Procesuiranje predmeta ratnih zločina u Bosni i Hercegovini (2004 – 2023)1 Misija OSCE-a1u Bosni i Hercegovini (Misija) vrši sveobu- Neriješeni predmeti ratnih zločina na svim hvatno praćenje postupaka pred tužilaštvima i sudovima nivoima pravosuđa u BiH u predmetima ratnih zločina u Bosni i Hercegovini (BiH) od 2004. godine.2 U svrhu upotpunjavanja praćenja postupaka, Sva tužilaštva u BiH imaju značajan broj neriješenih predmeta Misija je 2014. godine započela provođenje Projekta praće- ratnih zločina, s tim da pod tim predmetima podrazumijeva- nja rada na predmetima ratnih zločina (WCMP), finansiranog mo predmete na svim nivoima pravosuđa u BiH u kojima su sredstvima Evropske unije, u sklopu kojega Misija prikuplja i ratni zločini prijavljeni, ali ih tužilaštva još nisu procesuirala. analizira podatke u vezi sa neriješenim predmetima u fazi prije Osim 322 predmeta ratnih zločina u kojima je osumnjičeni podizanja optužnice za svaki prijavljeni potencijalni predmet poznat (KTRZ), od ukupnog broja neriješenih predmeta, ovaj ratnog zločina. Oslanjajući se na ove izvore podataka, u ovom broj neriješenih predmeta uključuje 2.919 prijavljenih ratnih sažetom prikazu daje se statistički pregled okončanih pred- zločina u kojima osumnjičeni nije poznat (KTN) ili pak nije meta ratnih zločina i onih koji su u toku pred svim sudovima izvjesno postojanje krivičnog djela ratnih zločina (KTA). S ob- (nakon potvrđivanja optužnice) i tužilaštvima (prije potvrđi- zirom na tempo rješavanja KTN i KTA predmeta, sve je manje vanja optužnice) u BiH.3 U ovom sažetom prikazu također vjerovatno da će oni ikada doći u fazu potvrđivanja optužnice se predstavljaju i ključni trendovi u procesuiranju predmeta ili daljeg toka postupka. seksualnog nasilja u oružanom sukobu. Kako bi se potaklo efikasno i učinkovito procesuiranje nerije- šenih predmeta, Državnom strategijom za rad na predmetima 1 Ovaj sažeti prikaz sadrži podatke dostupne Misiji i koje je Misija potvrdila, ratnih zločina (Strategija) – usvojenom 2008. i revidiranom zaključno sa 31. decembrom 2023. godine. S obzirom na to da je Misija pra- tila različite podatke u različitom periodu, vremenski rasponi na koje se odnose 2020. godine (Revidirana strategija)4 – predviđeno je da podaci mogu varirati. Osim toga, prilikom vršenja analize, Misija je uzela u obzir neminovan uticaj pandemije COVID-19 na rad i efikasnost pravosuđa u BiH. 4 (Revidirana) strategija predviđa kriterije za ocjenu činjenične i pravne 2 Termin „ratni zločini“ koristi se za predmete koji uključuju optužbe za složenosti predmeta. Vidjeti, Aneks A (Revidirane) strategije. Iako je Strate- genocid, zločine protiv čovječnosti i ratne zločine u skladu sa odredbama gija pretrpila značajne izmjene i dopune tokom procesa revizije, suština međunarodnog humanitarnog prava. strateških ciljeva ostala je uglavnom neizmijenjena, čime je osiguran konti- 3 U svrhu očuvanja objektivnosti Programa za praćenje sudskih postupaka nuitet i dosljednost u provođenju Strategije nakon revidiranja. Stoga, kada Misije, svaka rasprava o predmetima koji su u toku, uključujući i one koji su se u ovom dokumentu govori o strateškim ciljevima, poziva se i na prvobi- u fazi prije podizanja optužnica, ograničena je na kvantitativne podatke. tnu i na Revidiranu strategiju, ukoliko nije drugačije naznačeno.
