Project
Expanding legal support for displaced people and returnees in Serbia
A shooting for a documentary on IDPs and refugees.
NIRAS is leading this EU-funded project helping displaced families and returnees secure documentation, navigate complex legal processes, and claim their rights.
February 24, 2026
- SDG: #16
- SECTORS: Development Consulting
- COUNTRIES: Serbia
- DONOR: European Commission
- CLIENT: Office for Kosovo and Metohija of the Government of the Republic of Serbia
- CONTRACT VALUE: EUR 3,820,000
- DURATION: January 2024 – January 2028
Serbia’s recent history and its ongoing path toward European Union accession have created a complex environment for the protection of vulnerable groups. Among those most affected are internally displaced persons and returnees under the EU–Serbia Readmission Agreement, whose access to rights, public services, and long-term stability remains a pressing human rights and rule of law concern.
This EU-funded project strengthens access to justice by providing timely, coordinated, and free legal aid, while raising awareness of existing mechanisms for the protection and enforcement of rights. Building on decades of experience, the project’s legal teams operate at both local and national levels to help beneficiaries overcome administrative barriers, secure personal documentation, and resolve complex legal status and property issues—essential steps toward achieving durable solutions.
Through close cooperation with national and local institutions, civil society organisations, and Roma associations, the project complements Serbia’s strategic commitments on anti-discrimination, gender equality, and social inclusion, and contributes directly to European Commission recommendations on strengthening human rights protection and access to justice within the EU accession framework.
Comprehensive legal aid for IDPs: From advice to court representation
Since the 1990s, the Republic of Serbia has hosted approximately 200,000 internally displaced persons (IDPs) from Kosovo*. This population represents a significant share of Serbia’s nearly 7 million inhabitants. According to data from the Commissariat for Refugees and Migration, around one-third of IDPs—approximately 65,000 individuals—remain in a particularly vulnerable situation, often living below the social-welfare threshold, without adequate housing, and with unresolved property rights in their places of origin.
The project provides comprehensive legal assistance to IDPs involved in complex and frequently long-lasting property and status-related proceedings in Kosovo*. Legal support covers all stages of the process, including legal counselling, assistance with obtaining personal and civil status documents, preparation of legal submissions, and representation before courts and other competent institutions.
Building on more than 5,000 active cases inherited from previous Free Legal Aid initiatives, the project team has continued to deliver tangible results over the past two years. Experienced project lawyers have represented beneficiaries before courts in over 500 hearings, prepared 1,205 legal submissions, and facilitated the issuance of personal and property-related documents, including birth, citizenship, death, and marriage certificates, as well as cadastral and possession records. These interventions directly contribute to improving legal certainty and safeguarding the fundamental rights of IDPs.
*This designation is without prejudice to positions on status, and is in line with UNSC 1244 and the ICJ Opinion on the Kosovo declaration of independence.
212
cases successfully closed
526
representations before courts
1200
submissions to courts and other institutions
We lived as tenants for a long time, and now we are in our own home, our own freedom, I tell you... And what remained in Vitina is finally ours. The time has come to reclaim what is ours. I am truly grateful.
Project beneficiary
Strengthening legal support and reintegration of returnees under the Readmission Agreement
Returnees under the EU–Serbia Readmission Agreement constitute one of the most vulnerable groups within mixed migration flows. Upon return, many face serious legal and administrative obstacles, most commonly due to missing personal documentation and unresolved residence or citizenship status, which significantly restricts their access to basic rights, social protection, employment, education, and healthcare.
Through international assistance, the project delivers targeted, free legal aid to remove these barriers and support sustainable reintegration. Legal support includes counselling, assistance with obtaining personal and civil status documents, representation before competent authorities, and support in resolving residence registration and citizenship-related issues. Particular attention is given to vulnerable individuals and families, including women, children, and persons experiencing extreme social exclusion.
Implementation is grounded in strong institutional cooperation with the Commissariat for Refugees and Migration, relevant state authorities, local self-governments, civil society organisations, and international partners. Through mobile outreach and field-based interventions, the project ensures equal access to legal aid across the territory of the Republic of Serbia, reaching beneficiaries who are unable to engage with institutions independently.
Beyond individual casework, the project contributes to improved policy implementation and institutional practices by identifying systemic challenges and supporting evidence-based dialogue among key stakeholders. In this way, it delivers measurable results in support of Serbia’s EU accession process and the effective implementation of the Readmission Agreement.
151
obtained documents on behalf of IDPs
59
obtained documents on behalf of returnees upon readmission agreements
2892
calls received through toll-free call centre
Bringing legal aid closer to those in need
To ensure effective access to justice for beneficiaries facing severe material deprivation, health-related constraints, or mobility limitations, the project delivers legal assistance through a structured system of mobile legal teams. This approach enables the project to reach individuals who cannot access legal services through standard office-based channels.
Mobile teams conduct regular field visits and organise consultations at the premises of local trustees of the Commissariat for Refugees and Migration, partner civil society organisations, and collective accommodation centres. In cases involving serious health conditions or extreme vulnerability, teams directly provide legal assistance at beneficiaries’ places of residence.
The mobile outreach model has proven highly effective in expanding the geographical reach of free legal aid services across Serbia. Through continuous fieldwork, beneficiaries receive timely legal counselling and practical information, while cooperation with local stakeholders—including social welfare centres, the Red Cross, and local self-government units—ensures effective coordination and outreach.
From awareness to action: EU-funded legal aid for IDPs and returnees
Effective information dissemination and public awareness are key instruments for strengthening access to justice for IDPs and returnees under readmission agreements, fully aligned with IPA priorities and EU-supported rule of law reforms. By proactively communicating the availability of free legal aid services, the project helps reduce structural barriers and enables vulnerable groups to exercise their rights in practice.
Visibility initiatives translate complex legal frameworks into clear, user-friendly information that is disseminated through channels with strong outreach potential, including national and local media, community-based activities, mobile legal teams, and close cooperation with local institutions and civil society organisations.
Over the past two years, the project’s visibility team has systematically strengthened cooperation with national and local media, contributing to increased transparency and accountability in the provision of free legal aid. In partnership with the national public broadcaster RTS, it produced a TV documentary series showcasing successfully resolved cases of IDPs and returnees and clearly demonstrating the tangible impact of EU-funded support. With more than 25 media appearances, the project significantly improved public understanding of beneficiary rights, strengthened trust in legal aid mechanisms, and ensured broader and more sustainable outreach.
Ensuring continuity and sustainability of legal protection
Ensuring sustainable legal protection remains a long-term challenge, as many property and status-related cases extend over a decade. Continuous legal representation and institutional engagement are therefore essential to achieving durable solutions.
Thanks to the continued commitment of the EU Delegation to Serbia, the Office for Kosovo and Metohija, and the project partners, the initiative has been extended for an additional two years without interruption. Led by NIRAS Serbia, this extension guarantees continuity of free legal aid services and ensures that displaced people and returnees can rely on consistent, high-quality legal support while addressing complex and long-standing legal issues.
Lessons learned
- Public awareness and proactive communication are prerequisites for effective access to justice.
- Strategic media partnerships significantly enhance visibility, trust, and outreach of EU-funded legal aid services.
- Clear and accessible legal information reduces administrative barriers and empowers beneficiaries.
- Continuity of legal aid is essential for resolving long-lasting property and status-related cases.
- Strong institutional cooperation increases sustainability and supports broader rule of law reforms aligned with EU accession priorities.
