 3. Selling foodstuff to Jews.

Chenstochau, 26.9.1942 The city captain Dr. Franke

First distributions to Jewish survivors of the Holocaust in Riga, Latvia, November 18, 1997. 48 49 SCHLUSSBE_ENG_01 29.4.2002 16:09 Uhr Seite 50

Particular Challenges Confronted in mouth and not supported by material In reference to the distributions of Fund Conducting the Distributions evidence. The investigations and inquiries capital to Roma, Sinti, and Yenish, the conducted with those persons affected and application submitted by the Ukrainian The victim group of Roma, Sinti, and organizations concerned revealed that National Foundation “Mutual Under- Yenish is characterized by an important none of the various accusations in the standing and Reconciliation” merits degree of heterogeneity. More than 60 cases brought to the Fund’s attention special attention. In view of preparing an organizations cooperated in distributing could be substantiated. application to the Swiss Fund, coopera- Fund assistance to this group of victims. tion was initiated between the Foun- But there were great differences to be During a press conference held in Bern on dation, Roma organizations, the author- noted with respect to the administrative January 15, 1999, charges which an organ- ities, the archives, and the academia. capacities of these various organizations. ization domiciled in Germany had During the course of this endeavor, a The Fund was solicitous of having the brought against a person or persons un- procedure was developed for documenting different groups treated equally whatever known in connection with payments made the persecution of Roma in Ukraine and their degree of organization. In several by a Polish organization, drew particular for locating individual Roma applicants cases, custom-tailored solutions had to be attention. It was from the press documen- throughout the country. The applications found for individual organizations so that tation that the Fund finally learned the of the Ukrainian Foundation on behalf of the distribution of payments for applica- names of the persons allegedly defrauded. approximately 4,750 Ukrainian Roma led tions already approved could be carried out. The Fund Auditor had already begun to to the payment of USD 1.9 million (about look into this case intensively as soon as CHF 3 million) during the years 2000 and The vast majority of payments were the first rumors began circulating. It had 2001. The impact of this Ukrainian initia- conducted without the least problem by conducted a random monitoring on-the- tive is more closely described in Chapter 5 well-prepared and efficiently run organ- spot and was present during some of the below. izations. The payment modalities chosen payments conducted by the accused by the organizations proved to be reliable partner organization. Further to the press and rapid. The transparence existing with conference, it was also able to begin with respect to the individual applicants and a precisely targeted examination of the towards the Fund was marked by absolute individual remittance receipts. The Fund confidence, and the communications Auditor came to the conclusion that the infrastructure of the individual countries distributions to Polish Roma had been permitted contact to be made quickly conducted in a correct manner. Coope- whenever an unforeseen problem arose. ration was carried on with the Polish partner organization, but the payments In the summer of 1998, certain rumors were subsequently effectuated without reached the Fund concerning irregularities exception and exclusively by bank or post in connection with local distributions. The office. On December 17, 1999, the Fund Secretariat and the Fund Auditor jurisdictional Court Bern Mittelland III looked into these accusations even if they decided not to follow up the charges were often spread simply by word of made.

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First distributions in Kiev, Ukraine, November 24, 1998.

First distributions in Moscow, Russia, July 29, 1999.

Meeting with Roma beneficiaries in Schitomir, Ukraine, March 23, 2000.

Meeting with beneficiaries in Minsk, Belarus, October 29, 1998.

Press conference marking the beginning of the payments to “Righteous of the Nations”, New York, May 30, 2000.

First distributions to Jewish Holocaust survivors in Russia, July 29, 1999. SCHLUSSBE_ENG_01 29.4.2002 16:10 Uhr Seite 54

4.3 Phase 3 – The Fund Executive made use of written wanting administrative capacity of the vic- The Conclusion Phase procedure to carry out its work in this tims’ organization, and this was later phase. Its final plenary session is pro- complicated by the political situation After decisions were made by the Fund grammed for May 2, 2002, the occasion reigning in former Yugoslavia. The war Executive on December 14, 2000 on the on which this publication will be present- situation, the temporary collapse of postal last applications, the actual conclusion ed to the public. delivery and banking services, and the phase of the Fund got underway. international sanctions were all obstacles The Fund Council conducted the larger hindering the conduct of distributions in The tasks associated with this phase in- part of its duties by written procedure as this country. cluded following up the last distributions well. In addition, sub-group II met in approved, analyzing the control reports of November 2001 in order to discuss its In seeking out a solution to enable its the organizations, ensuring the restitution proposal for the use of the Fund’s residual assistance to reach the beneficiaries de- of undistributed Fund capital, bringing the capital. spite these difficulties, the Fund succeeded work of the Fund bodies to a close, and a short time after the political turn of the elaboration of a proposal for the events which transpired in the Federal Federal Council on the use of possible re- Complex Distributions – Republic of Yugoslavia in November sidual Fund capital. The operational acti- The Case of Yugoslavia 2000, in getting the distributions under- vities of the Fund are programmed for way thanks to the cooperation of the conclusion on July 31, 2002 along with The implementation of various distribu- Hilfswerk Evangelischer Kirchen der the dissolution of the Fund Secretariat on tions by organizations with a poor level of Schweiz (HEKS) which agreed to be that date. organizational know-how constituted a entrusted with carrying out the pending special challenge, all the more so when the payments, and the approval of the During the last phase of its operation, the distributions had to be conducted in coun- International Romani Union. On January Fund also will draw up and edit various tries with limited communication net- 4, 2001, the first payments to Roma in reports. Additionally, within scope of its works and with high political and finan- this country finally took place. In August mandate to inform the public, the Fund cial risks. 2001, distributions to Roma in Kosovo Executive undertook the publication of were also able to begin. For these pay- this Final Report in two parts. The objec- A particular case in point was that of the ments, it was the Fund Secretariat which tive is to present the work of the Fund to payments to some 1,400 Roma victims in took on the associated administrative the public at large and to assess all that the Federal Republic of Yugoslavia – pro- tasks that were otherwise performed by was learned from this unique humanitar- posed at the time as recipients of Fund the victims’ organizations. ian initiative – which was part of the dis- assistance by the International Romani cussions in Switzerland on its role in the Union – which had remained pending past – so that this might be preserved for since summer 1998. Initially, the distribu- Roma beneficiaries in Belgrade, future generations. tions could not be carried out due to the summer 2001 (Photos: Eva Födelsdi).