Pregled neriješenih predmeta 2437 2373 2500 2350 2276 2079 2000 1732 Broj neriješenih predmeta
1517 1500 1402 1249 1240 1042 1054 1048 1082 1009 948 1000 846 773 698 621 571 495 500 395 322
0 0 0 0 0 0 0 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Ukupan broj KTRZ predmeta 1009 948 846 773 698 621 571 495 395 322 Ukupan broj KTARZ predmeta 0 0 0 2437 2373 2350 2276 2079 1732 1517 Ukupan broj KTNRZ predmeta 0 0 0 1042 1054 1048 1082 1249 1240 1402 Ustupljeni predmeti (2009 – 2023)* Predmeti Oznaka ustupljeni na 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Ukupno predmeta nivo:
KTA 0 3 1 11 6 2 1 2 2 5 0 0 2 5 5 45 Federacije KTN 0 0 0 0 0 0 0 0 1 83 34 118 93 40 36 405 BiH (FBiH) KTRZ 3 31 15 134 37 32 20 25 13 38 16 38 16 10 4 432
KTA 0 0 0 1 2 0 0 0 2 6 1 0 0 7 4 23 Republike KTN 0 1 0 0 0 0 0 0 0 9 13 69 71 36 30 229 Srpske (RS) KTRZ 3 9 8 70 13 9 11 4 5 24 10 24 8 7 2 207
KTA 0 1 0 0 0 0 0 0 0 0 0 0 0 3 0 4 Brčko distrikta BiH KTN 0 0 0 0 0 0 0 0 0 1 0 11 18 5 2 37 (BDBiH) KTRZ 0 0 1 1 0 0 0 0 1 1 1 0 1 1 0 7 UKUPNO 6 45 25 217 58 43 32 31 24 167 75 260 209 114 83 1389
* Izraz „ustupljeni predmeti“ odnosi se na predmete koje je Sud BiH ustupio sudovima u entitetima i BDBiH, u skladu sa članom 27/27a Zakona o krivičnom postupku BiH. Ovaj grafikon sadrži podatke od 2009. godine, nakon usvajanja Državne strategije za rad na predmetima ratnih zločina do kraja 2023. godine, što predstavlja najnovije potpune podatke dostupne Misiji.
Tužilaštvo BiH u svom radu prioritizira najsloženije predmete, Udio CRSV predmeta u na osnovu kriterija u pogledu težine krivičnog djela i svojstva ustupljenim predmetima (2009 - 2023) i uloge počinitelja te da se rješenjem Suda BiH5 vođenje po- stupaka u manje složenim predmetima ustupi sudovima u entitetima i Brčko distriktu BiH (BDBiH). Nakon početnog 152 usporenog tempa ustupanja predmeta, niz sastanaka koje je 11% omogućila Misija u 2018. godini, rezultirao je time da je Tuži- laštvo BiH izvršilo ocjenu složenosti neriješenih KTRZ pred- CRSV predmeti meta i najavilo ustupanje preostalih manje složenih predmeta sudovima u entitetima i BDBiH. Dakle, svi preostali predmeti 1237 Drugi predmeti u Tužilaštvu BiH trebali bi biti složeni u skladu sa kriterijima 89% utvrđenim Aneksom A Revidirane strategije. Misija trenutno vrši analizu optužnica koje je podiglo Tužilaštvo BiH kako bi se utvrdilo da li je to provedeno u praksi.
Važno je spomenuti da je od ukupno 1.389 ustupljenih predmeta, Tužilaštvo BiH ustupilo samo 152 predmeta koji obuhvataju navode seksualnog nasilja u oružanom sukobu (CRSV predmeti), što može ukazivati na to da se takvi predmeti načelno ocjenjuju kao složeni.
Misija je i dalje zabrinuta zbog ustupanja velikog broja KTN i KTA predmeta, uključujući 77 takvih predmeta ustupljenih 2023. godine. Bez utvrđenog identiteta osum- njičenog i bez utvrđenog postojanja krivičnog djela, nije mo- guće ocijeniti ni ulogu osumnjičenog u počinjenju krivičnog djela niti se može izvršiti precizna analiza moguće povezano- sti i konteksta događaja sa drugim neriješenim i okončanim predmetima Tužilaštva BiH.6 Ovo dalje otežava adekvatnu ocjenu složenosti predmeta u skladu sa relevantnim kriterijima iz Aneksa A kako bi se utvrdilo da li neki predmet ispunjava kriterije za ustupanje. Iako pravosudne institucije u entitetima i BDBiH načelno imaju kapacitete za istragu i krivično gonjenje predmeta ratnih zločina, oni imaju znatno ograničene ljudske resurse u odnosu na Tužilaštvo BiH i nemaju pristup specijali- ziranim jedinicama za istragu ratnih zločina Državne agencije za istrage i zaštitu (SIPA).7
5 Vidjeti član 7(1) Zakona o Sudu BiH – prečišćeni tekst, Službeni glasnik BiH, 49/09, 74/09, 97/09. 6 Utrka s vremenom – Napredak i izazovi u provođenju Državne strategije za rad na predmetima ratnih zločina u Bosni i Hercegovini (2022) str. 23-25, Upravljanje predmetima ratnih zločina u postupku pred Tužilaštvom Bosne i Hercegovine (2019), str. 16. 7 Utrka s vremenom – Napredak i izazovi u provođenju Državne strategije za rad na predmetima ratnih zločin u Bosni i Hercegovini (2022) str. 25. Potvrđene optužnice (2014 - 2023) (broj optuženih prikazan u zagradama)
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Nivo pravosuđa Predmeti Predmeti Predmeti Predmeti Predmeti Predmeti Predmeti Predmeti Predmeti Predmeti
BiH 57 (116) 49 (131) 36 (90) 30 (67) 36 (98) 17 (40) 12 (32) 16 (43) 24 (72) 14 (65)
FBiH 21 (26) 20 (22) 21 (34) 12 (17) 11 (17) 13 (14) 3 (3) 11 (12) 11 (14) 15 (28)
RS 16 (25) 15 (18) 12 (18) 7 (15) 10 (13) 5 (5) 3 (4) 3 (3) 9 (16) 7 (10)
BD BiH 3 (4) 1 (1) 0 0 2 (2) 1 (2) 1 (1) 0 0 1 (1)
Ukupno: 525 97 (171) 85 (172) 69 (142) 49 (99) 59 (130) 36 (61) 19 (40) 30 (58) 44 (102) 37 (104)
* Podaci su dobiveni na osnovu praćenja sudskih postupaka koje je Misija provela u sklopu Projekta za praćenje rada na predmetima ratnih zločina, koji je finansirala EU, a s čijim provođenjem je početo 2014. godine.
