Amidst Recent Tensions, Establishing Community of Serb-Majority Municipalities Could Advance Normalization, Kosovo Mission Head Tells Security Council
While tensions have simmered in recent months due to an inability to address long-standing issues through dialogue, the senior United Nations official in Kosovo told the Security Council today that the establishment of a community of Serb-majority municipalities could provide a solution to normalization, as speakers also urged Belgrade and Pristina to recommit to European Union-facilitated dialogue.
Caroline Ziadeh, Special Representative of the Secretary-General and Head of the United Nations Interim Administration Mission in Kosovo (UNMIK), recalled a common observation from consultations she held with political actors in Pristina and Belgrade — dissatisfaction with progress achieved through political dialogue. While highlighting recent tensions — including those surrounding the 21 April recall process for mayors elected in northern Kosovo in 2023 — she recalled that the parties met five times in 2023 and 2024 under the auspices of the European Union. “We should remain hopeful that a solution can be reached,” she said.
Emphasizing that the establishment of a community of Serb-majority municipalities could provide a solution towards normalization, she said that the final form of such will encompass financial and institutional guarantees for the Kosovo Serb community. Also noting European Union-facilitated agreements on matters related to vehicle license plates, the “energy road map” and customs, as well as UNMIK’s work to build trust between communities, she observed: “Progress is born from actions undertaken with the willingness to forge compromises.”
Vjosa Osmani-Sadriu of Kosovo said that, 25 years after the intervention by the North Atlantic Treaty Organization (NATO), Kosovo “shines as a resounding success and advocate for democratic values”. Its legal and institutional structures advance the rights of the Kosovo Serb community and promote an inclusive society, also granting that community unparalleled legislative influence. However, Serbia’s consistent efforts to disrupt the integration process undermine Kosovo’s security and constitutional order.
Aleksandar Vučić, President of Serbia, however, said that Serbs have been completely ex-communicated from the political and economic system of “the so-called Kosovo” since 2021. Moreover, Pristina organized shameful elections, which Serbs boycotted due to the violation of their rights, he said, adding that the model project for a liberal, multi-ethnic and multicultural democracy in “the so-called Kosovo” is galloping today towards monoethnic despotism cleansed of all minorities.
In the following discussion, many Council members voiced concern over Pristina’s recent decisions that affect minority populations — particularly its enforcement of central bank regulations restricting the use of the Serbian dinar for cash transactions in Kosovo. Against that backdrop, several speakers praised UNMIK’s efforts to enhance dialogue between communities and institutions. Many also urged Pristina and Belgrade to recommit to European Union-led dialogue.
The representative of France observed that Serbian authorities’ constructive participation in that dialogue allowed for progress on issues relating to license plates and energy. Progress towards the normalization of Kosovo-Serbia relations is necessary for the European rapprochement that both parties have chosen, he said. Adding that this is the purpose of the of the 2023 Ohrid Agreement — the most ambitious agreement to date between the two parties — he stressed: “We need to ensure its full implementation.”
In that vein, Japan’s delegate called on both parties to recommit to existing agreements, stressing: “Fomenting distrust is not a constructive approach.” Emphasizing that the Western Balkans’ accession to the European Union will contribute to regional stability and prosperity, she recalled that Tokyo launched its “Western Balkans Cooperation Initiative” in 2018 to support economic and social reforms towards that end and to promote regional cooperation.
For his part, the Russian Federation’s delegate stressed that NATO’s aggression against the former Yugoslavia became a watershed in global history and gave rise to the “spirit of confrontation” in international relations. Further, he said that, instead of good-faith mediation, Washington, D.C., and Brussels are “supplanting” resolution 1244 (1999) to “amputate the southern province from Serbia”. If Council members fail to seek compromise, “latent” conflicts in the Balkans may metastasize into a full-blown conflagration, he stressed.
On that, the representative of China voiced concern over Kosovar authorities’ announcement to abolish the Serbian dinar, as well as over violent searches targeting ethnic Serbs. Urging Pristina to revoke unreasonable decisions and cease unilateral actions that exacerbate tensions, he recalled that the establishment of an association of Serb-majority municipalities was an important part of the 2013 Brussels Agreement and joined others in calling on Kosovar authorities to honour this commitment.
