Serbia and Montenegro Development Through Local Integration

RLSS/DOS Mission Report 2004/10 SERBIA AND MONTENEGRO DEVELOPMENT THROUGH LOCAL INTEGRATION Review of Local Integration Programme and Appraisal of Opportunities for Local Integration in Development Planning Instruments August 2004 The Review of Local Integration Programme was organized by the UNHCR Offices in Serbia and Montenegro; the Bureau for Europe; and, the Reintegration and Local Settlement Section of the Division of Operational Support, UNHCR Headquarters, Geneva. Acknowledgements The consultant would like to express her thanks and sincere gratitude to all the persons met for sharing their views and opinions, and for making the work fruitful. Most particularly, the consultant wishes to thank the refugees, IDPs and nationals met in the field, and she hopes that the report accurately reflects their concerns, and that it can in some small way contribute to bettering their lives. The consultant would also like to thank the UNHCR offices in Belgrade, Kraljevo, Novi Sad, Podgorica, and Berane for their excellent support in terms of substantive input and logistics. Jane Millar Tournée Consultant i ii Executive Summary This report represents the findings and recommendation of a mission for the Review of the Local Integration Programme and Appraisal of Opportunities for Local Integration in Development Planning Instruments. The review and appraisal were undertaken in the Union State of Serbia and Montenegro in May/June 2004. As the main focus of the mission was on the local integration of refugees, this forms the majority of the report although mention is made of IDPs where relevant and a brief look is taken at resettlement and repatriation as alternative durable solutions to local integration. There are of course gaps and limitations, but it is hoped that the report highlights most of the more pressing issues. The main findings and recommendations1 are summarised as follows: 1. Comparison with the Framework for Durable Solutions: a) In comparison with the Framework for Durable Solutions, which includes Development through Local Integration2, much progress has been made, especially in the Republic of Serbia. The stakeholders have come together and supported the Government in the preparation of a National Strategy for Resolving the Problems of Refugees, and in actively promoting the inclusion of refugees, IDPs and RAEs in the Poverty Reduction Strategy Paper (PRSP). In addition refugees, IDPs and RAEs are covered in the UN Development Assistance Framework (UNDAF) for Serbia and Montenegro. In the Republic of Montenegro the National Strategy for Refugees is still at the drafting stage, and Government has not yet adopted the PRSP. The proposed PRSP does address the concerns of refugees and IDPs. b) Despite agreement among humanitarian actors, and taking into account some notable exceptions, much of the development work, that is taking place within Serbia, is geared towards institutional reform and capacity building at government level, with fewer programmes addressing the immediate needs of the vulnerable members of society. Institutional reform is indeed necessary, but the mission questions the balance between long-term benefit and immediate need. Many of the agencies interviewed by the mission, mentioned that their programmes follow the wishes of the government, and therefore an increase in the share of funds going to projects and programmes immediately addressing the needs of vulnerable groups, including refugees and IDPs, would need to begin with a strong commitment from government that this is one of their priorities for assistance. c) Joint planning is taking place within the framework of the CCA and UNDAF processes, but there is no comprehensive overview of all actors and their programmes, which address refugee issues, either directly or as part of more general programmes for vulnerable sections of the population. Information on programmes is available but in some cases scattered and difficult to access. A simple tracking form could be established which could be up-dated either by the database team within SCR, and/or through UNHCR, by officials recording the results of their meetings with government and agencies. This could be used in support of the donor coordination efforts of the SCR, which in turn could feed into the coordination activities of MIER in Serbia. d) The national strategy for refugees in Serbia provides the basis for resource mobilisation with clear goals and required budget. The government has made progress in attracting 1 Many of the recommendations follow Government thinking and that of their partners, and therefore should be seen as reinforcing current initiatives. 