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Supervisory Control Even while the processing of the applica- Analysis of the The following step was for the documents tions was taking place at the Fund Organizations’ Distribution Reports pertaining to each application to be exam- The monitoring of the appropriate use of Secretariat prior to the transfer of Fund ined by the Fund Auditor who issued a Fund capital was conducted on various capital to a given organization, certain Once the distributions to the Fund benefi- formal clearance to close the file. levels throughout all of the stages of the control measures were already being ciaries had been concluded, the victim Fund’s activities. Both the victims’ organ- applied. The Secretariat verified that the organization drew up a distribution report In connection with larger distributions, izations and the Fund itself had their own organization applying did in reality exist, for the attention of the Fund. These the Fund Auditor also conducted a final, control mechanisms and worked closely that it represented the interests of reports varied from one to the other in on-spot monitoring. In late April 2002, with one another in this area. Holocaust victims, and that, in the appli- terms of content and volume of docu- based on the results of such final moni- cation submitted, the organization pro- ments submitted as a function of the given torings and on the distribution reports The Fund deployed various control posed beneficiaries who met the criteria of country, the distribution modalities, and handed in to the Fund Secretariat, the final mechanisms in order to guarantee the cor- the Fund and who had not already been the degree of complexity. This analysis figures were to be available on the pay- rect distribution of Fund assistance to the taken into account by another organiza- was conducted by the Fund Secretariat. ments distributed by the Fund as well as needy victims of the Holocaust. tion. It also examined the distribution the residual Fund capital inclusive of the modalities proposed by the organizations. The analysis of the organizations’ distri- interest accrued as per February 28, 2002. In accordance with the Executive bution reports along with the on-site Ordinance on the Fund, the Fund Auditor, Information, especially when distributions monitoring conducted by the Fund the internationally active firm Ernst & to the beneficiaries were taking place, was Auditor were calculated to guarantee: Final Results Young, monitors the appropriate use of a prime instrument of control. This refers Fund assets in Switzerland as well as to information on the criteria and on the ● firstly, that every Swiss franc that left the During its course of operation, the Swiss abroad, in addition to reviewing the sum being paid out, information which Fund-endowment bank account was re- Fund was able to take a total of some financial reports and bookkeeping. The oftentimes reached the beneficiaries subse- ceived by a Fund beneficiary mentioned 312,000 needy Holocaust survivors into Fund Auditor explains and comments on quent to distribution ceremonies in the by name, and consideration. As is illustrated in the fol- its activities in the statement appearing in different countries, by means of the media ● secondly, that the monetary flow from lowing compilation and chart, the lion’s the appendix to this Final Report. The or representatives of the partner organiza- the bank account in Bern down to the share of the Fund endowment was, as had preventive instrument referred to as tion. In addition, the recipients of Fund individual beneficiaries – in other words, been anticipated, distributed to Jewish “Pronto Monitoring” took on vital signif- assistance were notified individually by “from Bern to Vladivostok” – was docu- Holocaust survivors. As for the non- icance in the stage during which the distri- their organization, by the bank, or by the mented with proof and receipts. Jewish groups of victims, the major part of bution modalities were being prepared in Fund itself as to the impending payment. the Fund’s assistance went to former the various countries. Furthermore, the The Secretariat ensured that the name of concentration camp prisoners who had Fund Auditor checked current payments All of the monitoring and control stages every beneficiary approved by the Fund been persecuted for political reasons, as by means of “Intermediate Monitoring”. were vital to the correct distribution of the appeared in the organization’s report, and well as to Roma, Sinti, and Yenish victims. The Auditor also played a central role Fund capital. A final and concluding veri- that the correct amount had been paid during the wrap-up monitoring or so- fication was additionally undertaken in out. Undistributed Fund capital was either called “Final Monitoring” conducted connection with the analysis of the orga- earmarked for later payments by the orga- during the third and last phase of the nizations’ distribution reports as described nization or returned to the Fund once all Fund’s operation. more in detail here below. of the distributions had been terminated.

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The Fund means distributed to the following categories of victims (31.12.2001) The beneficiaries of the Fund were living the traditional countries to which the in more than 60 countries throughout the Jewish survivors of the Shoa emigrated. In Category of victim Number of beneficiaries Amount in CHF world at the time the payments took place. Switzerland, a total 81 needy survivors of 1 Jewish victims 255 078 249 193 931 The breakdown by country is illustrated in the Holocaust received assistance from the 2Political victims 41 326 25 405 860 the Appendix. The following compilation Fund. 3 Roma/Sinti/Yenish 13 763 17 024 228 on the distribution of the Fund capital in 4 Righteous of Nations 1649 3529969 the various regions of the world confirms More than half of the beneficiaries of the 5 Disabled persons, the priority that the victims’ organizations Fund are elderly people ranging from 73 persons forcibly sterilized 218 187 853 and the Fund itself accorded to needy to 83 years of age. 6 Christians persecuted as Jews 103 73 979 Holocaust survivors living in Eastern 7 Jehova’s Witnesses 69 104 012 Europe. Extensive distributions were also About half of the Fund beneficiaries are 8 Homosexuals 9 18 000 conducted in Israel and in North America, women.

