2000 Mid-Term Review of the UN Consolidated Inter-Agency Appeal for Southeastern Europe (Jan-Jun 2000)

January to June 2000
I. Overview

The 2000 United Nations (UN) Consolidated Inter-Agency Appeal for the Southeastern Europe Humanitarian Operations (2000 CA) was launched in November 1999. It presented a regional strategy for humanitarian operations under the Common Humanitarian Action Plan (CHAP), to be achieved through a wide range of Agency programmes tailored to specific needs in each of the five component countries. The present document is the Mid-Term Review (MTR) of the 2000 CA, which provides an opportunity to evaluate achievements and constraints in the first half of the year and to re-evaluate strategy for the second.

The 2000 CA requested a total of US$ 660 million for the programme activities of 16 appealing agencies. Although some agencies have revised their budgets (both up and down), the Inter-Agency Standing Committee (IASC) and donors agreed at the donor workshop held in Switzerland in February 2000 that the MTR normally should not include an overall revision of budgets. In the region of Southeastern Europe, there is no call for a revision of the 2000 CA on the scale of that undertaken in 1999 following the Kosovo crisis. Any revisions of agency budgets are to be presented to donors separately from the MTR.

This Mid-Term Review reaffirms the objectives of the 2000 CHAP: prioritising protection and assistance with a renewed emphasis on the promotion of human rights, as well as durable solutions for uprooted populations. It also retains the regional approach because the causes, extenuating factors, and consequences of the complex emergency or emergencies in Southeastern Europe over the past decade are inter-linked. This does not imply that the differences within the region are unimportant or left out of the Consolidated Appeal Process. To the contrary, these differences are increasingly clear in the country sections of this document, as they are present in the daily work of the respective UN Country Teams. Some parts of the region are far removed from the ravages of war, while others are only beginning their recovery or continue to witness alarming levels of human rights abuses. Economic and political differences across the region are especially important in relation to the CHAP, where they present particular obstacles to the reduction of emergency assistance in favour of durable long-term solutions. Obstacles of concern include the continued isolation of the Federal Republic of Yugoslavia (FRY), security concerns in Kosovo (FRY), continuing ethnic tensions in Bosnia and Hercegovina (BiH) and throughout the region, and incomplete political and economic reform following the break-up of the Socialist Federal Republic of Yugoslavia (SFRJ).

Despite the constraints, there have been substantial improvements. Important elections are taking place throughout the region this year, and in some cases, e.g., Croatia and BiH, the results are seen as improving conditions for returns and eventually contributing to reconciliation (the number of minority returns is dramatically increasing in these two countries). In Albania and the former Yugoslav Republic of Macedonia (FYROM), where the impact of the region’s conflicts has been less direct, integrated development assistance is gradually becoming a reality.

Even given the many constraints, including funding shortfalls raising concerns about donor fatigue, there is now a window of opportunity for achievement of the CHAP objectives, particularly related to the repatriation of long-standing refugee and IDPs. The UN, therefore, calls upon the donor community for their continued and reinforced support to take advantage of the present environment and establish the foundations for durable solutions, stability, and development throughout the region.

II. The External Environment: Effects on the Humanitarian Programme

The political situation in much of Southeastern Europe remains tense, compounded by steady economic decline throughout most of the region. Ethnic tensions remain unresolved. Kosovo and the partition of Kosovska Mitrovica are only the most extreme example of this; the problem extends right through to resistance to minority returns in some areas of BiH controlled by hard-line nationalist parties. The climate of impunity for human rights abuses fostered by nearly a decade of conflict also challenges humanitarian and developmental efforts. In addition, Serbia remains under sanctions and isolated, raising difficulties in reaching a political settlement to the Kosovo conflict as well as in aspects of the implementation of the General Framework Agreement for Peace in BiH and in the overall project of regional stability and development.

At the same time, substantial steps have been taken towards improving the humanitarian situation of hundreds of thousands of war-affected civilians, including many refugees and displaced persons. The Stability Pact for Southeastern Europe is increasingly the forum for discussing and promoting post-conflict strategies for the region, including the promotion of democratisation and human rights. UN Agencies, including UNHCR, OHCHR, UNICEF, UNDP, UNIFEM, UNESCO and WHO, as well as IOM, participate in Stability Pact fora dealing with refugee return, human rights and minorities, gender, trafficking, good governance, and education and youth. A series of projects to support reconstruction, socio-economic development and job creation in return areas have been submitted in consultation with UNHCR by the Governments of Croatia and BiH under the Stability Pact. The Stability Pact Funding Conference held in Brussels on 29 and 30 March 2000 generated an estimated US$ 40 million of fresh pledges to support return projects in both Croatia and BiH. An Ad Hoc Steering Group on refugee returns has been established to coordinate funding and implementation of the return projects.

III. Analysis of the CHAP

A. Achievement of CHAP Objectives

The following are the inter-agency objectives agreed upon for the region as a whole in the development of the 2000 CA, with an assessment of progress toward each for the region as a whole. Section VI of this MTR evaluates progress more specifically for each country.

