OCHA Situation Report
Kosovo Humanitarian Situation and Strategy for 2003
10 April 2003


Source: UN Office for the Coordination of Humanitarian Affairs (OCHA)

1. Introduction

Kosovo's post-conflict transition continued during 2002 with political
advances, improvements in security conditions and some progress on
minority returns. But the impact of these improvements has been unevenly
distributed and high levels of insecurity and pockets of extreme
vulnerability remain, especially for minority groups. Strategic,
coordinated and consistent support of the international community is
therefore as vital as ever to assist all communities in Kosovo move past
lingering hostilities and intolerance, while supporting the Kosovar
leadership to advance human, social and economic rights, including
strengthening the rule of law and creating conditions conducive for
minority returns.

Despite ongoing humanitarian concerns in Kosovo, overall progress as well
as shifted donor focus to other crises in the world were factors, which
influenced the UN Country Team's (UNCT) decision not to prepare a United
Nations Consolidated Appeal (CAP) for 2003.  Alternatively, the guidelines
and principles of UN Development Assistance Framework (UNDAF) were adapted
to steer a joint planning process under the leadership of the UN
Development Coordinator.  The output of this process is the "UNCT
Strategic Plan for Kosovo 2003-2004: A Framework for Dialogue and
Partnership". Emphasizing a human rights approach, the UN Strategy aims to
support the building of a stable, democratic and economically viable
Kosovo through capacity building, institutional strengthening and
technical assistance for the eight priorities (1) of the Provisional
Institutes for Self Government (PISG).

Given the developmental nature of the UN Plan, this document was prepared
as a complementary strategy focusing more specifically on the humanitarian
situation and the identified vulnerable groups of IDPs, returnees and
minorities.  The document begins with a review of the progress made on
2002 CAP objectives in relation to the financial resources secured.  Key
security, political, return and socio-economic developments are then
summarized and a 'most likely' scenario for 2003 put forward.  Protection
and human security, access to information, housing assistance, basic
services and livelihoods are identified as main obstacles which continue
to impede return and enjoyment of human rights, based on which an overall
humanitarian objective and priority interventions are defined.  Finally,
the roles and programming of the UNCT in support of identified priorities
are summarized.


2. Review of 2002

Progress on 2002 Humanitarian Objectives

Given general improvements in the humanitarian situation following the
rapid return of the majority of refugees from the former Yugoslav Republic
of Macedonia, the Mid Year Review of the 2002 CAP excluded the majority of
projects originally planned for Macedonian refugees. (2)  As a
result, the humanitarian objectives for the second half of 2002 were
re-defined to include:  1) prevention of further displacement of minority
groups by addressing basic assistance needs for the most vulnerable; 2)
promoting the basic rights of security, dignity and access to livelihoods
for remaining minorities and minority returnees and 3) maintaining
contingency plans in case of further displacement into Kosovo, especially
given the ongoing volatility in the neighboring former Yugoslav Republic
of Macedonia.

Within available resources, essential assistance addressed basic needs of
vulnerable IDPs, returnees and minorities. UNHCR through its lead agencies
provided a three-month food ration, shelter material and household items
to support returnees make the difficult adjustment of re-establishing
their lives. Projects to assist IDPs gain information on home communities,
build inter-ethnic confidence, improve access to basic services and
support income generation initiatives were also undertaken to foster
conditions conducive to return and sustainable integration.


CAP Humanitarian Funding

Of the eight organisations participating in the Kosovo 2002 CAP, only four
(UNHCR, OCHA, UNICEF and WHO) received some funding for CAP projects.  As
of 10 February 2003, 31% or $8,428,254 out of a requested $27,255,6044 had
been secured.  Low donor response resulted in major adjustments to and in
some cases, cancellation of CAP projects.

|----------+--------------+----------+-----------+------------|
| Agency   | Requirements |  Income  | Shortfall | % Covered  |
|----------+--------------+----------+-----------+------------|
| UNHCR    |    15,128,685| 5,763,380|  9,365,305|         38%|
|----------+--------------+----------+-----------+------------|
| FAO      |     2,418,003|         0|  2,418,003|           0|
|----------+--------------+----------+-----------+------------|
| IOM*     |     1,695,000|         0|  1,695,000|           0|
|----------+--------------+----------+-----------+------------|
| OCHA     |       342,236|   310,647|     31,589|         91%|
|----------+--------------+----------+-----------+------------|
| OHCHR    |       871,680|         0|    871,680|           0|
|----------+--------------+----------+-----------+------------|
| UNDP     |       800,000|         0|    800,000|           0|
|----------+--------------+----------+-----------+------------|
| UNICEF** |     5,000,000|   777,444|  4,222,556|         15%|
|----------+--------------+----------+-----------+------------|
| WHO***   |     1,000,000| 1,576,783|  (576,783)|        158%|
|----------+--------------+----------+-----------+------------|
| TOTAL    |    27,255,604| 8,428,254| 18,827,356|         31%|
|----------+--------------+----------+-----------+------------|


* IOM received 380,000 Swiss Francs from the Swiss Government and 1.8
million E from the EU for a micro-credit project, which are not included
in the table.

