Return to Kosovo

June 30, 1999

In the first three weeks since implementation of the peace agreement began, nearly 500 thousand refugees have made their way back into Kosovo. While confronting a still difficult and dangerous environment, the population is repatriating at a rapid rate in an effort to reclaim their homes and begin the rebuilding process before severe winter weather strikes. Instrumental in assisting the refugees in these first months back in their heavily damaged towns and villages and to begin the reconstruction process are many international agencies and NGOs.

To share current information on the on-going repatriation to the province, Carnegie Endowment's International Migration Policy Program held a policy briefing with panelists Karen AbuZayd, UNHCR Regional Representative to the U.S. and Canada, Aslam Aziz, Minister Counselor for Development Affairs at the Delegation of the European Commission in Washington, Nancy Lindborg, Vice President of the Mercy Corp, and Reynold Levy, President of the International Rescue Committee (IRC).

This report summarizes the remarks of the panelists and moderator Kathleen Newland, senior associate and co-director of the International Migration Policy Program, as well as questions and responses from members of the audience.

Welcoming the panelists, Kathleen Newland expressed concern over the difficulties that both the returning Kosovars and the international organizations were facing in the midst of the "fast moving crisis" that has seen the return of about 300,000 people in just the past 6 days.

Karen AbuZayd opened by noting that while one-half million refugees have returned, one-quarter million are still waiting to go home. UNHCR, already operating in 7 cities in the region, is trying to ensure the safety of the refugees. For this reason it has made the effort to persuade refugees, through pamphlet distribution, information campaigns and education, not to return to the region unaccompanied. The reasoning behind UNHCR’s concern is threefold: the lack of security in the province (lack of police forces), the level of destruction (contamination of wells, lack of electricity, etc,), and the desire to ensure an international presence to assess needs and protect the security of the population. Ms. AbuZayd stated that at this point KFOR has confirmed the safety of only 3 cities, including the capital, Pristina. Despite the attempts to organize the repatriation, spontaneous returns have been taking place at the rate of 30,000 or more per day. In contrast, UNHCR-organized convoys from Macedonia are returning only 300 Kosovar refugees daily with the number expecting to rise soon to around 800. One factor that may help to quell this rapid trend is the high cost (100-300 Deutsche Marks) that many refugees pay to return independently. Those who cannot afford this must rely on the controlled repatriation.

In reference to de-mining, UNHCR relies on KFOR forces to establish safe passage. KFOR, however, "has not done the country roads," which is problematic since that is the route by which many Kosovars make their way to their homes.

UNHCR sends daily convoys to distribute food and provisions incuding plastic sheeting and mattresses, as well as personnel to assess the security needs and the damage to the infrastructure of the province. There has been an effort to get skilled workers and doctors from among those who fled back into the province. According to the shelter consultants, over 45,000 houses need to be repaired.

Since the repatriation has gathered force, the humanitarian evacuation program has been suspended except for medical cases and cases involving special protection needs.

While it is important to recognize the needs in the small province, AbuZayd cautioned against focussing too closely on Kosovo, a tendency that diverts attention from the needs of other powers of the region including Macedonia and Albania and Bosnia. For example, she noted that seven de-mining teams from Bosnia have been relocated to Kosovo, despite the fact that the need for de-mining in Bosnia remains acute.

Additionally, UNHCR is concerned over the ethnic minority groups specifically the Serbs of Kosovo of whom more than 70, 000 remain, as well as the Roma. While there is a desire to preserve a multi-ethnic region, the implementation is more difficult. Some groups of Serbs "are in very bad shape—there is a call out to do what we can." While ethnic tensions have not been eradicated, AbuZayd emphasized, "We have achieved a reversal of ethnic cleansing."

The main issue now is one of funding. As of the beginning of July the budget for humanitarian relief in Kosovo has only $2.4 million remaining, but the mission needs $10 million a month to sustain operations. UNHCR is appealing for $550 million to be able to carry through the rest of the year.

In closing, AbuZayd made an urgent appeal to remember other refugee situations around the world particularly in Sierra Leone and Eastern Congo, where what is going "is pretty dreadful."

Having begun his career working in emergency response to drought and famine in Ethiopia, the European Commission’s Aslam Aziz, empathized with the humanitarian crisis in Kosovo. "You cannot see people in these situations without being affected."

To begin explaining how the EU is responding in Kosovo, Aziz insisted that the reconstruction process must be inclusive and provide assistance to other countries, and to the Serbs as well. "Europeans are doing their utmost, but nothing is possible unless the Serbs help us."

Aziz clarified that the EU utilizes NGOs and IGOs as the means to implement EU funded programs. Currently, 182 million euros are earmarked for the rebuilding projects, with more available. In an unexpectedly positive response to Ms. AbuZayd’s call for UNHCR funding assistance, Aziz remarked, "All requests will be looked at with sympathy and understanding."

