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March 1999 Vol. 11, No. 3 (D) CROATIA SECOND CLASS CITIZENS: THE SERBS OF CROATIA SUMMARY ...............................................................................................................................................................3 RECOMMENDATIONS............................................................................................................................................4 To the Government of Croatia ............................................................................................................................4 To the International Community.........................................................................................................................5 To the Organization for Security and Cooperation in Europe Mission to Croatia...............................................6 To the United Nations High Commissioner for Refugees...................................................................................6 To the United States Government.......................................................................................................................6 To the European Union.......................................................................................................................................6 To the Council of Europe....................................................................................................................................6 To the United Nations Commission on Human Rights .......................................................................................6 BACKGROUND........................................................................................................................................................6 SECURITY.................................................................................................................................................................8 ASoft Evictions@ in Eastern Slavonia ...................................................................................................................9 Harassment and Intimidation in Krajina ...........................................................................................................10 Police Concerns in Banija-Kordun....................................................................................................................11 Uneven Security in Western Slavonia...............................................................................................................11 Ethnically-Related Murders ..............................................................................................................................12 Standards of Policing ........................................................................................................................................12 HOUSING ................................................................................................................................................................13 Uninhabitable Housing Stock ...........................................................................................................................13 Assignment of Private Property for ATemporary Use@ ......................................................................................14 Lost Tenancy Rights .........................................................................................................................................16 Housing and Internally Displaced Persons: AOne-way Return@.........................................................................20 Housing Components of the Program for Return..............................................................................................23 The Functioning of Housing Commissions.......................................................................................................24 Legal Constraints on the Program for Return....................................................................................................28 LAWS AND ADMINISTRATIVE PRACTICES....................................................................................................29 Access to Government Reconstruction Assistance............................................................................................29 Donor Conditionality and the Program for Reconstruction...............................................................................32 Citizenship and Naturalization..........................................................................................................................35 Assignment of Privately-Owned Agricultural Land..........................................................................................37 CONFIDENCE-BUILDING MEASURES ..............................................................................................................38 Law on Convalidation.......................................................................................................................................38 The Amnesty Law and the Prosecution of War Crimes ....................................................................................40 The Program on the Establishment of Trust .....................................................................................................46 THE RETURN OF REFUGEES ..............................................................................................................................47 Mechanisms for Return.....................................................................................................................................49 Ongoing Obstacles to Return ............................................................................................................................52 Refugee Return in Former Sector South ...........................................................................................................54 Domiciled Serbs Leaving Eastern Slavonia ......................................................................................................56 THE ROLE OF THE INTERNATIONAL COMMUNITY.....................................................................................57 The United Nations...........................................................................................................................................57 OSCE Mission to Croatia..................................................................................................................................57 The United Nations High Commissioner for Refugees.....................................................................................58 The Return Facilitation Group ..........................................................................................................................59 The European Union.........................................................................................................................................59 The United States..............................................................................................................................................60 ACKNOWLEDGMENTS ........................................................................................................................................61 Frequently Used Abbreviations APN Agency to Mediate in Transactions of Specified Real Estate ECMM European Commission Monitoring Mission EU European Union FRY Federal Republic of Yugoslavia (Serbia and Montenegro) ICTY International Criminal Tribunal for the Former Yugoslavia JNA Yugoslav People=s Army LTTO Law on Temporary Takeover and Administration of Specified Property NATO North Atlantic Treaty Organization NGO non-governmental organization OSCE Organization for Security and Cooperation in Europe ODPR Croatian Office for Displaced Persons and Refugees RSK ARepublika Srpska Krajina@ SDF Serb Democratic Forum SFRJ Socialist Federal Republic of Yugoslavia TPF Transitional Police Force UN United Nations UNDP United Nations Development Program UNHCR United Nations High Commissioner for Refugees UNPSG United Nations Police Support Group UNTAES United Nations Transitional Administration for Eastern Slavonia, Baranja and Western Sirmium Human Rights Watch 3 March 1999, Vol. 11, No. 3 (D) SUMMARY On January 15, 1998, the United Nations transferred authority over Eastern Slavonia, Baranja and Western Sirmium (hereafter, Eastern Slavonia) to the Croatian government, bringing the last remaining Serb-held territory of Croatia back under Croatian control. United Nations Transitional Authority (UNTAES) had been tasked with the peaceful reintegration of the region, including the return of displaced Croats to Eastern Slavonia and displaced Serbs to other parts of Croatia. At the start of the UNTAES mandate, the region was home to some 127,000 Serbs, including around 55,000 displaced persons. Fewer than 60,000 Serbs remain in the region today. Even taking into account the return of between 17,000 and 21,000 displaced Serbs to their areas of origin elsewhere in Croatia, tens of thousands of Serbs have left the region since 1996. This silent exodus of the region=s Serbs calls into question the success of the UNTAES mission beyond peaceful reintegration of the territory. More importantly, the continued flight of Serbs from the region illustrates one of Croatia=s most pressing human rights problems: the poor treatment of its Serb minority. Despite positive developments in terms of the repeal of some discriminatory legislation, and a generally stable security situation, Serbs remain second
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