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Download Article (PDF) Südosteuropa 59 (2011), H . 1, S . 2-24 NEžA KOGOVŠEK ŠALAMON Nation-State Homogenization and the Battle for Legal Status: The Erased Residents of Slovenia Abstract. In a measure that later became known as the erasure (izbris), more than 25,000 people were deleted from Slovenia’s registry of permanent residents . These erased people (izbrisani) were natives of other Yugoslav republics who had been permanent residents of Slovenia before independence, but who did not acquire Slovenian citizenship afterwards . The erasure had serious consequences for those affected by it, and it is considered one of the gravest human rights violations to have occurred in Slovenia since 1991 . The Constitutional Court of Slovenia found that the state administration had conducted the erasure without any legal basis . In fact, the vagueness of the so-called Aliens Act caused the court to deem this act unconstitutional . The legislature’s subsequent failure to act on this 2003 decision was condemned in 2010 by the European Court of Human Rights, which ruled in favour of the izbrisani in the case “Kurić and others vs . Slovenia” . Neža Kogovšek Šalamon is a human rights lawyer . She works at the Peace nstitute,I Ljubljana, as a researcher and project director, and she is also a PhD candidate at the Faculty of Law at Ljubljana . Introduction In the former socialist Yugoslavia, internal migration from one republic to another occurred frequently as a consequence of the individual republics’ un- equal levels of economic development . Such migration was, in fact, encouraged because it supposedly created strong personal ties between Yugoslav citizens across the country . Of all the Yugoslav republics, Slovenia had the strongest economy . Accordingly, it attracted many immigrants from other parts of Yu- goslavia . Eventually, some 200,000 people from other Yugoslav republics pos- sessed a registered permanent residence in the Socialist Republic of Slovenia 1. 1 Jelka Zorn, Vpisani kot delavci, izbrisani kot neslovenci: Pogled izbrisanih na obdobje tranzicije, in: Neža Kogovšek / Brankica Petković (eds .), Brazgotine izbrisa . Prispevek h kritičnemu razumevanju izbrisa iz registra stalnega prebivalstva Republike Slovenije . Ljubljana 2010, 19-46, 25; and Borut Mekina, A Monument to the Erased, in: Jelka Zorn / Uršula Lipovec The Erased Residents of Slovenia 3 Following the dissolution of Yugoslavia in 1991, about 29,000 of these immi- grants did not acquire citizenship in the newly established Republic of Slovenia . Instead, they maintained their officially registered permanent resident status or left the new country voluntarily, de-registering their residences when they left . Contrary to these people’s expectations that their legal status, especially their right to reside in Slovenia, would not change, Slovenian state authorities terminated the registrations of some 25,671 people on 26 February 1992 .2 Those affected were not informed that they no longer possessed the right to reside in Slovenia,3 which meant of course that as of that date, they became undocu- mented migrants in a country where they had previously resided legally . The measure became widely known as the erasure .4 This article presents the background of this measure, explains some of the reasons why the Slovene authorities adopted it, and describes the consequences experienced by the erased people in light of the European Convention of Human Rights . The Convention refers, among other things,to the right to protection from expulsion, to the right to respect for one’s private and family life and to the right to an effective remedy for any violations of these rights . Recent developments include new legislation to the benefit of the erased, and the European Court of Human Rights’ judgement in their favour in July 2010,5 which has shed new light onto the issue . Considering the number of individuals affected by it and the consequences that they have suffered, theerasure is possibly the largest mass Čebron (eds .), Once Upon an Erasure . From Citizens to Illegal Residents in the Republic of Slovenia . Ljubljana 2007 (Časopis za kritiko znanosti, 228), 44-51, 50 . 2 This statistical information was provided by the Slovenian Ministry of the Interior on 24 January 2009 . Statistics are available at <http://www .mnz .gov .si/fileadmin/mnz .gov .si/ pageuploads/SOJ/izbrisani/Kdo_so_izbrisani .doc> . All internet sources were last accessed on 6 March 2011 . 