Aziz next highlighted the importance of a regional approach and the launching of the Stability pact for Southeastern Europe, which targets the five countries of Bosnia-Herzegovina, Croatia, Former Yugoslavia, Albania, and Macedonia, but encompasses 16 countries in total. The purpose is gradual integration into EU structures through agreements "tailor-made to each country" and the goal of improving living standards. "Kosovo will not develop by itself no matter how much money is poured in." The essential changes will not come "unless surrounding countries are moving hand and hand." Under the pact, special EU coordinator, Bodo Hombach, will head an EU reconstruction effort that parallels the structure of the UN interim administration mission in Kosovo. Aziz outlined the 3 working "tables" of the new Stability Pact aimed at determining the future political administration and structures of Kosovo. The three working tables are: democratization and human rights, security, and economic reconstruction and reform.

Aziz acknowledged that implementing reconstruction will be a formidable task. It is, most important that what comes out of the meetings in New York are sustainable results. Reconstruction, according to Aziz must be sustainable, not just in monetary terms but in administrative capacity and fiscal and monetary support structures.

The EU has also established an agency to implement reconstruction in coordination with the World Bank and IMF. The aim is to start rebuilding or creating monetary and fiscal structures that will endure. Part of the plan involves setting up donor meetings in July. A website on reconstruction has been created which will be fully functional by the end of July.

According to Aziz, preliminary figures for reconstruction for the next 3 years will range from 1-1.5 billion euros. To meet this high price tag, "the EU hopes to put in 500-700 million euros within the first three years."
 
 To give a different perspective, Mercy Corps’s Vice-President, Nancy Linborg, shared her memories of June 15, when she accompanied a convoy of refugees back into Kosovo. "It was an exercise in waving," said Linborg, recounting the elation of the returning Kosovars. She recalled the "whoops of joy" as the convoy made its way into the "remarkably intact" city of Pristina. The city suffered less damage than expected, with most of the destruction localized to a few neighborhoods with looting and accounting for the majority of the wreckage. Surprisingly the public utilities were still in operation, but as soon as the Serb employees began leaving the city, the water system and other utilities shut down. It took days for KFOR to get everything back in service.

Moving west from Pristina, Linborg noted that the damage worsened, as the mood of elation turned somber. In particular, the city of Pec is destroyed. Linborg labeled it a "ghost town," describing the burned out houses and empty streets.

Despite the destruction, the Kosovars show remarkable determination and an ability to respond to the needs of reconstruction. Lindborg made a point to distinguish between the void in province-wide administration and the tremendous capacity of the community and grass roots organization to mobilize and respond to the emergency. Lindborg pointed out the effectiveness of voluntary organizations like the Mother Theresa Society, an agency that has operated for 9 years in Kosovo and has branches in virtually every little town and hamlet throughout the province. Its membership is almost entirely composed of volunteers. This form of charitable service, according to Lindborg, forms "the backbone of society’s ability to respond to emergencies."

As a note of caution, Lindborg suggested that the strategy of many international organizations to hire the Kosovar population to do secondary distribution (which provides desired employment opportunities) could undermine the volunteerism on which the grass-roots efforts depend.

On the subject of coordination and sharing of information, Lindborg spoke highly of the efforts between OCHA, UNHCR, and KFOR within Kosovo. "I give high marks to the Brits and Americans in what they are doing for security." She suggested that the Italians need to take a stronger role in the sector they control, but assessed that their behavior is most likely derived from their understanding of their mandate.

Like the first two panelists, Lindborg stressed the importance of the regional approach and maintaining support for both Macedonia and Albania. She suggested the continuance of procuring supplies regionally, so as not to abandon these two countries. Most strongly, however, Lindborg recounted the will and motivation of the Kosovar people to rebuild their communities. "The number one need identified to me was to get back to work as soon as possible." And, she said, "this is going to happen fast…The Kosovars are not going to wait around." Recalling how in just a few days Prizren was transformed from a ghost town back into a center with a bustling fruit and vegetable market, she noted that "reconstruction by self-help will happen faster than we think." However, there is still a need for very substantial international assistance.

In closing Lindborg reiterated the importance in taking the lessons learned in Bosnia and applying them to Kosovo. She stated while assistance is needed in this area now it is essential to also get resources and personnel back to other trouble spots.
 

"I have never seen so many tears," remarked Mr. Reynold Levy in reference to his 10-day visit to refugee camps in Macedonia and Albania. Stating that it is no surprise to anyone who had spoken to refugees how rapidly the return movement has occurred, Mr. Levy reconfirmed Ms. Lindborg’s positive evaluation of the will of the Kosovar people. Levy related that IRC has been Kosovo since 1996, conducting programs in mobile health, informal education, and rapid response in coordination with indigenous organizations. From his visit with the refugees, he observed first-hand their "palpable yearning to go home" and of their "palpable yearning to rebuild."

