IMMIGRATION THE OLD NOTION OF A NEW REALITY OF SERBIA AND SOUTHEASTERN

EUROPE1
Immigration becomes a phenomenon about which there is no policy consensus in the EU and its
neighborhood. This article is a modest attempt to highlight numerous issues around socio-economic
consequences of increased influx of illegal immigration both in the recipient and sending countries.
Serbia passed the Law on Asylum, enforced as of April, 2008. This Law has been considered a good
starting point for establishing mechanisms for asylum practice. The reason for passing this law was
primarily the pre-accession requirement on a Serbian path to visa relaxation. The second reason is to
provide the legal framework for effective regulation of asylum seekers and refugees protection and
integration. Within the mentioned target groups, it is almost impossible to make a clear distinction between
certain categories. There are various classifications referred to as an immigrant, although they do differ in
the place of origin, how they got classified into the category of immigrants, legal framework regulating their
status, and the goals they set for themselves.
Serbia is the country of origin, transit and target country for a number of people who were forced to
abandon their homes, mostly from Northern Africa and Middle East, and recently from few countries in
SEE. They differ according to their status, social situation and rights they exercise in Serbia, but the
common denominator is that they are all affected by migration against their will. Serbia and the region of
Western Balkans in general, recognize the following categories of immigrants:
1.
2.
3.
4.
5.
6.

Transitory migrant categories

Fake asylum seekers
Emigrants
Immigrants
Internally Displaced Persons
Refugees
7. Returnees, under the Readmission Agreement
The number of asylum seekers from Afganistan, Palestine, Iraq and Somalia in Serbia is currently five
times higher than last year, i.e. 2350 persons were registered mid last year. These persons are entitled to
certain rights, depending on their country of origin and citizenship, but primarily the right to work and
access to social services such as health care, temporary housing etc.
Immigration to Serbia has become an issue from the moment the EU reached the Serbian borders. The
closer Serbia gets to EU accession, the more interesting it gets for immigration. Recent conflicts in
Northern Africa and the Middle East resulted with dramatic refugees situation, uncontrolled and massive,
and causing unexpected pressure on already weak economies and societies in neighborhood countries. All
these circumstances caused a drastic change in the number of people fleeing these regions. Serbia, as a
transit and host state, has done little to establish intercultural relations within an already diverse local
community. Despite adopting a range of different rulebooks on what steps should be taken at asylum
centers, practically, there is not one single comprehensive strategy for local and regional authorities or any
set of recommendations, which would ensure a more efficient integration of asylum seekers.
A very small number of institutions and organizations are currently dealing with this issue in Serbia.
Little information may be collected directly from the field, while more precise information and statistical data
could only be obtained through the work of a handful of organizations, such as the Ministry of Internal
Affairs, UNHCR, Group 484, and Center for Regionalism. The immigration issue in the SEE must be
considered from several angles. It has very complex and deep political, historical and social dimensions.
1

This policy brief was published in 2010 in CSOs Voice, a monthly newsletter collecting articles on
various topics and published by the Center for Development of Non-Profit Sector (CRNPS).

Western Balkans is a post-conflict society, with biased ethnic legislation, frequently discriminating those
who are members of other ethnic groups, as well as a number of minority communities and vulnerable
groups.
Serbia is a largest Balkan country with a growing economy and, as such, it will be more and more
attractive as immigrants destination. Therefore, from having the status of an emigrant country, soon -- and
rather paradoxically -- Serbia will get the status of an immigrant country. These new trends have been
particularly present since Serbia is on the EU borders. The European Commission has warned Serbian
authorities about the very visible number of people leaving the country. The European Parliament made a
recommendation to the EC on how to suspend the free visa regime to the Balkan countries. The
consequences of such suspension would be devastating. The EU could easily cause the isolation,
strengthening nationalism and animosity of the majority population towards Roma and Albanian national
minorities, which are already blamed by Serbians as the communities with the largest number of asylum
seekers to EU, and thus at the root cause of such EC decision.
In addition to those coming from North of Africa, the entire Western Balkans region still has unsolved,
large number of refugees from Croatia and Bosnia and Herzegovina, as well as internally displaced
persons from Kosovo. The recently launched 600 million EUR worth housing program under the Sarajevo
process has tackled housing for refugees and IDPs, but still, Serbia is facing active collective refugee
centers and lack of comprehensive approach to inclusion of these people. Little has been done for the
effective economic, political, social and cultural integration of these people.
Immediately after the visa liberalization process between Serbia and the EU, a large number of Serbian
citizens attempted to find a new life in Western Europe. Many of them sold their houses and estates in
Serbia. Many people have spent significant amount of money just to invest in an asylum application. It was
the case of abusing the asylum system as a back-door entrance for illegal migrants, where Serbian
authorities failed to respond on time.
Upon conclusion of the Readmission Agreement, Serbian citizens living in Western Europe -- and
whose asylum applications had been rejected or temporary protection had been cancelled -- are
continuously returning back to their homes in Serbia. The majority are of Roma origin, who left Serbia in the
first place due to discrimination. Most of the people who are subject of deportation are returning to their
origin localities without any property or accommodation, or changed social situation, and after having spent
many years abroad, some of them even more than 10-15 years.
So far, approximately 40.000 Serbian citizens have returned to Serbia as they were denied the right to
stay in different EU countries. At the same time, it is estimated that on the basis of the Readmission
Agreement, additionally, several tens of thousands will be returned to Serbia. These people need a social
network system which will make their re-integration into society effective. Recently, the EC recommended
to the EU countries to refrain from forced return of Roma to Kosovo -- who are exposed to life risk in
Kosovo -- stating that it could lead to the situation of secondary displacement. Some data show that 7075% of Roma returnees left Kosovo and Serbia again soon after their original return.
The Strategy and Action plans for reintegration of returnees have been adopted but the question on
financing specific integration projects remains open. Municipalities do not possess any available financial
means but also there is no political commitment or any pressure from the national level or from local CSOs
to start dealing with these issues. The Roma communities are in the worst position. They have limited
access to decision making but also to financial resources, and have neither knowledge nor experience in
proposing strategic interventions for more effective inclusion. The state does not allocate sufficient
investment in Roma integration, nor EU funded projects made substantial change. Roma community lack
strategic projects but also face lack of capacities in managing complex EU funded programs.

Few organizations work with national authorities, local authorities, OSCE and the Delegation of the
European Union, and with the beneficiaries to draft the framework for inclusion policies for all the above
mentioned categories. Civil society organizations are putting constant pressure on decision makers, to
commit political attention and mark financial means needed for effective integration. A special focus is on
the process of revitalization of local institutions dealing with the protection of vulnerable groups and other
communities, in order to make them more responsive, accountable, active and better equipped with
knowledge, intercultural competences and skills.