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    Is Bosnia-Herzegovina Next on Russia’s Radar?

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    Russia’s invasion of Ukraine has raised fears among many Bosnians that their vulnerable state could also become a target. Like Ukraine and Georgia, both now having suffered Russia’s military intervention, Bosnia and Herzegovina too has NATO membership aspirations that infuriate Moscow. In Republika Srpska, Bosnia and Herzegovina’s Serb-dominated entity that, like the breakaway regions of Donbas, South Ossetia and Abkhazia, is opposed to NATO, Vladimir Putin’s prospects are of the highest geopolitical value, namely securing a loyal proxy ready to do Moscow’s bidding. 

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    The Russian president has already held numerous official consultations with Bosnian Serb leader Milorad Dodik, the latest one taking place in December 2021. During his second consecutive meeting with Putin in the midst of the 2014 Ukraine crisis, Dodik shared his unequivocal affiliation with Moscow, saying: “Naturally, there is no question that we support Russia. We may be a small and modest community, but our voice is loud.” As Russia’s current military intervention progressed in Ukraine, Dodik also spoke to Russian Foreign Minister Sergey Lavrov about the “implementation of agreements” reached during the last meeting with Putin.  

    Putin’s Proxy in Bosnia

    In the quarter of a century since the signing of the Dayton Accords, Bosnia and Herzegovina has been the site of occasional political crises but has never come close to military conflict. In recent months, however, Dodik has doubled down on his efforts to tear apart the postwar constitutional order of the country’s two constitutive entities, the Federation of Bosnia and Herzegovina and Republika Srpska. Emboldened by the resurrection of Russia’s power, he pressed ahead with his nationalist political agenda aimed at dismantling institutional arrangements that have gradually restored peace and security over the last 25 years. As a result, Dodik was blacklisted by the US government in January this year.

    In December 2021, lawmakers loyal to Dodik advanced their secession bid and voted 49-3 in favor of starting a procedure for Republika Srpska to withdraw from central government mechanisms such as common defense, judiciary and intelligence, to name a few. They have also decided that within six months, the government in Banja Luka must recreate its own legislation governing such institutions. 

    To show it means business, Republika Srpska paraded paramilitary forces on January 9 in a nationalist celebration declared illegal by the constitutional court of Bosnia and Herzegovina; among the participants were the Night Wolves, a black-uniformed group of Russian nationalist pro-Kremlin bikers. On February 10, Republika Srpska’s national assembly adopted the draft version of a law to create a separate judicial system from the rest of the state. Regarding his future plans, Dodik said he won’t be daunted by opposition from the Western centers of power, suggesting that Moscow and Beijing will help if the West imposes sanctions. 

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    Notwithstanding Russia’s local proxy, fanning existing flames in Bosnia and Herzegovina could be a rational adventure from Putin’s viewpoint for additional reasons. First, Serbian and Turkish reactions could fit the wider Russian agenda if this trajectory with opposing power dyads within the Bosnian state takes a turning point. 

    Second, Putin is aware of the EU’s record of conflict management in ex-Yugoslavia, and Bosnia in particular, in the early 1990s. It failed miserably to secure the peace in the heart of Europe, when the EU was a rising star and Russia was at its weakest point. Third, extending the current EUFOR peace mission in Bosnia may be vetoed by Russia at the UN Security Council in November. 

    It is worth remembering that Bosnia and Herzegovina doesn’t have NATO’s Article 5 mutual defense guarantee to fall back on, and that President Joe Biden’s promise to defend every inch of NATO is meaningless for Sarajevo. Washington’s official position on protecting the parameters of the Dayton Agreement is as vague as its strategic ambiguity toward Taiwan.  

    Serbia and Turkey in the Bosnian Theater

    President Putin has many good reasons to count on Serbia to exploit Bosnia and Herzegovina’s internal weakness. Belgrade largely relies on Russian weaponry and strong nationalist sentiments with the secessionist movement in Republika Srpska. Serbia’s national defense strategy, officially promoted in late 2019, transcends national boundaries in its content, marking a shift from defensive sovereignty to a more offensive approach. 

    Serbia’s home minister, Aleksandar Vulin, the former defense minister who officially promoted this strategy, often exudes self-congratulatory confidence that the Western Balkans region is there for Serbia’s taking. At the ruling Serbian Progressive Party congress in July last year that took place a few months before the joint Serbian-Russian “Slavic Shield” military exercise, Vulin forcefully stated that “Creating the Serbian World, where the Serbs would live and be united, is the task of this generation of politicians.”

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    Serbia has also accelerated military spending at a faster rate for several years now for no rational reason except regional supremacy. According to Global Fire Power, its current defense budget is almost twice that of Bosnia and Herzegovina, Albania, Northern Macedonia, Montenegro and Kosovo combined. Serbia’s reliance on Russian and Chinese military support has also been reinforced. In 2019, it received donations of fighter jets, tanks and armored vehicles from Russia. In 2020, it bought CH92-A drones and FK-3 surface-to-air missiles from China and then purchased, at Putin’s suggestion, the Pantsir S-1 air defense system. 

