Before NATO’s decision to intervene against Serbian forces to end the campaign of expulsion of Albanians from Kosovo 25 years ago, numerous diplomatic efforts were made to prevent the conflict. Among them was an American diplomatic mission, known as K-DOM, which was monitoring the situation in Kosovo alongside OSCE observers and European and Russian ones. In a rare interview, the former head of this mission, Shaun Byrnes, a seasoned American diplomat in the Balkans, now retired, told Voice of America that the situation between Kosovo and Serbia remains fragile, with the possibility of incidents reigniting. He said that Kosovo’s hesitation to form the Association of Serb-Majority Municipalities is real due to Serbia’s hostile approach towards it.
Voice of America: On the 25th anniversary of NATO’s intervention, considering the past but also looking towards the future, how do you assess the situation in Kosovo? Was that decision the right one?
Shaun Byrnes: The intervention was one of the steps. Perhaps at that time, there were other options, but for that time, it was a reasonable decision. None of the parties involved wanted war anymore, no party wanted to bomb Serbia, no one wanted to use military force and intervene in Kosovo to end the war. It was a temporary solution, to buy time, if it would work, to buy time for reaching a political solution… It was critically important to stop the fighting to enable both parties to have a political solution.
Voice of America: How do you assess the current situation? Relations between Kosovo and the United States fluctuate. What is your view on how relations have developed over the years?
Shaun Byrnes: The United States continues to stand firmly with Kosovo. We have strong friendships and have worked hard to help Kosovo become a country where law and order prevail and a free market economy. There have been ups and downs, there has been despair on our side and in Pristina, but there has been significant progress in raising the standard of living, building infrastructure. The problems we have now, with the government of Albin Kurti, as I understand it, are related to the dialogue that has been ongoing since 2013, aimed at normalizing relations between Serbia and Kosovo, and fundamentally this effort implies the recognition of Kosovo’s independence by Serbia. In my opinion, Serbian leaders have no intention of recognition. Therefore, what we have seen is a theater. The other issue is that of the rights of the remaining Serbian population in Kosovo, and one of the issues related to it is the establishment of the Association of Serb-Majority Municipalities and the competencies that this association would have. Kosovo’s leaders, whether Mr. [Hashim] Thaçi in his time or Mr. [Albin] Kurti now, as well as the leaders of the Democratic League, all have serious reservations about agreeing to the establishment of the Association because of the possibility that it could be a step towards creating a second Serbian Republic.
Voice of America: Do you think their concerns are justified?
Shaun Byrnes: Yes, I think so, considering Serbia’s behavior. Perhaps one day when Serbia is truly democratic and Serbia becomes a country where law prevails, with free and independent media, the establishment of the Association will be possible, but the concerns in Pristina I think are real and legitimate for the establishment of the Serbian Association. It seems to me that such an idea only legitimizes the current parallel structures in Serbia, which in most cases have resisted the integration of Kosovo’s governing institutions.
Voice of America: Many regional experts have warned of the possibility of a resurgence of conflict. How do you see it, is there a chance of conflict reigniting?
Shaun Byrnes: Unfortunately, from my point of view, there is a possibility and I must refer to the recent incident in Banjska as an example. It is clear that [Serbian President Aleksandar] Vučić is being held back by hardline Serbian nationalists who fiercely oppose any compromise with Kosovo. This is a problem for him and I don’t know how much he can influence, but it is clear that he is afraid to move forward and quickly. And this step opens up the possibility, at least, of provocations happening again.
Voice of America: Mr. Byrnes, considering these challenges, how do you think the United States should engage with Kosovo and Serbia?
Shaun Byrnes: The United States should send clear signals that we support Kosovo regardless of changes in our internal political dynamics. We remain friends and should continue to encourage leaders in Kosovo to continue and increase efforts to fight corruption and build a society that respects law and order. This is the most important issue for Kosovo, to become a state where the rule of law prevails because it would solve many problems and help towards further recognitions. As for Serbia, I think we need to put more pressure on it to show more willingness to compromise on issues related to Kosovo. Frankly, I think we need to be tougher with Serbia because it continues to have a hostile approach towards Kosovo. Serbia needs to understand that Kosovo is no longer part of Serbia, it has gained its independence through the force of arms and it needs to accept this fact. There was a real reason why Kosovo and its population decided to separate from Serbia and Serbs simply need to accept this fact, but most of them are not willing to.
