Introduction

The return of refugees and DPs to areas where they would now constitute a minority (minority returns) currently is a major concern of the international community in all of the former Yugoslavia. In the ongoing efforts to make the voluntary return of displaced minorities a viable option, however, it is becoming increasingly apparent, that individual return movements of all minority groups currently displaced are mutually dependent on each other, and that efforts to address any particular return of minorities separated from the return of other displaced populations are bound for failure. Given the central importance of political cooperation of the authorities at the local and entity levels, progress can only be made if all groups see their particular concerns being addressed at a local as well as regional level, before they will be willing and able to make political concessions, let alone offer positive encouragement, to potential minority returnees. The authorities in the RS and the FRY, for example, want the issue of return of Serbian refugees from Croatia addressed before they would even consider enabling large-scale minority returns to the RS. It is for this reason, that the issue of "regional returns" has to be addressed with urgency and that positive signals are required for all ethnic groups that the principles of voluntary repatriation are universally applied to all groups of DPs and refugees alike, irrespective of ethnicity. New Developments in 1997 and early 1998 have opened a "window of opportunity" to make decisive progress in the realization of minority returns, if this goal is pursued with determination and with the combined efforts of all international and progressive local actors together: The ongoing implementation of the municipal election results in BiH, the formation of a new government in the RS, backed by the minority faction in the parliament, an increasing number of "open cities" in both entities of BiH and the entry of Croatia into the Council of Europe. To keep up this momentum towards peace and reconciliation in the former Yugoslavia and to prevent the new "window of opportunity" from closing prematurely, IOCC proposes a minority return program within the framework of a "regional return" initiative.

Goals:

• Facilitate and enable minority returns to Western RS from Croatia and the Federation, to Croatia from RS and from FRY, and to the Federation from the RS and the FRY, through a phased process that includes 1) the provision and dissemination of information, 2) the facilitation of "go-and-see" visits that will increase confidence in the possibilities for returns and 3) the rehabilitation of damaged housing.
• Make these returns sustainable through income-generating opportunities through the provision of micro-credits for both receiving and returning population and the rehabilitation of local infrastructure that will further local economic development
• Assist in the establishment of a minimum degree of cultural "autonomy" for returning minority populations by enabling the return of religious and spiritual leaders and through capacity-building of local and minority NGOs.

• Enable the return of 75 Croatian-Serb families from the RS to Western Slavonia, Croatia, by rehabilitating 75 war-damaged homes in selected target areas in Western Slavonia (possibly Pakrac).

• Enable the return of 25 Croatian-Serb families from the FRY to Western Slavonia, Croatia by rehabilitating 25 war-damaged homes in selected target areas in Western Slavonia.

• Enable the return of 100 Bosnian-Croat families from the selected target areas in Western Slavonia to the RS by rebuilding 100 war-damaged homes in selected target municipalities in the Western RS (possibly the municipalities Derventa and Bosanski Brod).

• Facilitate the return of 100 additional Croatian-Serb families from the RS and the FRY (an estimated 16 of whom will be from the RS) to the selected target areas in Western Slavonia to the buildings vacated by the 100 Bosnian-Croat refugee families returning to the Western RS (secondary returns).

• Facilitate the return of approximately 75+16=91 minority refugee families to their freed-up homes in the Western RS from the Federation and Croatia (secondary and tertiary returns).

• Thus, directly effect the the return of some 391 minority families (more than 1000 persons) to their pre-war homes in Western Slavonia and the Western RS, while indirectly opening the possibility of more minority returns to newly freed-up homes.

• To create four highly cost-effective, locally managed loan funds in the targeted communities fostering the development of indigenous leadership able to manage local business associations that effectively link community members to markets, create new jobs and income, generate a climate of hope and promote future individual and collective economic security.

• Provide a total of 395 micro-credits to selected beneficiaries from the primary (160 credits), secondary and tertiary returnee populations (75 credits) as well as the local population in the receiving municipalities (160 credits).

