The logistics of returning refugees to their homes are also daunting.
Returning refugees, who had fled from war hostilities were allowed to return.
Dayton promised to return refugees to their homes and to build central Bosnian political institutions.
There have been reports of attacks on returning refugees in the southwest.
International law forbids returning political refugees to a place where they might be killed or jailed.
It is now supported by the cash of four million recently returned refugees and many remittances.
This made it difficult to distinguish with certainty the identity of returning refugees after the war.
Most of the rural residents are returned refugees or internally displaced people from other regions.
Neighbouring countries are also asked not to return refugees, and food aid is supported.
Returning political refugees, however, exposes them to the worst possible danger.