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Download Südosteuropa 58 (2010), H. 3, S. 414-435 DOKUMENTATION EVANGELOS KOFOS The Macedonian Name Controversy. Texts and Commentary Abstract. This contribution documents the Greek attitude towards the so-called “name issue” between Greece and the Former Yugoslav Republic of Macedonia (FYROM). It presents key documents and contextualizes their origins, thereby illustrating both the Greek official posi- tion and Greek public opinion. The article gives an overview of developments from 1991 to the present. In conclusion, the author suggests a sustainable solution to the matter. Evangelos Kofos has dealt with the “Macedonian Question” both as a political advisor and as an historian. For close to two decades he has been a Special Advisor for the Balkans to the Hellenic Foundation for European and Foreign Policy (ELIAMEP) in Athens. For several years, he served as Special Counsellor on Balkan affairs in the Greek Ministry of Foreign Affairs. Introduction In the late hours of 16 December 1991, the European Community Council of Foreign Ministers concluded a lengthy session on procedures for the recognition of several of the former Yugoslav federative republics’ independence. The next day, readers of the “Declaration on Yugoslavia”, may have been perplexed by a cryptic paragraph at the document’s end: “The Community and its member States also require a Yugoslav [unnamed] Republic to commit itself, prior to recognition, to adopt constitutional and political guarantees ensuring that it has no territorial claims toward a neigh- bouring [also unnamed] Community State and that it will conduct no hostile propaganda activities versus a neighbouring Community State, including the use of a denomination which implies territorial claims”1 It was obvious that this sentence was included at the insistence of the Greek government. Despite its vagueness, the sentence revealed that a charged issue, one which had, on and off, negatively affected Greek-Yugoslav relations since 1 European Political Cooperation Press Release, P. 129/91, 16 December 1991, reprinted in: Yannēs Valinakēs / Sotirēs Dalēs, To Zētēma tōn Skopiōn. Episēma Keimena 1990-1995 [The Issue of Skopje. Official Documents]. Athens 1996, 51. The Macedonian Name Controversy 415 the Second World War, had emerged on the European level at the critical mo- ment of the imminent collapse of the Socialist Federal Republic of Yugoslavia. It seemed as if, at the end of the century, the European politicians were faced with a modern edition of the early 20th century “Macedonian Question”, an issue of contested territories and identities. The key words in the foreign ministers’ text sounded ominous enough: The mention of “territorial claims” revealed long-entrenched Greek concerns over their northern provinces; “hostile propaganda”, a peculiar expression for mi- nority claims, which, in the eyes of Greek political elites, involved security risks for the country; and, finally, an issue defined as the “name”. The final issue, strangely enough, was linked to the aforementioned “territorial claims”, yet its true focus was on issues of conflicting identities. Two decades later, the first two key issues of the December 1991 declaration have faded to a considerable degree. The “name issue”, however, has survived to this day, stirring endless debates in international fora, and negatively affect- ing relations between Athens and Skopje. Moreover, by means of the internet and numerous blogs, negative and at times hostile messages are spread to wider audiences, and particularly to younger age groups in the neighbouring countries and the various diasporas. The following pages seek to approach the key parameters of this “name is- sue” by means of a selected documentation and a commentary, focusing on the Greek side of the problem. In displaying the current diplomatic imbroglio which has directly involved three international organizations – the United Nations, the European Union, and NATO – the author provides the readers with some insight on (a) the origins of the dispute, (b) the involvement of the international community, (c) the various stages of formulating and carrying out Greek official policy, (d) the role of public opinion, and (e) proposals for an exit scenario. The Origins of Greece’s Policy with Regards to the Current “Macedonian Issue” A Brief Historical Aperçu The original “Macedonian question” emerged in the last decades of the 19th century and covered the two first decades of the 20th. Simply stated, it was a contest between three young Balkan states, vying with each other to inherit the possessions of the crumbling Ottoman Empire. The vaguely defined “Macedo- nian” lands were both the prize and the apple of discord for Bulgarians, Greeks, and Serbs. For the European powers, the treaties of the Balkan Wars (Bucharest 1913) and the First World War (Neuilly 1919 and Lausanne 1923), terminated the armed conflicts in Southeast Europe, rendering the “Macedonian Ques- 416 Evangelos Kofos tion” a challenging subject for historians rather than politicians.2 Not so for the locals. Perceptions of an endured “historical injustice”, lost homelands