Ex-Yugoslavia - OFDA-01: 05-Dec-97

U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT
BUREAU FOR HUMANITARIAN RESPONSE (BHR)
OFFICE OF U.S. FOREIGN DISASTER ASSISTANCE (OFDA)

FORMER YUGOSLAVIA - Complex Emergency
Situation Report #1, Fiscal Year (FY) 1998, December 5, 1997
(Note: The last BHR/OFDA Situation Report was dated July 31, 1997)



Background

The continuing presence of the NATO Stabilization Force (SFOR) troops in
Bosnia-Herzegovina (B-H) and the recent municipal elections in B-H have
helped stabilize the region following the end of the war.  While some
progress has been made, problems still exist in the area of refugee
repatriation and the return of internally displaced persons (IDPs).  Those
who could most easily return home have already done so; the remaining
refugees and IDPs face greater obstacles because their homes are in areas
where they would be a minority.  Critical issues for returnees are safety and
security, housing shortages, inadequate municipal infrastructural services,
scarce employment opportunities, and a fragile economy. 

Creating an open civil society remains a challenge in the former Yugoslavia. 
While September elections went fairly smoothly, there remain challenges to
the democratic governance of B-H.  Recent allegations of corruption have been
made against B-H officials.  In the Republika Srpska (RS), a power struggle
between President Biljana Plavsic and Momcilo Krajisnik threatens the
stability of the region.  SFOR has been trying to limit the effects of this
power struggle by prohibiting police forces loyal to either faction from
taking independent action.  Plavsic is viewed by NATO countries as more
favorable to the objectives of the Dayton Peace Agreement. 


Numbers Affected

The World Bank reports that the war in the former Yugoslavia has resulted in
an estimated 250,000 dead and 200,000 wounded.  According to United Nations
High Commissioner for Refugees (UNHCR) statistics, there are still currently
1.4 million Bosnians in refugee and internally displaced status. 
Approximately 343,000 refugees are in other countries of the former
Yugoslavia, namely Croatia and the Federal Republic of Yugoslavia (FRY), and
266,000 Bosnian refugees are in west and central Europe, most prominently in
Germany.  There are also approximately 825,000 IDPs in B-H.  Since the
beginning of 1996, some 200, 000 Bosnians have repatriated (110,000 to date
in 1997) and over 200,000 IDPs have returned to their home areas in B-H
(60,000 to date in 1997).  Of this number, 32,500 of these refugees and IDPs
have returned to areas in which they are a minority.  As of August 1997, the
most significant number of UNHCR-assisted returns have been from Slovenia
(1,439), Switzerland (1,263), and Turkey (630).  Germany provided direct
assistance to facilitate the return of 35, 223 refugees to B-H.  UNHCR
estimates that about 220,000 Bosnian refugees may return to B-H in 1998. 
There are still over 330,000 Croatian refugees who have not repatriated. 

Total U.S. Government (USG) Humanitarian Assistance FY 1997: $282,649,968


CURRENT SITUATION

Although the war throughout the former Yugoslavia ended in December 1995 with
the signing of the Dayton Peace Agreement, living conditions remain insecure
and resources to support the return of refugees and IDPs are limited.  Donor
agencies are decreasing their funding and the focus of the remaining aid is
being shifted from emergency needs to rehabilitation. 


Refugee and IDP Returns

Even though civilian rehabilitation efforts in B-H are ongoing, the
availability of housing and financial resources necessary to implement the
smooth returns of refugees and IDPs remains limited.  Displaced populations
continue to live in collective centers, overcrowded private accommodations,
or abandoned and damaged houses.  Although most of the collective centers
have closed since the implementation of the Dayton Accords, 135 centers still
house approximately 14,400 people. 

While refugee returns to B-H for this year (as of August 1997) have amounted
to less than half that expected by UNHCR, recent returns have been to areas
where returnees belong to the minority ethnic group.  UNHCR's Open Cities
Initiative continues to identify communities willing to accept returns of
refugees and IDPs of all ethnic backgrounds.  To date, five cities (Bihac,
Busovaca, Gorazde, Konjic, and Vogosca) have shown commitment to allowing
returns in their areas.  UNHCR has called on international donors to provide
humanitarian assistance to the Open Cities. 

UNHCR has also established five transit centers for returnees in B-H in 1997
and is prepared to set one up in the RS should the need arise.  UNHCR has
reached a new agreement with the B-H Federation Ministry for maintaining and
running the transit centers and for rehabilitating four additional centers
located respectively in the Una Sana Canton, Sarajevo, Travnik, and an
as-yet-undetermined location. 