Predmeti koji su u toku (nakon podizanja optužnice) Predmeti ratnih zločina koji su u toku
Zaključno s krajem 2023. godine, na svim nivoima pravosuđa 2 u BiH bilo je 234 predmeta koji su u toku. Od tog broja, 1% u njih šest čekalo se na potvrđivanje optužnice; 98 ih je bilo u fazi prije izjašnjena o krivnji; u 22 predmeta čekalo se na 42 početak glavnog pretresa; a njih 108 bili su u fazi glavnog Nivo BiH 18% pretresa, ponovnog suđenja, ili žalbenog postupka. Od toga, FBIH 53 predmeta sa 124 optužena – koji čine skoro četvrtinu svih neokončanih predmeta ratnih zločina pred sudovima u 127 RS 63 54% cijeloj BiH – uključuju seksualno nasilje u oružanom su- 27% BDBiH kobu. Velika većina predmeta seksualnog nasilja u oružanom sukobu, 28 od ukupno 53, u postupku je pred Sudom BiH.
Čak i sa značajnim smanjenjem broja potvrđenih op- tužnica na godišnjoj osnovi od 2014. godine na svim nivoima pravosuđa u BiH, predmeti seksualnog nasilja u oružanom sukobu, kao dio ukupnog broja potvrđenih optužnica, čine otprilike jednu petinu novopotvrđenih optužnica.
Sa preko 300 predmeta sa identifikovanim osumnjičenima koji još uvijek čekaju na procesuiranje i s obzirom na to da vrijeme doslovno ističe, pravosudni sistem – tužilaštva, su- dovi i organi za provođenje zakona – moraju se fokusirati na okončavanje najsloženijih predmeta ratnih zločina i rješavanje zaostalih predmeta.
Nedostupnost optuženih sudovima predstavlja veliku pre- preku okončanju gotovo polovine predmeta koji su u toku na svim nivoima pravosuđa u BiH. Od 234 predmeta u fazi optuženja na kraju 2023. godine, 122 optuženih u ukupno 110 predmeta nisu bili dostupni nadležnom sudu u BiH, prvenstveno jer borave u inostranstvu, u državama bez mo- gućnosti izručenja. Nedostupnost optuženih je jednako pre- valentna u predmetima tužilaštava u fazi prije podizanja optužnice, od kojih skoro pola uključuju jednog ili više osumnjičenih za koje se pretpostavlja da se nalaze u inostranstvu. Okončani predmeti Do kraja 2023. godine, domaće pravosudne institucije okon- čale su ukupno 742 predmeta ratnih zločina sa 1.136 Stopa okončanih CRSV i optuženih. Više od četvrtine okončanih predmeta ratnih zlo- drugih predmeta (2004 - 2023) čina uključivalo je seksualno nasilje u oružanom sukobu, iznoseći 194 predmeta protiv 276 optužena.8 Važno je primijetiti da je procenat procesuiranih predmeta ratnih zlo- čina koji su uključivali seksualno nasilje u oružanom sukobu 194 ostao dosljedno visok. 26% CRSV predmeti Uprkos značajnom broju presuđenih predmeta u 28 godina nakon završetka rata 1995. godine, 322 predmeta ratnih zlo- 548 Drugi predmeti čina (KTRZ) koji uključuju 2.880 poznatih osumnjičenih ostaju 74% neriješeni do kraja 2023. godine. Bez obzira na ovaj broj neri- ješenih predmeta, godišnja stopa rješavanja predmeta naglo je opala nakon izbijanja pandemije COVID-19 i ostaje ispod predpandemijskog maksimuma od 67 predmeta protiv 96 optuženih.
