Making a difference
Duration of the case: 15 months (October 2004 - December 2005).
Prepared by: Vladimir Jovanovic
Civic Initiatives, Serbia
May 2006
Abstract
This is the report on the project “Making a Difference” – Civil Society Development Program in Serbia
2004/2005. Program was proposed and implemented by Civic Initiatives.
This programme is continuation of the previous 4-year programme with the same name “Making a
Difference” which was focused on strengthening the NGO sector in Serbia, encouraging development of local
NGOs/initiatives and networking and on support to active and participatory citizenship, especially among
youth and other vulnerable groups. Four-year programme resulted in strengthening CI as one of the leading
organizations in the sector, as well as creation of FeNS – Federation of NGOs in Serbia, and significant
development of youth component of Civic Initiatives programme, both in terms of internal capacities, as well
as in the environment (youth educational programme became a part of the official education system
curriculum).
Background
Changes in the external context:
Since the end of 2000 Serbia has witnessed extraordinary changes. After Presidential elections, massive protests which
installed Vojislav Kostunica as the President of Yugoslavia and victory of Democratic Opposition of Serbia (DOS)
coalition at Parliamentary elections, the regime of Slobodan Milosevic was ended. At the federal and republican levels,
a completely new team has taken over with members of Serbia’s civic movement highly represented. Unfortunately,
within a rather short time, dangerous tensions between Kostunica’s party and the rest of the coalition gathered around
prime minister Djindjic, appeared mostly concerning cooperation with the Hague Tribunal and the delivery of
Milosevic. Serbian political space was divided between traditionalists (with a strong nationalistic ideology) and
reformists. A very dangerous obstruction process was initiated in the Serbian Parliament by DSS (Kostunica party) and
actively supported by Seselj’s Radical Party, Arkan’s Party and Milosevic’s Socialists. Opposition to reforms
culminated in the assassination of Prime Minister Djindjic and resulted in a long parliamentary crisis and a series of
unsuccessful presidential elections. The Parliamentary elections in December 2003 did not bring political stability. The
minority coalition was formed by Kostunica with a support of Milosevic’s Socialist party in order to surpass the number
of seats gained by the second largest parliamentary party, Radicals. The Government has been formed on a vertical
monopoly and division, meaning that one party completely controls one area on all levels and there is no “interfering” in
each other’s “territory” (e.g. DSS controls the Police and Judiciary; G17, all financial institutions etc). The price of
compromising with SPS is that the reforms are slowed down; even regressive laws have been passed (e.g. law for
financial support to the Hague Tribunal indicted). The legacy of the Milosevic regime still exists, links between
organized crime, war crimes and political extremism, and their continued obstructive presence within parts of the
current political, institutional, military and state security systems. Nationalism continues to be the dominant political
idea in Serbia today and the most conservative force, the Orthodox Church has a large influence on political issues. The
Presidential elections of 2004 and the victory of Boris Tadic seemed as an important event that would bring some
optimism for the future of Serbia. However, the practice so far showed his lack of determination in preserving
democratic values. Only a small number of democratic parties can be described as having a distinctly liberal and proEuropean platform. The consequences are visible: immediate neighbors and the international community remain
suspicious of the Serbian governments’ path. (The “Mladic case” is the best description of the current situation.)
In this context the economic reforms has been slowed down as well. Official figures for end-2004 showed an
unemployment rate of 32.4%, as compared to around 27% three years earlier. Until early 2004, inflation in
Serbia had been continuously falling, but in the last two years we are facing re-emerging of inflation that is
now being projected to 18% on annual basis. The process of privatization in Serbia has been started in 2001,
but has recently been slower than foreseen. The process of restructuring some 60 large insolvent socially
owned companies that were identified in 2002 by the Privatization Agency has progressed only slowly. The
restructuring of network industries, such as the energy, telecommunications or transport sector, is still in its
infancy.
All above mentioned points out that there is reason for serious concern as there are still many indications that
Serbia faces much more difficult challenges and dangers than most of its neighbors in Central and Eastern
Europe. The consequences of dictatorial heritage and wars are still profound: most of Serbian society is
insular, politically disoriented, passive in the face of authority, lacking knowledge of democracy and
democratic institutions, suspicious of Western and European standards of human rights and minority rights,
and, in the aftermath of a continuous ten-year drumbeat of nationalist ideology, deeply intolerant. Middle
class ceased to exist and the number of the poor increased two and a half times. Every tenth citizen (10.5%) in
Serbia was poor in 2003 and more people live somewhat above the poverty line. Faced with severe problems
of society impoverishment, the Government adopted the Poverty Reduction Strategic Paper (PRSP) in
October 2003. It defines poverty as a multidimensional phenomenon which, apart from the insufficient
income for covering basic life needs, also entails the lack of access to employment, inappropriate residential
conditions and inadequate access to social protection, health, education and communal services. Other key
aspects of poverty also include the lack of access to healthy environment and natural resources, primarily
clean water and air.
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After 2003 parliamentary elections and a forming of a minority Government, Serbian civil society was at a
crossroads. The role and position of NGOs in relation to the Government were not clearly defined. There is no
consensus on partnership with civil society and we have the impression that the new Government is accepting
the presence of NGOs mostly because of pressure from the international institutions. Ideas such as citizens’
participation are viewed as not a real issue and pushed aside by all political factors. At the beginning of 2005,
CI carried out the NGO survey with a goal to assess the current state of the sector and the challenges it faces,
so that the sector and those who support it might be able to react adequately (the survey can be found in pdf
format on www.gradjanske.org). The overall results of the research were alarming. The very survival of the
sector has been seriously endangered, as up to 63 % of organizations had not secured resources for 2005 (at
the beginning of 2005). The reasons are diverse and among the main ones is the lack of domestic fiscal
regulations for the sector functioning and the exit strategy of international donors. Funding by international
donors for a long time will not and cannot be replaced by financing from domestic sources due to the
disinterest of government and local business to fund it. It became obvious that many NGOs, especially on the
local level, are discouraged by these trends and are closing down. This demands an urgent and all
encompassing united strategy to maintain the sector in such a condition so as to satisfy at least the basic needs
of the society, and not to harm the process of democratization. The results which the sector has achieved in
spite of the complicated and unfavorable circumstances are a guarantee that the sector, with adequate support
from donors, the state, and the business sector, is capable of overcoming the existing crisis, and contributing
to the dynamic development of civil society, and thereby the development of Serbia into a modern,
democratic European state.
About the organization
For detailed information about Civic Initiatives, please visit www.gradjanske.org
Goals and Objectives
The aims and objectives of the proposed continuation of the programme were defined as follows:
1.
2.
3.
4.
Designing the new Law on NGOs
Legal regulation of financing and financial management of NGOs
Creating institutional channels for communication with the Government
Starting design of the national Strategy for Sustainable Development of the Civil Society
Description of the implementation
Contribute to the legal and fiscal regulation of the non profit sector