• Willingness to return, identity and rehabilitation needs for their 75 houses in Pakrac of Croatian Serb refugees now in the RS; location and level of destruction of these houses; complementary requirements for their return (micro-credits, cultural autonomy,..); identity of rightful owner of the houses these refugees now reside in.
• Start with identifying 75 individuals in RS willing to return to Pakrac - RS Ministry for Refugees; Interview them - AES/CRO (Mr. Djodan); then locate and assess their houses in Pakrac - local implementing partner in Pakrac (CRS? Or local NGO?); For the identity of the rightful owners of their current housing - RS Ministry for Refugees – for finding them – Property Claims Commission, UNHCR,..
• Identity and rehabilitation needs for 25 houses in Pakrac of Croatian Serb DPs now in the FRY; location and level of destruction of these houses; complementary requirements for their return (micro-credits, cultural autonomy,..);
• Start with identifying 75 individuals in FRY willing to return to Pakrac - FRY Ministry for Refugees; Interview them - AES/CRO (Mr. Djodan);FRY refugee associations; then locate and assess their houses in Pakrac - local implementing partner in Pakrac (CRS? Or local NGO?); [IOCC Belgrade]
• Willingness to return, identity and rehabilitation needs for 100 houses in Derventa/Brod of Bosnian Croat refugees now living in Pakrac; location and level of destruction of these houses; complementary requirements for their return (micro-credits, cultural autonomy,..); identity the rightful owners of the houses these refugees now reside in.
• Start with identifying 100 individuals in Pakrac willing to return to Derventa/Brod - Interview them - local implementing partner in Pakrac (CRS? Or local NGO?); Assess their houses in Derventa/Brod - local implementing partner in Derventa/Brod (or IOCC assessment?);For identity - Pakrac municipality, for their location – RS and FRY Ministries of refugees, AES/CRO
• Willingness to return, identity and current residence of the 100 additional Croatian Serb refugees now in the FRY and RS returning to their vacated houses in Pakrac; complementary requirements for their return (micro-credits, cultural autonomy,..); identity of rightful owner of the houses the refugees now living in the RS reside in.
• Pakrac municipality (see above) for their identity; local implementing partners able to find/interview these additional returnees in the FRY and RS (AES/CRO?), RS ministry of refugees and/or local municipalities in RS.

 