Guyana’s representative, noting that progress achieved through dialogue in 2023 was “encouraging”, also called on the parties to re-examine any actions that could disrupt the economic and social wellbeing of minority communities. “It is essential that the human rights of all of the people living in Kosovo are upheld,” she stressed, urging both sides to recommit to the European Union-led dialogue process.
Stressing that the future of the whole region lies with the European Union, Slovenia’s representative nevertheless observed that challenges persist, as Kosovo Albanians and Kosovo Serbs remain divided communities. While noting that “one can find a lot of pain in Kosovo”, he pointed out that focusing on the past can prevent seeing better prospects for the future. “And the future for all communities lies in multi-ethnic, multicultural Kosovo, at peace with itself and Serbia,” he said.
SECURITY COUNCIL RESOLUTIONS 1160 (1998), 1199 (1998), 1203 (1998), 1239 (1999) AND 1244 (1999)
Briefing
CAROLINE ZIADEH, Special Representative of the Secretary-General and Head of the United Nations Interim Administration Mission in Kosovo (UNMIK), recalled a common observation from consultations she held with political actors in Pristina and Belgrade — dissatisfaction with progress achieved through political dialogue. Tensions have simmered in recent months due to an inability to address long-standing issues through dialogue — both between Pristina and Belgrade and between the Kosovo Serb communities and the Pristina central authority. In December 2023, Kosovo Serbs in Leposavić, North Mitrovica, Zubin Potok and Zvečan collected enough signatures to begin recalling the mayors elected in those towns in April 2023 by less than 4 per cent of total registered voters, a low turnout due to Kosovo Serbs’ decision not to participate. This process aimed to reduce tensions resulting from these elections, which included violent protests around several municipal premises in northern Kosovo in May 2023, she noted.
However, representatives of the Kosovo Serb community in the north claimed that conditions for recalling the mayors do not allow for full participation to that end, she said. While reporting that the recall process took place on 21 April without any security incidents, she noted that only 253 out of 46,556 registered voters cast their votes — setting the stage for “protracting and prolonging a fragile and unresolved issue”. She recalled the security incident in Banjska in September 2023 and called for accountability, adding: “This is both a judicial matter, and also a political necessity.” She went on to report that, under the facilitation of the European Union, the parties met five times in 2023 and 2024, adding: “We should remain hopeful that a solution can be reached.”
The establishment of a community of Serb-majority municipalities could provide a solution towards normalization, she said, noting that the final form of such will encompass financial and institutional guarantees for the Kosovo Serb community. Noting European Union-facilitated agreements on matters related to vehicle license plates, the “energy road map” and customs, she also commended Pristina for affirming the property rights of the Visoki Dečani Monastery. Turning to UNMIK’s work to build trust between communities, she reported that the Barabar Centre has conducted 70 activities engaging more than 4,000 individuals from all Kosovo communities, also noting that the Mission conducted the second United Nations Kosovo Trust-building Forum in November 2023. On matters of transitional justice and the right to truth, she welcomed the resumed meeting of the Working Group on Missing Persons on 31 January and urged that such direct engagement continue.
She also reported that UNMIK continued extending support to the Kosovo Law Institute, conducted a specialized training for young Kosovo Serb lawyers and sponsored law students at a legal clinic promoting multi-ethnic media work. In support of the youth, peace and security agenda, the sixth United Nations Youth Assembly in Kosovo in May will serve as a platform to gather young activists and leaders from communities in Kosovo and around the region. She further noted that, to achieve progress in Kosovo and fulfil UNMIK’s mandated goals effectively, issues must be understood and treated as part of a wider regional context. Expressing appreciation to major multilateral partners — particularly the Kosovo Force (KFOR) — she added: “Progress is born from actions undertaken with the willingness to forge compromises.”
Statements
ALEKSANDAR VUČIĆ, President of Serbia, said that the 11 years that have passed since the April 2013 adoption of the Brussels Agreement have been, for all the Serbs living in Kosovo and Metohija — and for all in Serbia — “11 years of undelivered promises, daily excuses and untruths and 11 years of accidental or intentional ability of the EU [European Union] as the guarantor of the respective agreement to move things from square one”. Despite Albin Kurti’s February assurance to the Council of a three-month transition period regarding the use of the Serbian dinar, these measures are being implemented immediately. They are preventing Serbs and other non-Albanian populations in Kosovo from getting their pensions, salaries, child allowances and other payments. Schools and other institutions have been disrupted, and people fear being arrested on false charges. Meanwhile, the Kurti regime — instead of being sanctioned — is being rewarded.