"My principle concern is that the Europeans will over-plan, over-bureaucratize, and over-committee" the reconstruction effort. While attempting to assist in the rebuilding of the Kosovo province Levy fears that international actors often sideline the capabilities of the local population. "They require support, as they define it." In an effort to work with the Kosovo population, Levy described the IRC’s equivalent of a "phone book," in which people may register according to province and, thus, are able to locate one another. Similarly the Kosovars are developing on their own the equivalent of a "yellow pages," a register of businesses, professionals and skilled people that will be made available to NGOs and IGOs for hiring and contracting purposes. In respect to such projects, Levy announced, "we should follow the lead of the population rather than endeavoring to lead it."

Levy made two further observations about the efforts of the IRC in Kosovo. First was the concern over the internally displaced people (IDP) during the military campaign. In an effort to respond to the cross-border reports of severe malnutrition, the IRC coordinated with OFDA to conduct food drops for the 2 1/2 weeks before the signing of the peace agreement. While acknowledging organizational problems, Levy stressed the importance of multiple actors in responding to this type of crisis where there are honest differences of opinion on how best to respond to urgent needs. While many organizations were reluctant to partake in the food drops, Levy presented the controversial campaign as a "proud episode in IRC’s history." The advantages of pluralism should be kept in mind amid the concerns that Kosovo could begin to resemble a "humanitarian theme park" due to the multiplicity of actors.

Mr. Levy’s second observation about the Kosovo response is that it has provided an opportunity to educate people and open up public discussion on refugee issues. There has been a "reawakening of Europeans and Americans to what it means to be a refugee. "Doors that were once shut are now slightly ajar and we are able to push them open, and doors that were slightly ajar are now wide open." While there has been a lot of talk of humanitarian doctrine and complaints of NATO tactics-- lateness in acting, vulnerability of precluding ground troops, "I would regard these as qualifiers to an overall episode of which we can be proud."

Echoing Ms. AbuZayd’s remarks, Mr. Levy reiterated that the IRC is active in many other refugee situations. While many aspects of the Kosovo crisis and response have been atypical because it is taking place in Europe, Levy forcefully stated that the ironies of disproportionate support and attention are not lost on those working in Africa. "Genocide is still genocide, trauma is still trauma."

In conclusion he too emphasized the power of the will of the people of Kosovo to mobilize and actively respond to the crisis. Among the people you find an unparalleled resilience. The will to rebuild, to stand up to family needs, and to reconstruct a society is no where stronger than in this society.
 
In the discussion period, an audience member inquired as to the special needs of women as well as to the kinds of assistance programs that may exist in Kosovo.

Nancy Lindborg responded with the names of some women’s NGOs of Kosovo, but suggested that these groups cannot confront the physical and psychological effects of war alone. Rather, they require outside assistance. She noted there are efforts to bring groups from Bosnia who have experience in dealing with these issues. Kathleen Newland who traveled to Macedonia with the Women’s Commission for Refugee Women and Children in May, added that there is a "great deal of capacity" already within Kosovo. Grass roots organizations educate women about their rights as well as the opportunities open to them. In the post-war environment, more and more families are headed by females. Ms. Newland reminded the audience that in the case of the Bosnia, women’s organizations were neglected in the early in that crisis. It took the efforts of the Bosnian Women’s Initiative to turn the trend around and increase awareness and funding for women’s enterprises. Karen AbuZayd offered her hope that UNHCR would be able to replicate the Bosnian Women’s Initiative with a similar program in Kosovo.

A second question came from the audience: Have there been any decisions as to the type of administrative structure of Kosovo? Mr. Aziz restated that this exact issue, which is urgent in nature, is now being considered at meetings at the United Nations in New York.

Next, Rod Mackler from the Refugee Bureau at the Department of State, commented that on, June 29, by decree, a judicial advisory panel was setup that included one Serb, and one Slavic-Muslim. He reemphasized the point that the future of Kosovo is not and should not be exclusively Albanian. There are other ethnic minorities to consider.

Lois McHugh of the Congressional Research Service, asked the panel to comment on the widespread criticism United Nation’s idleness when it came to taking charge of the crisis. Ms AbuZayd defended the U.N. actions pointing out that the crisis really began in March and that since then the civil part of the UN has actually accomplished quite a lot.

Ms. Lindborg, who spent time on the ground in Kosovo and other areas in the region also did not have much criticism for the U.N. but rather suggested that in her experience the response had been "extraordinarily fast." Finally, Mr. Levy offered that while there was considerable criticism in the early stages in Macedonia and Albania, the efforts of OCHA to share information have been "spectacular for coordination." He reminded the audience that it is often easy to find fault with the U.N.; however, often the biggest critics are those who are in the best position to provide the necessary funding that in turn may make all the difference in determining the capabilities of the United Nations.