Total 312 215 295 537 832 Fund means distributed in the following regions (31.12.2001)

Number of beneficiaries Amount in CHF Region Number of beneficiaries Amount in CHF

Political victims Israel 124 000 86 610 398 Political victims 8.6% 13.2% Eastern Europe and former Soviet Union 97 112 127 271 619 Jewish Roma/Sinti/Yenish 4.4% Jewish Roma/Sinti/Yenish 8% victims North America 69 593 48 444 976 victims Others victims (4-8) Others victims (4-8) 84.3% 81.7% 0.7% 1.3% Western Europe 15 896 28 252 924 Australia/New Zealand 4046 3688800 Other countries 1568 1269115

Total 312 215 295 537 832

Number of beneficiaries Amount in CHF

Australia/New Zealand Australia/New Zealand 1.3% 1.2% Western Europe Other countries 0.5% Western Europe Other countries 0.4% 5.1% 9.6% Israel 29.3% North America North America 22.3% Israel 39.7% 16.4%

Eastern Europe and former Eastern Europe and former Soviet Union 31.1% Soviet Union 43.1%

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5. Evaluation 1. The humanitarian dimension of this financial assistance was a

vital aspect for many of the beneficiaries, especially those in The modest amount that the Fund was able to provide to the Eastern Europe. Holocaust victims was intended to be a gesture of solidarity. It

turned out that it meant more than purely material support. From 2. In conferring personal recognition, the Fund contributed to

the reactions of the beneficiaries and from the declarations of the prevent that the victims fall into oblivion.

victims’ organizations and of the authorities abroad, the following 3. The Fund drew attention to the fate of minority groups and, as in conclusions could be reached: the case of Ukraine for instance, contributed to the nationwide

recognition of Roma as victims of Nazi genocide.

4. It strengthened the organizational level of the victims’ organiza-

tions and fostered cooperation among the organizations.

5. It played a pioneer role for future initiatives for the benefit of

Nazi victims.

6. It consolidated relations between Switzerland and foreign

countries.

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5.1. The Humanitarian Germany (Letter 1) Dimension “I am pleased to have received 500 USD in humanitarian aid. Sincere thanks for your assistance. It was Numerous thank-you letters were sent by a wonderful help for my family, and I thank you once the Fund beneficiaries to the organizations again.” responsible for distributing payments to 2 the individual beneficiaries, as well as directly to the Fund Secretariat in Bern. These letters also included testimony of what this assistance meant for the persons Ukraine (Letter 2) concerned. They bear witness to the fact “I thank your Fund and Mrs. Ekwall for your charit- that the Fund was understood as being a able action and the for the 400 USD assistance sent humanitarian initiative. in this connection. This sum represents more than twenty times my monthly retirement pay.” The vast majority of the beneficiaries spent the modest amounts provided by the Fund to purchase medicine, to obtain medical treatment, to buy food, and to 3 pay their heating bills. They appreciated Ukraine (Letter 3) the fact that they had not been forgotten. “A big thank you for your care and human warmth In their letters, they often described both towards those of us who are the unfortunate their experiences in the camps and the cir- orphans and suffering former inmates of concen- cumstances in which they were living tration camps. For us, the sick and the elderly, this today. For the most part, they are older money has come right from heaven as a kind of persons living alone. Their letters demon- salvation in our misery. My entire family perished in strate that an immense need for human the concentration camps; I myself was the only solidarity with the infirm and the elderly survivor.” continues to exist, above all in Eastern Europe, and that relatively modest amounts of assistance have an important impact. Ukraine (Letter 4) 4 Here a small sample from the large num- “Many thanks for your help. It was such a surprise ber of letters sent by the Fund beneficiaries for me. I received your humanitarian aid right on has been reproduced and translated: time. I was lying in the hospital and my primary concern was how I was going to pay for my treatment and the medicine. Then your help arrived and everything was fine. Now I am back home with my family who is also very grateful to you.”

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Ukraine (Letter 5) “With joy and gratitude I acknowledge your 400 USD humanitarian aid. In view of the current, extremely difficult living conditions, these dollars really and truly represent an enormous material assistance. I am happy to note that our suffering during the war has not been forgotten everywhere. Once again, my cordial thanks!”

The Czech Republic (Letter 6) 6 “With what I receive after exchanging the USD do- nated, I intend to buy myself a new suit – probably my last – and I will dedicate the rest to emergency assistance to the refugees from Kosovo. At the same time, I would like to express my appreciation and thanks to the Swiss population for carrying out this humanitarian relief operation, a population be- longing to a state that remained spared from the hell of the Second World War and its consequences.”

7 Romania (Letter 7) “This is the money necessary that I need for medicine and for the purchase of the 2 methane-gas heating units that I want to put in my small apartment in order to have hot water.”

8 Spain (Letter 8) “We would like to inform you that we have received the monetary transfer of 1,750 Swiss francs in Spanish currency. We thank you warmly since this sum is very welcome to us. We wish you a successful continuation of this kind of action and a happy new year to all those dedicated to this humanitarian mission.”

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USA (Letter 9) “Thank you so much for the Check of 502 USD from the humanitarian fund set up by the Swiss banks and corporations. This money will help me pay for the special eyeglasses I have been needing so badly. I'm very grateful that I will be able to see and read much better thanks to you.”

10 England (Letter 10) “Thank you very much for this unexpected and most welcome cheque for 95 GBP. Being disabled and housebound, I shall purchase a small, comfortable chair to make life better.”

11 USA (Letter 11) “Thank you so much from all my heart. This was a wonderful surprise, especially when you can use it.”

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5.2 Significance as a Poland (Letter 12) Personal Recognition “It is touching to see that the Board of the Swiss and a Commemoration Fund for Needy Victims of the Holocaust/Shoa is so kind and remembers about the Polish girl 13 The beneficiaries appreciate the fact that victimized in the past, who never dreamed that the they had not been forgotten. harm she suffered would ever be recalled.”

One of the beneficiaries from Poland, who had been persecuted for being a Jehovah’s Witness, begins her letter as follows: Russia (Letter 13) “How is it possible that you found me so far away and among the thousands of concentration camp prisoners? For me, your financial aid was a veritable celebration and a great joy. Thank you once again.”

Poland (Letter 14)

“I am a Nazi victim of the Second World War. I have 14 received the sum of 400 USD, i.e., its exchange value in Polish zlotys, as a beautiful gesture of solidarity on the part of the Swiss people towards these victims. I want to express to Switzerland my sincere thanks for its goodwill in this undertaking.”

