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European Integration, Bosnia-Herzegovina and Stability in the Western Balkans: A New Strategy Aydın BABUNA* Abstract The February 2014 protests in Bosnia- for a more decisive enlargement policy towards the Herzegovina have shown clearly that Bosnia- Western Balkans and argues that the integration of Herzegovina is still- 20 years after the signing of the Western Balkans and Turkey with the EU are the Dayton Accords- the key country for security not rival processes but complementary.The article in the Western Balkans. These protests have also first examines the Euro-Atlantic integration of shown the limits of the influence of EU policies the Balkans in the post-Dayton period and then in the region, and have again sparked local and makes suggestions to improve security and stability international discussions about the future role of in the Western Balkans. the international community in general, and the EU in particular. Besides the discussion about quick and large-scale change to the Dayton Key Words Constitution, some observers and students of Balkan politics have pointed to the need for partial Bosnia-Herzegovina, Western Balkans, Euro- reforms, while others favour the idea that the Atlantic Integration, economy, security, stability. international community should stop meddling in Bosnian affairs. The early reactions of EU officials to the events in Bosnia-Herzegovina have Introduction prioritised socio-economic measures rather than constitutional reforms. The following article stresses The early 1990s witnessed regime the importance of an increased EU commitment changes in the communist Balkan to Bosnia-Herzegovina under a revised and comprehensive strategy. The new strategy should countries as well as the collapse of the state include improving the economy as one of its of Yugoslavia. The collapse of Yugoslavia priorities; however, the EU should also increase its resulted in several wars between Serbia efforts for constitutional reforms and assume more and the former republics in the country responsibility to make the Bosnian state functional. that had promoted their independence. A The article also highlights that recent events in Bosnia-Herzegovina have illustrated the urgency war between Slovenia and Serbia in 1991 was followed in the same year by another * Aydın Babuna is a Professor of Diplomatic war between Serbia and Croatia. In 1992 History at the Atatürk Institute for Modern the Bosnian War broke out, claiming the Turkish History, Bogaziçi University. lives of more than 100,000 people. The 1 PERCEPTIONS, Summer 2014, Volume XIX, Number 2, pp. 1-32. Aydın Babuna Bosnian War continued until the signing Strengthening the military and police of the Dayton Peace Accords in 1995. responsibilities of the EU in the Western It was US leadership and not European Balkans has not meant a departure from that put an end to this European war. its traditional emphasis on soft power.6 The declaratory diplomacy that was The EU has continued to pay attention used in European foreign policy failed.1 to values which have been considered The lack of political willingness and fundamental elements of European unity among the European countries identity since the Copenhagen summit was one of the most important factors of 1973, such as respect for human contributing to the indecisiveness of the rights, the principles of representative EC/EU during these wars, preventing democracy, the rule of law and social European countries from taking the lead justice.7 EU soft power is being exercised in international efforts to stop them. through the influence it exerts on the neighbouring countries by promises Security and of association and defence have The February 2014 protests possible accession traditionally been to European considered taboo in Bosnia-Herzegovina have institutions.8 in the European shown clearly that Bosnia- integration process.2 Herzegovina is still- 20 years Despite the EU’s However, the failure after the signing of the Dayton increasing role in to address the crisis Accords- the key country for conflict prevention in the Balkans security in the Western Balkans. and management in contributed to a the Western Balkans, reform aimed at the EU’s efforts strengthening European political and have not always been successful and military capabilities.3 The Franco-British have produced mixed results. That the St. Malo Declaration in December 1998 common security and defence policies marked the first important step towards fall within the EU’s inter-governmental a European Security and Defence Policy category, and hence that the member (ESDP).4 The ESDP was then agreed by states dominate the decision-making the Amsterdam Treaty of 1999 and was process, is one of the most important established by the European Council in factors responsible for this. Moreover, Cologne in June 1999. Step-by-step the the presence of other international EU has built up its political and military organisations in the region and the capabilities, becoming a central player regional policies followed by countries in the Balkans in the areas