Bosnia and Herzegovina

Stephen Doughty Excerpts

Monday 31st March 2025 Commons Chamber

[Priti Patel (Witham) (Con)]

(Urgent Question): To ask the Secretary of State for Foreign, Commonwealth and Development Affairs if he will make a statement on HM Government’s response to the political situation in Bosnia and Herzegovina.

[The Minister of State, Foreign, Commonwealth and Development Office (Stephen Doughty)]

I thank the right hon. Lady for her question about an issue that is very important to the Government and to many Members across the whole House.

We strongly condemn the secessionist moves by Republika Srpska President Milorad Dodik, which seriously threaten the sovereignty and territorial integrity of Bosnia and Herzegovina. Such actions are unconstitutional and dangerous, including to those living in Republika Srpska, whom he claims to protect. The UK, as one of the signatories, remains fully committed to the Dayton peace agreement, which protects the authorities of both entities, and supports Bosnia as a sovereign and politically independent state.

On Wednesday 26 February, the Court of Bosnia and Herzegovina found Republika Srpska President Dodik guilty, in a first-instance ruling, of refusing to implement decisions of the High Representative. The UK is clear that the High Representative’s jurisdiction is indisputable, and that disregarding the independent decisions of the judiciary of Bosnia and Herzegovina undermines the rule of law.

In response to the verdict, the National Assembly of Republika Srpska adopted a number of unconstitutional laws, and proposed a new constitution in clear violation of the Dayton peace agreement. These moves represent a significant escalation in Dodik’s secessionist path, and threaten the sovereignty and territorial integrity of Bosnia and Herzegovina as a state. As he accelerates those attacks on the state, he increases the threat to international peace and security.

Bosnia and Herzegovina has the institutions and mechanisms to respond to this crisis, and we support all efforts by domestic actors to de-escalate the situation and take appropriate action. Last week, I convened a call with my French counterpart and the other Quint partners—the United States, Germany and Italy—plus European Union institutions, in which we discussed our joint efforts to bolster security and stability. I also spoke to the High Representative last week.

In the last few weeks, I have spoken to the Bosnian Foreign Minister, Elmedin Konaković, reaffirming the UK Government’s full support for the territorial integrity and sovereignty of Bosnia and Herzegovina. The UK special envoy to the western Balkans, Dame Karen Pierce, reiterated that message during her visit to Bosnia and Herzegovina on 27 and 28 March, at our direction.

We welcome the decision by Operation Althea, under the EU peacekeeping mission EUFOR—the European Union Force in Bosnia and Herzegovina—to activate its reserve forces to provide reassurance to the communities most affected by the rising tensions.

In conclusion, Dodik’s actions do not serve the people of Bosnia and Herzegovina, including those residing in Republika Srpska. The people of Bosnia and Herzegovina need their political leaders to focus on passing reforms and building an inclusive future, rather than exacerbating tensions and amplifying secessionist rhetoric.

[Priti Patel]

I thank the Minister for his remarks. Attempts to undermine Bosnia and Herzegovina’s sovereignty and territorial integrity, and by extension the Dayton peace agreements, are deeply troubling. Over many years, the UK has been a reliable supporter of Bosnia and Herzegovina’s democratic and pluralistic journey, and a trusted promoter when it comes to the security of the western Balkans.

We were proud, when in government, to have appointed Lord Peach as the special envoy to the western Balkans—his work was incredibly solid and robust—and we welcome the fact that the Government have maintained that position with the appointment of Dame Karen Pierce. We, too, look forward to engaging with her.

I know that the Minister has spoken with Foreign Minister Konaković, but what is the UK doing in practical terms both to support Bosnia and Herzegovina to stay the course and maintain stability, and to defend and promote freedom and democracy in the region? For the reasons that the Minister outlined, the issue is pivotable to the security and integrity of the region. How does he envisage that the situation could be de-escalated, and can he update the House on the Government’s position on strengthening ties between NATO and Bosnia and Herzegovina? What is his position on EUFOR and its response in recent days?

What direct discussions has the Minister or the Foreign Secretary had with leaders from across the western Balkans, including about the very concerning actions by the leadership of Republika Srpska? Specifically on the protests in Serbia, what assessment has the Minister made of the impact on regional stability and security, and what assessment has he made of any Russian involvement in response to the protests there?