** Includes a pledge from Norway made late in December 2002 with agreement
that funds could be used for implementation of 2002 CAP project in 2003.

*** Total is 800,000 US $ less than official CAP figure due to the
inclusion of a US contribution for 2001showing in 2002.


3. Current Context

The overall humanitarian situation in Kosovo continued to stabilise during
2002, with some improvements in freedom of movement for minorities and
fewer cases of ethnically motivated security incidences. Positive
political developments were made both at the central and local levels as
well as in the divided municipality of Mitrovica.  Political initiatives
to advance privatization and free trade as well as continued support for
income generation projects provided a degree of optimism against a
generally bleak socio-economic backdrop.


Security

Security conditions throughout Kosovo improved with a decrease in the
number of reported incidents where ethnic minorities were subject to
violence. (3) Other positive developments included mobile patrols to
replace KFOR checkpoints previously surrounding enclaves and other
minority areas, a reduced number of police escorts needed for minority
outings and initial steps to transfer border patrolling responsibilities
from KFOR to the Kosovo Police Service (KPS) / UNMIK Police.

General security improvements have not, however meant that harassment and
violence towards ethnic minorities have stopped.  A range of serious human
rights violations including grenade attacks, booby-traps,
drive-by-shootings, arson, physical assaults, stone throwing, vandalism
and verbal insults continue. (4)  With victims often afraid to report
crimes and community leaders reticent to stop them, perpetrators have
rarely been held accountable, reinforcing a dangerous cycle of impunity.


Political

Following general elections in November 2001, the Provisional Institutions
of Self-Government (PISG) (5) was established with democratically elected
representatives. Despite initial difficulties in finding agreements among
local political parties, the new government includes participation from
ethnic minorities, mainly Kosovo Serbs. Transfer of responsibilities from
UNMIK to the Civil Administration of PISG is now underway and is expected
to lead to a fully functioning local government in 2003.

Capacity building support, which begin long before the establishment of
the PISG is assisting in smoothing the transfer of responsibilities from
UNMIK to local Civil Administration.  Institutional strengthening inputs
have resulted, for example in the development of a comprehensive health
policy, improved educational standards and growing efficiencies within the
agriculture sector through the establishment of the Agriculture Statistic
and Policy Advisory Unit. (6)  While notable progress has been made,
additional support is still needed to address such issues as a lack of
reliable statistics, which continues to impede policy development and
progress on developing objective targets.

At the municipal level, peaceful elections in October 2002 marked a step
forward in stabilizing democratic institutions and transferring UNMIK's
administrative responsibilities to locally elected representatives. After
months of difficult negotiation between the SRSG and the Deputy Prime
Minister of Serbia, (7)  progress was also made in Mitrovica at the end of
the year, following acceptance of the SRSG's Seven Point Plan aimed at
combating parallel structures and administrations. (8)

Highlighting a slight softening of attitudes on minorities, the PISG
Assembly adopted a resolution for "The right of communities and their
members and conditions for return of IDPs".  The PISG subsequently,
committed itself to 8 priorities, loosely based on the SRSG's Benchmarks.
The 'Benchmarks' have been presented as the basic standards of governance,
security and tolerance that must be achieved before the issue of Kosovo's
'final status' can be seriously considered.  SRSG's Benchmarks attached in
Annex A.


Returns

Against these relatively positive developments, UNHCR registered 2,741
minority (9) returns in 2002, boosting the 2000 - 2002 cumulative total to
6,094. (10)  While still only a fraction of the total displaced
population, the number is encouraging when compared to 1,906 and 1,425
returns in 2001 and 2000, respectively.  Returns were mainly spontaneous,
organised by displaced families themselves, as and when they felt
conditions were sufficiently favourable, weighed against often, harsh
displacement conditions. The number of returns varied considerably by
region with more progress in Gjilan / Gnjilane (685), Peja / Pec (688) and
Prishtine / Pristina (797), while only limited numbers of returns were
registered in the Prizren (296) and Mitrovice/a (275) areas.  Indicating
some improvements in security conditions, most of the minority returns in
2002 were to multi-ethnic areas, in contrast to 2000 and 2001 when the
vast majority were to mono-ethnic enclaves.