Time	Goals	Objectives	Activities	Responsibility	IOCC Capacity
Jan-98	Be clear what to do, where to go	Concept paper	Write 5-page paper	Sava, Michael	IOCC,
	Bring CRS on board	General agreement- CRS	Talks with CRS	Mark, IOCC/Baltimore	IOCC
1/31/98	Submit concept paper to UNHCR.	interim funding proposal to IOCC, Baltimore	à UNHCR, Baltimore	Sava, Mark
Feb-98	Pre-screen willingness to return; explore option of clergy returns	Receive broad signs of return- determination	Meetings with - AES/CRO - ANWBC in CRO (Dripolo) -refugees in WS	Sava, Mark Local staff	IOCC
2/21/98	UNHCR: YES !! to concept/ interim funding	Secure 2 months interim funding			(UNHCR or IOCC)
Mar-98	Identify willingness to return – (also clergy returns) DP/refugee dialogue (see "Software");	Find > 75 refs. In RS, >25 in FRY and > 100 in WS willing to return; form 3 strong ref. assc-s Write project proposal	Surveys, interviews, commitment of refugees; assist formation of 3 strong refugee associations as partners	Implementing partners in WS, RS and FRY;  IOCC, CRS	IOCC, impl. Partners; CRS  With help from OHR, UNHCR
	Registration of potential returnees + all beneficiaries in return entities	>= 200 visits to start documentation of returnees	Organize 200+ "go-and-see" visits, facilitate process – buses	refugee/DP associations, UNHCR(Zagreb, Belgrade, B.L.)	IOCC, CRS with OHR, UNHCR, (INGOs ?)
	Enlist the support of notables and key institutions	Meetings with >=9 important individuals	Ask for advice, discuss concept, enlist support	Sava, Mark	IOCC
	Political Support of municipal and entity authorities "for returns to X" in principle	Agreements with receiving municipalities (verbal), entities (written MOU)	Negotiations with WS and Western RS municipalities, RS and Croatia	IOCC, CRS, OHR, UNHCR, RRTF	IOCC, CRS, with help from OHR, RRTF UNHCR, orth. +cath. Church
	Rough Cost estimates for shelter repair	Assessment of area-specific damage level	Data + cost surveys, assess. visits to area	Local staff of IOCC, CRS	IOCC, CRS, with IMG data, UNHCR data
3/15/98	Proposal	Cleared by IOCC/Belgrade	Submit to UNHCR	Sava, Mark – clear with CRS	IOCC, CRS
Apr-98	Inspire confidence in returns; increase acceptance by receiving mun., continue registration	>= 200 visits to continue documentation of returnees in home municipality, property titles	Organize 200+ additional "go-and-see" visits, facilitate process- buses	refugee/DP associations, UNHCR(Zagreb, Belgrade, B.L.)	IOCC, CRS with OHR, UNHCR, (INGOs ?)
4/15/98	Proposal acceptance	Incl. Micro-credit component	Hire additional staff needed	IOCC, CRS	IOCC, CRS opens office in WS
	Assessment of houses to be rehabilitated; Selection of beneficiaries	Assess >100 houses in Pakrac, >100 in Derventa, Brod (and other RS)	Visits to houses, results tabulated for reconstruction planning	Local staff of IOCC, CRS, or Implementing partners	IOCC, CRS, impl. Partners
May-98	Get political backing of receiving mun. in RS, CRO +clearance of selct. beneficiaries	Get MOU from target municipalities in Western RS and Western Slavonia	Negotiate agreements with mayors, local assemblies	IOCC, CRS	IOCC, CRS with help from OHR, UNHCR, Orth. And Cath. Church
	Increase acceptance of returns	Set up 2-3 meetings of refugee-receiving mun. leaders	Discuss problems, best way of reconstruction (job allocation) micro-credits	Refugee associations; community leaders (mayors, municipal assemblies..)	IOCC, CRS with support of reps of OHR, RRTF, UNHCR, churches
Jun-98	Set up micro-credit mechanisms	Establish 4 Village-managed business loan associations.	Work with refugee assocs.; receiving comm. leaders	Refugee assocs.; local leaders, micro-credit project managers	IOCC, CRS
6/15/98	Contract out rebuilding of 25+25=50 houses	Schedule of reconstruction and returns	Find suppliers, contractors, labor	IOCC in RS, CRS in Croatia	IOCC, CRS or impl. Partn.
	Contact 100 owners of houses to be vacated in Western Slavonia	Identify, locate and interview these	Inform them and get infos on return wishes/needs	Municipality in WS, Implementing partners in RS and FRY	Comm. Real Property Claims, HCR, IOCC implem. Partners in RS, FRY
Jul-98	Start rebuilding	Contractor works on 25+25=50 units	Monitoring	Contractors; returnee assocs., implem. Partners	IOCC, CRS , impl. Part.
7/31/98	Phase out contractor	25+25=50 houses ready for first returns	Monitoring	Contractors; returnee assocs., implem. Partners	IOCC, CRS , impl. Part