Ukraine (Letter 15) “Never would I have imagined that your country 15 would be assisting me in my misfortune during my lifetime. I have already received your financial aid of 400 USD. Now I can go on living and buy bread. I am a lonely woman, have no family, and as a con- sequence of the war, live alone.”

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Estonia (Letter 16) “From the bottom of my hear, I thank you for your kind letter with the pleasant news. It was a pleasure for me to learn that good people are thinking about me and I am extremely grateful for this.”

Russia (Letter 17) “Your solicitude has deeply moved me. Help is always needed, especially by us who are old and ailing. I received your aid while I was confined to bed by sickness. Once again, sincere thanks that Switzerland has not forgotten us, and how good it is that your country remained spared from war.”

Switzerland (Letter 18) “First off, I would like to thank you from the very bottom of my heart for the 1,000 Swiss francs which represent a real fortune to me. (…) Still, I am even more thankful for that which cannot be bought: for your compassion, your solidarity (…) in a word, for your very gesture.”

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5.3 The Recollection of the Fate USA (Letter 19) of the Different Groups of “I wish to thank you for payment received from your Victims and the Recognition of Fund. This was the first time anybody has compen- 20 Minority Groups sated me, since I left Germany, so I am more than grateful for your kindness. It is most welcome in my In the formulation of its Executive old age.” Ordinance and in specifying the purpose of the Fund, the Federal Council stipulated that all categories of victims who suffered systematic persecution at the hands of the Nazi regime should be taken Bulgaria (Letter 20) into consideration. In this way, the Fund “Allow us to express our immense gratitude for your 21 also assisted smaller, rather neglected gesture of financial assistance. This is the first time groups of victims in receiving equal treat- in the world that a gesture has been made to Roma ment and sometimes even in receiving – the eternal victim – for whom the Holocaust goes first-time recognition as victims of Nazi on in another form.” persecution. This recognition found an echo in subsequent initiatives for the benefit of Nazi victims, for instance in the creation of the International Fund for Victims of Nazi Persecution in Great Britain, or in Romania (Letter 21) relation to the utilization made of the sett- “This assistance was the first that I received in my lement payment in the case of the class- life since the time I got out of the concentration action suit against the major Swiss banks. camp to this very day – from 1945 to 2001. It was an 22 important gesture for me.” Through its activities in Switzerland and abroad, the Fund was able to remind the public of the fact that the Nazi regime systematically persecuted not only the well- known, large groups of victims, but also a Belarus (letter 22) good many other groups in numerous “We are very pleased that we have not been countries for exactly the same underlying forgotten, that you have remembered us, the former reasons. victims of fascism. Medical experiments were made without consent on us – children –, and the blood of As already mentioned above, the child slaves was transferred by nazi doctors to Ukrainian Foundation “Mutual Under- wounded soldiers of Hitler.” standing and Reconciliation” broke new

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ground in setting up countrywide structu- repeatedly stressed that this so-to-speak 5.5 Pioneer Role for Future in Great Britain, and from the “Persson res to collect and to analyze applications imposed cooperation within the WJRO Initiatives for the Benefit of Fund” created by the Swedish government from Roma victims. The vast information system had fostered cohesion among the Nazi Victims to victims now living in Sweden. In campaign linked to this and the compila- Jewish groups in the country and had for- Poland, a large group of Roma Nazi vic- tion of documents on the persecution of tified the existence of the Jewish commu- Representatives of victims’ organizations tims also received an assistance payment Roma peoples during the Second World nities. In Croatia, the Jewish communities and those of the authorities abroad point- from the Foundation “Polish-German War led to an enhanced awareness of the organized a symposium on this specific ed out on several occasions that the signi- Reconciliation” after they had been taken fate of Roma and to official recognition – topic in the year 2000 with the participa- ficance of the Fund lay in the fact that it into account by the Swiss Fund. The Pink on the government level – of Roma as vic- tion of the Fund President, Rolf Bloch. was the first to provide such a kind of Cross organization reported that fol- tims of systematic Nazi persecution. Such moral and financial assistance to those lowing upon the payments made by the recognition is crucially important in terms In many countries, the organizations es- who had been persecuted by the Nazis. A Swiss Fund, donations from other sources of possible future measures for the benefit tablished contact with some Holocaust representative of the Polish Embassy in were able to be arranged for the homo- of Nazi victims. survivors for the first time. In Poland, Bern declared in December 2001: “The sexual beneficiaries of the Fund. while preparing their application to the Swiss Fund was the ball that got discus- The Fund’s activities led to the first-time Fund, the Jewish organizations located a sions rolling in other countries.” In recent years, national foundations in recognition of numerous Holocaust survi- total of 1,800 Holocaust survivors instead Eastern Europe that cooperated with the vors even with respect to the largest group of the approximately 1,200 they had At various discussions held in 1998, repre- Swiss Fund have launched their own of victims, i.e., the Jewish victims, in that it expected. In France too, representatives of sentatives of Jewish organizations pointed humanitarian departments in order to targeted a wide circle of beneficiaries, thus the organizations announced that in col- out, with acknowledgement, that the conduct projects and relief services for the reaching persons who received recognition lecting the individual applications, nume- constructive, confidence-inspiring, and benefit of Holocaust victims. as Holocaust victims for the very first time. rous Jewish Holocaust survivors were goal-oriented cooperation within the Fund registered for the first time. This also had a positive effect on talks in other The knowledge and the experience ac- holds true for Switzerland where more areas, particularly in connection with the quired were able to be applied directly and 5.4 Consolidation of the Holocaust survivors were located than bank settlement. in an effective manner to other initiatives Victims’ Organizations had been known to the organizations in the area of humanitarian assistance to beforehand. As already indicated, the Fund played a Nazi victims. Representatives of the Fund In connection with the distributions of pioneer role in the recognition of minority enjoyed a particularly keen exchange of Fund assistance, the WJRO created a Furthermore, the victims’ organizations – groups of victims, a recognition that had experiences with the International worldwide system to register Jewish be they Jewish or non-Jewish – carried out repercussions in other contexts as well. Organization for Migration in Geneva Holocaust victims. In every country, com- work and put structures in place which can which is responsible for the distribution of mittees were set up with representatives of be used immediately for other initiatives To some extent, other initiatives built financial resources from the bank settle- the various victims’ organizations. These for Holocaust survivors. For instance, themselves up directly on the base pro- ment to certain non-Jewish victims, as committees were responsible for process- they brought their databases and other vided by the work already accomplished well as for payments from the German ing the individual applications from the documentation up to date, and gained with applications made to the Swiss Fund. Forced-Laborer’s Fund to non-Jewish vic- country in question, and for conducting valuable experience in banking procedures For example, based on the applications tims. the payments to the beneficiaries. During and postal services, not to mention in the made to the Swiss Fund, distributions the discussions which Fund representati- operational implementation of humanita- were initiated from the International ves held in Eastern Europe, the fact was rian projects. Fund for Victims of the Nazi Persecution

