- The importance of successful reintegration is best illustrated by Bosnia and Herzegovina's current demography (see Box 1 for some key demographic figures, Map 1 for a map of Bosnia and Herzegovina's administrative borders, and Annex 2 and 3 for population figures in Bosnia and Herzegovina and for refugees abroad respectively). According to some conservative estimates, Bosnia and Herzegovina has lost at least 15 percent of its pre-war population due to war and emigration (with substantial regional variation: over a third decrease in Una Sana, Posavina, Sarajevo, Western Bosnia and Neretva Cantons, a slight increase in Tuzla-Podrinje, Western Herzegovina and Gorazde Cantons).
About 600,000 refugees are still abroad (with refugee status), of which 250,000 are Serbs (mostly in the Federal Republic of Yugoslavia), 250,000 are Bosniacs (mostly in Germany and other Western countries, such as Austria and Sweden) and 100,000 are Croats (mostly in Croatia). A large number of those currently in Germany are expected to be repatriated in 1998. According to some local personalities and foreign observers, emigration has not yet come to a halt: some young and educated urbanites, as well as ethnic minorities, are, reportedly, still leaving the country.
Displaced persons still account for about a quarter of the population (29 percent in Republika Srpska, 22 percent in the Federation).
In addition, there are about 40,000 refugees from Croatia in Republika Srpska (ethnic Serbs from Kordun, Lika and parts of Dalmatia, as well as Slavonia (former UNPA areas). Effective minority return in Republika Srpska is clearly linked to their return to Croatia, for both political and practical reasons.
Returns - A Slowdown In 1997
- More than 400,000 people (refugees and displaced persons) have returned since 1996. However, the time of "easy returns" may be over, as a large proportion of the persons who are still displaced or refugees originate from areas where they would now be ethnic minorities (see Annex 4 for a breakdown of returns per year, category and canton of destination in the Federation, and Map 2 and 3 for movements of refugees and displaced persons, respectively):
- The number of returns fell by 40 percent in 1997 (150,000 vs. 250,000 in 1996). Returns of displaced persons dropped from 160,000 in 1996 to 50,000 - which suggests that most displaced persons who were able and willing to go home have already done so, and that movements of displaced persons could therefore remain limited in 1998 (at least as long as minority return continues to be impeded). Refugee returns increased only slightly over the same period (from 85,000 to 100,000), but voluntary repatriation declined.
- 80 percent of returns took place in the Federation (90 percent of refugee returns) in 1996 as well as in 1997. Even within the Federation, returns are not equally spread throughout the Cantons and municipalities. Ten municipalities have received two thirds of the returnees from abroad - and the two Cantons of Sarajevo and Una Sana account for 55 percent of returns (see Map 1 attached). Similarly, movements of displaced persons have taken place almost exclusively within the Federation (mainly in Una Sana, Tuzla Podrinje, Central Bosnia and Sarajevo Cantons).
- Half of the returnees have relocated, i.e. resettled in a place which is not their place of origin, particularly in Bosniac-controlled areas. And although they account for half of those still abroad, only 5 percent of refugees originating from Republika Srpska have returned.
Minority Returns - Still Anecdotal
- Minority returns remain at a very low level in both Entities (about 6 percent of total returns - see Annex 5 and Map 4 for registered minority returns in 1997) - and they need to change in nature to gain significance:
- Minority returns are very localized: in most Cantons, they took place in only one or two municipalities, often as a result of strong international pressure.
- Returning minorities are often either isolated individuals (usually elderly people) or communities moving collectively with strong international back-up. Minority returns do not correspond yet to continuous population flows.
- Only about 2,000 persons have returned across the Inter-Entity Boundary Line since 1996. In Republika Srpska, out of 900 minority returns, 75 percent took place in the Zone of Separation (ZOS). Except for Banja Luka (with just over 150 returns out of a pre-war minority population of about 80,000), no municipality has registered the return of more than a few persons. In the Federation, minority returns are primarily internal movements, which affect particularly the Posavina, Central Bosnia and Sarajevo Cantons. With the exception of Sarajevo, these movements involve very few Serbs (8 percent). Some observers have also noted the ongoing departure of minorities from Sarajevo which could in fact partially or fully offset the effects of the return movement.
Missing Data For Effective Assistance
- Detailed and reliable data on refugees, displaced persons or residents are currently not available, including statistics on refugees currently hosted in Germany, the Federal Republic of Yugoslavia or Croatia. Population figures and refugee numbers are often limited to (usually inflated) estimates. Information on factors critical for assistance program design such as places of origin, age groups (children, working age adults, pensioners), economic and social situation (e.g., education, pre-war activities, family status), is currently non-existent. Such data are, however, clearly necessary to target assistance adequately and ensure its effectiveness. Efforts are urgently needed to collect and analyze all necessary information.
- To identify the main trends and patterns, both the European Commission (EC) and the World Bank have undertaken complementary surveys, to be completed within the next months. In addition, data on the number and future plans of displaced persons and refugees are expected to be generated from a registration exercise. The registration will be carried out by the Entity authorities in 1998, with the support of UNHCR, in accordance with the new legislation to be passed on refugees, displaced persons and repatriates. But accurate information will most likely not be available in a timely manner to decision-makers - and systematic forward planning of population movements will not be possible before financing decisions are made. In this context, and in order to avoid misallocation of scarce resources, donors should focus their financial assistance on accompanying population flows, as well as supporting focused interventions aimed at promoting return.
- The preparation of cantonal (in the Federation) and municipal return plans, as requested by the Bonn Peace Implementation Conference, is nonetheless important in order to identify measures that should be taken (and possibly assistance which would be needed) in case returns do happen. Such plans have already been developed by the Central Bosnia, Zenica - Doboj, and Western Herzegovina Cantons, and UNHCR and OHR have committed themselves to assisting relevant authorities in this endeavor. The Federation Government is also preparing a plan, for refugees returning both within the Federation and in Republika Srpska. Such preparatory steps, as well as more detailed project preparation efforts in some instances, are essential to ensure a rapid response from the donor community to actual movements.
A.2. TRENDS
Current Preferences of Refugees and Displaced Persons - Conditional Retur
- Two surveys recently conducted by the Commission for Real Property Claims of Displaced Persons and Refugees (CRPC, established under Annex 7 of the Dayton Peace Agreement) and by the Danish Refugee Council (DRC) provide some information about the preferences of refugees and displaced persons under current circumstances. Although the survey sample is perhaps not fully representative of all refugees and displaced persons, identified trends are consistent with registration patterns for municipal elections (to vote for the place of origin or for the place of residence) and with an analysis of claims submitted to the CRPC. These preferences are not, however, static and may change as the political and security environment improves.
Preferences are closely linked to ethnicity (see Table 1). The large majority of displaced Serbs intend to relocate within Republika Srpska (or in third countries) - while Bosniacs, and to a lesser extent Croats, appear more willing to return to their places of origin.
Exceptions to general "ethnic patterns" are very local and often occur in municipalities where large returns would challenge the current majority. This is true in both Republika Srpska and the Federation. The CRPC survey also observed that the determination of minority displaced persons to return to municipalities where they were pre-war majorities (or large minorities) seems often premised on a desire to alter the political control of the return destination. Reciprocally, current majorities (and authorities) are very reluctant to accept returns of large groups which could challenge their status. This suggests that minority returns may be easier to achieve in areas where an overwhelming pre-war majority still exists.
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