Civic Initiatives as a part of the FeNS network, worked in cooperation with the Ministry for public
administration and local self-government, and experts from ICNL on development of the new legal
framework for the non profit sector. A final draft of NGO law has been designed and is about to be adopted in
the Parliament. According to procedure of enacting laws in Serbia, this draft law is sent to National
Parliament of Serbia to be discussed and voted upon, after it has passed Governmental procedure, at which the
draft law is recommended to be adopted. It is also necessary to point out that delegation of FeENS, consisted
of 5 representatives of FeNS Council had a meeting with the President of the Republic of Serbia, who said
that he supports initiative of adopting and enacting new law on citizens’ associations.
This law is the necessary frame for regulating other aspects of NGO work.

Thanks to the conference on VAT held in April 2005 in cooperation with ICNL, amendments to the
Serbia Value Added Tax (VAT) Law came into force on July 25, 2005. Most significantly, the amendments
exempt foreign donors from paying value added tax (VAT) on the import of humanitarian goods to Serbia.

On the basis of advocacy training courses in 7 pilot communities, NGOs initiated changes within the
municipal budget development processes. Since the whole project started at the end of the municipal budget
preparation schedule, this created a basis for the next year’s budget development. To assist NGOs in practical
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way, we prepared and put on our web site the guidelines for providing financial resources from municipal
budgets that raised enormous interest of our NGO sector (more than 500 hits on our web site over weekend):
“Directions for starting the process of securing means from budgets of local self-governance for the purpose
of running NGO”.
Promoting the NGO sector and its role in the civil society and citizen participation

Active presence in variety of media, round tables organized in the local communities as well as
through new web site of FENS, contributed to re-branding of the image of sector that is more and more
perceived as a respected actor in the society. Most recently, the surveys led by CESID and by Strategic
Marketing Agency showed that NGOs have better image and are more trusted than political parties and most
state institutions. However, this is far from being sufficient for the NGO sector image. A lot more needs to be
done in this area.

Through intensive training for municipal councilors, we promoted the expertise and image of the
sector, as well as through the printed materials and handbook for municipal representatives

In addition to the round tables, meetings with mayors and citizens, the regular annual Conference of
Federation of Nongovernmental Organizations of Serbia was held on November 26-27th. Themes covered
included analysis of work of FeNS for the year ended, and further strategy of acting towards the state,
business, media and public in general. Some of the subjects brought up at the Conference were the following:
European Integrations, Employment and Social Policy, The Issue of Kosovo and Montenegro, The Issue of
past and relations towards past, Education, etc. Representatives from 160 FeNS-member organizations from
Serbia were present at the Conference, as well as representatives from International organizations and
institutions and representatives of 'core diplomatique'. Аs a result, declaration was developed right after the
Conference, stating current situation in Serbia and the engagement of FeNS in the period to come.