    It is critical to understand why Serbia is arming so fast: From a realist perspective, its behavior could only become assertive, and more so if Russia’s military intervention in Ukraine succeeds.

    Turkey is probably the second regional contender to be caught in the Bosnian fire for both domestic and external factors. Under President Recep Tayyip Erdogan, Ankara has been projecting soft power throughout the Balkans, particularly in Bosnia and Herzegovina, relying on historical, cultural and economic ties. Turkey has also actively participated in all three peacebuilding missions in Bosnia and Herzegovina: IFOR (1995-97), SFOR (1997-2004) and is currently among EUFOR’s 20 contributing countries. 

    However, in case of conflict, Ankara represents an imraportant geopolitical substitute should EUFOR abandon its commitments or if Russia vetoes its mandate at the Security Council. Western powers have for far too long watched from the sidelines and have practically allowed this trajectory with opposing power dyads within the Bosnian state to take root. Hence, Turkey won’t shy away from using its military clout in the region.

    The conventional logic of Turkish enmity with Serbia sets Ankara and Moscow on a collision course because Vladimir Putin perceives Republika Srpska and Serbia as natural, historic and strategic allies. However, Russia would not necessarily oppose a Turkish role in the Balkans as long as Ankara’s move triggers some cracks within the Euro-Atlantic alliance. It also seems plausible for Turkey and Russia — historically perceived as brothers by the two confronting parties in the Bosnian theater — to test their mediating capacity modeled after the Astana format launched after the Russian and Turkish interventions in Syria. 

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    Given their animosity with Russia or Turkey, some European powers would expectedly oppose their interference in Bosnia and Herzegovina on geopolitical grounds, while the more liberal ones will raise ideological concerns. Speaking on the subject of the priorities of the French presidency of the EU that began on January 1, President Emmanuel Macron assessed that the Western Balkans “is going through new tensions today. History is coming back. Sometimes tragedy is coming back.” 

    Macron also insisted on the “very special responsibility” toward these countries in terms of fighting external interference. What Macron fears is that extra-regional actors like Russia or Turkey could fill the vacuum, in which case power relations would inevitably become subject to reconfiguration. This scenario is not unfeasible as Russia does not project power in the Balkans for the sake of challenging Turkish interests in the first place. Its prime goal is to replace the existing US-led liberal, institutional and rules-based order with a more anarchic, illiberal and multipolar structure that fits Russia’s image. 

    A Slippery Slope for the EU and US

    At first sight, a local collision in Bosnia and Herzegovina would bear a striking resemblance to what transpired in Ukraine in 2013-14. Without full integration into the EU or NATO, Bosnia and Herzegovina is also a vulnerable target, just like Ukraine has proven to be. Bosnia and Herzegovina is also divided along similar geopolitical and domestic lines, between pro-NATO aspirations in Sarajevo and anti-NATO tendencies in Banja Luka. 

    However, Bosnia and Herzegovina’s instability is far more complex than the crisis in Ukraine for one structural reason: It is not in Russia’s near abroad but in the European underbelly, which presents both an opportunity and a threat for all opposing sides at the local, regional and international level.

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    The EU has for some time failed to find a unified response to the Bosnian crisis, let alone taking concrete measures, except increasing EUFOR mission by an additional 500 troops. While some founding member states, including Germany, the Netherlands and Belgium, urged sanctions against Milorad Dodik during a recent EU foreign ministers’ debate, newer members like Hungary, Slovenia and Croatia oppose them. In fact, some European populist leaders have been staunch supporters of the Russian proxy in Bosnia and Herzegovina. 

    Croatian President Zoran Milanovic stated recently that he was against the EU imposing sanctions against Dodik, saying that “If someone from Croatia votes for those sanctions, for me they will be a traitor.” Hungary’s Prime Minister Viktor Orban offered €100 million ($110 million) in financial aid to Republika Srpska. Orban also opposed placing EU sanctions on Dodik, signaling an early warning that the EU, as a whole, may be unable to secure a peaceful Bosnia and Herzegovina, which again resonates with the EU’s poor historical record of conflict management in the region.

    Hence, one should not exclude a possibility that EUFOR troops could be evacuated from Bosnia and Herzegovina one day altogether, much in the same way the Dutch UNPROFOR battalion was pulled from Srebrenica in July 1995, failing to prevent the Srebrenica genocide from taking place and making a mockery of UN resolutions on safe heavens. Should there be a prospect for this failure being repeated, the EU might decide to pass the buck on to Washington.