Finally, can the Minister share what plans he has to work with Kosovo to shore up and build on its sovereignty and independence? The western Balkans matters to the United Kingdom for so many reasons, and now more than ever given the war in Ukraine, so we must be an active player in promoting and supporting stability in the region.

[Stephen Doughty]

I thank the shadow Foreign Secretary for her points. I am glad she raised Lord Peach because that allows me to put on the record again my tribute to him for all his excellent work as the High Representative; it was a genuine pleasure to work alongside him. I am also delighted that we now have Dame Karen Pierce, one of our most experienced diplomats, in the role. She is already playing a crucial role across the region. As I said, one of her very first visits was to Bosnia, because of the very issues that the shadow Foreign Secretary has outlined.

The right hon. Lady asks what we are doing. I have been very clear about the diplomatic efforts that we are taking across the region, working with partners and allies including the United States, the European Union and members of the Quint. We continue to work with partners and engage with regional partners, who are absolutely crucial to that stability. The Foreign Secretary met Croatian Foreign Minister Radman on 24 March, and I spoke to Serbian Foreign Minister Marko Djuric on 27 March, as part of a regular series of engagements that we have been having, including through the Berlin process. The right hon. Lady will be pleased to know that we will now be hosting the Berlin process and that preparations for the summit are being led by Dame Karen Pierce. I assure her that the Foreign Secretary and I have had extensive engagements with regional partners. I was out in Serbia and Montenegro just a few weeks ago, and I intend to visit the region again soon.

The right hon. Lady asked about the important role of NATO, alongside EUFOR. I have referred to EUFOR already. We continue to support Bosnia and Herzegovina’s aspirations for Euro-Atlantic integration, including NATO membership. Through joint training of UK and Bosnia and Herzegovina armed forces and our support for reforms, we are helping it strengthen capabilities and enable alignment with NATO standards. We are working to invest in and strengthen the capabilities of the Bosnia and Herzegovinian armed forces for peacekeeping operations. Countries that export security are also more secure themselves. We maintain offices at the NATO headquarters in Sarajevo.

[Madam Deputy Speaker (Ms Nusrat Ghani)]

I call the Chair of the Foreign Affairs Committee.

[Emily Thornberry (Islington South and Finsbury) (Lab)]

What we have seen from Russia—in Georgia, Moldova, Romania, the Baltic states and now playing out in the western Balkans—is nothing less than hybrid warfare. Democracies are working hard together to stand strong and support Ukraine, but does the Minister agree that we need to put more effort into working with our allies in support of eastern Europe and the western Balkans, which are very much on the frontline?

[Stephen Doughty]

My right hon. Friend, the Chair of the Select Committee, rightly raises Russia’s malign actions not only in relation to its illegal and barbarous war in Ukraine, but across the whole of Europe and globally. We continue to see a pattern of behaviour intended to hamper Euro-Atlantic aspirations, and exploit instability and division.

Recent attempts by Russia to divide the international community at the United Nations Security Council and in the OSCE have only further demonstrated the resoluteness of partners to work together to protect the territorial integrity of Bosnia and Herzegovina. My right hon. Friend’s work in the Committee on these issues is crucial. We are also working closely with our allies and the European Union on these matters, in relation to not just the Balkans but locations such as Moldova.

[Madam Deputy Speaker (Ms Nusrat Ghani)]

I call the Liberal Democrat spokesperson.

[James MacCleary (Lewes) (LD)]

My former party leader, the late Lord Ashdown, regularly expressed his grave concerns about the fragility of the situation in Bosnia and Herzegovina, drawing on his own experience as the country’s former High Representative. Despite repeated warnings, the UK ignored the threat posed to peace in Bosnia by Milorad Dodik, his entourage and his supporters in the Kremlin. Dodik’s latest defiance of international authority, rejecting the legal orders of the international peace envoy, is only the latest act in his concerted work to undermine the Dayton agreement and regional stability in the Balkans.

It is clear that the UK has taken its eye off the ball in Bosnia. The Conservatives’ short-sighted decision in 2020 to withdraw our troops from the EUFOR Althea peacekeeping operation sent entirely the wrong signal about our commitment to the region. Does the Minister agree that the UK should recommit to the EUFOR mission, so we can work in lockstep with our international partners to prevent a further deterioration of the situation in the Balkans?