Među predmetima u kojima je donesena pravomoćna pre- rijetkim izuzecima, godišnje stope broja osuđenih lica suda, Misija sa zabrinutošću uočava sveukupni pad u broju više su nego u drugim predmetima ratnih zločina. predmeta okončanih osuđujućom presudom od 2016. godi- ne. U 2022. i 2023. godini, prosječna stopa broja osuđenih Još jedan zabrinjavajući trend u presuđenim predmetima lica pred svim sudovima pala je ispod 50%. Osim toga, od je općeprihvaćena praksa sudova prema kojoj se žrtve radi 2017. godine, stopa broja osuđenih lica na nivou BiH do- ostvarivanja imovinskopravnog zahtjeva upućuju na parnični sljedno je ispod prosječne stope na nivou entiteta. Iako oslo- postupak iako imaju nadležnost i pravnu mogućnost propi- bađajuće presude neminovno čine dio svakog pravosudnog sistema, ovaj zabrinjavajući trend mogao bi ukazivati na pad sanu zakonima o krivičnom postupku da to urade u okviru kvalitete istraga, optužnica i zastupanja i upravljanja optužni- krivičnog postupka. Od samo 20 predmeta u kojima je cama, posebno na nivou BiH.9 U predmetima seksualnog dosuđena naknada, 16 ih se odnosilo na seksualno na- nasilja u oružanom sukobu, i prosjek (76%) kao i, s silje u oružanom sukobu.
8 U svojim javnim izvještajima, Misija je analizirala različite aspekte istrage i krivičnog gonjenja predmeta seksualnog nasilja u oružanom sukobu pred Dosuđeni imovinskopravni zahtjevi u domaćim pravosudnim institucijama. Vidjeti, Postizanje pravde za žrtve sek- okončanim predmetima (2004 - 2023) sualnog nasilja u oružanom sukobu u Bosni i HercegoviniJustice: Napre- dak ostvaren pred sudovima u BiH od 2014. do 2016 (2017), Borba protiv nekažnjivosti za seksualno nasilje u oružanom sukobu u Bosni i Hercego- vini: postignuti napredak i izazovi – Analiza krivičnih postupaka pred Sudom 20 Bosne i Hercegovine od 2005. do 2013. godine (2014), i Analiza krivičnih 15 15 Broj predmeta
postupaka pred sudovima Federacije Bosne i Hercegovine, Republike Srp- 10 10 ske i Brčko distrikta BiH u periodu od 2004. do 2014. godine (2015). 5 1 4 5 5 9 Vidjeti, između ostalog, Utrka s vremenom – Napredak i izazovi u provođenju 0 Državne strategije za rat na predmetima ratnih zločin u Bosni i Hercegovini FBiH RS Nivo BiH Ukupno (2022), i Upravljanje predmetima ratnih zločina u postupku pred Tužilaštvom Bosne i Hercegovine (2019), kao i izvještaje sutkinje Joanne Korner, Proce- Potpuno presuđenje 4 1 10 15 suiranje predmeta ratnih zločina na državnom nivou u Bosni i Hercegovini Djelimično presuđenje 0 0 5 5 (2016) i Unapređenje procesuiranja predmeta ratnih zločina na državnom nivou u Bosni i Hercegovini – Izvještaj o napretku (2020).