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5.6 Consolidation of Relations between Switzerland and Foreign Countries

The humanitarian assistance to Holocaust Dear Mr. President victims and the close cooperation with victims’ organizations abroad created a I would like to thank you very much for the humani- goodwill which is to the overall benefit of tarian aid which has been granted from the Swiss Switzerland. The distribution of Fund Fund for Needy Victims of the Holocaust/Shoa to all means contributed to the consolidation of living victims of the Holocaust in Poland and as well relations most particularly with Eastern for the unusually successful, productive and Europe and with the countries of the congenial co-operation with the Foundation former Soviet Union. “Polish-German Reconciliation”.

The Polish government attached consid- I am full of gratitude and respect to your engage- erable significance to the work of the ment in favor of elderly and needy persons – Polish Fund. On November 22, 2000, the Polish citizens who have been victims of persecution and Ambassador to Bern, His Excellency violence by the Third Reich during World War II. Marek Jedrys, organized a reception in honor of the Fund to which, among other I want to thank you again for your great commitment personalities, representatives of Swiss in the establishment of the Swiss Fund for Needy political circles and the administration, Victims of the Holocaust/Shoa, for your assistance the Fund endowment donors, and mem- during the distribution of the help to the victims of bers of the Fund bodies were invited. the Holocaust and of the concentration camps in Excerpts of the address of Ambassador Poland and, finally, I would like to thank you for Marek Jedrys are to be found in the developing such good relations between our attachment. In his November 29, 2000 nations. letter, which is reproduced below, the Polish head of government at the time, His I wish you a good health, success in your pro- Excellency Jerzy Buzek, expressed his fessional life, happiness and welfare. gratitude for the humanitarian assistance and the excellent cooperation, both of which contributed to fostering good relations between Switzerland and Poland.

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6. Closing Word Chronology November 18, 1997: First payments of Fund means to 80 Jewish beneficiaries in The activities of the Swiss Fund, which are coming to an end this year, have March 1, 1997: The Ordinance of the Swiss Riga, Latvia, in presence of Fund demonstrated that humanitarian projects for the benefit of Holocaust survivors are Federal Council of 26.2.1997 concerning President Rolf Bloch and the Secretary possible, necessary, and sustainable. the Special Fund for Needy Victims of the General Marco Sassòli. Holocaust/Shoa enters into force. ● It is possible, with minor administrative expenses, to provide humanitarian assistance December 18, 1997: First payments to 23 to the survivors of Nazi terror in an effective manner. July 7, 1997: First meeting of the Fund non-Jewish survivors of the Nazi terror, Executive. First allocation of CHF 17 who were persecuted for political rea- ● The need for solidarity is real and it is pressing. Those individuals still alive are already million for immediate distributions in sons, in Tirana, Albania. well advanced in age and, particularly in Eastern Europe, are living in most difficult Eastern Europe. Decision on rules of pro- financial and social conditions. They are forced to rely on solidarity so as to satisfy their cedure. December 23, 1997: Pledge from the three basic needs, primarily as regards health care. major Swiss banks for the reimbursement of the administration costs incurred by ● The sustainability of such initiatives is, furthermore, beyond question since they are to the organizations. be understood as an integral part of activities in the domain of human rights, tolerance- building, and conflict-prevention. The victims of the greatest human tragedy of the last January 20, 1998: First plenary meeting of century should be spared from need and misery in their twilight years. And the human the Fund Council in Zurich. race owes it to them to shoulder this responsibility. Such humanitarian operations also accomplish a task of memory which is an effective contribution to preventing that such January 21, 1998: Plenary meeting of the human tragedies ever be repeated. Fund Executive in Zurich. Approval of applications in favor of Roma, Sinti and The responsibility incumbent upon each and every one of us as part of the human family September 1, 1997: Start of the work of Yenish and of homosexual victims. still remains to be fully accomplished. the Fund Secretariat. Approval of the system of WJRO for the processing of applications from Jewish September 15, 1997: Meetings of the Fund survivors. Executive and the Fund Council, which however do not have the quorum for decisions. Nomination of the Fund Auditor.

November 10, 1997: Approval of the application from WJRO for support to needy survivors of the Holocaust in Eastern Europe. First transfer of CHF 15 million to Jerusalem.