3 The Constitutional Court of Slovenia has determined that the measure was carried out secretly, cf . Decision of the Constitutional Court No . U-I-284/94 of 4 February 1999, avail- able at <http://odlocitve .us-rs .si/usrs/us-odl .nsf/o/7DCB9FD53D87F68CC125717200280E32>; and No . U-I-246/02 of 3 April 2003, available at <http://odlocitve .us-rs .si/usrs/us-odl .nsf/o/ B9DD3A68DBF1FC03C12571720028> . See also Matevž Krivic, Post Scriptum, in: Jasminka Dedić / Vlasta Jalušić / Jelka Zorn, The Erased: Organized Innocence and the Politics of Exclu- sion . Ljubljana 2003, 157-164 . Cf . Jelka Zorn, The Politics of Exclusion During the Formation of the Slovenian State, in: ibid ., 93-152, 95 . The internal instructions of the Ministry of Interior that ordered the erasure were publicized only in 2002, when the state authorities were forced to do so due to public pressure applied by the erased . 4 The affected persons‘ data did not entirely disappear from the registry . Even today, any erased person can obtain a letter of confirmation that he or she had their residence registered in Slovenia for a certain period of time . The data is therefore still available, but the individu- als’ legal status is no longer valid . The termerased was coined by clerks at the administrative units where affected persons attempted to gain information about their legal status . 5 European Court of Human Rights, Judgment, Case of Kurić and Others vs . Slovenia, Ap- plication No . 26828/06, Strasbourg, 13 July 2010, vailablea at <http://www .unhcr .org/refworld/ pdfid/4c3f01312 .pdf> . As of June 2011 the judgment was not yet final . 4 Neža Kogovšek Šalamon human rights violation in the Republic of Slovenia since it became independent in 1991 6. Furthermore, studies of the citizenship practices in other successor states of the former Yugoslavia reveal that Slovenia’s policy is not unique .7 The Erasure: Independence, Law and Hidden Instructions Determining who would be included in Slovenia’s body politic was the most crucial decision taken by Slovenian officials in the run up to the erasure . Dur- ing the preparations for the country’s declaration of independence in 1991, the Assembly of the Socialist Republic of Slovenia (skupščina) adopted a legislative package called the “legislation of independence” . This package included inter alia two legal acts that made the erasure possible: the Citizenship of the Repub- lic of Slovenia Act8 and the Aliens Act .9 Before the break-up of the Socialist Federative Republic of Yugoslavia (SFRY), each Yugoslavian had had both a federal Yugoslav citizenship and a republican citizenship (i . e . of the Socialist Republics of Slovenia, Croatia, Bosnia and Herzegovina, Serbia, Montenegro, or Macedonia) 10. Two methods were used to create the new, independent Slov- enia’s body of citizens . First, in accordance with the principle of continuity, all those who already held the republican citizenship of the Socialist Republic of Slovenia were automatically granted citizenship of the new Republic of Slovenia (this group was mostly comprised of ethnic Slovenes) . Second, those who held the citizenship of another Yugoslav Republic but were registered as permanent residents in Slovenia were eligible to apply for Slovenian citizenship under conditions that were more lenient than the normal requirements for naturali- zation .11 For example, permanent residents seeking Slovenian citizenship were not subject to any language test requirements and had no obligation to renounce other citizenships that they may have held . The only other conditions governing this more lenient process were that applicants had to be citizens of another Yu- goslav republic, they had to have a permanent residence registered in Slovenia 6 Cf . Dedić / Jalušič / Zorn (eds .), The Erased (above fn . 3); Zorn / Lipovec Čebron (eds .), Once Upon an Erasure (above fn . 1) . 7 Cf . the working papers prepared within the University of Edinburgh School of Law CITSEE Project, available at <http://www .law .ed .ac .uk/citsee/workingpapers/> . 8 Zakon o državljanstvu Republike Slovenije (ZDRS) [Citizenship of the Republic of Slove- nia Act], Uradni list Republike Slovenije [Official Journal of the Republic of Slovenia], No1/91-I, . 5 June 1991, available at <http://www .uradni-list .si/1/index?edition=19911> . 9 Zakon o tujcih (ZTuj), Uradni list Republike Slovenije, No . 1/91-I (above fn . 8) . 10 Felicita Medved, EUDO Citizenship Observatory, Country Report: Slovenia, December 2009, 5, available at <http://eudo-citizenship .eu/docs/CountryReports/Slovenia .pdf> . See also Svetolik Đ . Jovanović, Državljanstvo socialističke federativne republike Jugoslavije . Belgrade 1977 . 11 This option is also known as “extraordinary naturalization” . The Erased Residents of Slovenia 5 as of 23 December 1990 (the day of the plebiscite for Slovenia’s independence), they had to have a de facto residence in Slovenia, and they were required not to represent a threat to the public order, security or defence of Slovenia . In fact, the greatest difficulties for applicants stemmed from the requirement
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