In the Muslim-Croat Federation, officials have held discussions on the
possible cross-ethnic return of up to 40,000 IDPs in the Central Bosnia
Canton.  This issue gained new urgency following the early August expulsion
of 700 Muslim returnees from their homes in Croat controlled areas
surrounding Jajce.  However, later on that month, many Muslims were able to
return to their homes. 

In the Una Sana Canton in northwest Bosnia, over half of the returnees are
relocating to homes other than their pre-war residences.  UNHCR has been
monitoring the situation to see if this creates any friction among local
populations. 

In the RS, there are no comprehensive plans for the return of refugees and
IDPs.  Many Serb officials emphasize that the return of refugees to the RS
cannot occur unless there is housing available after Serbs living in
collective centers are settled in homes.  However, particular cities have
shown a willingness to open their doors to returnees. The town of Sipovo is
one good example.  On October 27, the first Muslim family returned to the
town under a USG-funded program, and since then, a number of other families
have returned as well.  An increasing number of Muslim families are planning
to return, awaiting only the completion of housing repairs.  These programs
cover not only returns to Sipovo, but focus on infrastructural and economic
development that will help the entire town cope more easily with the return
process. 


Elections

Municipal elections were held in Bosnia- Herzegovina (B-H) on September
13-14.  The elections were generally peaceful, although there were some
irregularities.  According to the International Crisis Group (ICG) which
observed the elections, there were some irregularities in voter registrations
(Pale and Brcko) and vote counting tactics (Brvar, Zepce, Brcko, Srebrenica,
and Doboj). 

Councils were elected in 135 municipalities with a voter turnout of 86% in
the Federation and 89% in RS.  The total number of invalid ballots cast did
not exceed 4%.  Displaced persons gained representation of 50% or greater in
six municipalities and in 42 municipalities, they won 20 to 49% of the
council seats.  Overall, in 66% of municipalities, displaced voters won
representation, according to an ICG analysis of the election results. 
Parliamentary elections in RS took place November 22-23, but the final
results will not be available until December 10. 


SFOR

SFOR troops are scheduled to pull out of B-H in June 1998.  The U.S.  remains
engaged in discussions about further arrangements for the stabilization of
the area.  SFOR has taken steps to stabilize the political situation in the
RS created by the rivalry between Plavsic and Krajisnik.  It has prohibited
the independent movement of police forces loyal to the different factions,
and it recently took over a police station for violating this rule. 

Freedom of the press in the RS also continues to be a key issue.  Due to the
broadcast of ultranationalist propaganda to the exclusion of opposition
viewpoints, SFOR troops shut down and seized four Bosnian Serb television
transmitters in the eastern part of the RS (under Karadzic's control) in
October.  Broadcast media is the most accessible form of mass communication
for the Bosnian Serbs and broadcasts available in eastern RS are now severely
limited. 


Croatia

In Eastern Slavonia, no mass exodus of the Serb minority has taken place as
anticipated earlier this year.  Approximately 1,500 IDPs have returned to
Eastern Slavonia (the UNTAES region) from other parts of Croatia. At the same
time, 7,000 Croatian Serbs have left Eastern Slavonia to return to their
homes in other parts of Croatia, according to UNHCR.  The ICRC has stated
that if integration of Eastern Slavonia is successful, the agency will turn
over relief efforts to the Croatian government by spring 1998.  The UNTAES
mandate is scheduled to end on January 15, 1998.  However, an OSCE-led
international presence will remain. 

In the Krajina, tensions continue between the Serb minority and Croats; 
however, no further ethnic clashes are expected.  Thousands of Krajina Serb
refugees who fled the conflict in Croatia still remain in Kosovo. 


Federal Republic of Yugoslavia (FRY)

The FRY (composed of Serbia and Montenegro) is experiencing severe economic
difficulties at this time. Since 1990, the number of poor has doubled, with
650,000 people (out of a total population of 10.6 million) classified as
extremely poor.  Approximately 548,000 refugees and IDPs are currently in the
FRY. 

The return of refugees from the FRY to B-H and Croatia has been extremely
slow.  Only 9% of these refugees are seeking to return home and there are few
viable housing options available for them at this time.  Eight percent of
refugees are seeking resettlement in third countries, with the United States,
Canada, and Australia being the primary receiving countries.  Between January
and August 1997, 2,500 refugees have been accepted for resettlement in third
countries but only 1,359 have departed.  At this time, approximately 50,000
refugees are living in collective centers. 