He reported that, since the Council’s February meeting on the matter, 16 new ethnically motivated attacks against Serbs have taken place, including continuing unjustified detentions and intrusions by Pristina’s police forces into Serbian pharmacies. Detailing several issues with UNMIK’s report, he said that — while it maintains factual precision — it fails to capture interconnected events that, when analysed together, paint a stark picture of the reality on the ground. Moreover, the methodology used has remained consistently superficial, and the report is missing information on concrete measures that the Special Representative has taken to discourage, disable or sanction Pristina’s violence and persecution of Serbs and non-Albanians — or an explanation as to why she failed to take such measures, if that is the case. The report enumerates individual cases, but lacks a clear context of the persecution that civilians face daily, he emphasized.
Serbia has been publicly warning that Serbs in Kosovo have been subjected to widespread, systematic attacks by the Kurti regime, he continued, adding that Serbs have been completely ex-communicated from the political and economic system of “the so-called Kosovo” since the autumn of 2021. “No one wanted to listen to our pleas to stop the terror,” he stressed. Moreover, Pristina organized shameful elections, which Serbs boycotted due to the violation of their rights. Although only 0.029 per cent of Serbs voted in those elections despite constituting 95 per cent of the relevant population, new Albanian municipal authorities were illegitimately appointed and confirmed. Addressing the countries who supported the independence of “the so-called Kosovo”, he said their model project for a liberal, multi-ethnic and multicultural democracy is galloping today towards monoethnic despotism cleansed of all minorities. Nevertheless, Serbia is fully devoted to peace, international public order and European Union-facilitated dialogue and will do its best to maintain tranquillity in the region, he concluded.
VJOSA OSMANI-SADRIU of Kosovo underscored that the intervention by the North Atlantic Treaty Organization (NATO) was about protecting the sanctity of human life and the right of all people to live free from fear of destruction and persecution. “Twenty-five years later, Kosovo shines as a resounding success and advocate for democratic values, embracing diversity, promoting multiethnicity and advancing human rights for all,” she said, also noting her country’s promising economic prospects. Stating that Serbia’s allegations of ethnic cleansing and the persecution of Kosovo Serbs are “baseless and politically motivated”, she said that Kosovo’s legal and institutional structures actively advance the rights of the Kosovo Serb community and promote an inclusive society where all citizens are encouraged to thrive. Kosovo Serbs — around 4 per cent of the population — are granted unparalleled legislative influence, such as veto power over constitutional amendments and laws concerning education, religion, local governance and human rights. Further, domestic law ensures that the Serb language is recognized and used as an official language across Kosovo.
Highlighting Serbia’s ongoing destabilization efforts, however, she said that Belgrade has escalated its constant aggression towards Kosovo over the past year. “Serbia’s consistent efforts to disrupt the integration process in Kosovo, using both criminal and terrorist tactics to exert control and spread fear”, undermine Kosovo’s security and constitutional order, she stressed. Opposing President Vučić’s propaganda and “revisionism based on Russia’s playbook”, she said that “all massacres around Kosovo showed that [former President of Serbia Slobodan] Milošević and his then-propaganda minister, today sitting in the chair of a President”, sought to wipe all Kosovo Albanians off the face of the Earth and destroy all evidence of doing so.
Yet, they failed, she stressed, detailing stories of survivors who — despite living through horror — “have chosen action over despair”. Among them was Vasfije Krasniqi Goodman, who was only 16 years old when former President Milošević’s forces raped her. Now, she is amplifying the voices of wartime sexual violence survivors in Kosovo and beyond. Emphasizing the need to hold perpetrators accountable for these heinous acts, she added that Serbia has not put any perpetrators of wartime rape behind bars. Moreover, over 1,600 persons from Kosovo remain in mass graves in Serbia. Despite agreeing in Brussels to open the relevant archives, President Vučić constantly rejects implementation. “The forcible disappearance of our citizens, many of whom were children, represents one of the most monstrous crimes of Milošević’s genocidal regime,” she said. “Defending the truth, fighting history revisionism and rejecting genocide denial is the only way towards long-lasting peace and reconciliation,” she stressed, adding that “no attempt by Serbia to deny war crimes or revise history will succeed as long as we still have a voice”.