Stopa pravosnažno osuđenih lica (2004 - 2023) 100% 90% PROCENAT OSUĐENJA
80% 70% 60% 50% 40% 30% 20% 10% 0% 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Nivo BiH (Prosjek 64%) 0% 0% 100% 88% 85% 65% 78% 76% 78% 60% 86% 83% 70% 58% 39% 71% 50% 86% 39% 45% Entiteti i BDBiH (Prosjek 70%) 100% 35% 78% 61% 87% 60% 85% 60% 76% 82% 61% 85% 58% 71% 68% 78% 62% 83% 74% 50% Ukupno (Prosjek 67%) 100% 35% 79% 67% 86% 63% 83% 67% 76% 67% 75% 84% 65% 64% 49% 74% 55% 87% 46% 49% CRSV (Prosjek 76%) 100% 67% 100% 70% 90% 75% 100% 73% 100% 67% 71% 89% 70% 89% 75% 78% 0% 73% 80% 33% Okončani predmeti ratnih zločina (2004 – 2023) 80 67 70 58 58 60 56 54 50 50 50 42 40 40 35 36 30 29 28 27 30 25 23 18 20 11 10 5
0 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Nivo BiH (336) 0 0 2 8 13 17 10 16 9 18 22 27 29 24 27 35 15 18 30 16 FBiH (246) 5 9 12 11 13 2 8 13 6 9 15 17 21 20 19 16 6 12 13 19 RS (138) 0 1 4 5 4 9 4 6 12 10 12 12 14 11 7 6 6 4 6 5 BDBiH (22) 0 1 0 1 0 1 1 0 1 3 1 2 3 1 1 1 0 2 1 2 Ukupno (742) 5 11 18 25 30 29 23 35 28 40 50 58 67 56 54 58 27 36 50 42
Ukupan broj predmeta po prijavama u tužilaštvima (2014 - 2023)
450
400
104 350 70 101 300
250 52
60 200 43 38 24 40 150 307 294 260 228 40 100 182 159 150 148 158 50 88
0 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Predmeti okončani u fazi istrage Predmeti okončani podizanjem optužnice
Ne rezultira svaki predmet u kojem se provodi istraga postup- na presuđene predmete, oni ipak čine značajan udio u uku- kom pred sudom. Mnogi od njih se okončaju u fazi istrage pnom obimu posla tužilaštava. iz legitimnih razloga, kao što su nedostatak dokaza, smrt osumnjičenog ili smrt ključnog svjedoka. Od 2.546 riješenih Iako je rok za provedbu Revidirane strategije produžen do kraja 2025. godine, malo je vjerovatno, s obzirom na preostale pred- prijava od 2014. godine, tužioci su okončali 1.974 bez po- mete, da će pravosuđe uspjeti završiti sve preostale predmete dizanja optužnice, između ostalog, donošenjem naredbe o s poznatim osumnjičenima do tog roka. Misija će nastaviti sa obustavi ili neprovođenju istrage, ustupanjem predmeta dru- praćenjem i analizom rada pravosudnih institucija na svim ni- gim sudovima i tužilaštvima ili spajanjem predmeta. Iako se voima u BiH u njihovim naporima da riješe preostale predmete ovi načini okončanja predmeta često zanemaruju u odnosu i tako ostvare pravdu za žrtve koje je još uvijek čekaju. Za više informacija Misija OSCE-a u Bosni i Hercegovini skenirajte QR kod. Fra Anđela Zvizdovića 1, UNITIC Toranj A 71000 Sarajevo Bosna i Hercegovina Tel: +387 33 952 100 Fax: +387 33 442 479 press.ba@osce.org www.osce.org/bih
Pratite Misiju OSCE-a u BiH
War Crimes Case Processing in Bosnia and Herzegovina (2004 – 2023) 1
Since 2004,1the OSCE Mission to Bosnia and Herzegovina War Crimes Case Backlog Among All BiH (Mission) has conducted comprehensive trial monitoring Jurisdictions of war crimes cases in Bosnia and Herzegovina (BiH).2 Complementing this trial monitoring, in 2014, the Mission’s Prosecutor’s offices (POs) across BiH carry a substantial back- War Crimes Monitoring Project (WCMP), funded by the log of war crimes cases, with the backlog defined as the num- European Union (EU), began collecting and analysing data ber of war crimes cases reported to but not yet processed by regarding the pre-indictment backlog of all reported poten- POs in all BiH jurisdictions. In addition to 322 war crimes cases tial war crimes. Drawing on these data sources, this report with an identified suspect (KTRZ), this backlog also consists provides a statistical overview of closed and ongoing war of 2919 reported war crimes that lack an identified suspect crimes cases before all courts (post-indictment) and pros- (KTN) or where the commission of a crime has not yet been ecutor’s offices (pre-indictment) in BiH.3 This report also established (KTA). With little progress in addressing these KTN highlights key trends in the processing of conflict-related and KTA cases, it is increasingly unlikely that these cases will sexual violence (CRSV) cases. ever progress to an indictment and prosecution.
To promote the effective and efficient processing of the 1 This factsheet predominantly presents information available to and verified case backlog, the National War Crimes Processing Strategy by the Mission as of 31 December 2023. Because the Mission has tracked (Strategy) – adopted in 2008 and revised in 2020 (Revised different data over different periods of time, date ranges for provided data may vary. In addition, in conducting its analyses, the Mission has account- Strategy)4 – requires that the Prosecutor’s Office of BiH (PO ed for the inevitable impact of the COVID-19 pandemic on the work and efficiency of the domestic judiciary. 4 The (Revised) Strategy provides criteria for assessing the factual and legal complexity of cases. See, Annex A of the (Revised) Strategy. While signifi- 2 The term “war crimes” is used to denote cases involving allegations of the cant amendments were made to the Strategy during the revision process, crime of genocide, crimes against humanity, and war crimes arising from the substance of the main Strategic Objectives remained largely unaltered, violations of international humanitarian law. thus ensuring continuity and consistency in the implementation of the 3 To preserve the objectivity of the Mission’s trial monitoring programme, any Strategy following its revision. Unless otherwise indicated, all references discussion of ongoing cases, including those in the pre-indictment phase, herein to the Strategic Objectives can be read as being to both the original has been limited to quantitative data. and the Revised Strategy.