Needs in the Kosovo region are dire for many of the 2 million ethnic
Albanians, and the estimated 12,000 - 15,000 Krajina Serb refugees. 
Currently, international efforts in Kosovo are mostly limited to meeting
humanitarian needs.  BHR/OFDA is the primary donor agency working in the
area, providing $5.7 million in relief assistance in FY 1997.


RELIEF EFFORTS

On October 14, 1997, U.S. Ambassador Richard D. Kauzlarich, citing instances
of acute humanitarian need, redeclared a disaster in B-H due to the ongoing
existence of a complex emergency.  BHR/OFDA's assistance continues to address
humanitarian needs which affect the transition to peace and the
reconstruction of the country.  On October 29, 1997, the disaster declaration
of the FRY was also renewed by U.S. Charge d'Affaires Richard M. Miles. 

The OFDA Disaster Assistance Response Team (DART) completed its mission to
the former Yugoslavia on September 30, 1997.  The DART had been in the region
for five years and had offices in Zagreb and Sarajevo, and sub-offices in
Tuzla and Split. 


OFDA Humanitarian Assistance for FY 1997

OFDA's programs cover winterization, basic agriculture, health and other
assistance to extremely vulnerable populations, and also help facilitate
refugee and IDP return programs. 


Winterization

BHR/OFDA has been preparing areas of the former Yugoslavia for the winter
months by providing $4,538,440 in grants to World Vision Relief and
Development (WVRD), Children's Aid Direct (CAD), Mercy International, Action
Contre le Faim/France (ACF/F), Premiere Urgence, CARE, the International
Rescue Committee (IRC), and Partners for Development (PFD) during FY 1997. 
The grants were used to buy and distribute winterization commodities such as
fuel, stoves, blankets, and clothing and provide emergency shelter repair. 


Basic Agriculture

In FY 1997, BHR/OFDA granted $3,319,937 to various NGOs for the provision of
seeds and tools to families in B-H and the FRY for the recovery of
agriculture on a small scale.  This aid has been distributed among returnees
and extremely vulnerable populations, among others.  The total number of
beneficiaries under these programs is 109,125 families and 10,000 extremely
vulnerable individuals (EVIs).  Of this total assistance, $553,784 in seeds,
tools, pumps, and sheeting was provided to 27,000 families in Kosovo through
a grant to Mercy Corps International (MCI). 


Health

BHR/OFDA provided $2,986,656 in FY 1997 grant aid to various NGOs for the
provision of emergency medical supplies, food and hygiene kits, and
immunizations for children.  An estimated 215,000 children under 6 years of
age were immunized under the International Medical Corps' (IMC) program. 
Solidarites implemented a program for the distribution of baby hygiene kits
for 2,000 beneficiaries.  Food and hygiene kits were among the aid
distributed by Doctors of the World (DOW) to tuberculosis sufferers in
Kosovo. 


Aid to the Elderly

In FY 1997, $1,398,161 was provided by BHR/OFDA to Premiere Urgence, Catholic
Relief Service (CRS), and CARE to provide assistance to the elderly and
disabled, who are particularly vulnerable in the post-war context.  This
assistance includes hygiene kits, home care, clothing, and coal. 


Water

BHR/OFDA funded the United Methodist Committee on Relief (UMCOR) to repair
water supply systems in Sarajevo and central B-H to focus on areas of refugee
and IDP return.  This grant amounted to $658,969. 


Shelter

USAID's $25 million Emergency Shelter Repair Program (ESRP), implemented by
BHR/OFDA, was completed by December 1996.  The ESRP surpassed its goal of
providing basic emergency repairs to 2,500 badly-damaged houses in
war-affected areas of B-H. Sixty percent of the 2,548 homes repaired are
located in villages in or contiguous to the U.S. area of responsibility
within SFOR. 


Other Humanitarian Assistance

In FY 1997, the U.S. State Department's Bureau for Population, Refugees, and
Migration (DOS/PRM) contributed a total of $78.2 million to UNHCR, ICRC, the
International Organization for Migration (IOM), World Health Organization
(WHO), and other international organizations and NGOs for the implementation
of return programs and for assistance to vulnerable populations in the former
Yugoslavia. 