of conflict such as the USA and Russia are other prevention and management.5 important factors influencing the results 2 European Integration, Bosnia-Herzegovina and Stability in the Western Balkans of EU projects in the Western Balkans. contrast to calls to stop the international Finally, in the Western Balkans, the EU community’s intervention in Bosnia- has faced a more challenging political Herzegovina, this article stresses the need scenario and has had to deal with post- for a more active EU policy, supported by conflict countries dominated by deep- a stronger economic strategy towards this rooted ethnic tensions. In this context, country. Given that peace and stability Bosnia-Herzegovina, with its fragmented in Bosnia-Herzegovina is interconnected society and complicated state structure, with peace and stability in the Western is still the most fragile country in the Balkans as a whole, the article not only region. focuses on Bosnia-Herzegovina, but also argues that the EU should follow a more decisive enlargement policy towards the The establishment of the Western Balkans and Turkey. “Stability Pact for South Eastern Europe” (SPSEE) in The Euro-Atlantic 1999 and the “Stabilisation Integration of the Balkans in and Association Process” (SAP) the Post-Dayton Period in 2000 were turning points in the approach towards the Since the end of the Bosnian War the Balkans that was adopted by EU has introduced a number of projects the international community aimed at strengthening the role of the in general and by the EU in Union as a political actor in the Balkans. The EU launched the “Royaumont particular. Process” under the French presidency in December 1995 to facilitate the implementation of the Dayton Peace The February 2014 protests in Accords. This process focused on Bosnia-Herzegovina led once again to promoting regional projects in the a questioning the functionality of the field of human rights, culture and civil Dayton constitution and have intensified society.9 In April 1997, the EU General the voices favouring changes. Another Affairs Council adopted the “Regional subject central to the discussions triggered Approach (RA)” and established by these protests was the future role of economic and political conditions for the EU in Bosnia. As is the case with the development of bilateral relations the Dayton issue, there is no consensus with Macedonia, Yugoslavia, Bosnia- among international observers about Herzegovina, Croatia and Albania. the mission of the EU in the region. In The RA covered regional cooperation, 3 Aydın Babuna market economy reforms, the protection like the EU’s enlargement policy, formed of minorities, the rule of law and respect a bilateral platform involving individual for human rights. This process excluded partner governments and NATO. It Bulgaria, Romania and Slovenia, which became an important tool in the Euro- were assigned to a different category as all Atlantic integration of the countries three had signed European agreements in the region. In this context, PfP also and lodged membership applications in led to a range of confidence-building the period 1993-96. The RA outlined measures between the armies of the the borders of the future Western Balkan Republika Srpska and the Bosnian-Croat grouping, established the conditionality Federation.12 Today, all the countries in regime linked to the 1993 Copenhagen the region are members either of NATO, criteria without making explicit reference such as Slovenia, Bulgaria, Romania, to accession and made the regional Croatia and Albania, or of the PfP, such cooperation a prerequisite for inclusion as Montenegro, Serbia, Macedonia and into European institutions and policies.10 Bosnia-Herzegovina. As far as NATO is concerned, its With the end of the Kosovo conflict interest in the Western Balkans can in 1999, the Balkans entered a new era be traced back to 1992 and the first regarding Euro-Atlantic integration. deployment of its military assets The establishment of the “Stability Pact in support of the United Nations for South Eastern Europe” (SPSEE) Protection Force (UNPROFOR) during in 1999 and the “Stabilisation and the Bosnian War. Later on, in 1995-96, Association Process” (SAP) in 2000 were a NATO-commanded multinational turning points in the approach towards Implementation Force (IFOR) was the Balkans that was adopted by the deployed to Bosnia-Herzegovina to help international community in general police the implementation of the Dayton and by the EU in particular. With these Peace Accords. NATO sent further troops projects, the West moved away from to Kosovo as part of the Kosovo Force its traditional policy of containment (KFOR) after the coercive air campaign and intervention. Although the process which ended Serbian control of Kosovo was not absolutely clear, European in 1999.11 Like the EU, NATO developed integration of the Balkans seemed to be its own regional cooperation policy in the new aim of the EU. The admission the mid-1990s under its Partnership of Bulgaria, Romania and Slovenia to for Peace (PfP) programme.

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