(from Joe Biden's floor statement)
The example of Bosnia is illustrative. Ten years ago, Bosnia was being torn apart by ethnic cleansing. The United States stepped in decisively with the Dayton Accords to keep the country whole by, paradoxically, dividing it into ethnic federations. We even allowed Muslims, Croats and Serbs to retain separate armies. With the help of U.S. troops and others, Bosnians have lived a decade in peace. Now, they are strengthening their central government, and disbanding their separate armies. The Bush administration continues to hope that Iraqis will rally behind a strong central government that keeps the country together and protects the rights of all citizens equally. But that vision has been engulfed by the flames of sectarian hatred. There is no trust within the central government, no trust of the government by the people, no capacity by the government to deliver security and services - and no evidence that we can build that trust and capacity any time soon. There are two other ways to govern Iraq from the center: a foreign occupation that the United States cannot sustain or the return of a dictator like Saddam Hussein, who is no on the horizon.
That leaves federalism as Iraq's best possible future. But unless we help make it work for all Iraqis, it won't stop the violence. We should start with a major diplomatic offensive to convince the major powers and Iraq's neighbors that a federal Iraq is the best possible outcome for them, too. Then, together, we should convene a Dayton-like conference to move all the Iraqi parties from civil war to the negotiating table. Through a combination of pressure and reassurance, we would persuade the Sunnis to accept federalism and press the Shiites and Kurds to give the Sunnis a bigger piece of the pie.
The course we're on leads to a terrible civil war and possibly a regional war. This plan is designed to head that off. It offers the possibility - not the guarantee - of producing a soft landing for Iraq. I believe it is the best way to bring our troops home, protect our fundamental security interests, and preserve Iraq as a unified country.
The question I have for those who reject this plan is simple: what is your alternative?
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About the Dayton Peace Accords;
Overview
On Nov. 21, 1995, after 21 days of intensive negotiations at an anything-but-luxurious American Air Force base in Dayton, Ohio, the three Bosnian leaders initialed a peace agreement and 11 annexes, known as the Dayton accords, to try to bring an end to nearly four years of terror and killing in the former Yugoslavia. About 250,000 people died and another 2.7 million were turned into refugees.
The accords went into effect when the leaders -- Alijia Izetbegovic of Bosnia, Franjo Tudjman of Croatia and Slobodan Milosevic of Serbia -- formally signed the pact in Paris on Dec. 14. NATO troops known as the Implementation Force, or IFOR, took over from United Nations troops in Bosnia on Dec. 20, known as "D-day," starting the clock on a series of deadlines running for a year and bringing some 60,000 NATO troops, nearly 20,000 of them American, to keep the peace in Bosnia.
Already, under pressure from civilian authorities trying against great difficulties construct a single, multiethnic state in Bosnia, NATO has agreed to keep all those troops in Bosnia through Dec. 14, through elections that are supposed to take place by Sept. 14.
American officials say it is almost sure that a new, smaller force of NATO troops, including some Americans, will be deployed after Dec. 14 with a new mandate, to insure that Bosnia does not return to open warfare.
But big doubts remain that Bosnia will be reintegrated; that substantial numbers of refugees will be able to return to their homes; that the elections will be sufficiently free and fair despite American pressure to hold them on time; that the Bosnian, Croatian and Serbian nationalist parties that prosecuted the war will lose elections; or that more than a few, low-ranking officials will be turned over to the war crimes tribunal in The Hague.
Here is a look at the major points and deadlines in the Dayton accords, and where they stand today. (June 10, 1996)
The Division of Land
The Bosnian Serbs received 49 percent of the original Bosnia-Herzogovina, while a Federation of the Bosnian Muslims and Bosnian Croats received 51 percent. The division -- and the American-forced creation of the Federation -- allowed contiguous areas, without divisions, as well as access to the sea for both entities.
Territorial issues nearly derailed the talks, but the Bosnian Muslims finally gained control of a corridor five miles (eight kilometers) wide, known as the Posavina corridor, to link Sarajevo and Gorazde, while Bosnian Serbs kept Zepa and Srebrenica. Rebel Serbs in Croatia agreed to return the region of Eastern Slavonia to the Croatian Government.
The status of Brcko, a town on the northern edge of the Posavina corridor that is traditionally Muslim but Serb-occupied, was not settled at Dayton but sent to negotiations, and then if necessary, to arbitration, which is supposed to be finished by Dec. 14. The Americans are pressing to get the matter resolved sooner. Both Serbs and Muslims claim the town.
The pact also establishes Sarajevo as a united city under the control of the new central Government, requiring Bosnian Serbs to give up control of neighborhoods and suburbs from which Serb forces had bombarded the city. That transfer of control produced ugly scenes. (See photo essay.)
War Criminals
People indicted by the International Criminal Tribunal for the Former Yugoslavia, sitting in The Hague, cannot run in elections scheduled to be held between June 14 and Sept. 14 and thus cannot hold office afterward. The three Bosnian Governments pledged to cooperate with the tribunal, but are not explicitly required to arrest indicted people. Fewer than 60 people have been indicted so far, the majority of them Serbs.
Only one person, a young Croat, Drazen Erdemovic, 24, has been convicted after a tearful confession of massacring Muslims in Srebrenica in July 1995. One Bosnian Serb, Gen. Djordje Djukic, fatally ill with cancer, finally turned himself in under international pressure but died a few weeks later.
The most prominent of those indicted for war crimes, the Bosnian Serb leader Radovan Karadzic and the military commander Ratko Mladic, remain at large and move relatively freely through the Bosnian Serb areas. NATO forces have been reluctant to move to arrest them, in part because they are surrounded by bodyguards, but mostly because they fear the Serbs will take hostages among the Western aid and political workers there. NATO's reluctance has been widely criticized.
Dr. Karadzic has openly challenged the implementation of the accords, and the Americans and Europeans have stepped up pressure on Mr. Milosevic to get Dr. Karadzic out of a position to influence events -- in particular, the coming elections. But there is little evidence that Dr. Karadzic does not remain in control of many matters, though now working through proxies.
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Dayton Accords Working In Balkans
By R. Bruce Hitchner, for the Dayton Daily News, February 10, 1998
U.S. troops' presence guarantees progress
The Dayton Peace Accords are beginning to take hold in Bosnia. Indeed, for the first time since the accords were signed more than two years ago at Wright-Patterson Air Force Base, diplomats and experts are in general agreement that Bosnia has a real chance to emerge as a unified multiethnic state.
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Dayton Peace Accords Site;
http://www.daytonproject.org/index.php