Western Balkans: Dayton Peace Agreement

Lord Ahmad of Wimbledon Excerpts

Tuesday 17th October 2023 Lords Chamber

[The Minister of State, Foreign, Commonwealth and Development Office (Lord Ahmad of Wimbledon) (Con)]

My Lords, first, I join noble Lords in rightly praising and recognising the expertise and insights that have been brought by my noble friend Lady Helic to this debate and also her continued commitment not just on this issue but on the wider impact of the region and issues of security. My noble friend and I have had extensive discussions and debates on this. I pay tribute to her efforts, which ensure that this is at the forefront of the Government’s thinking. In this regard—I will come on to it in a moment—I had a very constructive meeting with the Minister for Armed Forces earlier today, and I will certainly pick up on a couple of my noble friend’s suggestions.

The noble Lord, Lord Alderdice, and my noble friend Lord Cormack reminded us of the history of the issues in the Western Balkans. I have said before, and I say again, that I remember visiting Bosnia-Herzegovina right at the start of my professional career, and then we saw Slovenia, then Croatia and Serbia. The war in Bosnia was etched in people’s memories. My noble friend Lord Cormack reminded us of the tragedy that remains the legacy of Srebrenica. I am proud that, over many years, the United Kingdom Government have remained one of those Governments who mark that particular event, that tragedy, the genocide that took place against the Bosnian people quite specifically, and it is right that we do so.

I assure noble Lords that the Western Balkans matters to His Majesty’s Government. Its security is critical to our security. We want to see all six countries become stable, inclusive and resilient democracies, no longer scarred by the legacy of conflict. My noble friend Lord Dundee made that comment extremely well. We want to see them making progress to Euro-Atlantic integration, which, from the Government’s perspective— I am sure noble Lords agree—is the surest route to the security and prosperity that their citizens deserve.

However, as we have seen from recent events, many remain vulnerable from within and from outside their borders. A small handful of powerful people profit from stoking ethno-nationalist sentiment and exploit vulnerabilities within their system for their own ends. Russia was mentioned by the noble Lord, Lord Anderson, and others. It stokes those very flames of division, plays on the local tensions and uses them as a distraction from its illegal war in Ukraine and as a way to obstruct Euro-Atlantic integration. Any return to conflict could spread across the region, with serious political and humanitarian consequences.

Several noble Lords referred to the current conflict in the Middle East and contagion. That is why I, the Foreign Secretary, and, importantly, the Prime Minister, have been engaged in ensuring that when a conflict occurs, particularly in that part of the world, there are lessons to be learned elsewhere so that we contain conflicts, because the danger of them spreading is very real. The Government share the concerns expressed by my noble friend in her opening remarks and others, including the noble Baroness, Lady Goudie, about the growing instability that we are seeing.

Turning to Bosnia-Herzegovina, the president of Republika Srpska, Mr Dodik, is escalating his rhetoric around secession. That is very clear. These threats are accompanied not just by rhetoric alone but by sustained efforts to undermine the legitimacy and authority of the state. In the same way, he continues to confront the high representative, at times almost disabling his impact and effect, whose executive powers represent the greatest challenge to Mr Dodik’s ambitions.

I share the sentiments expressed by the noble Lord, Lord Alderdice, as he reflected on the important role of the late, much respected Lord Ashdown. I remember many a discussion on this issue with the noble Lord. The leadership that the noble Lord, Lord Alderdice, mentioned is needed now to be able to engage in a direct manner to ensure that those who seek to divide are challenged quite directly.

Recently, we have seen Mr Dodik sign into force legislation to block decisions by the high representative and by the BiH Constitutional Court in Republika Srpska. This stands in direct contradiction to the constitutional order of Bosnia-Herzegovina as set out in the Dayton accords, a point emphasised by the noble Lord, Lord Browne, and my noble friend Lady Helic. He has also threatened directly to ban the high representative entering Republika Srpska, stating that he would be arrested and deported if he did so. Within Republika Srpska, Mr Dodik continues to tighten his grip on power. Recent legislation has reduced the space for independent media by recriminalising defamation.

The noble Lord, Lord Collins, focused on civil society, and I agree with him totally. The Republika Srpska National Assembly is considering a new law that would prohibit political activity by NGOs which receive foreign funding, with troubling and disabling implications for civil society.

We also see tensions rising in Kosovo following the shocking events of 24 September. We strongly condemn the violent attack against the Kosovo police. I am sure this House’s thoughts are with the family, friends and colleagues of the fallen police officer Afrim Bunjaku. It is crucial that the full facts are established and that those responsible face justice.

The noble Lord, Lord Anderson, also talked about the importance of ensuring that we act against Russia. I have already talked about how it is seeking to distract. While it is welcome that the Serbian president has announced reduced numbers of forces near the border, the build-up in the first place sent an unwelcome and destabilising signal. Serbia needs to complete the return of its troops to their usual bases without delay, co-operate fully with the investigation and play its part to disrupt disinformation and inflammatory rhetoric.