Point of Order
Mr. VUČIĆ (Serbia), taking the floor a second time in reference to the composition of the Kosovo delegation, emphasized that it is a “sort of a political theater and set-up for Serbian delegation”. What the Council listened to was like a “war trial process” for something that happened 25 years ago with “not a single word” about the report, he said. Addressing the Council President, he asked: “Why did not you inform us who was going to be a member of each delegation?”
The representative of Malta, Council President for April, noted “with regard to the delegation from Kosovo — we have nothing to do with it”. She added that the Protocol and Liaison Service deals with accreditation matters.
The representative of the Russian Federation, noting the people seated behind Ms. Osmani-Sadriu, then emphasized that she was invited under Rule 37 of the Council’s Provisional Rules of Procedure as a briefer for today’s meeting. As such, her participation does not provide for the presence of any delegation alongside her. This is a clear breach of procedure that must be duly addressed, he stressed.
The representative of Malta, Council President for April, said that members of civil society do bring delegation members under Rules 37 and 39 of the Council’s Provisional Rules of Procedure. “This is how they were accredited,” she pointed out.
Ms. OSMANI-SADRIU said that the four women seated behind her — apart from being great advocates for justice — are members of her cabinet and are present in an advisory capacity.
The representative of the Russian Federation responded: “Madame Osmani, in our view, has no cabinet.” Moreover, she was invited to join the Council’s meeting as a private person, he emphasized.
Statements
The representative of the United States, while highlighting “the enormous progress in the region”, voiced concern over escalatory actions by both Serbia and Kosovo. It has been seven months since the Serb paramilitary attack on the Kosovo Police in Northern Kosovo, he observed, adding that Serbia has made no progress towards holding the perpetrators accountable. He further expressed concern over recent actions taken by Pristina, including its enforcement of central bank regulations concerning cash operations that are inconsistent with Kosovo’s commitment to European Union-facilitated dialogue. “These actions undermine the path of normalization between Kosovo and Serbia,” he asserted, underlining the need to solve the currency issue and work towards the establishment of an association of Serb-majority municipalities.
The representative of Guyana underlined the importance of collaboration between a wide spectrum of UN agencies, Pristina and civil society in executing UNMIK’s mandate. She also expressed concern over interference with the Mission’s premises and assets — including vandalism of its offices — calling on relevant Kosovar authorities to ensure protection of these premises. Noting that progress achieved through dialogue in 2023 was “encouraging”, she also called on the parties to re-examine any actions that could disrupt the economic and social well‑being of minority communities. “It is essential that the human rights of all of the people living in Kosovo are upheld,” she stressed, urging both sides to recommit to the European Union-led Belgrade-Pristina dialogue.
The representative of China voiced concern over Kosovar authorities’ announcement to abolish the Serbian dinar, as well as over violent searches targeting ethnic Serbs. He therefore urged Pristina to revoke unreasonable decisions and cease unilateral actions that exacerbate tensions. The establishment of an association of Serb-majority municipalities is an important part of the 2013 Brussels Agreement, and Kosovar authorities — who have made explicit commitments in that regard — should honour them in good faith, he said. Further, the parties must engage within the framework of resolution 1244 (1999), reach a mutually acceptable solution through dialogue, and during this process, fully respect Serbia’s sovereignty, independence and territorial integrity. Pristina should ensure the safety of UNMIK personnel and premises, he added.
The representative of Ecuador encouraged all parties to engage constructively with the European Union-facilitated dialogue, noting the fragile security situation in northern Kosovo. Condemning any act of violence that threatens peace and security in the region, he urged all parties to act with maximum responsibility and avoid actions or rhetoric that could reverse progress achieved so far. As well, human rights and the rule of law must be respected and the protection of all communities ensured, he stressed, drawing particular attention to the freedoms of expression and the press.