[Stephen Doughty]

Madam Deputy Speaker, you will understand that I cannot comment on the previous Government, but I know there is strong support across the House for peace and stability across the Balkans, and that we are all engaged in that effort.

I assure the hon. Gentleman that we absolutely have not taken our eye off the ball. This region is one of the most important to the Foreign Secretary and myself, not least because of our long history of engagement in the region. It is why we have now put in place one of our most senior diplomats to act as special envoy, and why we have been engaged in the diplomatic conversations I mentioned.

On the role of the High Representative, we are clear that the political crisis was caused by Republika Srpska, President Dodik and his supporters. We support the High Representative’s role and we support the use of his powers, if necessary. His role remains vital for Bosnia and Herzegovina’s future prosperity and stability, and we continue to work alongside EUFOR and indeed with the NATO presence we have there, too.

[Alex Sobel (Leeds Central and Headingley) (Lab/Co-op)]

We all know that Dodik has continually denied that a genocide occurred at Srebrenica. I was absolutely appalled to see that after his conviction, he was invited by the Israeli Minister for antisemitism to go to Jerusalem to address an antisemitism conference. I hope that the Minister can restate the UK’s strong belief that a genocide occurred at Srebrenica and that other countries should not be inviting Dodik to address conferences, particularly on the subject of genocide.

[Stephen Doughty]

I obviously cannot comment on Mr Dodik’s travel, but I can say that we are absolutely clear on what happened at Srebrenica. My hon. Friend will know that I have visited Srebrenica and that we have done important work with Remembering Srebrenica. Again, there is a cross-party attitude on this issue across the House. We are in a year of very important and solemn anniversaries and it is crucial that leaders refrain from inflammatory rhetoric and actions, and instead focus on building trust between communities across the western Balkans, and particularly in Bosnia and Herzegovina.

[Mark Pritchard (The Wrekin) (Con)]

President Dodik’s language and actions are both reckless and dangerous. Given that the Minister has just admitted to there being Russian meddling in the region—as we know, it has been going on for many years—can I ask what conversations he has had with the Americans to ensure that they continue to have command of the NATO headquarters in Sarajevo? To the point made by the Liberal Democrat spokesperson, the hon. Member for Lewes (James MacCleary), can the Minister say whether the UK could play a bit more of a role in EUFOR, and, from his discussions with the French Minister, whether there is likely to be an extension of that mandate?

[Stephen Doughty]

As I said, I met one of the American representatives on Friday, with other Quint members, and there is unity across the Quint on these issues. We will continue to work closely with the United States and other partners on this matter. EUFOR is vital for maintaining peace and security in Bosnia and Herzegovina and for upholding the military aspects of the Dayton peace agreement, and we regularly engage with both EUFOR directly and the EU delegation.

As the right hon. Gentleman knows, we do not currently participate in EU common security and defence policy missions. Of course, we are open to future opportunities for co-operation, and we have identified the western Balkans, and, indeed, hybrid activities, as one of the areas where we need to see closer co-operation. The subject was discussed by the Foreign Secretary and the EU at the Foreign Affairs Council in Luxembourg a few months ago.

[Luke Akehurst (North Durham) (Lab)]

Does the Minister agree that we need leaders in the west Balkans region who are focused on building a stable and inclusive future for all the peoples of the region, instead of escalating tensions with reckless rhetoric?

[Stephen Doughty]

I could not agree more. I sincerely hope that all, including leaders in Republika Srpska, will focus on delivering the reforms and progress necessary for their citizens, instead of using inflammatory rhetoric and divisive language, which seeks only to break down communities and unity, rather than building up the trust between communities that is so needed.

[Sir Alec Shelbrooke (Wetherby and Easingwold) (Con)]

In the 1960s, Germany took the very important step of showing programmes about what had happened in the second world war with the Holocaust; the exact opposite has been happening in Republika Srpska and areas of Bosnia and Herzegovina, where textbooks are being rewritten to actually increase that hatred. Will the Minister say what plans the Government have and what interventions they can make to try to get the truth of what happened during that war out to people, so that those countries do not just generate another generation of hatred?

