Memorandum submitted by the Foreign and
Commonwealth Office
I. CHRONOLOGY
OF EVENTS
SINCE 19 MAY
22 May
Milosevic and four other senior FRY officials
indicted by International Criminal Tribunal for the former Yugoslavia
for crimes against humanity and violations of the laws or customs
of war.
2 June
After a week of intensive meetings, Ahtisaari,
Chernomyrdin and Talbott agree a text specifying withdrawal of
"all" FRY/Serb forces from Kosovo and "substantial
NATO participation" in an international security presence,
under unified command and control. Ahtisaari and Chernomyrdin
fly to Belgrade to present text to Milosevic.
3 June
Milosevic accepts and Serb parliament and Federal
Government endorse Ahtisaari/Chernomyrdin text. Ahtisaari briefs
European Council and G7 Foreign Ministers in Cologne.
7-8 June
G8 Foreign Ministers meet in Cologne to prepare
a draft UNSCR, setting out the international community's demands,
incorporating the G8 principles of 6 May and the provisions of
the Ahtisaari/Chernomyrdin text, and agree way ahead.
9 June
Military Technical Agreement signed between
KFOR and FRY on terms of and timetable for Serb forces' withdrawal.
10 June
Serb withdrawal begins. Following verification
that withdrawal has started, NATO Secretary-General suspends air
campaign.
10 June
UNSCR 1244, adopted which demands FRY co-operation
in implementing G8 principles and Ahtisaari/Chernomyrdin text,
authorises the establishment of an international security presence
(now KFOR) to create secure conditions for the safe return of
refugees and of the interim civil presence in Kosovo (now UNMIK)
to provide a transitional administration, and outlines the main
responsibilities of the two presences.
10 June
G8 Foreign Ministers meet in Cologne to discuss
civil implementation and reconstruction.
11 June
Initial Russian KFOR deployment arrives in Pristina.
12 June
KFOR deployment from Macedonia begins.
16-18 June
US and Russian Foreign and Defence Ministers
agree in Helsinki on terms of Russian participation in KFOR. Agreement
subsequently endorsed in the North Atlantic Council and by President
Yeltsin and the Russian Federation Council.
20 June
Serb withdrawal from Kosovo completed slightly
ahead of schedule. NATO Secretary-General terminates air campaign.
21 June
KFOR Commander accepts demilitarisation Undertaking
from UCK Commander in Chief, Hashim Thaqi, on behalf of the UCK.
30 June
Friends of the UN Secretary-General for Kosovo
Inaugural Meeting in New York.
30 June
FARK agree to demilitarise on the terms in the
KLA Undertaking.
2 July
UN Secretary-General appoints Bernard Kouchner
as his Special Representative for Kosovo.
5 July
NATO military representatives and Russia reach
agreement on technical details under-pinning Russia's participation
in KFOR.
II. PROGRESS
ON IMPLEMENTATION
KFOR deployment
There are currently some 29,000 KFOR troops
in Kosovo from 15 NATO countries and from Russia. Some further
11,000 troops are in Macedonia. The UK deployment of 10,400 is
complete: some surge elements are returning to the UK as other
Allies' contributions build up. Sectoral responsibilities have
been established. The UK, France, Germany, Italy and the US each
control one sector. Russia and NATO will jointly run Pristina
airport. The deployment will build up over the coming weeks, with
the force likely to reach around 40,000 by mid-July. We are urging
countries who have said they will contribute to KFOR to speed
up their deployment.
KFOR has begun to establish the secure environment
that is crucial for the rebuilding of Kosovo and the work of the
UN Mission. Until the UN-run interim administration is able to
establish the necessary structures, KFOR's authority throughout
Kosovo will be critical.
KFOR/Russia arrangements
US and Russian Defence Ministers reached agreement
on the framework for Russian participation in KFOR on 18 June.
The arrangements were subsequently confirmed by the Russian Government
and the North Atlantic Council, and technical agreement on the
details of the deployment was reached on 5 July. Some 3,600 Russian
troops have now deployed in Kosovo alongside NATO.
Russian battalions are operating within the
US, French and German sectors. Pristina airport, in the UK sector,
is being operated jointly by Russian and UK personnel. Political
and tactical control of the deployment will be provided by the
North Atlantic Council, with Russia retaining full political and
military control of its own contingent. The Permanent Joint Council
provides a forum for consultation and co-operation between NATO
and Russia on Kosovo as on other issues of mutual concern.