Strengthening its commitment to support returns and promote minority
rights, the Office of the Returns and Communities (ORC) within UNMIK was
restructured during the second half of 2002, adding Regional Return Units
(RRUs) to each of the five regions. At the same time, UNHCR handed over to
UNMIK some of its return related coordination responsibilities; including
leading the regional and municipal working groups on return.  By the end
of 2002, 27 out of the 30 (11) municipalities had functioning municipal
working groups (MWGs), which are providing forums for discussion on
community needs and democratisation in which minority returns,
sustainability of returns and related issues have begun to be discussed.
An important objective of the MWGs is to underline that local communities
have a responsibility for securing the conditions needed to sustain
returns, including respect for the full range of civil, cultural,
economic, political and social rights as embedded in Kosovo's
Constitutional Framework.

The revival of the Task Force on Return (TFR) and the setting up of a
Returns Coordination Group (RCG) in November 2002 also signalled a high
level commitment to push the return agenda forward. The TFR is policy
group chaired by the SRSG, which includes representatives from PISG, UNMIK
Pillars, ORC, UNHCR and KFOR and is tasked with establishing and
monitoring return policies, ensuring coordination and monitoring the work
of municipal and regional level working groups.  The RCG comprised of
PISG, UNMIK, ORC, UNHCR, KFOR, OSCE and NGO representatives provides
complementary inputs by serving as the central operational body for
returns.

Strengthened coordination structures are supported by ORC's 'Sustainable
Return Strategy for 2003', which emphasises political endorsement and
grassroots dialogue together with material assistance to address the
identified obstacles to return.  Further, procedural clarifications to
contribute to a more standardized approach to return assistance, has been
elaborated in the recently completed "Manual on Sustainable Return".
Produced jointly by ORC and UNHCR, the manual includes guidelines on
returnee assistance projects, clarifications of the roles and
responsibilities of 'return' actors, and definitions of recipient groups
and associated assistance requirements.

With investigation into pre-war residences and additional funding for the
Housing and Property Directorate and Claims Commission (HPDCC) recently
secured from the European Union, (12) progress on restoring properties to
their rightful owners is also expected during 2003.  While resolution of
IDP property claims (13)  represents an important step in removing a
physical obstacle to return, it also opens the possibility of increasingly
mono-ethnic areas, as at least some minority families may opt to sell
their homes and leave the territory.


Socio-economic

Kosovo's young economy remains heavily reliant on international aid and
development assistance. The Kosovo Statistics Office (KSO) has put
unemployment at an alarming 57%, with even higher rates consistently found
in minority and rural areas as well as for women throughout Kosovo. With
outside assistance expected to decline sharply in 2003, (14) unemployment
- at least in the short term - is likely to grow.  At the same time,
unregulated activities and organised crime dominate many areas of economic
interests and compromise prospects for private investments and
socio-economic advances.

Longer-term economic growth has however, begun to be addressed through
recent UNMIK initiatives aimed at stimulating an investment-friendly
environment through financial reforms and promotion of a free market
economy.  A key development in this area was the establishment of the
Kosovo Trust Agency (KTA) in June 2002, which will oversee the
privatization of some 350 socially owned enterprises.

To assist local economies during this difficult transition period, various
humanitarian organisations (15) continue to finance small to medium scale
income generation projects. With approximately 50% of Kosovo's population
living in rural areas, revitalisation of the agricultural sector is also
an important focus, which has been supported by initiatives such as FAO's
Support to Agriculture Reconstruction in Kosovo (SARK) project aimed at
improving livelihoods through financial and extension assistance to new
small-scale enterprise.  In mixed communities, projects usually target
both returnees and the receiving community to address returnee needs,
while also building confidence and assisting with the communities'
development priorities.


4. Vulnerability Analysis / Vulnerable Groups:

Minorities

Kosovo is home to diverse ethnic groups. While the overwhelming majority
of the population is Albanian, there are significant communities of Serbs,
Roma, Ashkalia, Egyptians, Muslim Slavs (Goranis), Bosniaks and Turks.
Subjected to various levels of ethnically motivated harassment and
violence after the 1999 conflict, minorities who remained within Kosovo
sought protection by clustering in groups.  As a result, enclaves
requiring heavy international monitoring to ensure the basic safety of
residents became home to most of the minority population remaining in
Kosovo.  Until recently, free movement outside of these enclaves has been
highly restricted.

While human security for all ethnic minorities has improved since the end
of the conflict four years ago, real as well as perceived threats
continue, with Serbs and Roma especially vulnerable to continued human
rights violations including physical assaults, verbal harassment and
widespread discrimination. For many minority individuals, the ability to
exercise their human rights as citizens of Kosovo remains severely
compromised.


IDPs

Approximately a quarter of a million of Kosovo's pre-war population (16) -
mainly Serbs, followed by Roma, Ashkalia and Egyptians - are still
displaced. (17)  The vast majority - some 205,000 - mainly Kosovo Serbs,
are in Serbia, while Montenegro hosts approximately 29,000 IDPs, the
majority of who are Roma.  In addition, an estimated 22,500 minority
individuals remain displaced within Kosovo proper and are scattered among
five regions including the ethnically divided municipality of Mitrovica.