In B-H, UNHCR is carrying out its Shelter Program in 80 municipalities with
the expectation of rehabilitating 7,780 housing units by the end of the year. 
This is to benefit 35,000 people.  A total of $48.9 million has been
allocated by UNHCR for shelter activities, of which $45.7 million has gone to
housing, $0.8 million to maintenance and rehabilitation of transit centers,
$1.5 million for the maintenance of collective centers, and $0.9 million for
the repair of social infrastructure.  The EU and the World Bank also carry
out significant shelter assistance. 

ICRC is concentrating on distribution of winter supplies such as fuel,
clothing, food, and winter wheat seeds. ICRC will have a continuing focus on
assistance to vulnerable populations, while reducing its aid in the
water/sanitation and health sectors. 


SUMMARY OF USG FY 1997 ASSISTANCE

In FY 1997, the USG has provided $282,649,968 in assistance to the former
Yugoslavia through USAID, Department of State, and Department of Defense
(DOD) programs. The following sections provide details on this funding. 


USAID/BHR/OFDA

As previously detailed, BHR/OFDA obligated a total of $19,681,308 to address
the emergency humanitarian needs (food, health, water/sanitation, seeds and
tools) of vulnerable groups in the region through its NGO implementing
partners.  The total amount obligated includes $2 million in Rapid Response
Funds, for small scale, quick impact response to emergency needs. BHR/OFDA FY
1997 . . . . . . . . .$19,681,308


USAID/BHR/FFP

The Office of Food for Peace (BHR/FFP) gave Title II food assistance to B-H
through grants to a number of NGOs.  The Adventist Development and Relief
Agency (ADRA) received $5,620,900, the American Red Cross (ARC) received
$6,501,600, Catholic Relief Services (CRS) received $4,430,700, International
Orthodox Christian Charities (IOCC) received $3, 935,000, and WFP received
$22,038,400 in aid to be used for food distribution in B-H.
BHR/FFP FY 1997. . . . . . . . . .$43,724,000


USAID/BHR/OTI

BHR/OTI provided 550 grants to over 200 indigenous media and civil society
organizations to support peace-building efforts, alter hardline perceptions,
and develop democratic governance. 

BHR/OTI began programs in Croatia and FRY in the final months of FY 1997.
BHR/OTI FY 1997. . . . . . . . . . $7,600,000


USAID/ENI

USAID/ENI has contributed $101,137,140 to reconstruction programs, $16,630,
977 to economic stabilization, $10,522,743 to democratic reform, and
$14,408,974 to training and State Department programs in police training,
demining, election support, and human rights in B-H.  USAID/ENI has also
given $2,702,000 to democratization and civic programs in the FRY. 
USAID/ENI FY 1997. . . . . . . . $130,992,860


STATE/PRM

The Bureau for Population, Refugees, and Migration contributed $44 million to
UNHCR, $8.6 million to ICRC, $2 million to the International Organization for
Migration (IOM), $1 million to the World Health Organization (WHO), and $22.6
million to other international organizations and NGOs for refugee
repatriation and assistance to vulnerable populations in the former
Yugoslavia. 
STATE/PRM FY 1997. . . . . . . . .$78,200,000


DOD/PKHA

During FY 1997, DOD's Office of Peacekeeping and Humanitarian Assistance
(DOD/PKHA) provided 450,000 humanitarian daily rations (HDRs) to Belgrade and
Zagreb valued at $1,800,000.  PKHA has also provided 7 containers of medical
and school supplies valued at $28,300 and shipped at a cost of $529,500. In
addition, 21 Denton shipments of humanitarian goods for PVOs and NGOs were
made on a space available basis and $94,000 was spent on bailey bridges. 
DOD/PKHA FY 1997 . . . . . . . . . $2,451,800


TOTAL USG FY 1997. . . . . . . . $282,649,968



The USG has provided over $1.6 billion in assistance to the former Yugoslavia
since 1991: 

USG FY 1991. . . . . . . . . . . . $1,000,000
USG FY 1992. . . . . . . . . . . .$47,362,239
USG FY 1993. . . . . . . . . . . $343,841,260
USG FY 1994. . . . . . . . . . . $387,869,602
USG FY 1995. . . . . . . . . . . $181,571,978
USG FY 1996. . . . . . . . . . . $399,102,409
USG FY 1997. . . . . . . . . . . $282,649,968

TOTAL USG FY 91-97 . . . . . . $1,643,397,456