NextEurope No. 2 l August 2021 Kosovo’s NEWBORN Monument, erected on the occasion of its declaration of independence on February 17, 2008. Kosovo painted the monument with flags of recognizing countries in February 2013. Photo courtesy of: Arild Vågen and is licensed under CC BY-SA 3.0. CONSOLIDATING KOSOVO’S SOVEREIGNTY: Why it Matters, and What Must Be Done Report and Recommendations Global Europe Program Working Group on the Western Balkans and Subgroup on Kosovo Executive Summary There is now a unique opportunity to resolve one of Re-energized U.S. and EU support is necessary to the major sources of inter-state tension in the Western realize the goal of independent, multi-ethnic states Balkans: the dispute between Kosovo and Serbia over and societies co-existing peacefully in the Western Kosovo’s sovereignty. The people of Kosovo have Balkans. The Government of Kosovo is committed to elected a government with a strong parliamentary these principles; Serbia is not. The United States and majority on an anti-corruption and progressive the EU must confront Serbia’s increasingly authoritarian platform. The new government under Prime Minister government and its destabilizing foreign policy. Driven Albin Kurti requires firm international support from by concerns that Belgrade could come under greater Kosovo’s allies—especially the United States and influence from Moscow, by Serbia’s comparative member states of the European Union (EU)—to realize size and power advantage, and by Serbia’s effective its domestic agenda and to consolidate Kosovo’s bilateral and multilateral diplomacy, Western countries sovereignty. have drifted toward granting Serbia a privileged position among Western Balkans countries. Instead, Co-operation in Europe (OSCE), the World Health the United States and the EU should insist that Organization (WHO), Interpol, and UNESCO. Serbia meets the same standards—on corruption, kleptocracy, democratization, minority rights, and • Demand that Serbia cease its campaign against regional co-existence—demanded of all other Kosovo joining international organizations and Western Balkan countries. its related campaign to persuade countries to derecognize Kosovo’s independence. Serbia is facilitating the growing influence of illiberal states in the Western Balkans. Russia and China in • Encourage the five EU member states that do particular are using Serbia as a vehicle for increasing not recognize Kosovo (Cyprus, Greece, Romania, their own power and influence and undermine Slovakia, and Spain) to alter their bilateral Western gains in the region. A renewed commitment stance towards Kosovo’s independence. Short to consolidating Kosovo’s sovereignty is one clear of recognizing Kosovo, they must at least not means by which Kosovo’s partners can demonstrate obstruct its membership applications. their commitment to a democratic partner and • Grant visa liberalization to Kosovo immediately. a principled stance towards Serbia’s illiberal and France and the Netherlands must drop their destabilizing behavior, and opposition to its growing opposition. military ties to Russia and China. • Insist that Kosovo and Serbia not pursue unions This should entail adopting the following approach: with neighboring countries and/or territories. Be clear that Kosovo and Serbia can advance in the FOR THE UNITED STATES, THE EU, THE EU accession process as long as they live up to core EU values. UNITED KINGDOM, AND NATO: • Enhance cooperation between Kosovo and NATO. • Recommit to a renewed dialogue that treats Facilitate the development of Kosovo’s Security Kosovo and Serbia as equal parties, recognizing Force into a fully operational army by 2027 and the sovereignty and territorial integrity of each. additional collaboration in joint military exercises. U.S. and EU dialogue facilitators should support these principles and unequivocally renounce • Establish a clear path towards NATO border changes. membership for Kosovo by 2027. The NATO Mission in Kosovo (KFOR) should remain in the • Hold both Kosovo and Serbia accountable to country until the reasons for its presence no follow through on the various commitments they longer exist. If there is significant opposition have made during the dialogue. to Kosovo’s NATO membership, the United States, the United Kingdom, and those European • Redouble support for Kosovo’s admission states that recognize Kosovo should commit to international organizations that are key to to signing a robust security and defense domestic and international security: the Council agreement with Kosovo as an alternative. of Europe (CoE), the Organization for Security and NextEurope No. 2 l August 2021 FOR KOSOVO AND SERBIA: • Put people ahead of territory. Prioritize key issues Long recognized as key to peace and