The representative of France said that progress towards the normalization of Kosovo-Serbia relations is necessary for the European rapprochement that both countries have chosen. It is also the purpose of the 2023 Ohrid Agreement — the most ambitious agreement to date between the two parties. “We need to ensure its full implementation,” he stressed, adding that France will continue supporting European mediation towards a definitive, comprehensive and legally binding agreement. Serbian authorities’ constructive participation in European Union-led dialogue allowed for progress on issues relating to license plates and energy. However, the establishment of an association of Serb-majority municipalities “has been expected from the Kosovo authorities for far too long” and remains an obstacle to the country’s European prospects, he stressed. In this context, new mayoral elections must be organized quickly in north Kosovo with the participation of all communities.
The representative of Switzerland said that the political leaders of Kosovo and Serbia must lay the foundation for cooperation and common understanding to set an example for their populations. Calling for clear, increased commitment to European Union-facilitated dialogue, she emphasized that outstanding issues — including the consequences of implementing monetary regulations in Kosovo — must be resolved through that process. “More than a year after the promising decisions taken under the Brussels and Ohrid Agreements, it is high time to move from commitments on paper to deeds,” she stressed. She called on Serbia, for its part, to remove any ambiguity about its commitment to those agreements and to refrain from opposing Kosovo’s membership in international organizations. To Kosovo, she urged the immediate establishment of an association of Serb-majority municipalities, recalling that a commitment to do so was made in 2013.
The representative of Algeria voiced concern over incidents that disturbed the already-tense situation in North Kosovo, including the security incident in Banjska that led to a loss of life, as well as the unilateral decision regarding cash transactions. Such developments raise interethnic tensions and impact the security and socioeconomic rights of non-majority communities. Accordingly, he underlined the need to refrain from any action that could lead to escalation and ethnic tensions in Kosovo and urged that Serbs be adequately represented in local institutions.
The representative of the Republic of Korea expressed hope for reconciliation, peace and prosperity in the Western Balkans. He expressed regret, however, that discussions on implementing the 2023 agreement to normalize relations based on the European Union’s proposal have not made progress. Turning to the Central Bank of Kosovo’s regulation on currency transactions, he said that this measure will negatively impact Serbian residents in Kosovo. Reiterating support for the European Union’s mediation efforts, he also stressed the importance of the European Union Rule of Law Mission in Kosovo in consolidating the rule of law in Kosovar institutions. He further emphasized the need for a review of UNMIK’s mandate, noting that the European Union Mission and KFOR are currently carrying out some of UNMIK’s tasks.
The representative of Sierra Leone urged authorities in Pristina and Belgrade to remain mindful of their unparalleled role in preventing an upsurge of conflict. He also called on the Privatization Agency of Kosovo to reconsider its approach towards assuming control of properties and condemned any attempt by non-State actors to deter access to, burgle, deface or cause destruction to private property — particularly those occupied by UNMIK — as well as religious and cultural sites across Kosovo. Highlighting the importance of engendering a multi-ethnic society, he reiterated the call for authorities in Belgrade and Pristina to deepen their cooperation, particularly with respect to finalizing the establishment of an association of Serb-majority municipalities in Kosovo.
The representative of Slovenia said that, while “one can find a lot of pain in Kosovo”, focusing on the past can prevent seeing better prospects for the future. “And the future for all communities lies in multi-ethnic, multicultural Kosovo, at peace with itself and Serbia,” he stated. The future of the whole region lies with the European Union, he said, adding that this is what citizens of the region want and expect. However, challenges persist, as Kosovo Albanians and Kosovo Serbs remain divided communities. Stating that the European Union-facilitated dialogue is “the only established forum for the normalization of relations between Serbia and Kosovo”, he underlined the need to support it in “every possible way”. Also, he emphasized that security concerns between the two parties must be addressed, including by preventing arms smuggling and holding perpetrators of illegal activities accountable.
The representative of the Russian Federation stressed that NATO’s aggression against the former Yugoslavia became a watershed in global history and gave rise to the “spirit of confrontation” in international relations. Recalling procedural votes to prevent the conduct of a Council meeting twice requested by Moscow on this subject, he said this was done to “sweep those years under the rug” as part of the United States’ and the European Union’s policy of pressure on Serbia. Instead of good-faith mediation, Washington, D.C., and Brussels are “supplanting” resolution 1244 (1999) to “amputate the southern province from Serbia”, and the United Kingdom has “thrust forward” the idea of using the 1998 Belfast Agreement as a model for resolving the issue, he said. Meanwhile, he observed that “Orthodox sites are being proclaimed Catholic, Serbs are being labelled as occupiers and the history of the province is brazenly being falsified”. If Council members fail to seek compromise, “latent” conflicts in the Balkans may metastasize into a full-blown conflagration, he stressed.
