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27 January 1992
Doc. 6554
1403-27/1/92-1-E
Report
on the crisis in Yugoslavia: displaced population
(Rapporteur: Sir John HUNT, United Kingdom, Conservative)
Problem
The crisis which broke out last summer between Serbs and Croats in Yugoslavia has led to large movements of civilian population within the republics and autonomous provinces, from one territory to another and to the neighbouring countries. At the end of 1991, the total number of displaced persons was estimated to be more than 600 000.
Resources of host families lodging displaced persons and of the neighbouring countries, notably Hungary, are becoming insufficient as the crisis continues. Since several towns and villages have been wholly or partly destroyed and the infrastructure of the country broken down, a large majority of the displaced persons have no place where to return.
Regardless of agreements to guarantee safe-passage, humanitarian international organisations have experienced great difficulties in gaining access to certain areas to provide assistance to those in need.
Proposals
The Council of Europe member states should relieve the fate of the displaced persons within Yugoslavia and in neighbouring countries and provide them with adequate assistance. Special attention should be paid to unaccompanied children who constitute a significant group among the victims of the war in Yugoslavia.
The member states should show solidarity with the countries accommodating the displaced persons and increase their financial support to the International Committee of the Red Cross (ICRC), the Office of the United Nations High Commissioner for Refugees (UNHCR) and the various humanitarian international organisations assisting the displaced population.
The Committee of Ministers should examine ways in which the Social Development Fund could be used to improve the humanitarian situation of the displaced population and to facilitate their voluntary return to their home republics.
I. DRAFT RECOMMENDATION
1. The crisis, which broke out between Serbs and Croats in Yugoslavia in June 1991 has caused the displacement of more than 600 000 persons, many of whom have been obliged to seek refuge in neighbouring countries.
2. The Assembly is deeply concerned at the grave consequences of the Yugoslav crisis on the afflicted population, whose situation continues to deteriorate as the conflict continues.
3. Numerous unaccompanied children among the displaced persons need special help to overcome the hardship caused by the displacement and the separation of families.
4. Regardless of agreements to guarantee safe-passage, the International Committee of the Red Cross (ICRC) and other humanitarian international organisations have experienced great difficulties in gaining access to certain areas to provide assistance to those in need.
5. After seven months of crisis, the strain on host families accommodating these displaced persons and on the neighbouring countries, notably Hungary, is becoming more and more difficult to sustain.
6. Consequently, the Assembly recommends that the Committee of Ministers:
i. launch an appeal to the conflicting parties to respect, in all circumstances, the four Geneva Conventions of 1949 which provide protection to wounded military personnel, to prisoners of war and to civilian persons in time of war;
ii. take the necessary measures to set up rapidly an early warning and emergency relief system, so as to allow member states to co-ordinate and improve their assistance to the displaced population as long as the crisis persists;
iii. take urgent measures to assist unaccompanied children, victims of the crisis, to withstand the distress and reunite with their families;
iv. examine ways in which the Social Development Fund could be used to improve the situation of the displaced population, to facilitate their voluntary repatriation and to reconstruct the areas ravaged by the war;
v. invite the governments of member states:
a. to support the fullest possible protection of minorities and human rights which will encourage confidence in those displaced persons who feel that they would be at risk if they returned;
b. to show greater solidarity with the countries accommodating displaced persons by stepping up aid;
c. to increase their financial support to the International Committee of the Red Cross (ICRC), the Office of the United Nations High Commissioner for Refugees (UNHCR) and the various humanitarian international organisations assisting the displaced population.
II. EXPLANATORY MEMORANDUM
by Sir John HUNT
Contents
Page
INTRODUCTION 4
DISPLACED POPULATION 4
A. Within Yugoslavia 4
B. In neighbouring countries 6
a. Hungary 6
b. Austria 6
c. Italy 7
d. Other countries 7
PROPOSALS FOR COUNCIL OF EUROPE ACTION 7
INTRODUCTION
1. Following the adoption of Resolution 969 (1991) on the crisis in Yugoslavia, the Assembly, in Order No. 466 (1991), instructed the Committee to keep a close watch on the situation of the population displaced by the crisis, both within Yugoslavia and in the neighbouring countries, and to report back in due course.
2. The crisis, which broke out between Serbs and Croats in Yugoslavia in June 1991, has had destructive consequences on the socio-economic and political structures of Yugoslavia. Industrial production has almost collapsed and inflation has been pushed up. Living standards have fallen to such an extent that mass poverty may emerge.
3. Cities, in areas where fighting has taken place, have been devastated and left without any infrastructure. Running water, electricity and fresh food are lacking, the telephone lines are cut. Damage to property is widespread; houses and belongings that people left behind as they fled have been completely destroyed.
4. Despite pressures exerted by the international community, diplomatic negotiations and economic sanctions, Serbs and Croats have so far refused to accept a peaceful settlement of the conflict. Until January 1992 cease-fire agreements were not respected by the combatants. On the contrary fighting intensified, leaving behind a rapidly increasing number of victims and more destroyed villages.