stability across that affect people’s lives. These include dealing with core matters relating to transitional justice— Consolidating Kosovo’s sovereignty namely locating the missing and delivering justice to survivors of sexual violence—and supporting will further strengthen its bilateral economic cooperation to combat democracy, counter the growing unemployment. influence of Russia and other • Agree to reciprocity of rights for the Serb community in Kosovo and the Albanian community in Serbia autocratic regimes in the region, as a basic principle to guide further Kosovo-Serbia formally confirm the territorial dialogue agreements. Property rights and cultural integrity of Yugoslavia’s successor heritage for all citizens in Kosovo must be secured, particularly for Kosovo Serbs’ property outside of states, and enable the region to North Mitrovica and surrounding areas, and for leave past disputes behind. Kosovo Albanians’ property in the northern four municipalities. the whole region, Kosovo is of profound symbolic and geopolitical importance. Western countries FOR KOSOVO: have invested significant political and reputational capital in the country’s success. Following their • Ensure that the Association/Community of Serb intervention to defend Kosovo’s population and Majority Municipalities is designed explicitly to repel Slobodan Milošević’s forces in 1999, they support cooperation and exchange of resources launched an unprecedented state-building mission. among municipalities, according to the Kosovo Their determination to support an independent, Constitution, EU and international law. It must not multi-ethnic, united Kosovo is emblematic of the have executive authority outside the purview of West’s vision for the diverse, multi-ethnic, and multi- the central government. confessional societies that emerged from the violent dissolution of Yugoslavia. The realization of that vision • Launch a parallel, internal dialogue between for a sovereign and integrated Kosovo is imperative majority and non-majority communities in to peace and stability in the Western Balkans and municipalities throughout the country. That Europe more generally. Consolidating Kosovo’s dialogue must include religious communities, and sovereignty will further strengthen its democracy, must address concerns of people of Kosovo who counter the growing influence of Russia and other have previously been excluded from decision- autocratic regimes in the region, formally confirm the making. territorial integrity of Yugoslavia’s successor states, and enable the region to leave past disputes behind. Why Kosovo Matters Fortunately, Kosovo is moving in the right direction. NextEurope No. 2 l August 2021 Kosovo today is a solid Western ally aspiring to join Serbia’s Challenge the EU, NATO, and other international organizations. The recent February 2021 elections—won by The rise of an illiberal, nationalist leadership in Serbia long-time opposition party Vetëvendosje (Self- led by President Aleksandar Vučić constitutes a Determination) and its coalition partner Guxo further major risk to regional peace and stability, as (Be Brave)—were competitive, free, and fair. The do Serbia’s close ties with Russia and China. majority of parties running in the election presented The Serbian government continues to openly liberal democratic political platforms, focusing on challenge Kosovo’s sovereignty, threatens the competing development approaches and strategies cohesion of Bosnia and Herzegovina through for fighting corruption. encouraging the separation of Republika Srpska and Despite these promising developments, continued its unification with Serbia, and works to undermine failure to consolidate Kosovo’s sovereignty threatens Montenegro’s sovereignty via pro-Serb proxies in the to undermine the progress that has been made, new government. These divisive and destabilizing exposes the region to malign external influences, and regional policies, as well as Serbia’s military build- leaves open the destabilizing question of territorial up, are supported by Russia, which has directly re-configuration. Strengthening Kosovo’s sovereignty interfered in countries across the Balkans, especially also requires that its government more proactively Montenegro and North Macedonia. articulate, implement, and advocate for its foreign Given that EU accession requires solving inter-state policy. This includes its overarching foreign policy disputes and conforming to liberal democratic standards initiatives, as well as those pertaining to the Kosovo- of multi-ethnicity, competitive political systems, the Serbia dialogue. Regarding the dialogue, Kosovo’s rule of law, and free media, it is unacceptable that the new leadership should remain committed to the EU allows Serbia to move forward