These arrangements are broadly similar to those
used successfully in Bosnia. They also include provision for additional
Russian liaison officers to be based at SHAPE, and at KFOR and
Allied Force South headquarters.
The arrangements reached with Russia are an
indication of positive co-operation. We look forward to Ivanov's
visit on 21-22 July.
KLA demilitarisation
On 21 June, the KFOR Commander received a unilateral
Undertaking from Hashim Thaqi, as UCK Commander in Chief, to demilitarise
as required by UNSCR 1244. The Undertaking provides for: an immediate
ceasefire; the assembly of UCK forces in designated areas within
seven days; the handing over to KFOR of all prohibited weapons,
with the exception of automatic small arms, within 30 days; the
phased handing in of automatic small arms over 90 days and all
UCK members to cease wearing uniforms and insignia. The smaller
Kosovo Albanian militia known as the Armed Forces of the Republic
of Kosovo (FARK) agreed on 30 June that is members would also
abide by the terms of the Undertaking.
KFOR report that UCK compliance with the terms
of the Undertaking continues to be good. There have been no reports
of unauthorised UCK appearances either armed or in uniform outside
of their assembly areas. Substantial numbers of UCK who originally
reported to the assembly areas have now returned to their families.
Weapons storage sites have been established and many weapons,
including heavy weapons, are being surrendered ahead of the ban
on prohibited weapons which does not take effect until 30 days
after entry into force of the Undertaking.
III. ATROCITIES
While the total number of deaths (certainly
more than 10,000) is not yet clear, there can be no doubt about
the scale and horrific nature of the atrocities, conducted by
Serb forces in Kosovo, illustrated by the repeated discoveries
by KFOR of mass graves, evidence of degrading physical abuse and
destruction of villages. There has been overwhelming eye-witness
and other evidence of extra-judicial killings, and a systematic
campaign of terror and violence directed by the forces of the
FRY and Serbia against Kosovo Albanian citizens.
In her indictment of 22 May, Judge Louise Arbour
(Prosecutor at the War Crimes Tribunal) gave a clear and objective
account of the actions of the FRY and Serb forces acting at the
direction, or with the support of, Milosevic and his closest associates.
We, along with our partners and allies, have given the maximum
practical support to the investigations being carried out by the
Tribunal.
A British Scenes of Crime Team is currently
performing a meticulous forensic investigation of sites of atrocities
in Kosovo on behalf of the Tribunal. Their work has included the
exhumation and examination of bodies. Those found to date have
included boys in their early teens, women, and seven children
aged between four and 12.
The Government is also continuing to assist
the Judge Arbour by interviewing refugees and by providing as
much information as possible, including intelligence, which may
be relevant to the Tribunal's investigations.
IV. FOREIGN SECRETARY'S
VISIT TO
KOSOVO
The Foreign Secretary took part in a joint visit
to Kosovo with the Italian, German and French Foreign Ministers
on 23 June. They met Kosovo Albanian political leaders, Serb Orthodox
Church leaders, KFOR Commander General Jackson and Acting UN Special
Representative Sr Vieira de Mello. A detailed report of the visit
is attached [not printed].
FCO Office in Pristina
The FCO opened an office in Pristina manned
by three UK-based staff on 13 June.
DfID Office in Pristina
DfID have similarly opened an office in Pristina.
It currently has eight staff, including public health and social
development experts and mine action, military liaison and engineering
personnel.
V. CIVIL
IMPLEMENTATION
UN Security Resolution 1244 of 10 June authorised
the UN Secretary General to establish an international civil presence
in Kosovo. The UN Mission in Kosovo (UNMIK) is headed on an acting
basis by Sr Vieira de Mello. Bernard Kouchner, the Secretary-General's
Special Representative and the new head of the UN Mission in Kosovo
(UNMIK) is due to arrive in Pristina on 13 July. Jock Covey (US)
has been appointed principal deputy, with Dominique Vian (Fr)
as Deputy for Civil Administration, Dennis Mcnamara (NZ) for Humanitarian
Affairs, Daan Everts (Netherlands) for Institution-Building and
Joly Dixon (UK) for Reconstruction. Kouchner's task is to co-ordinate
the activities of UN agencies and the other international organisations
operating in Kosovo and to facilitate a political process to determine
the future status of the province. Within the framework of UNMIK,
the UN has lead responsibility for the interim civil administration,
UNHCR for humanitarian affairs, the OSCE for institution-building,
democracy and human rights and the EU will head up the reconstruction
pillar.
