President Bill Clinton intervened in the Balkans to end a war in Bosnia and stop the slaughter of civilians in Kosovo. As the United States considers military intervention in Syria, the Obama administration should reflect on America's Balkan engagements in the 1990s, considering what was done right -- and wrong.
The international community took more than 3 years to stop ethnic cleansing in Bosnia. While it dithered, more than 100,000 people were killed and millions displaced. The response to Serbia's aggression in Kosovo was faster and more effective. NATO launched a 78-day air campaign that prevented what happened in Bosnia from happening in Kosovo. The diplomacy and military operations were imperfect, but Kosovo is the gold standard in humanitarian intervention.
Here are some lessons from Kosovo that are relevant to Syria:
-Diplomacy comes first: After more than a quarter million Kosovo Albanians fled to the mountains during the summer of 1998, the U.S.-led Contact Group, which included Russia, negotiated the Kosovo Verification Mission (KVM) to verify the withdrawal of Serb forces, enable the return of displaced Kosovars, and ensure the delivery of humanitarian supplies. The KVM was suspended after 40 Kosovo civilians were massacred in Racak, including women and children.
-Back diplomacy with the threat of force: After Racak, NATO approved an "activation order," the last step in force readiness before launching an attack. U.S. Special Envoy Richard C. Holbrooke issued an ultimatum, but Slobodan Milosevic scoffed at Holbrooke's threat. NATO launched limited operations, then paused. Holbrooke called Milosevic to give him a last chance, but his entreaties were ignored. NATO's full force was unleashed only after all diplomatic options were exhausted.
-Build international coalitions: With the UN Security Council paralyzed, the U.S. abandoned efforts to gain a UN resolution and focused its diplomacy on building consensus among NATO Member States. NATO did not act alone. It was backed by the Organization of Islamic Conference and statements by the UN Secretary General.
-Gain Congressional and public support: The Clinton administration worked effectively with civil society groups and the media to expose Milosevic's criminal regime and make the case for military action. Intervention was supported by a broad bipartisan group of lawmakers. Albanian-Americans played a key role garnering support.
-Keep all options on the table: Clinton pledged no U.S. ground troops. Milosevic believed he could withstand NATO's air campaign, and hunkered down. Milosevic finally capitulated after 78 days of intensive bombing.
-Expect retaliation: Serbia intensified its ethnic cleansing when NATO attacked. Serbian forces went door-to-door, assassinating Kosovo Albanian leaders and displacing more than one million Kosovars. The U.S. had conducted extensive contingency planning. Expecting population flows, humanitarian supplies were pre-positioned in Macedonia and Albania.
-Anticipate collateral damage: NATO mistakenly bombed a convoy of Albanian refugees fleeing Decani, killing 73 civilians. In the fog of war, NATO also accidentally bombed the Chinese embassy in Belgrade. Clinton personally apologized, but the incident entrenched China's opposition to the war.
-Work with insurgents: Target selection became more difficult as the bombing campaign dragged on. NATO cooperated with the Kosova Liberation Army to identify targets and track Serbian troop movements. The KLA was an essential force on-the-ground that helped guide NATO air operations.
-Hand-over power to a credible local partner: American diplomats worked intensively to forge cooperation among Kosovar leaders. The Kosovo "Unity Team" became the nucleus of post-Milosevic administration in Kosovo.
-Walk-the-talk: In the middle of the Kosovo conflict, dignitaries from around the world gathered in Washington, D.C. to celebrate the 50th anniversary of NATO's founding. The Clinton administration understood that Kosovo was more than a test of Western diplomacy. The future of the North Atlantic Alliance was also at-stake.
Has the Obama administration taken on-board lessons from Kosovo?
The United States is diplomatically isolated, except for France which endorsed air strikes against Syria. Even Great Britain, America's erstwhile ally in Iraq and Afghanistan, has balked. The Obama administration released its intelligence verifying Assad's use of chemical weapons too late to influence the British parliament's vote to authorize use of force. After the vote, Obama offended Britain by referring to France as America's "oldest ally."
Though Russia and China have vetoed three resolutions designed to pressure Assad, the Obama administration has bent over backwards to work with Russia on talks between the regime and opposition. The Geneva conference was stillborn from the beginning, and has recently been overtaken by events. Hezbollah entered the battlefield, rolling-back gains by the insurgents and further regionalizing the conflict.
Indignation is the right response to Assad's use of chemical weapons. However, the threat of military action is more effective when demanding compliance rather than as a punitive measure. With U.S. tomahawk cruise missiles locked and loaded, the Obama administration should demand that Assad sequester chemical weapons under UN control or hand over field commanders to the International Criminal Court. It could also give Assad a deadline to relinquish power.
Some Members of Congress want air strikes to advance the goal of regime change. But who will succeed Assad? Syria's insurgency is dominated by the Al-Nusra Front, an al-Qaeda affiliated terror group murdering Alawites, moderate Arab Sunnis, and Syrian Kurds. Just like Kosovo when more than 100,000 Serbs fled after Milosevic was defeated, reprisals resulting in a bloodbath are a real possibility when Assad steps down.
Secretary of State John Kerry has been a passionate point man in the recent flurry of public diplomacy. However, the administration has not done enough to explain why it is in America's national interest to attack Syria. Given public skepticism, Obama's decision to consult lawmakers is a high-stakes gambit. Ronald Reagan and Bill Clinton launched strikes against Libya, Afghanistan and Kosovo without asking Congressional authorization.
Obama repeatedly characterized military action as "limited and narrow." He called it a "shot across the bow." He also publicly ruled out the possibility of ground troops. Taking the middle ground satisfies no one. Opponents to military action are not convinced. At the same time, moderation may be alienating some senators clamoring for a more robust response.
Obama is clearly a reluctant warrior. He understands that Americans are weary from a decade of conflict in distant lands. However, Obama has boxed himself into a corner. Speaking at an impromptu news conference more than a year ago, he went off-script saying that President Bashar al-Assad's use or movement of chemical weapons represents a "red-line" that would change his administration's "calculus," with significant consequences including the possibility of more direct U.S. intervention in the conflict.
Drawing a red-line is morally correct. It is also in America's national security interest. I visited Iraqi Kurdistan after chemical weapons were used to kill thousands. It was a horrific scene. Indiscriminate use of the world's most heinous weapons against civilians violates international humanitarian law and norms of decency. Just like Milosevic's murderous rampage in Bosnia and Kosovo, it cannot be tolerated.
However, military action is a tactic not a policy. The decision to go to war should be linked to a broader strategy of creating a safe haven on Syria's border with Syria and Jordan. The safe haven would be protected by a no-fly-zone, enforced by NATO. As was the case in Kosovo, a Russian contingent under NATO's command could be deployed. The safe haven would allow refugees to return to Syria. It would also provide a buffer between Syria and front-line states, furthering stability in the region. Creating a safe haven could also change momentum on the battlefield, revitalizing prospects for a Geneva conference and bringing the grinding conflict in Syria closer to an end.
(David L. Phillips is Director of the Program on Peace-building and Rights at the Institute for the Study of Human Rights. His most recent book is Liberating Kosovo: Coercive Diplomacy and U.S. Intervention).