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    In that case, small-nation turmoil and squabbles among Balkan nations could transform into a great-power rivalry. Will President Biden accept that call given his unreadiness for direct confrontation with Moscow? The US would face a choice between realist logic, which is to revert European security to Europeans, or a more liberal and interventionist approach, which is to prevent Russia’s unchecked incursion toward NATO’s eastern border. 

    There is still time for the US to deflate Republika Srpska’s rebellion and put it back in the political arena. Former Bosnian presidency member Haris Silajdzic recently suggested placing a small NATO brigade in Brcko, the site of fierce battles during the wars of the 1990s, and a few battalions on the Bosnia and Herzegovina-Serbian border. If the US passes the buck back to the EU — which Russia and Serbia will celebrate — the West needs to fasten its seatbelts and brace for impact. More so than the war in Ukraine, a conflict in Bosnia and Herzegovina has the capacity to trigger a regrettable European history.

    The views expressed in this article are the author’s own and do not necessarily reflect Fair Observer’s editorial policy. More

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      When Will Montenegro’s Dreams of Joining the EU Become Reality?

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      Four students, rejoicing in the good news, partied in one of the numerous Irish pubs in Podgorica. Fed up with nationalism, populism and other breeds of pestilence engulfing the Western Balkan region, they reveled in a brighter future awaiting them in the European Union. It was summertime, the Thessaloniki Summit had just ended, and the promise of EU membership had been conveyed to the region.

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      For the students, the EU was not a gold pot you could dip your hand in and harvest the low-hanging fruit. Quite the contrary, at their very core, they felt that the EU resonated with them in a peculiar but enchanting harmony. German punctuality, cars and the Scorpions’ “Wind of Change”; French “liberte, egalite, fraternite” and wine; Italian canzone and eternal Rome; Greek philosophy and the cradle of democracy; Spanish flamenco and the mesmerizing sound of guitars — all came together in a beautiful constellation, comprising the 12 stars on the blue flag.

      Fast forward two decades and one of those four students has become the minister of foreign affairs of Montenegro. Without pretending to be Dr. Nicolaes Tulp from the famous Rembrandt painting, looking back at the lost time in between, I cannot help but ask whether both Montenegro and the EU could have done better. Are we where we wanted to be?

      Montenegro Calling

      Over those years since Thessaloniki, Montenegro has accomplished a lot. It opened up its economy and became a WTO member. It has no open issues with its neighbors. It joined NATO in 2017 and is ahead of others in the region in the EU accession process. It is also the only aspiring member country showing 100% alignment with EU foreign policy. Looking at these achievements, some may wonder why Montenegro still isn’t part of the European Union.

      Well, things are never that simple. In contrast to the undeniable success of its foreign policy, the murky labyrinths of domestic politics are still blocking the country’s path to EU membership. Since negotiations with Brussels began, the ruling party has acted as if it were the sole custodian of the process. But to be successful, the course must involve the whole of society and political spectrum. Montenegro is joining the EU as a community, not as a ruling majority. Every success in this effort belongs to all political stakeholders, NGOs and other participants. The same applies to all failures.

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      Of course, the main responsibility lies with the government that creates the framework for how the accession will evolve, but the sustainability of the process can only be attained if utmost inclusion is assured. There was a persistent lack of political will to tackle the most treacherous pestilence of any society — corruption and organized crime. For too long, political stakeholders turned a blind eye to these flaws blocking Montenegro’s European path and deferred the attempts to eradicate them to better times.

      Finally, the regional context of the Western Balkans further complicated Montenegro’s course toward Brussels. No matter how much one excels in class, the performance of your classmates can hold you back. Montenegro has been a beacon of good neighborly relations. However, it exists in a region permeated with bilateral disputes that have detrimental spillover effects — an endless game of thrones.

      But every cloud always has a silver lining. In August 2020, the Democratic Party of Socialists — the heir of the Communist Party — headed by President Milo Djukanovic, suffered defeat in elections, marking the first peaceful transition of power after nearly 30 years of one-party rule. The process has been smooth; the absence of riots, rallies or protests on the streets showed how mature the Montenegrin society has become.

      The new political habitat brought to the surface new hopes, zeal and also stakeholders. There emerged a myriad of new, young politicians, with political roots in neither the Communist Party of old nor in the nationalist blocs. Young and prominent, they shine brightly, unburdened by the dark clouds of the wars of the 1990s and the legacy of clientelism. They are progressive, Western-orientated, and they truly walk the talk. They present a stark contrast to the ruling elites of the past, the indoctrinated ex-members of the Communist Party who, despite being able to subscribe to the messages coming from our European partners, never genuinely understood them. 

