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The Terrorism and Ethnic Conflicts: the Experience of the Western Balkans

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The Terrorism and Ethnic Conflicts: the Experience of the Western Balkans issue 3 • year 2 January - March 2003. FORUM ZA ETNIČKE ODNOSE FORUM FOR ETHNIC RELATION T h e m a g a z i n e o f F E R REPORT ON THE TERRORISM AND ETHNIC CONFLICTS: THE EXPERIENCE OF THE WESTERN BALKANS april 2002. forum 1 C M Y K THE TERRORISM AND ETHNIC CONFLICTS Preface n team of the experts from Bosnia and Herzegovina, Croatia, Kosovo, Macedonia, Montenegro and Serbia, leading by Dr. Budimir ABabovic, leader of the expert team of the Forum for Ethnic Relations (Belgrade, Serbia) and Dr. Dusan Janjic, Project Leader, Institute of Social Sciences, University of Belgrade and Forum for Ethnic Relations (Belgrade, Serbia); prepared this report for the Forum on Ethnic Relations. This report represents an outcome of work of Forum's experts in the framework of the project Terrorism and Organized Crime, Challenges to Security and Stability in the Western Balkans sponsored by the Rockefeller Brothers Foundation, New York. The report was prepared based on an analysis of pub- licly available data in media, international documents, national laws, decrees and directives, expert analyses and other sources. For purposes of this report, the Western Balkans include Croatia, Bosnia and Herzegovina, FR Yugoslavia, i.e. Serbia, Kosovo and Montenegro and Macedonia. The report covers the following issues: description and analysis of the concept of terrorism; methodology for monitoring and combating terrorism; the connection between politics, terrorism and armed rebellions; the interconnections between conflicting (economic, social, ethnic, religious and cultural) interests and values and ter- rorism; political motives, goals and profiles of terrorist organizations and networks and their supporters; behav- ior of government bodies and the public in conflict man- agement, especially in facing with violence and terrorism; behavior of business, intellectual, church elites, journalists and civil society faced with ethnic intolerance, extremism, violence, armed conflicts and terrorist activities. The report also contains recommendations to national governments, especially to military and police officials, international organizations, representatives from media, academia, business, trade unions and civil society for the promotion of legislative and institutional framework of com- · Encourage political decision-makers in countries of the bating terrorism. Region to work on legislative changes and the establishment of institutions to combat organized crime and terrorism; The report seeks: · Suggest concrete policy measures, launch public cam- · Initiate expert and political public debates on the ques- paigns and lobby for implementation of the recommenda- tions pertaining to security, development and democratiza- tions; tion in the Western Balkans, seeking to overcome preexisting · Encourage public debate and raise public awareness of problems associated with the fact that most information dangers of different forms of political extremism and crimi- through the media are often based on insufficiently checked nalization of society to security and stability of the state and data and abounding with stereotypes; the Region. For internal informing • the publisher: The Forum for Ethnic Relations - Beograd, 45 Narodnog fronta; tel/fax: +38 11 361 6654: e-mail: [email protected] •for the publisher: Dušan Janjić the coordinator of FER• the editor: Tea Terzić • English editoring: Florian Biber, Barbara Davis design: Nikola Kostandinović • press: Inpres, Beograd 2 forum January - March 2003. INTRODUCTION The Importance of Understanding Terrorism Regarding the first consideration, it needs to be noted that here has been a considerable record of experience with U.S. foreign policy towards the Western Balkans has been car- ethnic conflict, violence and wars, including terrorism, in ried out through the lens of the 'fight against terrorism'. This the Western Balkans. Political violence occurred has resulted in certain contradiction in U.S. foreign policy. Tbetween national groups, within individual countries and On one hand, it will seek to promote stability in the region, region wide. Like other citizens of the World, there have been as renewed conflict will (a) draw its own or European occasions when the inhabitants of the Balkans faced global resources and energy from confronting terrorism and (b) terrorism. In fact, the terrorist attacks on New York and because a conflict-ridden and instable area might be vulnera- Washington of 11 September 2001 were a strong experiences ble for use by terrorist groups. On the other hand, the United and a turning point in attitude towards terrorism in the States has been willing to undermine the rule of law in