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Kosovo: Operation "Allied Force"

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Kosovo: Operation RESEARCH PAPER 99/48 Kosovo: Operation 29 APRIL 1999 "Allied Force" On 24 March 1999 NATO initiated a campaign of air strikes, codenamed Operation "Allied Force", against the military capability of the Federal Republic of Yugoslavia (FRY). This paper provides a chronological overview of the main events in the campaign between 24 March and 28 April and details the major developments both in the region and internationally. It looks at the humanitarian and legal issues that have arisen from the conflict before concluding with a consideration of potential future developments. The historical background to the conflict and developments during 1998 are covered by Library Research Papers 98/73, Kosovo, and 98/93, Kosovo: the Diplomatic and Military Options. The build-up to the NATO action is covered in Library Research Paper 99/34, Kosovo: NATO and Military Action, of 24 March 1999. Tim Youngs, Mark Oakes and Paul Bowers INTERNATIONAL AFFAIRS & DEFENCE SECTION Mick Hillyard ECONOMIC POLICY & STATISTICS SECTION HOUSE OF COMMONS LIBRARY Recent Library Research Papers include: List of 15 most recent RPs 99/32 The resignation of the European Commission 16.03.99 99/33 The Access to Justice Bill [HL]: Legal aid [Bill 67 of 1998-99] 22.03.99 99/34 Kosovo: NATO and Military Action 24.03.99 99/35 The Control of High Hedges 25.03.99 99/36 The Right to Buy 30.03.99 99/37 Economic Indicators 01.04.99 99/38 Genetically Modified Crops and Food 31.03.99 99/39 The Health Bill [HL] [Bill 77 of 1998-99] 08.04.99 99/40 The Youth Justice and Criminal Evidence Bill [HL] [Bill 74 of 1998-99] 14.04.99 99/41 The Football (Offences and Disorder) Bill [Bill 17 of 1998-99] 14.04.99 99/42 The Road Haulage Industry: costs and taxes 19.04.99 99/43 Disability Rights Commission Bill [HL] [Bill 73 of 1998-99] 20.04.99 99/44 Unemployment by Constituency - March 1999 21.04.99 99/45 Adoption (Intercountry Aspects) Bill [Bill 18 of 1998-99] 22.04.99 99/46 Local Elections - Proposals for Reform 28.04.99 Research Papers are available as PDF files: • to members of the general public on the Parliamentary web site, URL: http://www.parliament.uk • within Parliament to users of the Parliamentary Intranet, URL: http://hcl1.hclibrary.parliament.uk Library Research Papers are compiled for the benefit of Members of Parliament and their personal staff. Authors are available to discuss the contents of these papers with Members and their staff but cannot advise members of the general public. Users of the printed version of these papers will find a pre-addressed response form at the end of the text. ISSN 1368 8456 Summary of main points The NATO campaign of air strikes against the military capability of the Federal Republic of Yugoslavia (FRY), known as Operation “Allied Force”, entered its sixth week on 28 April 1999. NATO has substantially increased its forces in the region since the operation commenced on 24 March, with over 1,000 combat aircraft now involved. The Alliance has specified the conditions that Belgrade has to meet before the air campaign will be halted. These are: an end to all Serb military actions; a withdrawal of all police and paramilitary forces; agreement on the deployment of an international military force to Kosovo; the unconditional return of all displaced people; unhindered access for relief organisations; and a commitment to work towards a political framework, based on the accords agreed at Rambouillet. In Kosovo itself, the offensive by Yugoslav Army and Serbian interior ministry police units continues, as reports emerge of increased activity by the rebel Kosova Liberation Army (KLA). Ethnic Albanian refugees continue to cross into Albania, FYR Macedonia and Montenegro, but in smaller numbers than at the start of the crisis. Many refugees have made allegations of widespread brutality on the part of Serbian and Yugoslav troops, including mass executions, gang rape and the systematic forced detention of men of fighting age. NATO claims there are currently around 100,000 men unaccounted for, but warns the figure could in fact be much higher. As of 28 April the UNHCR estimated that a total of 603,200 had fled the province, with an unspecified number displaced within Kosovo itself. Tension continues to mount between the pro-Western Montenegrin Government in Podgorica and the pro-Milosevic Serbian and Federal Yugoslav authorities in Belgrade. Montenegro has sought to avoid involvement in the conflict with NATO, prompting allegations by Belgrade of treachery on the part of the Montenegrin leadership, and raising fears that President Milosevic may seek to remove Montenegrin President Djukanovic, a move that could provoke civil war. The Western leaders have declared