[Stephen Doughty]

I completely agree with the broad thrust of the right hon. Gentleman’s comments. Ensuring that we understand what happened in the past and do not attempt to deny what happened is, obviously, crucial for all communities; building trust between communities is also crucial. He will understand that we have funded a number of programmes—as did the previous Government —including to support those who suffered sexual violence in the conflicts in the 1990s, as well as providing extensive support to the International Commission on Missing Persons, which has helped to account for more than 70% of the 40,000 people missing from the conflicts of the 1990s. Those sorts of actions are crucial to rebuilding trust and dealing with the legacies of the past.

[Anna Dixon (Shipley) (Lab)]

I volunteered with the OSCE to ensure free and fair elections in Bosnia and Herzegovina in 1996, following the Dayton peace agreement. I therefore have huge concerns about the escalating tensions. I welcome the diplomatic efforts we are undertaking to support stability, on which the Minister has updated us, but can he confirm that he is working closely with European civil society partners such as the OSCE to secure peace and stable democracy in the region?

[Stephen Doughty]

We continue to work with all organisations that seek to promote peace and stability in the region. My hon. Friend rightly mentions the OSCE, which is crucial. I know that the issue is of keen interest to members of the OSCE Parliamentary Assembly in this place. We will continue to work with them, with the Council of Europe and with others, including our partners in the EU, the US and beyond. Civil society organisations are crucial to that work. Many examples of the work that we have done in the past to build trust between communities and on peacebuilding have been achieved through civil society organisations.

[Sir John Whittingdale (Maldon) (Con)]

Is the Minister aware of reports that Russia Today and Sputnik are increasing their dissemination of disinformation in Bosnia and Herzegovina at the same time as the widely respected Bosnian service of Voice of America faces closure? Will he see what more we can do to counter Russian disinformation in the region, perhaps by increasing broadcasting by the BBC World Service?

[Stephen Doughty]

The right hon. Gentleman is right to highlight the destabilising hybrid activities of Russia, not just in Bosnia but across the region. He knows the steps that have been taken in this country against RT and other Russian outlets; indeed, we have called them out across Europe and have worked with partners on that. He is absolutely right that free, fair, truthful and legitimate media are needed to ensure that citizens have the truth about what is happening, not the kind of lies that are peddled from the Kremlin. I cannot make specific promises, but he knows that we treat the BBC World Service very seriously. The Under-Secretary of State, my hon. Friend the Member for Hornsey and Friern Barnet (Catherine West), is here with me and will have heard his comments closely.

[James Naish (Rushcliffe) (Lab)]

As has been noted, the actions of Milorad Dodik over the past few weeks and months have seriously undermined the stability of Bosnia and Herzegovina and have undermined the Dayton peace agreement, which ended the country’s 1992-to-1995 war in the aftermath of the horrific genocide that took place in Srebrenica. What steps are the Government taking to work with partners such as the US, the EU and other western Balkan countries to ensure that the territorial integrity of Bosnia is upheld during this fragile period?

[Stephen Doughty]

My hon. Friend is right to highlight the need to work with our partners. My French counterpart Minister Haddad and I convened our Quint partners and the EU institutions on Friday for a joint meeting; Minister Haddad was visiting London and we took the initiative to meet our partners, because we were deeply concerned about the situation in Bosnia. We have also been engaging with those in the region, including Serbia and Croatia. I, along with the special representative, the Foreign Secretary and others, will continue to do so.

[Mike Martin (Tunbridge Wells) (LD)]

One detects the hand of Russia here, much as one does across the entire periphery of Europe, from the High North, Ukraine, the Balkans and the Caucasus, which the Chair of the Foreign Affairs Committee mentioned, to the Sahel, the Maghreb and Libya, right over to the Greenland-Iceland-UK gap. Will the Minister describe the British strategy for rolling back Russian destabilisation across the entire periphery of Europe?

[Mark Pritchard]

In 30 seconds!

[Stephen Doughty]

To do so in a few seconds would be a challenge, but I assure the hon. Member for Tunbridge Wells (Mike Martin) that in all those regions we are not only conscious of what Russia is doing, but actively working with partners to push back. That is why it has been identified as an area for close co-operation with the EU; it is why we work closely with the United States and others; and it is why we work closely with individual partners in specific contexts, including in Moldova in response to Russian attempts there. The Balkans, Moldova, the Caucasus and elsewhere are all areas in which we see Russia spreading misinformation, lies and worse.