Backlog Overview Backlog Overview 2437 2373 2500 2350 2276 2079 2000 1732 1517 1500 1402 No. of cases
1249 1240 1009 1042 1054 1048 1082 948 1000 846 773 698 621 571 495 500 395 322
0 0 0 0 0 0 0 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Total KTRZ backlog 1009 948 846 773 698 621 571 495 395 322 Total KTARZ backlog 0 0 0 2437 2373 2350 2276 2079 1732 1517 Total KTNRZ backlog 0 0 0 1042 1054 1048 1082 1249 1240 1402 Transferred Cases (2009 - 2023)* Jurisdiction Category transferred 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Total of case to
KTA 0 3 1 11 6 2 1 2 2 5 0 0 2 5 5 45 Federation of BiH KTN 0 0 0 0 0 0 0 0 1 83 34 118 93 40 36 405 (FBiH) KTRZ 3 31 15 134 37 32 20 25 13 38 16 38 16 10 4 432
KTA 0 0 0 1 2 0 0 0 2 6 1 0 0 7 4 23 Republika KTN 0 1 0 0 0 0 0 0 0 9 13 69 71 36 30 229 Srpska (RS) KTRZ 3 9 8 70 13 9 11 4 5 24 10 24 8 7 2 207
KTA 0 1 0 0 0 0 0 0 0 0 0 0 0 3 0 4 Brčko District of KTN 0 0 0 0 0 0 0 0 0 1 0 11 18 5 2 37 BiH (BDBIH) KTRZ 0 0 1 1 0 0 0 0 1 1 1 0 1 1 0 7
TOTAL 6 45 25 217 58 43 32 31 24 167 75 260 209 114 83 1389
* “Transferred cases” refers to those cases transferred from the Court of BiH to be processed by entity-level and Brčko District of BiH courts, pursuant to Article 27/27a of the Criminal Procedure Code of BiH. This chart includes data from 2009, following the adoption of National War Crimes Processing Strategy, through the end of 2023.
Portion of CRSV Cases among Transferred Cases BiH) prioritize the most complex cases, based on criteria Portion of CRSV Cases among (2009-2023) Transferred Cases (2009-2023) related to the gravity of the offense and the capacity and role of the suspect, and transfer, in conjunction with the Court of BiH,5 less complex cases to courts in the Federation of BiH (FBiH), Republika Srpska (RS) and Brčko District of BiH 152 (BDBiH). In 2018, following the initial slow pace of transfers, 11% a series of discussions facilitated by the Mission resulted in the PO BiH assessing its KTRZ backlog and purporting to CRSV transfer its remaining less-complex cases to the entities and BDBiH. All cases remaining with PO BiH should thus qualify 1237 Non-CRSV as complex cases under the Revised Strategy’s Annex A. 89% The Mission is currently analysing recent indictments filed by PO BiH to determine whether this is borne out in practice.
Notably, out of 1,389 cases transferred, the PO BiH has only transferred 152 cases involving CRSV, which may indicate that CRSV cases are more likely to be categorized as complex.