their support for Mr Djukanovic and warned Belgrade of unspecified consequences if it tries to destabilise Montenegro. Russia has strongly criticised the NATO air strikes, but has not provided military assistance to Belgrade. Instead, Moscow has taken a leading role in attempts to find a diplomatic solution to the conflict, although the imposition by NATO of an oil embargo against the FRY could provoke tension if NATO forces attempt to stop and search Russian vessels. Commentators also believe the deployment of NATO troops into Kosovo without Belgrade’s approval could prompt the Russian military to break the arms embargo on the FRY. At present NATO has made no firm decision on sending troops into Kosovo in an offensive capacity, perhaps aware that such a move could endanger the unity of the Alliance. However, the military options for a ground offensive are currently being updated, and some Western leaders have indicated that troops be could used in a "permissive" or "semi-permissive" environment without President Milosevic’s approval, once air strikes have inflicted sufficient damage on Belgrade’s military machine. NATO insists, though, that air power alone is capable of achieving its declared objectives. CONTENTS I The Build-up to NATO Action 8 A. Talks Adjourned at Rambouillet 8 B. The Start of the Yugoslav Offensive in Kosovo 8 C. Final Diplomatic Efforts 8 II The Start of Operation "Allied Force" 10 A. International Reaction 10 III Chronology of Developments (24 March – 28 April 1999) 12 A. Week One of NATO Air Strikes (24 - 30 March) 12 B. Week Two of NATO Air Strikes (31 March - 6 April) 16 C. Week Three of NATO Air Strikes (7 - 13 April) 19 D. Week Four of NATO Air Strikes (14 - 20 April) 21 E. Week Five of NATO Air Strikes (21 - 28 April) 24 IV The Humanitarian Situation 31 A. The Situation in the Region 31 B. Definition of emergency aid 32 C. Level of UK total emergency aid 34 D. The UK Response to the Kosovo Crisis 37 1. DFID's Objectives 37 2. Organisation of aid effort 38 3. The form of UK assistance 38 E. Level of EC aid 41 V War Crimes 42 A. Geneva Conventions 42 B. Genocide Convention 47 C. International Tribunal 50 D. Allegations of War Crimes 51 VI Opinion within the United Kingdom 54 VII Current Developments and Future Prospects 56 A. The Campaign So Far 56 B. Criticisms of NATO 57 C. Attitudes within NATO 58 D. The Oil Embargo 59 E. Main NATO Deployments and the British Contribution 61 1. Operation "Allied Force" 61 2. Allied Command Europe Rapid Reaction Corps (ARRC) 62 3. NATO Kosovo Enforcement Force (KFOR) 62 4. Operation Allied Harbour/AFOR 63 5. "Task Force Hawk" 64 F. Possible Outcomes to the Crisis 65 Appendix 1: Summary of NATO forces 69 Appendix 2: Summary of Yugoslav Forces 73 Appendix 3 - UK Ground Forces in FYR Macedonia 77 Appendix 4 - RAF Strike Missions 78 Appendix 5: Airlifts funded by DFID 80 RESEARCH PAPER 99/48 I The Build-up to NATO Action A. Talks Adjourned at Rambouillet On 19 March 1999 the co-chairmen at the Contact Group-sponsored negotiations at Rambouillet, Foreign Ministers Hubert Védrine of France and Robin Cook, announced the adjournment of the talks without agreement from Belgrade. Although international mediators succeeded in persuading the ethnic Albanian delegation to sign up to the draft accords, the Yugoslav delegation continued to object to key aspects, including the proposed deployment of a NATO-led peacekeeping force to ensure the implementation of the accords. NATO had threatened Belgrade with military action if it blocked negotiations. The failure of the talks led the Organisation for Security and Co-operation in Europe (OSCE) to withdraw the unarmed monitoring force, the Kosovo Verification Mission (KVM), from Kosovo over fears for the safety of its personnel. B. The Start of the Yugoslav Offensive in Kosovo On 20 March, as the monitors withdrew from Kosovo, Belgrade launched a major offensive with Serbian Interior Ministry police (Ministarstva unutrašnjih poslova or MUP) and Yugoslav Army (VJ) forces. During the first four days of the offensive in the Mitrovica region and along the Prizren-Djakovica-Pec axis an estimated 20,000 people were forced to flee their homes.1 Under the terms of the October agreement between President Milosevic and US envoy Richard Holbrooke Belgrade had agreed to reduce its forces in the province to the pre- conflict levels of 12,000 VJ troops and 10,000 MUP troops. However, by 23 March NATO estimated that Belgrade had massed approximately 16,000 MUP troops and 20,000 VJ troops in Kosovo itself with a further 8,000 VJ reinforcements available on the provincial border. C. Final Diplomatic Efforts In a final attempt to find a diplomatic solution to the crisis, Mr Holbrooke travelled to Belgrade for talks with President Milosevic on 22 and 23 March.
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