UNMIK has responsibility for law and order,
including through the establishment and training of a local police
force and, pending the establishment of effective local forces,
through the deployment of an international police presence. It
was agreed at the Friends of the Secretary-General for Kosovo
meeting on 30 June that UNMIK should build up its capacity, so
as to take over responsibility for public security from KFOR as
soon as possible. An advance party of 39 UN police officers has
now deployed to Kosovo to establish a headquarters and to liaise
with KFOR. The main body of 3,110 UN police officers is expected
to begin arriving around mid-July. The UN Secretariat has recommended
that all UN police officers should have the possibility to be
armed.
For the wider civil administration, the UN Secretariat
has been trying to identify qualified personnel from within the
UN system itself, from other international organisations and from
national governments. The UN has asked the UK and other member
states to provide people with specialist skills in 10 priority
areas: district and municipality administration, public finance,
public health, education, civil service and public administration
management, public utilities, social services administration,
prison administration, telecoms and postal services.
UK CONTRIBUTION
TO UNMIK
Police
The UK has agreed to the transfer of seven British
policemen from the UN's International Police Task Force in Bosnia.
These officers will assist with UN planning for the civil policing
operation and the establishment of the police headquarters. They
will also help to advise KFOR on policing issues.
We have also offered to supply up to 60 British
officers to recruit, train and monitor a local Kosovo police force.
These will all be high-quality serving officers with previous
training experience. We have offered two-thirds of these officers
to work in the OSCE Police Training School in Kosovo. We hope
these can deploy within 2-3 weeks. The UK will therefore be making
an important contribution in the training field, which is one
of the highest priorities.
Civil administration
We are seeking to identify qualified personnel
with relevant specialist skills for urgent release or secondment
to the UN interim civil administration.
Sir Martin Garrod (former OHR Administrator,
Mostar) has been selected as one of the four District Commissioners.
The Deputy Special Representative in charge
of reconstruction is also a British national (Joly Dixon).
UNMIK's status and powers
We and our Allies and partners believe that
UNMIK should exercise fully its authority under UNSCR 1244. UNMIK
will need to draw up, interpret and apply law across the board.
It should also establish local judiciary and prosecutors. UNMIK
and KFOR should observe international human rights norms. UNMIK
should conduct relations between Kosovo and the Federal Yugoslav
authorities during the interim administration.
Friends of the Secretary-General for Kosovo
The UN Secretary-General has formed a consultative
group known as the Friends of the Secretary-General for Kosovo.
The group includes the G8 countries, Netherlands, Belgium, China,
Spain, Turkey, Denmark, Finland, Greece, Sweden and representatives
of the OIC, OSCE, EU Commission and UNHCR. The inaugural meeting
was chaired by UN Secretary-General, Kofi Annan, on 30 June in
New York.
At the Friends' meeting, the Foreign Secretary
announced DFID's $1 million contribution to the UN Trust Fund
to help cover initial local administrative costs and quick-impact
projects in Kosovo. Pledges were received from other countries
on reconstruction and agreement reached on the criteria for reconstruction
assistance. The Friends agreed on the importance of bringing the
UN Mission and KFOR up to full strength as quickly as possible.
VI. STABILITY
PACT
The Stability Pact for South Eastern Europe
was formally approved by Foreign Ministers in Cologne on 10 June.
The Pact brings together the countries of the region, EU member
states, the US, Russia, Canada, Japan and a wide range of international
organisations and institutions. It will establish a Regional Table,
to be chaired by the Special Co-ordinator, which will supervise
the activities of three Working Tables, covering democratisation
and human rights; economic reconstruction, development and co-operation;
and security issues. A Summit meeting of the Pact in Sarajevo
has been proposed for 30 July, but this has yet to be confirmed.
VII. SERBIA
The goal of our policy towards Serbia is to
promote reform and democratisation. Serbia cannot take its place
in the European mainstream until this happens. Resolution of Kosovo's
status will be difficult so long as Milosevic remains in power.