The Mission remains concerned with the transfer of large numbers of KTN and KTA cases, including 77 such cases in 2023. Without identification of the suspect or hav- ing established that a criminal act occurred, neither the role of the suspect in the commission of the alleged crime nor an accurate analysis of the connection and context of the events in relation to pending or closed cases before the PO BiH can be assessed.6 This further hinders an accurate as- sessment of the relevant factors of the Annex A criteria to determine whether the case is appropriate for transfer. While the entity and BDBiH judiciaries generally have the capacity to investigate and prosecute war crimes, they have signifi- cantly limited human resources as compared to the PO BiH and lack access to the State Investigation and Protection Agency’s (SIPA) specialized war crimes investigative units.7
5 See Art. 7(1) of the Law on Court of BiH – Consolidated Version, Official Gazette of BiH nos. 49/09, 74/09, 97/09). 6 A Race against Time - Successes and Challenges in the Implementation of the National War Crimes Processing Strategy of Bosnia and Herzegovina (2022) pp. 23-25, War Crimes Case Management at the Prosecutor’s Of- fice of Bosnia and Herzegovina (2019), p. 16. 7 A Race against Time - Successes and Challenges in the Implementation of the National War Crimes Processing Strategy of Bosnia and Herzegovina (2022) p. 25. Indictments Confirmed (2014 - 2023) (number of defendants shown in parentheses)
2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Level of jurisdiction Cases Cases Cases Cases Cases Cases Cases Cases Cases Cases
State level 57 (116) 49 (131) 36 (90) 30 (67) 36 (98) 17 (40) 12 (32) 16 (43) 24 (72) 14 (65)
FBiH 21 (26) 20 (22) 21 (34) 12 (17) 11 (17) 13 (14) 3 (3) 11 (12) 11 (14) 15 (28)
RS 16 (25) 15 (18) 12 (18) 7 (15) 10 (13) 5 (5) 3 (4) 3 (3) 9 (16) 7 (10)
BDBiH 3 (4) 1 (1) 0 0 2 (2) 1 (2) 1 (1) 0 0 1 (1)
Total: 525 97 (171) 85 (172) 69 (142) 49 (99) 59 (130) 36 (61) 19 (40) 30 (58) 44 (102) 37 (104)
* The data draws on monitoring conducted by the Mission under the auspices of the EU-funded WCMP, which began in 2014.
Ongoing War Ongoing Cases (post-indictment) Crimes Ongoing Cases War Crimes Cases As of the end of 2023, there were 234 ongoing cases across all BiH jurisdictions. Of these, six were awaiting con- 2 firmation of the indictment; 98 were at the pre-plea stage; 22 1% were awaiting the start of the main trial; and 108 were in main trial, retrial, or appeal proceedings. 53 cases involving 124 42 defendants – comprising nearly a quarter of all war crimes Court of BiH 18% cases pending before courts across all jurisdictions in BiH – FBIH involve CRSV. The majority of CRSV cases, 28 out of these 53, are being processed at the State-level. 127 RS 63 54% 27% BDBiH Even as the number of indictments confirmed on an an- nual basis across all BiH jurisdictions has declined sig- nificantly since 2014, CRSV cases, as a portion of these total indictments, consistently comprise approximately one-fifth of newly confirmed indictments.
With over 300 cases with identified suspects remaining and time literally running out to process them, the judiciary – pros- ecutor’s offices, courts, and law enforcement – must continue to focus on the completion of the most complex war crimes cases and the resolution of the backlog.
The unavailability of defendants to the courts presents a ma- jor obstacle to the completion of nearly one-half of ongoing cases across all jurisdictions in BiH. Of the 234 cases in the post-indictment phase at the end of 2023, 122 defendants in a total of 110 cases were unavailable to the relevant domestic court, primarily because they are located abroad and cannot be extradited. The unavailability of defendants is equally prevalent among prosecutor’s offices’ pre-indict- ment backlog, of which nearly one-half involve one or more suspects believed to be located abroad. Closed Cases Ratio of CRSV to Non-CRSV By the end of 2023, the domestic judiciary had adjudicated a total of 742 war crimes cases involving 1136 defendants. Adjudicated Cases Ratio of CRSV (2004-2023) to Non-CRSV More than one-quarter of adjudicated war crimes cases in- Adjudicated Cases (2004-2023) volved CRSV, amounting to 194 cases involving a com- bined 276 defendants.8 It is notable that the percentage of war crimes prosecutions involving CRSV has remained rela- tively consistent over time. 194 26% Despite the substantial number of adjudicated cases in the CRSV Closed 28 years since the end of the war in 1995, 322 KTRZ cases involving 2880 known suspects remain to be processed as 548 War Crimes Closed of end of 2023. Notwithstanding this number of outstanding 74% cases, the annual rate of case completion declined precipi- tously following the outbreak of Covid-19 and remains below a pre-pandemic high of 67 cases against 96 defendants.
Among cases reaching a final and binding verdict, the Mission notes with concern an overall decline in cases ending in con- victions since 2016. Both in 2022 and 2023, the average Another concerning trend among adjudicated cases is the conviction rate per defendant before all courts had dropped widespread failure of courts to award victim compensation below 50 per cent. Moreover, since 2017, the State-level during criminal proceedings despite the legal authority and conviction rate has been consistently below that of the aver- obligation under the respective criminal procedure codes to age entity-level rate. While acquittals necessarily form part do so. Of the mere 20 finally-adjudicated cases where of a functioning judicial system, this concerning trend could compensation was awarded, 16 involved CRSV. indicate a deterioration in the quality of investigations, indict- ments, and trial advocacy and management, especially at the Not all reported war crimes cases that are investigated by State-level.9 In CRSV cases, both the average (76 per prosecutors result in an indictment. Many are closed dur- cent) and, with rare exception, the annual conviction ing the investigation phase for legitimate reasons such as rates have been higher than those of non-CRSV cases. lack of evidence or the death of a suspect or a key witness.