5. Your Rapporteur is especially concerned at the fate of displaced persons as a consequence of the crisis. Ever since the crisis broke out, there have been large movements of civil population within the republics and autonomous provinces, from one territory to another and to neighbouring countries. The situation of this population deteriorates and the number of displaced persons continues to increase with the intensification of the crisis. These population movements have reached proportions that are difficult to cope with in an appropriate manner. Moreover, the spread of fighting to areas where civilians had sought refuge, have forced them to escape once again. Many among them have been trapped in strife-ridden cities and have been forced to spend several months in provisional shelters.
6. The neighbouring countries, notably Hungary, will have difficulties in accommodating further influxes of Yugoslavs, unless international organisations and the other European countries provide appropriate assistance.
DISPLACED POPULATION
A. Within Yugoslavia
7. According to registration lists established by local Red Cross offices, there were some 400 000 displaced persons in Yugoslavia at the beginning of November 1991. As a consequence of the surrender of Croatian forces in Vukovar to the Serb-controlled Federal army on 18 November 1991, the number of displaced persons was estimated to have reached over 600 000 at the end of 1991.
8. At that time, most of the displaced persons were in Croatia (293 000), Serbia (88 000), and the autonomous provinces of Vojvodina (56 000) and Kosovo (1 000). There were also significant numbers to be found in Bosnia-Hercegovina (100 000), Slovenia (23 000), Montenegro (7 000) and Macedonia (2 000).
9. A majority of the displaced persons are non-combatants, that is to say women, children and elderly. Displaced persons are lodged with host families (relatives, friends or private individuals) or in collective centres (hotels, holiday camps, boarding schools). The proportion of private accommodation versus collective reception centres varies from one republic to another.
10. Regardless of agreements to guarantee safe-passage, humanitarian organisations have experienced great difficulties in gaining access to certain areas to provide assistance to those in need. When local cease-fires were arranged by the International Committee of the Red Cross (ICRC) or the observers of the European Community, some humanitarian convoys have succeeded in bringing refugees and wounded to safety.
11. At the end of November 1991 a hydrofoil chartered by the United Nations Children's Fund (UNICEF) was allowed by the Yugoslav Federal navy to pass through to Dubrovnik. Shortly afterwards, Italian and French naval hospital ships arrived bringing in food, drinking water and medicines. Plans existed to employ European warships to patrol on the Adriatic a "corridor of humanity" for the delivery of food and medicines. The ICRC is currently carrying out a sanitation project in Dubrovnik aiming at improving the water distribution network.
12. The main difficulty still remains that the security of the humanitarian convoys, as well as that of the ICRC staff and medical personnel, cannot be guaranteed.
13. In hospitals medical personnel work under extremely difficult conditions lacking sufficient equipment, operating without anesthesia and working for long hours.
14. The ICRC has been present in Yugoslavia since the outset of the crisis. It has 50 delegates working in Yugoslavia, based in its offices in Belgrade, Ljubljana, Zagreb, Rijeka, Dubrovnik, Osijek (Slavonia), Split, Sarajevo, Banja Luka (Bosnia-Hercegovina), Herceg Novi (Montenegro) and Skopje (Macedonia). These delegates are in daily contact with the authorities and the local Red Cross in their respective places. The ICRC has set up, in co-operation with the local Red Cross offices, a programme to support the existing medical structures in Yugoslavia so as to ensure necessary medical and surgery services. Since 3 January 1992, the ICRC has established a protected zone around the Osijek hospital in Slavonia, in compliance with the provisions of the Geneva Conventions of 1949.
15. The ICRC cares for the immediate needs of the displaced population. It has launched an appeal to national Red Cross societies to provide family parcels for the displaced containing hygiene and food items. Its assistance programme includes also blankets and plastic window sheeting in order to face the winter.
16. At the request of the United Nations Secretary General, the Office of the United Nations High Commissioner for Refugees (UNHCR) will provide assistance (food, hygienic products, etc.) to displaced persons in co-operation with the ICRC. UNICEF and the World Health Organisation (WHO) have decided to join and to offer assistance in their specialised fields. This United Nations programme is scheduled for 6-7 months.
17. Furthermore, the ICRC visits prisoners held by both parts and transmits messages between the detainees and their families. It also operates a tracing agency which aims at locating lost family members. Under the auspices of the ICRC, a joint Commission, on which both parties to the conflict are represented, has been established in Pecs (Hungary), in order to trace missing persons and mortal remains.
B. In neighbouring countries
a. Hungary
18. Since the outbreak of the crisis and until the end of November 1991, some 45 000 Yugoslavs had arrived in Hungary. A majority of them are Croats (67%) and ethnic Hungarians (26%). There is a great number of Yugoslavs who have not been registered, as they are staying with friends or relatives and have not turned to the Hungarian authorities for help. After the fall of Vukovar the number of Croats who have arrived in Hungary increased rapidly.
19. Hungary has accepted Yugoslavs on a temporary basis, thus no individual decision has been taken with regard to their refugee status. As the prolongation of the crisis has diminished hopes for return, the situation has turned into a permanent one and some of the displaced persons have asked for authorisation to stay as migrants. In fact a great number of Yugoslav villages, where these persons come from, have been devastated. Very often their homes have been destroyed, thus most of them have no place where to return.