1. Identify Vulnerable Individuals; Protect and Assist them by (A) Immediate Protection and Assistance; (B) Advocacy with Responsible Authorities

The most basic needs of vulnerable populations are being met throughout the region, with an increasing emphasis on using local actors wherever possible. With the improvement in access over the past year, our ability to assess and meet needs has increased. Continuing concerns include mined areas, and the slowness or ineffectiveness of legal systems in the region for dealing with returnees. A further constraint is the lack of donor consistency on need thresholds across different areas of operation.

2. Provide Protection, Relief Assistance, and Durable Solutions to the Region’s Large Numbers of Refugees and Idps

A key achievement was the effective servicing of the people of FRY through the winter, particularly in Kosovo and for Kosovo IDPs displaced into the remainder of FRY. While the general security situation has not allowed the large-scale return of the Serb and other non-Albanian population, efforts to explore and create conditions for their return are being made through a Joint Committee on Returns.

Relief assistance has also been provided to refugees. Voluntary refugee returns increased and the return agenda is being pursued with renewed efforts. In BiH, the number of displaced and refugees returning to their pre-war homes has dramatically increased, with a three-fold increase in the return rate during the first four months of 2000. The total number of registered minority returns during the first four months of the year reached almost 12,000. Some 7,500 refugees have registered as having returned to Croatia in 2000, while many more refugees are believed to have returned but not registered with local authorities. The increase in returns at a time when there has been a decline in funding has meant that humanitarian Agencies have not been able to meet all of the assistance needs of returnees when they return home. Increased donor support is essential to implementation of the Agencies’ programmes.

3. Provide Protection and Assistance to other Economically and Socially Vulnerable Individuals. Continue to Monitor Humanitarian Risk and Respond to Newly Identified Needs

The most basic needs have been addressed, but economic and social vulnerability remains a key factor throughout the region. Serbia (excluding Kosovo) has been effectively isolated and excluded from efforts to promote stability and normalisation. The most basic assistance has supported large caseloads in all parts of FRY, FYROM and Albania. Similar attention to the most basic needs of vulnerable returnees has been given in BiH and Croatia. These are by-and-large chronic caseloads; phasing down of assistance depends on confirmation that domestic capacities for their care are adequate. In all areas, basic support in health and education has been provided.

4. Provide Basic Support for Essential Social Services and Contribute to Mid-Term Rehabilitation and Capacity-Building of Relevant Local Institutions, and Recovery of Communities

Facilitation of the transition from emergency relief to mid-term rehabilitation has been pursued with mixed success. The phasing out of Pillar I in Kosovo on schedule represents a successful shift from emergency assistance to rehabilitation and development; in Montenegro, longer-term programmes promoting self-reliance have taken over from Kosovo-related emergency efforts. In Albania, FYROM, Croatia and BiH, the CA programmes are increasingly dominated by rehabilitation and development work, although the lack of adequate funding is a major constraint. In Serbia (and to a lesser extent Montenegro), however, politics appear to limit the prospects for a near-term transition from humanitarian efforts to development. One of the major principles currently being discussed by UN Country Teams is the need to increase the engagement of development actors throughout the region. This is a priority for the remainder of 2000 and will be central to the 2001 CA.

5. Support the Rule of Law and Promote Human Rights

There have been continued human rights violations in all parts of FRY, most notably in the deterioration in respect for the human rights of minorities in Kosovo and the civil liberties of the political opposition in Serbia. This has reinforced the determination of Agencies to promote the rule of law and human rights in both advocacy and programming. OHCHR has increased its role and numerous Agency programmes have been grounded in respect for human rights. In BiH, successful implementation of the Dayton Agreement depends on further progress being made on strict implementation of property and housing legislation, protection of minorities and asylum procedures. Efforts to develop working asylum systems have been seen throughout the region, particularly in Albania and FYROM, but also in BiH and Croatia.

6. Promote Post-Conflict Peace and Reconciliation

Achievement of this objective has varied throughout the region, due to the relative degree of impact and duration of conflict in specific countries and territories. However, the humanitarian and development community in Southeastern Europe has committed itself to conflict resolution as an integral component of ongoing humanitarian programmes. This is reflected in the country reviews that follow, in the form of various initiatives - ranging from demobilisation of combatants and dissemination of a message of inter-ethnic tolerance in Kosovo, to the establishment of a multi-ethnic police force in BiH.

B. Funding Response

To date, donor contributions received have been in the order of 26% of the amount requested in the 2000 CA. Under such circumstances, humanitarian actors were forced to prioritise their operations, including reducing staffing and services, with a focus on immediate short-term assistance. According to the latest financial tracking tables, as of 30 June 2000, UNHCR had secured US$ 28.8 million for Southeastern Europe, which meets 13.5% of its annual needs, and meantime it drew on general unearmarked income to other UNHCR operations world-wide to reach the US$ 82 million required through 30 June 2000.

Details on the funding picture are shown in Annex I. Certain Agencies (e.g., WFP, UNHCR, OHCHR and WHO) have agreed with donors that certain funds be earmarked for the region (rather than individual countries), making their operations more flexible. Nevertheless, the approach to funding specific country programmes has not been balanced. Programmes in Albania, BiH and FRY (excluding Kosovo) have received only 7% or less of total requirements; programmes for Croatia (13%) and FYROM (18%) have received slightly more support; while Kosovo (27%) is most highly funded but still not to an adequate level halfway through the year.

