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Europe Report, Nr. 165: Bridging Kosovo's Mitrovica Divide

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Europe Report, Nr. 165: Bridging Kosovo's Mitrovica Divide BRIDGING KOSOVO'S MITROVICA DIVIDE Europe Report N°165 – 13 September 2005 TABLE OF CONTENTS EXECUTIVE SUMMARY AND RECOMMENDATIONS................................................. i I. INTRODUCTION .......................................................................................................... 1 II. MITROVICA AND THE NORTH ............................................................................... 2 A. THE REGION AND ITS HISTORY .............................................................................................2 B. MITROVICA SINCE 1999 ........................................................................................................3 C. THE THREE NORTHERN MUNICIPALITIES.................................................................................5 III. THE KEY PLAYERS AND KOSOVO'S TERRITORIAL INTEGRITY ................. 7 A. THE INTERNATIONAL COMMUNITY .......................................................................................7 B. BELGRADE ............................................................................................................................7 C. KOSOVO ALBANIANS ............................................................................................................8 D. THE SERBS OF THE NORTH ....................................................................................................9 IV. THE NATURE OF DIVISION.................................................................................... 11 A. A CITY SLASHED APART.....................................................................................................11 1. The urban topography of division............................................................................11 2. Division fuelled by a collapsed economy ................................................................11 3. Courts.......................................................................................................................12 4. Making a home in the lawless interregnum.............................................................13 B. THE ADVERSE ENVIRONMENT FOR RETURNS.....................................................................14 1. The displaced ...........................................................................................................14 2. Controlled multi-ethnicity........................................................................................14 C. THE LEADERSHIP DEFICIT...................................................................................................15 1. Staying below the parapet........................................................................................16 2. Regimenting opinion ...............................................................................................17 D. MITROVICA AS SERVICE PROVIDER.....................................................................................18 V. THE SECURITY KEY................................................................................................. 21 A. THE UNPACIFIED NORTH ....................................................................................................21 1. The strategic environment .......................................................................................21 2. Fears of attack..........................................................................................................22 B. MITROVICA'S SECURITY STALEMATE..................................................................................23 1. Saying boo to UNMIK.............................................................................................23 2. A contest of wills? ...................................................................................................24 C. DEVOLVING POLICING ........................................................................................................25 1. Removing the buffers ..............................................................................................25 2. North Mitrovica's weak KPS and its strong shadows..............................................26 3. The regional police command..................................................................................27 VI. CHARTING A SOLUTION ........................................................................................ 28 A. PROCESS .............................................................................................................................28 1. Timing......................................................................................................................28 2. Building capacity .....................................................................................................29 3. Building a vision for settlement...............................................................................30 B. SUBSTANCE ........................................................................................................................31 1. Transforming services..............................................................................................31 2. New municipal arrangement of Mitrovica...............................................................32 3. A space for unification.............................................................................................33 4. The city economy ....................................................................................................33 5. Security arrangements for north Kosovo.................................................................33 6. Overarching structure ..............................................................................................34 APPENDICES A. MAP OF KOSOVO ................................................................................................................37 B. MAP OF NORTH KOSOVO ....................................................................................................38 C. MAP OF MITROVICA............................................................................................................39 D. GLOSSARY OF ABBREVIATIONS AND ACRONYMS ................................................................40 E. ABOUT THE INTERNATIONAL CRISIS GROUP .......................................................................41 F. CRISIS GROUP REPORTS AND BRIEFINGS ON EUROPE ..........................................................42 G. CRISIS GROUP BOARD OF TRUSTEES ...................................................................................44 Europe Report N°165 13 September 2005 BRIDGING KOSOVO'S MITROVICA DIVIDE EXECUTIVE SUMMARY AND RECOMMENDATIONS The international community has properly decreed determination period, with the rank of Deputy Special that Kosovo's final status must not involve division of Representative of the Secretary-General and power to its territory. But this declaration has not been followed by coordinate the effort. sufficient action. Belgrade's policy of pursuing some form of partition is far advanced in the restive northern UNMIK and KFOR must quickly regain the security city of Mitrovica and its hinterland, and a major security, initiative north of the Ibar by increasing force levels political and financial effort is required to save the and assertiveness, under the Special Commissioner's situation. Capacity should be built immediately, and its direction. KFOR should explicitly make Mitrovica and implementation should begin once the Contact Group has the north its primary operational focus and restructure declared its support for Kosovo's future as a functional, accordingly. Belgrade's illegal police stations should conditionally independent state within its present borders. be removed from north Kosovo, and the Special Commissioner should negotiate the replacement of the Territorial integrity is the correct policy because obstructive hardliners who head the regional hospital partition could provoke further population exchanges and university there. Plans for devolving the brittle, inside Kosovo and instability elsewhere in the Balkans, ethnically divided Mitrovica regional police command especially in neighbouring Macedonia. But division to local control should be delayed until the Special remains a live issue, not least because in Mitrovica, Commissioner can secure a viable Albanian-Serb security where Kosovo is increasingly divided at the Ibar River, consensus for the north that squares territorial integrity the UN mission (UNMIK) and NATO-led security with Serb fears of being overwhelmed. forces (KFOR) have failed to carry out their mandates. In north Mitrovica and the neighbouring communities With the security situation under better control, the up to the border, an area that contains perhaps a third framework of a solution that needs to be pursued with of all Kosovo's remaining Serbs, Belgrade exerts its greater commitment and sense of urgency could include influence through parallel government structures, creation of a new municipal authority for north Mitrovica, including a police presence that contravenes UN which should furnish both the security and accountability Security Council Resolution 1244. for addressing Albanian returns, and creation of a central administrative district shared between the current Settling Mitrovica early in the final status process pre- Mitrovica municipality and the new north Mitrovica unit supposes foreknowledge of Kosovo's overall destination. that could house a common city board to receive donor But it is time for Contact Group member states to stop
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