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      And how could they? A vast majority of these party cadres never lived abroad, never left the confines of former Yugoslavia and seldom spoke foreign languages. Unlike them, the new generations are fully in sync with the heartbeat of Europe. They have been raised on Western films, music and culture. They have studied or lived abroad and speak at least one foreign language. Most importantly, they detest corruption. Unlike their predecessors, these new Montenegrins are law-abiding not because the criminal code demands it, but because they find corruption to be a great social ignominy that mars the country’s image. In their mindset, corruption is a red line that must not be crossed.

      Against the backdrop of this mixed bag of legacies, the new government has maintained the same foreign policy and conducted, in parallel, an intrepid fight against corruption and organized crime, achieving outstanding results in a very short period of time. These results have been recognized by the EU and the international community at large.

      Thanks to these accomplishments, the myth that only one political party could lead Montenegro toward EU membership has been debunked. Montenegro’s EU and NATO partners have realized that other, young and genuinely progressive political forces are capable to reach the final destination of the country’s EU journey and that they are sparing no effort to deliver. But again, this is a process that belongs to all Montenegrins. Membership in the EU is voluntary and requires dialogue and cooperation from all sides of the political spectrum, no matter how hard it may sometimes be.

      Brussels Calling

      Let us now look at the situation from the EU’s perspective.

      It is widely known that every structure has, among others, a raison d’être, one where others look up to it and find it worth emulating. Without this interaction, its allure would be in vain, creating an inwardly-oriented edifice. This approach is embedded in the EU Global Strategy 2016, meaning that the union must become a more globally-present and assertive international actor. Its enlargement policy, which compels countries to conduct reforms to better align with the EU, is its most appealing stratagem. We in the Western Balkans understand that most clearly.  

      Societies in the former communist countries, from “Sczeczin in the Baltics to Trieste in the Adriatic,” hold this to be a self-evident truth. Enlargement policy has had a hugely transformative effect on all its beneficiary countries and represents the best of Europe to date — its attested power to unite in diversity. This is even more remarkable given the fact that the past decade has not been the easiest ride for the EU. Many crises befell the bloc one after another, including the 2008 global financial crisis, the Arab Spring, the 2015 migrant crisis, Brexit and now COVID-19.

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      I don’t think it would be wrong to suggest that some states might not have survived these great ordeals if the union, the spiritus movens of European nations and values, had not been there to support them. This structure has proved time and time again that democracies might be shaken, but, when united, they will, at the end of the day, always prevail.

      There is no doubt that the EU needs to enter calmer waters in order to recuperate from a decade of crises before it can continue to expand. Nonetheless, the dream of European might is still vivid and alive among those who have been dreaming about such a European future for almost two decades.

      For all our sakes, we should keep sharing this approach together. Enlargement is a question of credibility, something that the US realized in the wake of the Cold War and manifested in the motto “the US promises — the US delivers.” The EU, if it wishes to have a truly global status, should act along the same principle.

      In the case of the EU, credibility is twofold. First, neither Brussels nor the member states should permit themselves to leave a geostrategic blackhole in the heart of the continent. It would be a blunder, as it would lead to the penetration of other global opponents in the union’s backyard. If the EU fails to secure the very heart of the continent, it will become its Achilles’ heel that would prevent the union from expanding, consolidating and deepening.

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      On the other hand, it is also an issue of credibility for the aspiring countries. Since 2003, only two candidates have become member states, so if enlargement becomes too much of a moving target, at the end of the day, the aspiring countries might start looking to other centers of power that are more credible, reliable and able to deliver on promises.

      The Western Balkans is the only region where enlargement coincides with reconciliation among nations. And if incentives for good behavior disappear, bad behavior might prevail.

      For all these reasons, the EU has to be prudent, astute and bold enough to realize that it is much better to have the aspiring countries at the table for the sake of its future, stability and raison d’être.

      The Last Mile

      The case of Montenegro should be an easy one. A country of 620,000 inhabitants, with 75% in support for EU and NATO membership, as well as being fully committed to EU foreign policy, is something that the union could easily digest. A country this size could not, by any means, hamper the EU decision-making process.

      The benefits of this easy enlargement would be manifold. It would demonstrate that, in spite of some setbacks along the way, the EU is still delivering. That would, beyond any doubt, reinvigorate mutual trust. Furthermore, the power of the Montenegrin example would encourage other Western Balkan countries to show real interest in becoming the next member states.

      At the same time, it would be a strong signal to third parties that the region has not been forgotten, that the EU has just made a short break and now, again, claims its full right to it. That would make life easier for NATO as well by providing stability and security on its southern flank.

      The best journeys are never easy or short. But one old European state, too small to have enemies, too smart to create them and too proud to be talked down to by anyone has been on the road for almost two decades, is hurrying toward the European family of nations where it has always belonged. It is high time for Montenegro to get there and for the story of those distant student dreams and hopes, music and harmony to have a happy ending.

      The views expressed in this article are the author’s own and do not necessarily reflect Fair Observer’s editorial policy. More