2 Framework for Durable Solutions for Refugees and Persons of Concern, UNHCR, Geneva , May 2003. iii funding from bilateral development agencies and multi-laterals and IFIs. The government has secured funds from EAR to assist in the programme of collective centre closures and in strengthening the SCR’s office and outreach, and they are negotiating with CEB for a loan for social housing. The inclusion of refugees in the PRSP, means that any funding attracted towards vulnerable groups under the PRSP will be at least partly accessible to refugees. Before some funds can be accessed, there is a need to address the operation and legal frameworks at national and local level. e) The legal pre-conditions for local integration - access to land, employment, services, freedom of movement, identity documents, access to the judicial system, and eventual opportunity to be granted citizenship - are very favourable in Serbia. In Montenegro, the concept of local integration has not been accepted, which is reflected in the fact that refugees have no right to work, very limited access to health care and no possibility of acquiring citizenship. 2. Review of Development through Local Integration: a) The Government in Serbia has shown great willingness to assess the condition of refugees and to promote solutions for their repatriation or local integration. The access of refugees to services, employment/ income generating activities, and to housing assistance, has eased the process of local integration considerably. b) The provision of permanent housing began in 1997 and to date, in Serbia and Montenegro, at least 3,620 families have been assisted with housing solutions, and by the end of 2004, 730 elderly or vulnerable people will be accommodated in institutions or social housing in a supportive environment. Families who have participated, especially in self-help and semi-self-help building schemes are proud of the achievement and committed to making a success of their new lives in their new homes. c) At least 12,000 individuals have been assisted with loans from micro-financial institutions aimed at starting or improving their income generating activities. In addition, soft loans for start-up and grants for income generating programmes have been provided through a variety of international agencies and NGOs. Many families are now managing to earn sufficient income to at least cover their immediate needs and others are developing small businesses with reasonable incomes. d) UNHCR through partners, DRC and IRC have delivered vocational training to 1,175 refugees in Serbia in the period 2001 to 2003. Prior to this period, a larger budget had been available and therefore more vocational training had been carried out. e) In Serbia, refugees can take up employment and are accessing services: schools, medical services, and social services. Vulnerable groups are being supported through the MLESP, Municipal Centres for Social Work and local NGO networks providing outreach support. Household/community/municipality level f) Food Security: It was estimated that some 40,000 vulnerable and poor refugees3 would need food aid in 2004 out of a total of 290,000 refugees (14%). However, the food should be seen in these cases as an income supplement rather than covering a lack of food in the market. A joint assessment of the income, food and fuel situation, as it relates to refugees, IDPs and vulnerable nationals, should be carried out and the necessary funds sought to cover the needs. g) Access to Services: The governments have severe budgetary constraints and high demand for social welfare services. Even if people acquire citizenship as their durable solution, the level of national support for vulnerable families will not cover even their basic needs. 3 Figures vary from 30,000 to 50,000. iv It should be noted, that sections of the refugee population are getting older and are more often sick, thus their self-reliance is reducing rather than increasing. The Centres for Social Work in the municipalities are under-funded, and the influx of refugees (and IDPs) has put additional strain on their meagre resources. It is recommended that the funding of the network of local NGOs, who provide much needed outreach and psychological support to vulnerable refugees and IDPs, be continued. It would be best if this could gradually be expanded to include local vulnerable cases, and a broader range of material support. The MLESP may wish to consider forming a joint working group together with local practitioners and agencies to share experiences and develop best practices on care in the community and the use of outreach teams. h) Access to accommodation and the closure of Collective Centres: The ownership of all houses, built for or together with refugees, should be made over to the refugee families (women and men together) as swiftly as possible. PIKAP (cash and in-kind grant) is being offered as the foremost assistance to transition from living in a collective centre to living in private accommodation. There needs to be an evaluation of the families that took PIKAP 12 months ago, so that the impact can be understood, and if necessary, adjustments made to the programme to make it more effective. PIKAP should be offered to IDPs as well as refugees who are leaving collective centres. Assistance is being offered through provision of building materials for the completion of unfinished housing started by refugees.

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