[Mark Ferguson (Gateshead Central and Whickham) (Lab)]

Dodik’s reckless rhetoric has been noted many times in the House this afternoon. Can the Minister assure me that work is being done with partners in the region to ensure that there is no contagion? I am thinking in particular of Kosovo.

[Stephen Doughty]

My hon. Friend rightly raises Kosovo, a country that I have visited on several occasions and which we continue to support. We also continue to support the important dialogue between Belgrade and Pristina and to work with EU and other counterparts on this crucial issue. We play a crucial role in KFOR in Kosovo in promoting peace and stability. It is important, as my hon. Friend says, to understand the wider regional implications and to continue to work with all partners to promote peace and stability, whether that is in Bosnia and Herzegovina, in Kosovo or in responding to Russian hybrid activity.

[Sir Julian Lewis (New Forest East) (Con)]

Given the recent love-in between Washington and Moscow, it is hardly surprising that the killer in the Kremlin is encouraging all his sidekicks to stir up trouble in areas such as Bosnia and Herzegovina. Are the Government aware of and keeping under very close scrutiny other potential areas where allies of Mr Putin can be expected to start to stir up trouble and destabilise things as part of his move, now that he is on the front foot in Ukraine?

[Stephen Doughty]

I would not agree entirely with the right hon. Member’s characterisation. One only has to look at what President Trump has said in the last 24 hours on these matters to see that we are united in trying to not only find a sustainable peace in Ukraine but call out Russia on its actions and take the necessary actions. When it comes to Russia’s activities elsewhere, as I said there is very strong Quint unity on this issue, and it was a real pleasure to be alongside American and European counterparts with a strong, united approach. It is crucial that there is strong transatlantic unity on these issues, and we will continue to work for that with European and American partners.

[Fred Thomas (Plymouth Moor View) (Lab)]

The Sarajevo security conference is in a couple of months, and there will be a session on defence technology. I have been asked along to speak about it. NATO countries in Europe are rearming and spending increased defence budgets on investing in and developing defence technology. What steps is the Minister taking to ensure that our friends in Bosnia and Herzegovina are also updating their capabilities? What message can I take to that conference?

[Stephen Doughty]

I am glad to hear that my hon. Friend has been invited to that conference. It is important that we have links at a parliamentary level with countries in the western Balkans, particularly on these important matters. I mentioned earlier that we are working, including through our presence at the NATO headquarters in Sarajevo, on investing in and strengthening the capabilities of Bosnia and Herzegovina’s armed forces, and considering how they might be deployed internationally too. That is very important. We will continue to work with European partners, both inside and outside NATO, to ensure that we can all collectively contribute to European defence, particularly in response to the hybrid activities and new advances in warfare we see, whether it be cyber or drone technology.

[Stephen Flynn (Aberdeen South) (SNP)]

I draw Members’ attention to my entry in the Register of Members’ Financial Interests. Last November, I visited the Srebrenica memorial centre, and I am sure the Minister will share my revulsion at the fact that it had to close its doors for a short period just a few weeks ago due to the political situation there. Before he does so, can he elaborate on the position that the United States of America has adopted in respect of Bosnia and Herzegovina and whether he views the US as a stable ally that recognises that the western Balkans are crucial to the security of Europe as a whole?

[Stephen Doughty]

We and the United States played a crucial role in the western Balkans, particularly in achieving the Dayton peace agreement itself. We continue to be committed to that. As I said, there has been strong unity among the Quint, and it is important that the United States and Europe work together on these issues. There has been a legacy of 30 years of relative stability—I say “relative” because there have been deep threats to it at different points—and we need that to continue for the people of Bosnia and Herzegovina. I am sure we are all committed to that.

[Dame Harriett Baldwin (West Worcestershire) (Con)]

Further to the question from my right hon. Friend the Member for Maldon (Sir John Whittingdale), and knowing how much the Minister values soft power, can he reassure the House that there will be no further cuts to the British Council or the World Service in the Balkans on his watch?

[Stephen Doughty]

I will come back to the hon. Lady on her specific points about British Council and the BBC World Service funding, but I have mentioned our wider development spending in the region. While we are having to make very difficult decisions at the moment, it is worth reflecting on the fact that through around £50 million this year from the integrated security fund and Foreign, Commonwealth and Development Office official development assistance, we have continued to empower women and girls, strengthen democracy, build resilience to domestic and state threats, and promote peacebuilding and transitional justice. We have been engaged across a range of different areas in the development and soft power space to contribute to peace and stability in the western Balkans, and in Bosnia and Herzegovina specifically.