Many noble Lords, including the noble Lords, Lord Purvis, Lord Alderdice and Lord Collins, focused on the UK response. I agree about the importance of peacebuilding. The noble Earl, Lord Sandwich, reflected on the inability of the UN today to impose itself in ensuring that peacebuilding plays a role. I have been talking on other matters with the UN leadership, including the Secretary-General, but I assure my noble friend that, in Bosnia-Herzegovina, we are working with international partners to deter further secessionist action from Mr Dodik. Alongside members of the Quint and the Peace Implementation Council, we have been vocal in condemning Mr Dodik’s actions and reiterating our firm support for the high representative.

As noble Lords mentioned, Mr Dodik is already subject to UK sanctions, and we will consider designating others who support his drive for secession. On the point made by the noble Lord, Lord Collins, it is a matter of regret that, because of pressures within the European Union, it has not followed suit. That is something that we continue to advocate for because it allows a degree of free rein for Mr Dodik.

I turn to other specific measures we have been taking. At our instigation, the Media Freedom Coalition published a statement expressing its concern at declining media freedom in Bosnia-Herzegovina and at recent legislative changes in Republika Srpska. Over 20 countries have given their support to this statement.

We are also helping to maintain a secure environment by developing the capacity of the Bosnian armed forces; I know that my noble friend Lady Helic is very much focused on that. In addition to bilateral training and donations of equipment, we have contributed £1 million to NATO’s defence capacity-building initiative. The presence of EUFOR Operation Althea remains vital to peace and security; the noble Lord, Lord Purvis, focused on this, as did my noble friend. I assure all noble Lords that we will work with allies to see the executive mandate renewed at the UN Security Council in November.

I am aware that my noble friend has written to the Secretary of State for Defence. In my meeting with the Minister for the Armed Forces I raised these issues directly. He assured me that we continue to support security and stability in Bosnia-Herzegovina and our contributions to NATO HQ, to which I have referred. We are keeping the UK position on rejoining EUFOR under review, but we have not yet formally engaged with the EU; as my noble friend is aware, this would require approval from all member states.

However, at the invitation of the Bosnian Government, I can confirm today that next week the UK will be deploying up to 80 personnel from the First Royal Anglian to train alongside the Armed Forces of Bosnia and Herzegovina personnel. I emphasise that this deployment is part of our bilateral defence relationship with Bosnia-Herzegovina, not an operational deployment, but it again sends a strong signal from the UK. The deployment presents a good opportunity for capacity building and developing interoperability between UK and Bosnian forces. I know that the Secretary of State will be writing to my noble friend in response to her letter specifically.

We are taking further steps. Noble Lords mentioned the wider region, Serbia directly, the situation in Kosovo and the need to avoid further escalation. The Prime Minister reinforced this message with both President Vučić of Serbia and President Osmani of Kosovo at the European Political Community on 5 October. This will be key to moving beyond the current situation and finding acceptable solutions. We also continue to make it clear to the Serbian authorities that they need to co-operate fully with Kosovo’s investigation, now under way in co-ordination with EULEX, and fully reverse the build-up of troops. We are likewise clear with the Kosovo authorities on the need to communicate positively and effectively with citizens from minority communities.

Our engagement with the Western Balkans is not limited to addressing these immediate concerns. We have a political relationship with all six countries. Ministers from the FCDO have made over a dozen trips to the region since 2021; in the last month alone, the Minister for Europe has visited Montenegro, Bosnia-Herzegovina and Serbia, as well as Croatia and Slovenia. Most recently, my right honourable friend the Foreign Secretary visited Tirana for the Berlin process Foreign Ministers’ and leaders’ meetings on 6 and 16 October respectively—a key opportunity to engage with the political leadership of all six western Balkan countries.

We engage directly with the provision of troops in support of KFOR. The Prime Minister’s Special Envoy, our noble and gallant friend Lord Peach, is frequently in contact with regional Governments. In August, together with the noble and gallant Lord, I attended the Bled Strategic Forum where the future of the Western Balkans was a central theme. I spoke at the Western Balkans breakfast and had bilateral meetings with the deputy Foreign Minister of Bosnia-Herzegovina as well as meeting with the Serbian and Bosnian Foreign Ministers.

There is much happening in this area. My noble friend Lord Dundee focused on some of the economic opportunities. The UK is providing up to £14 billion for major projects through UK Export Finance, as well as looking at the current situation. We are also working with transatlantic partners. I attended an event hosted by Secretary Blinken in New York last month, during which I underlined the need for the international community to use all its tools to put the Western Balkans back on the path towards greater stability and progress.

We are undertaking several other initiatives but, in closing this debate, I assure noble Lords that we are fully committed to ensuring the long-term security, stability, sovereignty and integrity of the different countries of the Western Balkans. We are also aware of the current challenges and those forces that seek to cause further division. The Government are fully committed to the security and stability of that region, and we will continue to focus in this respect by working with our international partners, as my noble friend suggests.

We are also working directly with the Governments of the Western Balkans to build those inclusive, sustainable, democratic societies that have resolved the grievances of so many in the past. We will remain focused in this way on ensuring that the current instability is replaced by stability and that the current insecurities are dealt with by co-operation. Together, and working together, we can ensure a prosperous future for the citizens of the wider Balkans.