8 In its public reports, the Mission has analysed various aspects of the in- vestigation and prosecution of CRSV cases before the domestic judiciary. See, Towards Justice for Survivors of Conflict-Related Sexual Violence Awarded Compensation Claims in in Bosnia and Herzegovina: Progress before Courts in BiH 2014–2016 Closed Cases (2004 – 2023) (2017), Combating Impunity for Conflict-Related Sexual Violence in Bosnia Awarded Compensation Claims in and Herzegovina: Progress and Challenges – Vol. I: An analysis of criminal Closed Cases (2004 – 2023) proceedings before the Court of Bosnia and Herzegovina between 2005 and 2013 (2014), and Vol. II: An analysis of criminal proceedings before the 20 courts of the Federation of Bosnia and Herzegovina, Republika Srpska and 15 15 No. of cases
Brčko District BiH between 2004 and 2014 (2015). 10 10 9 See, amongst others, A Race against Time - Successes and Challenges 5 1 in the Implementation of the National War Crimes Processing Strategy of 4 5 5 0 Bosnia and Herzegovina (2022), and War Crimes Case Management at Grand FBiH RS State level the Prosecutor’s Office of Bosnia and Herzegovina (2019), as well as re- Total ports prepared by Judge Joanna Korner, Processing of War Crimes at the Fully awarded 4 1 10 15 State Level in Bosnia and Herzegovina (2016) and Improving War Crimes Partially awarded 0 0 5 5 Processing At The State Level In Bosnia and Herzegovina - A Follow-Up Report By Her Honour Judge Joanna Korner CMG QC (2020).
Conviction Convictionrate rate in in Final Verdicts (2004 Final Verdicts (2004- -2023) 2023) 100% 90% 80% 70% CONVICTION RATE
60% 50% 40% 30% 20% 10% 0% 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 State level (Average 64%) 0% 0% 100% 88% 85% 65% 78% 76% 78% 60% 86% 83% 70% 58% 39% 71% 50% 86% 39% 45% Entity and BDBiH (Average 70%) 100% 35% 78% 61% 87% 60% 85% 60% 76% 82% 61% 85% 58% 71% 68% 78% 62% 83% 74% 50% Total (Average 67%) 100% 35% 79% 67% 86% 63% 83% 67% 76% 67% 75% 84% 65% 64% 49% 74% 55% 87% 46% 49% CRSV (Average 76%) 100% 67% 100% 70% 90% 75% 100% 73% 100% 67% 71% 89% 70% 89% 75% 78% 0% 73% 80% 33% War Crimes Cases Adjudicated (2004 - 2023) 80 67 70 58 58 60 56 54 50 50 50 42 40 40 35 36 30 29 28 27 30 25 23 18 20 11 10 5
0 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023 Court of BiH (336) 0 0 2 8 13 17 10 16 9 18 22 27 29 24 27 35 15 18 30 16 FBiH (246) 5 9 12 11 13 2 8 13 6 9 15 17 21 20 19 16 6 12 13 19 RS (138) 0 1 4 5 4 9 4 6 12 10 12 12 14 11 7 6 6 4 6 5 BDBiH (22) 0 1 0 1 0 1 1 0 1 3 1 2 3 1 1 1 0 2 1 2 Grand Total (742) 5 11 18 25 30 29 23 35 28 40 50 58 67 56 54 58 27 36 50 42
Total Reported Cases Closed (2014 - 2023)
450
400
104 350 70 101 300
250 52
60 200 43 38 24 40 150 307 294 260 228 40 100 182 159 150 148 158 50 88
0 2014 2015 2016 2017 2018 2019 2020 2021 2022 2023
Cases closed without indictment Cases closed with indictment
Of the 2,546 reported cases closed since 2014, pros- While the Revised Strategy has been extended to the end of ecutors have closed 1,974 without filing an indictment, 2025, it remains unlikely—in light of the remaining cases— including by means such as filing an order to suspend or not that the judiciary will be able to complete all remaining cases to conduct an investigation, transferring the case to another with known suspects by this deadline. The Mission will con- jurisdiction, or case merger. While these methods of comple- tinue to monitor and analyse the work of judicial institutions tion often receive less attention than adjudicated cases, they across BiH as they endeavour to resolve the remaining cases nonetheless constitute a substantial portion of POs workloads. and deliver justice to the victims who continue to await it.