Hence our strategy to boost the opposition.
Opposition to Milosevic is growing
There have been a number of anti-government
demonstrations throughout Serbiain Leskovac, Uzice, Cacak
and Belgrade itself. According to the Belgrade independent media,
large numbers of demonstrators are calling for an end to the Milosevic
regime. Demonstrations have been organised not only by opposition
parties and trade unions but also by the local population.
Mr Djindjic, Leader of the Democratic Party
returned to Belgrade on 4 July and spoke at a rally in Uzice on
7 July calling for a general strike and mass disobedience to remove
Milosevic.
A petition-signing campaign demanding that Milosevic
step down organised by opposition parties and NGOs is underway
in several towns.
Serb Orthodox church leaders called in June
for Milosevic to resign.
Morale amongst FRY army reservists is low. Reservists
have set up road and bridge blockades demanding outstanding salaries.
We are pursuing ideas with Allies for supporting
and promoting the Serb democratic opposition, including promoting
the role of the indigenous independent media in Serbia.
VIII. MONTENEGRO
We continue to monitor closely events in Montenegro.
We support the reform of President Djukanovic. Any attempt by
Belgrade to destabilise Montenegro will have serious consequences.
IX. SANCTIONS
We intend to use sanctions to maintain pressure
for democratic reform in Belgrade and to ensure the toughest possible
application of sanctions against the Milosevic regime. We will
do what we can, consistent with those goals, to minimise the negative
humanitarian impact on the population of the FRY. We shall be
particularly concerned to minimise the effect of sanctions on
Montenegro and Kosovo. We are reviewing our sanctions policy in
consultation with the US and EU.
X. RECONSTRUCTION
First impressions since the end of the conflict
suggest that while there is severe damage in some areas, linked
to ethnic cleansing, overall the extent of the damage to housing
is less than we feared. Some refugees and displaced people are
returning to homes that have been destroyed and will need, and
are receiving, help from the international community; but many
others have been able to return to homes that may have been ransacked,
but are basically sound. This will be important in the context
of preparations for the forthcoming winter. Similarly much of
the basic infrastructurepower, water, roads, railwaysis
physically intact, even if suffering from long neglect. The EU
and World Bank have commissioned a needs assessment; a first report
is due towards the end of July. Donor meetings will be held on
28 July, to consider immediately humanitarian needs; in September
to look at near-term reconstruction needs; and in early 2000 to
look at longer term needs. But reconstruction is not just a matter
of bricks and mortar; it should take into account the social,
economic and political context and harness the local tradition
of self-help. We should set Kosovo within the regional project
for the reconstruction and regeneration of the Balkans.
On 28-29 June, Mr John Battle, the Minister
for Industry and Energy at the DTI, led a visit to Kosovo by a
business task force. The purpose of the visit was to assess first
hand the extent of the damage in Kosovo with a view to seeing
how British industry might be able to assist. The group included
six senior businessmen representing the power, water and construction
sectors and consulting and mechanical engineering. The group visited
a number of installations in and around Pristina and met local
businessmen and officials. The task force concluded that, in the
area seen, overall damage was not as great as they had been led
to believe by media reports. They concluded that the areas requiring
initial help were in the fields of consulting, project and facilities
management and supply contracts. The group reported back to a
gathering of some 250 businessmen at DTI on 1 July and are pursuing
a number of opportunities in conjunction with DfID.
XI. EU RECONSTRUCTION
IN WESTERN
BALKANS
The EU will head the reconstruction pillar of
the UN civil administration for Kosovo; this will oversee all
donor activity on the ground. Its head is Joly Dixon (British).
The HLSG set up by the EU and World Bank will provide strategic
guidance. The Commission has already established a task force
in Pristina, which will be succeeded by a new EU Agency for Reconstruction.
We believe the Agency should have the necessary autonomy to deliver
aid effectively and efficiently. In response to the Kosovo crisis,
the EU has already allocated 182 million euro humanitarian aid
for refugee work in the region and 100 million of the budgetary
support to neighbouring countries. 500 million of funds for reconstruction
have been set aside in a reserve for 2000 but we think this likely
to prove excessive. Once the damage assessment contracted by the
Commission has been completed (due at the end July), the amount
of EC funds needed for reconstruction will be clearer.
12 July 1999
|