The Agencies participating in the 2000 CA appeal to donors to ensure adequate and flexible funding to support return and reconstruction, as well as human rights promotion, during 2000 and 2001. At this stage, the current financial situation is such that, despite the ongoing programmes and new pledges of contributions under the Stability Pact, return-related activities for 2000 will not be able to meet all needs. The next two years will be crucial for the international community and the countries in the region to seize the growing momentum on returns, by ensuring that accelerated minority returns take place and are sustainable.

IV. Priorities through 2000:

In line with the objectives of the 2000 CHAP and the situation at mid-year, the following regional priorities through the end of the year have been identified.

- In light of the increasing prospects of an enabling environment, every effort should be made to achieve durable solutions for refugees presently in BiH, Croatia and FRY. The momentum that has already been gained on returns during the first half of 2000 should be seized, and the returns process given a decisive push forward by donors. As a prerequisite for successful settlement throughout the region, the process of minority returns within BiH and FRY in particular must be actively supported by both donors and UN Agencies. Flexible and rapid funding is needed now.

- Given the continued climate of human rights abuses, which have plagued the region for years, protection and monitoring efforts must be reinforced.

- With respect to the widely varying transitional status of countries and territories within the region, the humanitarian community must develop innovative hand-over and/or exit strategies and foster early engagement of development actors in the process where applicable. Appropriate schedules and conditions for humanitarian exit strategies must be established with a regional perspective. Development actors are assuming a greater role in Albania, FYROM, Croatia and Kosovo (FRY), but are not at present in a position to replace UN humanitarian agencies. The situation in FRY (excluding Kosovo) is made more complex by sanctions.

- There is also a continuing need for work in the region on: (a) advocating the neutrality of humanitarian assistance; (b) ensuring the protection of civilians; (c) standardising the conduct of humanitarian organisations; (d) facilitating transition; (e) defining basic humanitarian need levels in Southeastern Europe; and (f) coordinating early warning and emergency response preparedness.

V. Outlook: Scenarios and Prospects - Likely Shape of 2001 CA

Compared with one year ago, the time of the 1999 Revised CA, there is a good likelihood of continued relative stability in the region. This allows participating Agencies to concentrate on provision of planned services and the improvement of their planning and response preparedness mechanisms.

Regional stability nonetheless remains a major concern, particularly with various points of potential conflict in FRY. In Serbia, the effects of isolation, political power struggles and the continuing tensions related to the Kosovo conflict cause problems for the general effort to find durable solutions for war-affected persons and move toward normalisation. In Montenegro, tensions with the Federal Government and internal power struggles also foster instability, as do the political and legal status of Kosovo and the aspirations of its ethnic Albanian majority. It remains an axiom that should a new conflict erupt in FRY or any emergency emerge in another part of this region there certainly will be a widespread spill-over effect. There is, therefore, continued need for close monitoring and preparedness measures taking both a deeply localised and a regional perspective.

On the other hand, the signs of maturation of the post-war political and social structures in Croatia, BiH, Albania and FYROM bodes well for regional recovery. It is important that donors lend urgent and consistent support to consolidate these gains. Unless the hopes of the people and prospects for sustainable peace in the region are met, it is more likely that there will be new points of crisis creating new victims in need of humanitarian assistance. The EU has publicly recognised this fact, e.g., by signing Stabilisation and Association Agreements with Albania and FYROM.

Inter-agency discussions of the 2001 CA have already begun, taking a strategy-oriented perspective on the review of progress in humanitarian and development spheres and developing new scenarios for the next 18 months. Input from UN Member States, other donors, and local authorities and actors in civil society will be solicited by participating Agencies at HQ and field levels. Given the current context and some of the more likely developments for the remainder of 2000, CA2001 may offer an opportunity to dramatically change the face of humanitarian assistance in the Balkans. Even as humanitarian needs are expected to drop significantly - especially in Albania, BiH, Croatia and FYROM—the CAP serves as a forum for development of effective strategies for longer-term stability in the region and for region-wide preparedness planning. In the absence of drastic changes in the current situation, however, the amount of money sought for the 2001 CA is expected to be much less than that required in 2000.

TABLE OF CONTENTS

I. Overview
II. The External Environment: Effects on the Humanitarian Programme
III. Analysis of the CHAP

• A. Achievement of CHAP Objectives
• B. Funding Response

IV. Priorities through 2000:
V. Outlook: Scenarios and Prospects - Likely Shape of 2001 CA
VI. Reviews by Country

• Albania
• Bosnia and Hercegovina
• Croatia
• Federal Republic of Yugoslavia
  
  A. Federal Republic of Yugoslavia (excluding Kosovo)
  B. The UN Administered Province of Kosovo
• The Former Yugoslav Republic of Macedonia

Annex I. Donor Response to the 2000 Appeal
Annex II. International Federation of Red Cross and Red Crescent Societies

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