for hundreds of thousands of uprooted natives, various types of population exchanges, all followed by suppressive measures for the induction of varied ethnic groups into new unified political environments, kept the issue alive. Out of the peace settle- ments, Greece had emerged as a status quo country, Bulgaria as an irredentist one. Former Serbia, subsequently Yugoslavia, had turned introvert seeking to put its multi-ethnic state entity in order. Soon, new international actors emerged in the region, intent on plying the murky Macedonian terrain for their own benefit. The first to challenge the recently established status quo was the Communist International (Comintern) which was quick to introduce a novel blueprint for a future Balkan Communist Federation. A Macedonian state, to be composed of the Macedonian provinces of Greece, Yugoslavia, and Bulgaria was expected to be one of its constituent members. The initial reference to a “Macedonian people” included all inhabitants of the Macedonian regions, irrespective of their ethnic background. Gradually, however, the Comintern’s documents began to attach an ethnic identity to the name, compelling all Balkan communists to adhere, nolens-volens, to Moscow’s constructions.3 The second intervention was Nazi Germany’s occupation of the Balkans in the Second World War and its apportionment of Greek and Yugoslav Macedonian lands to its allies, Italy and Bulgaria. For Greece, the four year occupation of its Macedonian provinces (1941-1944) and the subsequent Civil War (1946-1949) opened traumatic wounds on issues of security and identity. For decades, those wounds were still visible in Greek state policies as well as in public perceptions of the country’s security. They certainly influenced and shaped Greek political 2 For an up to date Greek and international bibliography on the subject consult the recently published book by Vasilis Gounaris, I Istoriografia tou Makedonikou Zitimatos, 19os to 21os aiones [The Historiography of the Macedonian Question, 19th to 21th centuries]. Athens 2010. 3 That was a time when Stalin’s Soviet Union was engaged in creating or recognizing new ethnicities for its own political ends (“Belorussians”, “Moldovans”etc.). Much later, on 7 June, 1946, in a meeting with Yugoslav and Bulgarian leaders in the Kremlin, Stalin reprimanded Georgi Dimitrov for his reservations to assigning a “Macedonian” ethnic identity to the in- habitants of Bulgarian Pirin Macedonia which would be opening another Pandora’s box for the Macedonian Question: “You do not want to grant autonomy to Pirin Macedonia. The fact that the population has yet to develop a Macedonian consciousness is of no account. No such consciousness existed either in Belarus when we proclaimed it a Soviet republic. However, later it was shown that a Belorussian people did in fact exist.” Minutes from the Archives of the Communist Party of Bulgaria, published in Otecestven Vestnik, 19 June 1990. The Macedonian Name Controversy 417 thinking vis-à-vis the former Socialist Republic of Macedonia’s declaration of independence and various related identity issues.4 Nevertheless, the reactions of Greek political leaders and the masses in 1991- 93, particularly in the region of Macedonia, were not an instinctive, backward jump into the vicissitudes of the 1940s. On the contrary, in December 1991 Greece merely stressed, perhaps with a dose of hyperbole, what had been a traditional policy, shared by all parliamentary parties. Particularly enlightening in this respect is an August 1983 circular letter ad- dressed to Greek missions abroad by the first PASOK Foreign Minister in An- dreas Papandreou’s government, Yannis Haralambopoulos.5 The text reflected the policy of all post-Civil War Greek governments on the issue of the “Mac- edonian nation” and the identity of the Slavs of the wider Macedonian region. DOCUMENT A Foreign Minister Yannis Haralambopoulos on 13 August 1983, in a letter to diplomatic and press missions abroad.6 “The Greek policy on the Macedonian issue consistently pursues the same line since 1950 [the end of the Greek Civil War]. Greece raises no territorial or minority claims to the Macedonian lands of Yugoslavia or Bulgaria, but [for its part] does not accept the existence of a “Macedonian” minority on its territory. More specifically, Greece pursues the following line vis-à-vis the Yugoslav position on the ‘Macedonian nation’: – It does not recognize the existence of a ‘Macedonian’ nation, language etc. This negative position refers to the appropriation of a geographical term – which also is in use in Greece – by a nationality which was constructed in Yugoslavia for political reasons, after the Second World War. If another name is adopted, Greece would have no problem to accept it.7 – It insists on the use of the term ‘Macedonia’ solely as a geographical concept. Not wishing to interfere in the internal affairs of a foreign country, it does 4 For English language books on the Macedonian problem during the decade 1940-1950 consult Evangelos Kofos, Nationalism and Communism in Macedonia: Civil Conflict, Poli- tics of Mutation, National Identity.
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