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February 12, 1998: Beginning of the pay- tions for this category of victim which November 24, 1998: Start of the distribu- Program”. In the presence of Ruth ments to approx. 20,000 Jewish survivors have not yet been decided upon remain tions in the Ukraine to former prisoners Grossenbacher, Chairperson of Insieme, of the Holocaust in Hungary in the pre- open. of Nazi concentration camps, who were and Barbara Ekwall. sence of Rolf Bloch. persecuted for political reasons. August 1998: Start of the distributions of March 18, 1998: First payments of the the “Zentralrat der Deutschen Sinti und December 11, 1998: Decisions on the humanitarian support from the Swiss Roma” to Roma and Sinti in Germany. revised guidelines for applications in Fund to Roma, Sinti and Yenish in favor of Rom, Sinti and Yenish and on Singen, Germany, in the presence of Rolf Summer 1998: Rumors about alleged mis- extended eligibility criteria for former Bloch and Marco Sassòli. use of Fund means by organizations of concentration camp inmates persecuted Roma, Sinti and Yenish. Conclusions of for political reasons. the monitoring by the Fund Auditor: the support of the Fund was paid out cor- December 18, 1998: Start of the distribu- rectly. tions to Jewish survivors in the Ukraine April 13, 1999: Announcement of the dis- in presence of Rolf Bloch and Barbara tributions to Jewish survivors in Sydney, August 17, 1998: Announcement of the Ekwall. Australia, in presence of Rolf Bloch. distribution program for needy Jewish survivors of the Holocaust in the USA. January 15, 1999: Press conference and April 14, 1999: Distribution ceremony in Presence of Rolf Bloch at the press penal charge by Roma National Congress Prag marking the beginning of the distri- May 5, 1998: Nomination of Barbara conference in New York. in Bern. Investigations by the Fund butions to survivors of concentration Ekwall-Uebelhart as Secretary General of Auditor at the accused organization show camps persecuted for political reasons. In the Swiss Fund. October 29, 1998: First payments in that the payments have been carried out presence of Barbara Ekwall and Ruth Belarus to Jewish victims of the correctly. Grossenbacher. May 12, 1998: Plenary meeting of the Fund Holocaust and to former prisoners of Executive in Zurich. Approval of the Nazi concentration camps, who were March 10, 1999: Plenary meeting of the April 30, 1999 : Resignation of Rajko applications of WJRO for distributions of persecuted for political reasons. Fund Executive in Zurich. Approval of Djuric from the Fund Council and as a total of CHF 45 million (USD 32 Participation of Rolf Bloch and Barbara different, in part very large applications. President of the International Romani million) in the USA, and of CHF 15 Ekwall. CHF 216 million or over 80% of the Union for health reasons. million (USD 10 million) in Eastern initial Fund means of CHF 273 million Europe. Decision on the eligibility criteria are allocated. June 9, 1999: Resignation of Robert for victims persecuted for political rea- Huber, President of the “Radgenossen- sons. April 12, 1999: First payments in Opava, schaft der Landstrasse” from the Fund Czech Republic, to six disabled persons Council. June 1998: Review of the guidelines for who have survived the Nazi “Euthanasia applications in favor of Roma, Sinti and Yenish. Until the decision of the Fund Executive on these guidelines, all applica-

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July 28 and 29, 1999: Start of the payments mer prisoners of concentration camps per- May 8, 2000: Press conference in Bern. The November 22, 2000: The Ambassador of to 890 former prisoners of concentration secuted for political reasons is lifted. representative of the Foundation “Polish- Poland Marek Jedrys organizes a celebra- camps persecuted for political reasons, Decision on the consideration of Roma German Reconciliation” signs a Distri- tion in Bern in honor of the Swiss Fund. and to a total of 1,745 Jewish survivors Nazi victims in the Ukraine. The Fund bution Arrangement in favor of 15,000 of the Holocaust in Russia, in presence of means are fully allocated. beneficiaries, who were imprisoned in December 14, 2000: Plenary meeting of the Barbara Ekwall. concentration camps for political reasons. Fund Executive. Approval of the last December 2, 1999: Distribution ceremony applications and discussion concerning in Moscow, Russia, on the occasion of May 30, 2000: First payments to the the recommendation to the Federal payments to persons persecuted for politi- “Righteous of the Nations”. Presence of Council for the utilization of the residual cal reasons, in presence of Barbara Ambassador Jacques Reverdin, Elan means. Ekwall. Steinberg, Director of the Jewish World Congress, and Barbara Ekwall at the January 4, 2001: Start of the distributions December 17, 1999: Decision of the jurisdic- press conference in New York. to approx. 1,400 Roma beneficiaries in tional Court Bern Mittelland III not to fol- Yugoslavia. low up on the charges made by the Natio- September 22, 1999: Participation of Rolf nal Roma Congress on January 15, 1999. August 30, 2001: Distribution of Fund Bloch at a seminar organized by the means to Roma beneficiaries in Kosovo. Jewish communities in Croatia on the March 2, 2000: Meeting of sub-group II These last payments, approved in sum- impact of the Swiss Fund distributions. of the Fund Council. End of the work of mer 1998, had remained undistributed the Fund Council with respect to recom- because of the war situation and the tem- October 1, 1999: Expiration of the deadline mendations on applications of victims’ porary collapse of postal delivery and for the submission of applications to the organizations. banking services in the region. Swiss Fund. Further applications can still be considered as justified “hardship March 9, 2000: Meeting with media repre- August 18, 2000: Start of the distribution January 24, 2002: Press meeting in Geneva cases” until the Fund means are fully sentatives in Warsaw, Poland, during a of the Fund support to a total of 3,966 organized by the Geneva Press Club. The exhausted. business trip of Barbara Ekwall. Roma survivors in the Ukraine in pres- President of the Fund Rolf Bloch and the ence of Rolf Bloch and Barbara Ekwall. Secretary General Barbara Ekwall present November 5, 1999: First payments in April 2000: Start of the payments to the work of the Fund. Germany to 25 persons, victims of forced approx. 124,000 Jewish survivors of the August 25, 2000: Appointment of Noah sterilization. Holocaust in Israel. This was the most Flug as a new member of the Fund May 2, 2002: Planned final meeting of the important country distribution program Executive, succeeding Josef Burg, who Fund Executive. Publication of the Final November 1999: Start of the payments in of Fund means. passed away. Report of the Swiss Fund. Poland to a total of 8,600 former prisoners of concentration camps persecuted April 19, 2000: Prolongation of the man- November 5-8, 2000: Visit of a delegation July 31, 2002: Planned end of the work of for political reasons. date of the members of the Fund of the Fund Secretariat and of HEKS to the Fund and dissolution. Executive and the Fund Council until dis- Belgrade in order to solve different ques- November 30, 1999: Meeting of the Fund solution of the Fund. tions related to the distributions to Roma Executive in Zurich. The age limit for for- beneficiaries in Yugoslavia.