	Provide security for reconstructed houses	Set up "guardian system" for reconstructed houses	Negotiate the system with refugee-assoc. (in host mun. !)	Refugee associations with local police, IPTF	IPTF, UNHCR
Aug-98	First 50 families return + 50 returnee-workers move in as well	2 x (25 families +25 "returnee-constructors" ) move into first 25+25 houses	Provide transportation, food, tools + other assistance	IOCC, CRS refugee associations, local police,	IOCC, CRS , local police, IPTF
	Further reconstruction by returnee-constructors	Finish second 25+25=50 units	Supervise, provide security, pay	IOCC, CRS, impl. Partners, local police,..	IOCC, CRS , local police, IPTF
	Income generating opportunities for domicile pop.	Provide 40 micro- credits to host pop.	Monitor/assist in credit-scheme	"village managed loan associations"; or "peer groups"	Project officers of IOCC, CRS
	Inspire confidence in 100 "secondary returns" – documentation	At least 2 Visits of potential returnees, get registration	Organize 2x100=200 "go-and-see" visits to Pakrac	refugee/DP associations, UNHCR(Zagreb, Belgrade, B.L.)	IOCC, CRS with OHR, HCR, OSCE (INGOs ?)
Sep-98	Second 50 families return	25+25=50 families return	See above	See above	See above
	Priority winterization of all remaining (50+50=100 ) houses	Provide roofs and windows to 50+50=100 houses	Monitor, security, pay, materials,..	IOCC, CRS, impl. Partners, local police,..	IOCC, CRS , local police, IPTF
	Further reconstruction/ interior repairs	Completion of 15+15 =30 houses (out of remaining 100 winterized h.)	Supervise, provide security, pay	IOCC, CRS, impl. Partners, local police,..	IOCC, CRS , local police, IPTF
	Income generating opportunities for returnees and domicile pop	Give additional 40+40 =80 credits to returnee+ host population	Monitor/assist in credit-scheme	See above	See above
	Contact 91 owners of housing to be vacated in RS	Identify, locate and interview these	Inform them and get infos on return wishes/needs	Implementing partners in Federation, Croatia	RRTF, CRPClaims, UNHCR, IOCC
	Start process of "secondary returns" to Western Slavonia	25 secondary returns/month to WS	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, CRS with UNHCR
Oct-98	Third month of returns	15+15=30 families return	See above	See above	See above
	IGPs	An additional 40+40 =80 credits	Monitor/assist in credit-scheme	See above	See above
	Continue process of "secondary returns" to WS	25 secondary returns/month	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, CRS with UNHCR
	Provide incentives and IGPs for secondary returns	Provide 15 IGPs to secondary returnees	Monitor/assist in credit-scheme	See above	See above
	Inspire confidence in 91 "second/tertiary returns" to RS	At least 2 Visits of potential returnees to Western RS	Organize 2x81=162 "go-and-see" visits in Western RS	IOCC, refugee/DP associations	OHR, UNHCR, IPTF, OSCE
Nov-98	Fourth month of returns	35+35=70 returns	See above	See above	See above
	IGPs	An additional 40+24 =64 credits	Monitor/assist in credit-scheme	See above	See above
	Continue process of "secondary returns" to WS	25 secondary returns/month	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, CRS with UNHCR
	Provide incentives and IGPs for secondary returns	Provide 15 micro- credits to secondary returnees	Monitor/assist in credit-scheme	See above	See above
	Start process of "second/tertiary returns" to RS	45 second/tertiary returns/month	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, CRS with UNHCR
Dec-98	IGPs	An additional 56 credits to prim. Returnees	Monitor/assist in credit-scheme	See above	See above
	Continue process of "secondary returns" to WS	25 secondary returns/month	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, CRS, with UNHCR
	Provide incentives and IGPs for secondary returns	Provide 15 micro-credits to secondary returnees	Monitor/assist in credit-scheme	See above	See above
	Continue process of "second/tertiary returns" to RS	46 second/tertiary returns/month	Provide transport; start-up help, link to micro-credits	IOCC, CRS refugee assoc-s, local police, VMLS or PG	IOCC, with UNHCR
	Provide incentives and IGPs for second/tertiary returnees to RS	Provide 30 micro-credits to second/tertiary returnees in RS	Monitor/assist in credit-scheme	IOCC through "peer groups"	IOCC, project officer
	200 primary return families,  175 secondary return families 16 tertiary return families =391 families returned	40+40+40+40= 160 credits to host population, 40+40+24+56= 160 credits to prim. Returnees 90 credits to second/tertiary returnees