coun- region. The crimes committed on 11 September 2001 have tries of the region for the pursuit of terrorists, as evidenced in raised the possibilities for such terrorist actions globally and the recent arrest of six Algerians after Bosnian authorities for in-or from-the Balkans. It turned out that small but well organ- the lack of evidence against them released them. This con- ized terrorist groups can mount serious attacks even if they tradiction between long-and short-term goals of U.S. foreign do not have wide support in the local community. In fact, it policy in the region might result in some degree of instability can be asserted that frequently the forcefulness of a terrorist and uncertainty in the post-conflict reconstruction process, act is directly related to the decline of the ideology which its especially in Bosnia and Kosovo. seeks to promote. Terrorism gains ground when other means On a local level, the terrorist attacks have lead to a prolif- of bringing about change are or seem impossible. As such, the eration of perceived terrorist threats. Some politicians have terrorism of Al Qaeda can bee seen as a testimony of the fall sought to portray other ethnic groups, especially Muslim com- of political Islam. munities, as being prone to terrorism and sought to identify a Events of 11 September demonstrated that terrorism is a terrorist threat emanating there from. While this rhetoric major security concern of the contemporary world. As the peaked in the immediate aftermath of the attacks, it has not means and method for achievement of their objectives, yet completely subsided and prevents both an addressing of diverse groups, organizations and even some states have past responsibilities associated with the disintegration of endorsed the use of violence to achieve their political goals. Yugoslavia and hinders a more accurate identification of Global terrorism is truly a phenomenon of globalization, it threats to stability in the region. knows no boundaries and can appear in every part of the For Southeastern Europe, the main threat of terrorism is world. This is why terrorism is not only a challenge to indi- two fold: For international terrorism the danger lies in the vidual states but also a global one. Accordingly, terrorism as weakness of the states of the region, especially in the a global problem necessitates a global response. In regions, Southern Balkans. In facing this threat, the states should rein- such as the Western Balkans, were terrorism and related phe- force the control over their territory, in particular of their nomena have similar roots and causes, regional co-operation brothers. This task could be fulfilled only through a closer is a necessary intermediary level between the national and the cooperation between the states. The weakness of the state is global. both an encouragement to organized crime and terrorism, If measured by the number of acts and the number of vic- both of which are likely to have an impact beyond the region tims, the conclusion could be drawn that terrorism in general itself. and international terrorism in particular is considerably more The second danger might arise in the future from local ter- limited than other types of crime or political violence. rorist groups if the states fail to build institutions which However, when considering its psychological effects-one of accommodate its diversity and include populations which in the main goals of most terrorists acts-than this assessment has the past have not been given a stake in the state. Only more to be reconsidered. Especially the scale of destruction and the inclusive governments and states can prevent the (re-emer- number of victims resulting from the terrorist attack 11 gence of nationalist-separatist movements in the region in the September 2001 have dwarfed most previous acts of terror- future. ism in their scope. In addition to the impact terrorism itself on security and democracy, one has to take into account two additional con- What is Terrorism? sequences of terrorism. Firstly, the response to terrorism, Terrorism is a delictum sui generis, a specific kind of polit- especially after 11 September 2001, has impacted security ical violence, and the most serious form of organized crime, and democracy on a global level. Secondly, the rhetoric of 'ter- both nationally and internationally. International rorism' by authoritarian (and occasionally democratic) gov- Organizations have been making efforts to arrive at a defini- ernments has often been the justification for political repres- tion of terrorism that would be acceptable to all countries. sion. The absence of such a universal definition is indicative of the January - March 2003. forum 3 THE TERRORISM AND ETHNIC CONFLICTS difficulty to grasp the phenomena. ments have developed such a global agenda, despite the exis- Despite the divergence in definitions
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