[Dr Al Pinkerton (Surrey Heath) (LD)]

I associate myself with the comments made about the British Council and the BBC World Service. A few weeks ago, I had the privilege of visiting 77th Brigade, the anti-Russian-disinformation brigade based at Newbury. Has an assessment been made of the rise of Russian misinformation and disinformation in the Republika Srpska theatre in recent months? We heard during that meeting that Russia is increasingly using misinformation and disinformation across Ukraine, eastern Europe, and indeed the Balkans.

[Stephen Doughty]

We are clear that Russia continues to spread lies and disinformation and misinformation not only in the western Balkans but in many other locations across Europe. We continue to work with allies and partners—the EU and others—to challenge that. There is a particular challenge in the western Balkans, which is why we also support efforts there to strengthen free media, journalism and civil society organisations.

[Martin Vickers (Brigg and Immingham) (Con)]

In my previous role as trade envoy to the western Balkans, I visited Bosnia and Herzegovina on a number of occasions, and it was evident that though the entrepreneurial spirit was alive and well, business leaders were frustrated by the deadlocked structures that they must work in. Our embassy is doing what it can, but can the Government take any further initiatives that could increase economic activity and trade between our two nations?

[Stephen Doughty]

The hon. Member raises an important point, and I pay tribute to him for his work. He and I travelled together on a number of visits to the region—including to Bosnia and Kosovo—so I am well aware of his interest and engagement there. There are many opportunities for increased economic linkage and trade with all the countries in the region, and we continue to promote those. Indeed, I discussed them on my recent visits to Serbia and Montenegro.

The hon. Member is absolutely right that this is fundamentally about leadership in the region. As I said, the people of Bosnia and Herzegovina need political leaders to focus on passing reforms and building inclusive futures, rather than exacerbating tensions as we are seeing with President Dodik in Republika Srpska, because that does not serve the people of Republika Srpska.

[Richard Foord (Honiton and Sidmouth) (LD)]

The Minister has acknowledged that the secessionist moves in Republika Srpska could have ramifications for the western Balkans more broadly. One part of that is the north of Kosovo, where there is a Kosovo Serb minority. While the UK does not contribute to EUFOR and Operation Althea, we do contribute to KFOR in Kosovo. What contingency plans exist for British troops to reinforce KFOR through a strategic reserve, as happened in 2023?

[Stephen Doughty]

I am sure the hon. Member will understand that I am not going to get into operational details, but he can be sure that we prepare for all scenarios across the region. That is why we have welcomed the steps that EUFOR has taken in relation to Bosnia and Herzegovina.

The hon. Member is right to highlight the role that we play in KFOR. Indeed, I also visited KFOR with the hon. Member for Brigg and Immingham (Martin Vickers) and saw the important work that it does in line with its mandate. It is important that everybody takes steps to de-escalate tensions and deal with issues that have not been dealt with. I have raised the Banjska incident a number of times, including with Serbia, and it is important that those responsible are held accountable.

[Jim Shannon (Strangford) (DUP)]

I thank the Minister very much for his answers; he understands the issue incredibly well. He will be aware of the recent judgments made in respect of human rights, in particular those involving discrimination against the Jewish community. Will he outline whether the deputations included discussions of faith and freedom and people’s ability to practise their faith, and what the outcomes are envisaged to be to secure the right for people to hold and live their faith, no matter what that faith is, in Bosnia and Herzegovina?

[Stephen Doughty]

I thank the hon. Member for that important question. He will be pleased to know that interfaith engagement was part of the special envoy’s recent visit. I can write to him with a little more detail about that.

Of course, this is a country that has a strong tradition for a number of different faiths. At the moment, we are celebrating Eid and the end of the holy month of Ramadan, but alongside Muslim communities, Christian and Jewish communities have a long heritage in Bosnia and Herzegovina—I have witnessed that with my own eyes. We remain a staunch defender of freedom of religion or belief, and we will continue to work with organisations that promote an inclusive and diverse society where everybody is respected and not discriminated against on the basis of their religion or belief.