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Overview on Finances and Payments 1. Finances Amounts in CHF * (per December 31, 2001) Overview on financial means in Switzerland

Income Expenditure Balance

Status: Donations 273140315 Amounts paid 292366971 5591808

Interests and donations 1997-2001 24818464 ● The Fund has already decided on the allocation of about CHF 295 million. The whole initial Fund means of a total of CHF 273 million and almost all of the interests on the Total at disposal 297958779 account in Switzerland of about CHF 25 million are attributed. 2. Approved and transferred ● Of the CHF 295 million that have already been allocated by the Fund Executive, over CHF 292 million were transferred to partner organizations to arrange the payments to Number Transmitted Paid the beneficiaries. An additional CHF 3 million of accrued interests on accounts abroad Beneficiaries of beneficiaries to organization to beneficiaries were made available for distributions. Jewish victims Eastern Europe 44196 86201423 84657844 Jewish victims Israel Approx. 124000 86610398 84821133 Jewish victims Western Europe 11818 19990432 16937139 ● CHF 285 million of the transferred CHF 292 million are already paid to the Jewish victims USA 62369 44712235 44556280 beneficiaries. Jewish victims Australia/New Zealand 4039 3682249 3578809 Jewish victims Canada 7091 3613315 3613315 Jewish victims South America 1081 862822 860751 ● Needy Jewish survivors in Eastern Europe received about CHF 85 million, in the USA Jewish victims South Africa 133 118220 106395 CHF 45 million and in Israel CHF 85 million. Jewish victims Africa 351 286073 820 Righteous of Nations 1649 3475872 2935553 Roma, Sinti, Yenish people 13763 17024228 16992104 ● About CHF 46 million were paid to non-Jewish persons. Political victims 41326 25405860 25323268 Homosexuals 9 18000 18000 Jehova’s Witnesses 69 104012 104000 ● The Federal Council will decide on the utilization of the residual means. Christians persecuted as Jews 103 73979 73979 Disabled persons, persons forcibly sterilized 218 187853 181434

Total Approx. 312215 292366971 284760824*

* Differences result, because not all the distribution reports from the organizations have been received by the Swiss Fund. Undistributed means are returned to the Fund.

Approved, paid from interests on accounts abroad:

Category of victim Approved Remarks

Jewish victims Eastern Europe 3077900 See above Jewish victims Austria 38864 See above Righteous of Nations 54097 See above * This overview contains some numbers that are rounded up. The differences on the change are only taken in consideration for closed applications. Total 3170861

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Number of beneficiaries per region and category of victim (per 31.12.2001)

Homosexuals Homosexuals Jehova’s Jehova’s Roma Witnesses Righteous Roma Witnesses Righteous Jewish Sinti Political Disabled of Jewish Sinti Political Disabled of Region victims Yenish victims persons/others Nations Total Region victims Yenish victims persons/others Nations Total Eastern Europe North America Albania 3 144 15 162 USA 62369 8 41 27 62445 Armenia 4 4 Canada 7091 1 53 3 7148 Bosnia 265 95 1 361 Intermediate total 69460 9 94 0 30 69593 Bulgaria 1186 90 1276 Estonia 1 204 205 Israel 124000 0 0 0 0 124000 Georgia 12 12 Yugoslavia 830 1314 2 25 2171 Latin America Kazakhstan 31 13 44 Argentina 532 532 Kirgistan 9 9 Bolivia 58 58 Croatia 959 90 12 1061 Brazil 181 1 182 Latvia 88 169 9 266 Chile 44 44 Lithuania 196 3 76 275 Ecuador 2 2 Macedonia 1 1 Colombia 56 56 Moldova 516 26 3 545 Mexico 97 97 Poland 1825 1795 23889 57 944 28510 Paraguay 1 1 Romania 5853 210 2 7 6072 Peru 31 31 Russia 2519 4188 14 6721 Uruguay 24 24 Slovakia 1496 53 37 13 25 1624 Venezuela 55 55 Slovenia 1 1 Intermediate total 1081 0 0 0 1 1082 Tadschikistan 1 1 Czech Republic 2494 221 2180 7 5 4907 Australia/ Turkmenistan 2 2 New Zealand 4039 0 6 0 1 4046 Ukraine 5343 4754 8032 86 319 18534 Hungary 19859 299 70 20228 India 0 0 0 2 0 2 Uzbekistan 17 9 26 Belarus 716 702 2413 186 77 4094 Africa Intermediate total 44196 9795 41167 352 1602 97112 South Africa 133 133 Tunisia 350 350 Europe Algeria 1 1 Denmark 214 2 1 217 Intermediate total 484 0 0 0 0 484 Germany 1328 3506 19 35 2 4890 Belgium 1083 1 2 1086 Total 255078 13763 41326 399 1649 312215 Finland 2 2 France 5500 117 1 5 5623 Greece 337 3 340 United Kingdom 998 5 1 1 1005 Italia 740 741 Luxemburg 27 1 27 Holland 661 105 766 Norway 28 1 29 Austria 406 87 5 498 Sweden 407 128 1 1 537 Switzerland 74 4 1 2 81 Spain 15 1 38 54 Intermediate total 11818 3959 59 45 15 15896