20. At the beginning of November 1991 there were eight temporary collective reception centres in southern Hungary operated by the Ministry of the Interior. Another reception centre is operated by the interchurch commission. The centres were full already in August 1991. These centres, most of them former army barracks, are of a provisional nature. Some buildings lack heating and hot water. As the persons living in these centres fled quickly, all their belongings, including basic items needed on a daily basis, were left behind. Besides accommodation, the Hungarian authorities provide them with medical services and some pocket money. Some of the Yugoslavs are working in farms.
21. There are numerous unaccompanied children among the displaced persons. They have been sent to Hungary by their parents who have chosen or been forced to remain in Yugoslavia. The crisis, because of the separation of families, causes a special hardship on children. The Hungarian Red Cross has taken a positive step in helping these children by setting up schools for them with teachers speaking Croatian.
22. The Hungarian Government's resources are largely stretched. Financial and assistance in kind has been received from Germany, Denmark and Japan. The UNHCR and the ICRC have promised to give Hungary some financial support.
23. Finally, it must be pointed out that since the beginning of the crisis Hungary has refused to close its borders with Yugoslavia for humanitarian reasons.
b. Austria
24. At the beginning of November 1991, between 6 000 and 8 000 Yugoslavs had arrived in Austria. Since they can enter without visa formalities, it is difficult to establish any numbers. Similar to those displaced in Hungary a large majority of them stays with friends or relatives. There exists no special structure to receive these persons. However, the Ministry of the Interior provides them with pocket money and sickness coverage.
25. When the Committee visited the refugee camp of Traiskirchen at the end of October 1991, around a hundred Yugoslavs were arriving every day at the camp.
c. Italy
26. Some 5 000 Yugoslavs have gone to Italy. They are authorised to stay on a temporary basis. Several Italian municipalities have provided them with lodging. The Italian Government has prepared measures in order to be able to face further inflows. Tents and caravans have been installed along the Adriatic coast to receive these persons.
d. Other countries
27. During the last months other European countries, mainly Germany, have been faced with an influx of Yugoslav citizens, the exact number of whom has been impossible to establish. Because of the developments that have taken place in Yugoslavia, most of them would be confronted with great difficulties if they tried to return. Thus they have decided to extend their stay in the host countries. However, without a residence permit, they could find themselves in the same situation as illegal migrants.
PROPOSALS FOR COUNCIL OF EUROPE ACTION
28. The number of displaced persons could increase if the crisis in Yugoslavia continues. In Slavonia and in some areas of the Croatian coast, persons who have already fled the war torn areas were forced to move again as the combats spread. Consequently, populations are forced to flee in increasing numbers to the neighbouring countries.
29. In Hungary, resources of friends and families accommodating these displaced persons are becoming insufficient. The Hungarian Government is turning to humanitarian and international organisations, such as the UNHCR, the International Federation of Red Cross and Red Crescent Societies and the ICRC for help. Need for medicine and food is increasing as the crisis lasts. Furthermore, during the winter, special items, such as blankets, are needed.
30. Since there is a large number of children among the displaced persons, special attention has to be given to them. Even though their presence in the neighbouring countries is of a temporary nature, activities such as going to school play an important role in helping them forget the events taking place at home. Therefore, they should be offered educational and recreational facilities.
31. Measures can already be planned to facilitate the voluntary return of displaced population. Since many villages have been destroyed and the economic infrastructures broken down, rebuilding the country to resettle the returning persons must be considered as a priority.
32. The Council of Europe member states must show solidarity to the countries accommodating the displaced persons. They also have to increase their financial support to the ICRC, the UNHCR and the various humanitarian organisations assisting the displaced population.
33. The Assembly should invite the Committee of Ministers to examine ways in which the Social Development Fund could be used to improve the humanitarian situation of the displaced population.
Reporting committee: Committee on Migration, Refugees and Demography.
Budgetary implications for the Assembly: None.
Origin: Order No. 466 (1991) of 21 September 1991.
Draft recommendation: unanimously adopted by the committee on 21 January 1992.
Members of the committee: MM. Böhm (Chairman), Cucó, Tasçioglu (Alternate: Demiralp) (Vice-Chairmen), Mr Altug, Mrs Arnold, Mrs Astgeirsdottir, MM. Aylward, Biefnot, Brincat, Eisma, Mrs Ekman, MM. Fiorini, Flückiger, Foschi (Alternate: Parisi), Mrs Francese, MM. Fuhrmann, Galley, Gassner, Ghalanos (Alternate: Matsis), Grussenmeyer (Alternate: Worms), Mrs Hacklin, MM. de Hoop Scheffer, Huber (Alternate: Ruffy), Sir John Hunt, Mr Konen, Lord Mackie of Benshie, Mrs Mascher, MM. Mota Torres, Pahtas, Mrs Persson, MM. Sarafopoulos, Skaug, Mrs Sormova, Ms Szelényi, MM. Ternak, Uyttendaele, Vázquez, Vieira Mesquita.
N.B. The names of those members present at the meeting are underlined.
Secretaries to the committee: Mr Sorinas and Mrs Ruotanen.