Increased involvement of young people in the NGO work and several new youth NGOs established in
different towns

To introduce the culture of transparency of NGO work and contribute to re-branding of its image, we
published a “Handbook for financial management for NGOs”, the first of its kind in the NGO sector in
Serbia.
Encouraging cooperation between government and NGOs

CI contributed to better contacts between NGOs and local governments through encouragement of
cooperation in the “Exchange” program (aimed at local municipalities). As a result, the best programs within
this EAR funded line are developed in those municipalities where there was established cooperation between
public and non-profit sector. In addition, in cooperation with Standing Conference of Cities and
Municipalities, we published a “Handbook on how to prepare and write project proposal for EU
(distributed to ALL municipalities in Serbia)”. Although it is primarily aimed at the representatives of the
municipalities, the NGO community can use it as well. We also used this opportunity to encourage
municipalities to set up cooperation with NGOs in their local communities, to use their expertise and to set up
partnerships for the better quality of life of all citizens.

Through advocacy training and other CI activities, we encouraged NGOs to initiate contacts with
respective municipalities

Through “Global Opportunities Fund” program, we encouraged cooperation between different actors
(media representatives, representatives of local community and local authorities) in 5 local multiethnic
municipalities in Vojvodina

FeNS is established as a respected representative of NGO community, recognized as a partner in
communication with the government. FeNS has a secretariat that is attached to CI for resources purposes, and
is functioning smoothly with FeNS members regularly meeting and receiving information (through the
mailing lists, 1.800 users and through the newsletter MREZA distributed in 2000 copies)

FeNS organized meeting with mayors of several cities and discussed possible cooperation at local
level.
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
We had intense cooperation with the Government Councils for European Integration, PRSP
Implementation and Sustainable Economic Development.

Through “Civic Education” program, we set up an example of good professional relationship between
NGO and the Ministry for Education and Sport. We are given a task of “reshaping” the whole program of
Civic Education in primary and secondary schools.
Conclusions and lesson learned
CI is recognized as a leading organization in the sector and is also perceived as being responsible and able to
act fast, to unite NGOs and to speak on the NGO sector behalf. This means that we are expected to work on
two parallel tracks: One creating a favorable framework for civil society development that will allow existing
and new NGOs to survive actual, everyday problems. The second track needs to be a thorough, complex,
multilevel and multi faceted long term process of interconnecting different aspects of NGO development,
relations with government and citizens motivation and education for active participation in social, political
and economic changes. We anticipate that, with the current level of the state administrative capacity,
economic situation and level of NGO development, this will take minimum 3 years of joint work of different
actors, to set up a framework for civil society development that we will be happy with.
In setting up the outcomes and milestones for this programme CI had high expectations based on the
assessment of the political context of the time when the program was created. Like many times before, things
went in direction no-one could predicted and this required from us to act promptly and to adapt our strategy
according to the changing situation. We showed a great deal of flexibility and adaptability. Still, in that
respect, the question that remains for us is how to find the right measure between on what is possible to
achieve and how to properly measure it.
Although the image of the sector is better than this of a state and of the political parties, it is still not positive
enough nor is sector recognized by state institutions, the public and citizens in such a way that we can rest.
Much more needs to be done in this area.
We learned that patience plays a very important role in creating efficient and influential networks be it issue
related or long term strategic goals.
We noticed that the best results were achieved when different stakeholders were brought together and have
been supported by CI in different aspects of their work (example of 5 towns in Vojvodina and of our youth
program). We noticed that our presence in the field, consultancy and on-going work with NGOs, citizens and
local administration officials is the best approach in assisting them to establish cooperation and partnerships.
In the turbulent political situation, FeNS proved to be of utmost importance for the NGO sector existence and
recognition. Despite the fact that FeNS is not the voice of the whole sector (in terms of number of NGOs in its
membership), it has strength and leading role in advocating for the position of the NGO sector in Serbia. At
the same time, by participating in the GROUP 8 at hoc coalition, we learned how strong can be a voice of
united strong human rights NGOS in raising awareness and advocating for necessary changes in the society.
We want to point out that the respect we gained and the influence we have is also a result of our continuous
and consistent persistence on a value system that respect individual and collective rights, promotes and
demonstrates tolerance of diversity, transparency and accountability.
Contacts information
Vladimir Jovanovic, Civic Initiatives
Simina 9a, 11000 Belgrade
Serbia and Montenegro
Tel: ++381 11 262 5942
e-mail: vlada@gradjanske.org
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