The representative of Mozambique, voicing concern that tensions between Serbia and Kosovo could escalate into a broader armed conflict, called on all national, regional and international stakeholders to exercise prudence and foresight in their decisions to safeguard hard-earned progress in Kosovo. Restrictions on freedom of movement and economic activities must be addressed promptly, and he urged the leadership of both parties to actively promote reconciliation among their respective communities and refrain from any actions that may incite violence or exacerbate tensions. He also welcomed the recent law on domestic and gender-based violence in Kosovo and praised UNMIK’s efforts to foster stability, rebuild trust and enhance dialogue between communities and institutions.
The representative of Japan, noting her country’s engagement in the Balkans, acknowledged positive rule-of-law developments in Kosovo since its independence along with relative stability in the region. However, she expressed concern over the situation on the ground, stressing that the Banjska attack in September 2023 must be fully investigated. Calling on both parties to recommit to existing agreements, she stressed: “Fomenting distrust is not a constructive approach.” She therefore urged the parties to further engage in European Union-facilitated dialogue, emphasizing that the Western Balkans’ accession to the bloc will contribute to regional stability and prosperity. To that end, Japan launched its “Western Balkans Cooperation Initiative” in 2018 to support economic and social reforms towards European Union accession and to promote regional cooperation.
The representative of the United Kingdom encouraged both sides to engage constructively in European Union-facilitated dialogue and deliver on their respective obligations, including establishing an association of Serb-majority municipalities. Further, Kosovo should exercise its sovereign powers in a way that reflects its multi-ethnic population and demonstrates sufficient regard for Kosovo’s non-majority communities. Urging both parties to identify technical solutions to ongoing challenges relating to new regulation on foreign currencies, he stressed that Srpska Lista and other Kosovo Serb political actors should not stand in the way of Kosovo Serbs exercising their democratic rights. He also emphasized that the perpetrators of the shocking events in Banjska in September 2023, as well as attacks on KFOR personnel in May 2023, must be held to account.
The representative of Malta, Council President for April, spoke in her national capacity to welcome positive steps taken by Serbia and Kosovo, including those concerning the property of the Visoki Dečani Monastery. Noting that terrorist attacks on the Kosovo Police in September 2023 threaten escalation, she stressed: “Dialogue remains the only tool available.” On the local referendum in Kosovo’s northern municipalities, she expressed regret that conditions led to another boycott. Also expressing regret over the lack of progress in forming an association of Serb-majority municipalities, she said that the decision to ban cash transactions using the Serbian dinar – although seemingly well-intentioned — will negatively impact Serb minorities. Reiterating Malta’s commitment to both parties’ ambitions for European Union accession, she urged them to pursue reforms leading towards this integration.
The representative of the United States, taking the floor a second time to respond to the representative of the Russian Federation’s statement, said that NATO’s 1999 Operation Allied Force was necessary and legitimate to drive former President Milošević’s forces from Kosovo and end ethnic cleansing. It was an option of last resort, following the failure of diplomatic efforts and concerns over regional stability and increased displacement. Regarding the proposed Council meeting on NATO’s operations 25 years ago, he said that Council members issued their verdict on this attempt to politicize the organ by objecting to the holding of such a meeting.
Mr. VUČIĆ (Serbia), re-taking the floor, underscored that the action against Serbia was illegitimate, taken without his country’s consent and without the Council’s decision. On the election process in Kosovo, he said that “no one can vote freely”. Responding to the claim that around 4 per cent of Serbs live in Kosovo, he said that this figure was 7.5 per cent just two years ago. This reflects that ethnic cleansing is Pristina’s only aim, he added.
Ms. OSMANI-SADRIU said: “What President Vučić has just stated is entirely false.” She also said that the “Kosovo of today” is “shaped by the pains of the past”, urging President Vučić to tell the Council whether he regrets belonging to a regime that caused more than 150,000 civilian deaths. She added: “The victims of that regime are standing right here. Take a moment and apologize to them. Show everyone whether you have even a little bit of a glimpse of humanity.”
https://press.un.org/en/2024/sc15673.doc.htm
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