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Excerpts of the Address of the Ladies and Gentlemen, I know that this Ambassador of the Republic of Poland, financial assistance on the part of the Swiss Marek Jedrys, given on Fund was perceived by the needy victims in November 22, 2000 my country as a genuine gesture of solidarity from Switzerland. The reactions – It is true that there are still many old, help- including letters sent to the foundation less men and women living in Poland, which distributed the money from the whose lives would or could have been Swiss Fund in Poland – bear witness to this completely different had they not been in an eloquent manner. affected by the tragedy of the Second World War and not been afflicted by the The work of the Swiss Fund for Needy fate of the Holocaust. Victims of the Holocaust/Shoa, which is slowly coming to a conclusion, compels Because of the very fact that they have me to express my gratitude to all of those been so utterly devastated by the fate they thanks to whom the Swiss Fund came to endured during the Second World War, be and was able to carry out its noble they also belong at present to those in mission. Poland who are unable – within the given setting of the new conditions My thanks go out to the Federal Council. – when radical economic transformation My thanks go out to the donors: processes are unfolding in Poland, and to the Swiss National Bank, to the other – when Poland is in the midst of building banks, the insurance companies, and to a market economy – to seize the opportu- the Swiss economy. nities that this fundamental transformation provides. I should also like to express my profound gratitude to the Swiss Fund, to all of the Thanks to the Swiss Fund, some of these members of the Fund Executive and the people have received support. It is my Fund Council, and above all to the Fund conviction that the significance of this President, Rolf Bloch and the Fund’s spontaneous financial assistance by far Secretary General, Barbara Ekwall. Their surpasses the material aspect, for indeed toil, personal commitment, and untiring you have helped these persons strengthen efforts in carrying out the distribution of their faith in human solidarity and in the Fund endowment as rapidly as possi- human readiness to lend a helping hand. ble and, at the same time, correctly and in accordance with the criteria established, deserve our greatest respect.

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Executive Ordinance Concerning the Special Fund for Needy Victims of the Holocaust/Shoa Art. 6 The Fund Secretariat The Swiss Federal Council, in agreement with the donors and the World Jewish Restitution Organization The Fund Secretariat carries out the administrative work and prepares the business of the Fund Executive and (WJRO) [1] in special association with the State of Israel as umbrella organization to represent the Jewish the Fund Council. People in matters of restitution, and in accordance with organizations of non-Jewish victims and beneficiaries, based on Article 12, Paragraph 2, of the Federal Law of October 6, 1989 on the Federal Budget (FHG), dec- Art. 7 Services rees: 1 The Fund provides one-time or repeated financial services to persons who need help or support in special ways. Art. 1 Fund for Needy Victims of the Holocaust/Shoa 2 Applications for services are to be directed to institutions and organizations devoted to the interests of the A Special Fund according to Article 12 of the Budget Law exists under the name “Fund for Needy Victims of beneficiaries. Any organization devoted to the purposes of the Fund in accordance with Art. 2 can apply to the the Holocaust/Shoa” (hereafter: Fund). mechanisms of the Fund.

Art. 2 Purpose Art. 8 Auditor The object of the Fund is to support persons in need who were persecuted for reasons of their race, religion or 1 The Auditor monitors appropriate use of Fund assets in Switzerland as well as abroad and reviews financial political views or for other reasons, or otherwise were victims of the Holocaust/Shoa, as well as to support their reports. descendants in need. 2 A private auditing firm, independent of the administration and active internationally, will carry out the auditing duties. Art. 3 Organs of the Fund 3 It submits an annual report to the Federal Council. It will be made available to the Members of the Fund The administrative organs of the Fund are: Executive and the Fund Council. a. the Fund Executive; b. the Fund Council; c. the Fund Secretariat; d. the Fund Auditor. Art. 9 Monitoring Supervision Art. 4 The Fund Executive (composition and tasks) 1 The Federal Council exercises oversight over the Fund. 1 The Fund Executive is composed of seven members, consisting of four Swiss eminent persons, among them 2 The Federal Council can inspect the Fund’s activities at any time. the President, and three eminent persons recommended by the WJRO [2]. 2 The Federal Council appoints the President and the members of the Fund Executive. The term of office is Art. 10 Dissolving the Fund three years; reelection is possible. The Federal Council can, after consultation with the Fund Executive and the Fund Council, transfer the resi- 3 The Fund Executive due of the Fund to a permanent institution having the same or a similar purpose, as soon as such an institution a. decides on recommendations of the Fund Council on the use of means within the framework of the Fund’s has been established. purpose; b. adopts the rules of procedure and the required regulations to the extent that such regulation is needed to supplement and implement; c. designates the auditor; d. presents regular reports to the Federal Art. 11 Effective Date Council on its activity; e. informs the public on Fund activity. This ordinance takes effect on March 1, 1997.

Art. 5 The Fund Council (composition and tasks) 1 The Fund Council is composed of 18 members, among them representatives of domestic and foreign institu- Footnotes tions and organizations which are dedicated in special ways to serving the interests of the beneficiaries. [1] In alliance with its nine member organizations: World Jewish Congress; Agudath Israel World Organization; American 2 The Federal Council appoints the members of the Fund Council, nine of which are recommended by the Gathering / Federation of Jewish Holocaust Survivors; American Jewish Joint Distribution Committee; Bnai Brith International; Center of Organizations of Holocaust Survivors in Israel; Conference of Jewish Material Claims Against Germany; Jewish WJRO. The Fund Council constitutes itself. The term of office is three years; reelection is possible. Agency for Israel; World Zionist Organization.

3 The Fund Council shall advise the Fund Executive on criteria and applications. [2] One from outside Israel, one from Israel and one representing survivor organizations.

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Edited by: Swiss Fund for Needy Victims of the Holocaust/Shoa CH-3003 Berne Phone: +41 (0)31 323 22 95 Fax: +41 (0)31 323 23 00

Text: Barbara Ekwall, Swiss Fund for Needy Victims of the Holocaust/Shoa, Berne Consulting, Artwork and Realization: Burson-Marsteller, Berne Editorial office: text control ag, Zurich English translation: Gary Fliszar, Fribourg Lithos: Denz Lith-Art AG, Berne Printing: Stämpfli AG, Berne Distribution: SFBL, Distribution of Publications, CH-3003 Berne, N° 601.036.eng www.bbl.admin.ch/bundespublikationen

Printed in Switzerland, 2002