Minority Returnees

Returnees, regardless of ethnicity or background, face enormous
difficulties upon return to their homes, many of which have suffered
severe damage, and to communities that are facing a host of socio-economic
challenges. For minorities, this process is often exacerbated by
ethnic-based hostilities, restriction on free movement and discrimination,
which obstructs access to humanitarian assistance, basic services,
markets, farmland and businesses. In addition, serious resource
limitations of Kosovo's nascent social welfare system combined with
dwindling levels of humanitarian aid constitutes a serious impediment to
providing even minimal levels of assistance to socially vulnerable groups.
(18) Unable to meet their basic needs or cope with the level of hardship,
many have belatedly or in some cases, for a second time, decided to leave
their homes for what they think will be more secure, socially and
economically friendly environments, as demonstrated in the continued
outflow of minorities from Kosovo. (19)


Footnotes

(1) PISG priorities include: 1) Consolidation of democratic structures; 2)
Increased administrative transparency and efficiency; 3) Improved
education standards; 4) Better health quality; 5) Economic development; 6)
Increased employment; 7) Pension and social assistance for vulnerable
groups and 8) Integration of all communities.

(2) Approximately 3,500 Macedonian refugees continue to be accommodated
with host families in Kosovo, many of who will be able to return home when
destroyed homes are rebuilt, planned for the spring and summer of 2003.

(3) According to UNMIK police there were 57 murders in 2002 compared to
136 in 2001, the majority of which were crime and not ethnically
motivated. Despite some promising indicators, minority advocates argue
that decreasing ethnic based crimes are because minorities no longer
venture into majority areas and also, that many crimes go unreported.

(4) For an overview of trends in security and freedom of movement, please
refer to the 'Update on the Situation of Roma, Ashkaelia, Egyptian,
Bosniak and Gorani in Kosovo,' UNHCR Kosovo, January 2003.

(5) PISG was established through the Constitutional Framework for
Provisional Self Government.

(6) Financed by EAR and implemented through FAO.

(7) The Deputy Prime Minister, Mr. Nebojsa Covic, is also head of the
Belgrade-based Coordination Centre for Kosovo.

(8) The Accord, signed by SRSG Steiner and Deputy Prime Minister Covic on
25 November 2002, includes the following seven points; 1) A promise to the
residents of the north that there would be no 'incursions' from the south;
2) Regular policing that includes Serbs in the KPS; 3) Co-governance
through a coalition agreement; 4) Decentralisation; 5) A quick economic
boost by housing the Kosovo Trust Agency in Mitrovica; 6) A donor's
conference for Mitrovica and 7) Serb political participation.

(9) Refers to ethnic communities whose members are a minority in the area
where they live (defined by OSCEUNHCR).

(10) The number of returns may actually be significantly higher as it is
recognized that not all returnees register.

(11) Dragas/sh, Malisheve / Malisevo and Podujeve / Podujevo have not yet
formed MWGs and the level of progress of functioning MWGs varies
considerably.

(12) The EU has provided €5.5 million in funding, nearly doubling the
HPDCC's budget.

(13) Thousands of property claims have been filed by minorities, whose
houses were occupied after fleeing Kosovo in 1999. Claims have also been
put forward by ethnic Albanians, including some who lost jobs together
with company flats during the late 1980's after Belgrade suspended the
Province's autonomy.

(14) International funding assistance for 2003 is projected at E231
million, compared to E554 million in 2001, representing a 58% decline.

(15) The International Organisation for Migration (IOM) funded by European
Agency for Reconstruction (EAR), UNHCR's Kosovo Women's Initiative (KWI)
and NGO projects (such as the American Refugee Committee and Mercy Corps
International projects financed by Bureau of Population, Refugee and
Migration (BPRM) are noteworthy in employment creation and income
generation activities.

(16) Obtaining accurate figures on the number of displaced has been
difficult with political motives often interfering with humanitarian
agendas for accounting.

(17) Estimates based on UNHCR criteria and figures. Actual number may be
significantly higher.

(18) For example, there has been no replacement for the WFP food safety
network programme, which ended in the summer of 2002.

(19) The actual number of departures is currently not known.


UNITED NATIONS OFFICE FOR THE COORDINATION OF HUMANITARIAN AFFAIRS
(UN OCHA)

New York Office
United Nations
New York, N.Y. 10017
USA
Telefax: (1212) 963 3630

Geneva Office
Palais des Nations
1211 Geneva 10
Switzerland
(41 22) 917 0368

Pristina Office
Qyteza Pejton, 14
Pristina
Kosovo
(381 38) 249 065



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