Nineteen years ago, the review of the Ahtisaari Plan began at the United Nations Security Council. Behind closed doors on April 3, 2007, the UN Special Envoy for Kosovo, Martti Ahtisaari, presented the plan, which was expected to grant Kosovo supervised independence.
It had also been planned for Fatmir Sejdiu to address the Council, but following protests from Serbia and Russia, it was decided that he would not speak, and his statement was instead read by the Special Representative of the Secretary-General, Joachim Ruecker.
Serbia’s nationalist Prime Minister at the time, Vojislav Koštunica, opposed the plan and called for new negotiations and new chief negotiators. Western countries such as the United States, United Kingdom, and France supported the Ahtisaari Plan.
According to Ahtisaari and his team, the goal of the Comprehensive Proposal for the Kosovo Status Settlement was to define the necessary requirements for a future Kosovo that is viable, sustainable, and stable. It included detailed measures to ensure the promotion and protection of the rights of communities and their members, effective decentralization of government, and the preservation and protection of cultural and religious heritage.
Furthermore, the agreement outlined constitutional, economic, and security measures aimed at contributing to the development of a multi-ethnic, democratic, and prosperous Kosovo. A key element of the proposal was the mandate given to an international civilian and military presence in Kosovo to supervise implementation and assist local authorities in ensuring peace and stability throughout the country. Its provisions were to take precedence over all other legal provisions in Kosovo.
Main elements of the agreement:
Kosovo would be a multi-ethnic society, self-governed democratically with full respect for the rule of law, the highest standards of human rights and fundamental freedoms recognized internationally, and committed to peaceful and prosperous coexistence of all its citizens.
Kosovo would have the right to negotiate and conclude international agreements, including the right to seek membership in international organizations.
The protection and promotion of community rights were central to the agreement, covering key aspects such as culture, language, education, and symbols. It also outlined specific mechanisms for the representation of non-Albanian communities in key public institutions to ensure their effective participation in public life. Certain laws would require the consent of a majority of non-Albanian members of the Kosovo Assembly.
The agreement also provided strong guarantees for the protection and promotion of religious and cultural heritage, ensuring the unhindered existence of the Serbian Orthodox Church in Kosovo. More than forty important religious and cultural sites would be surrounded by protective zones to prevent harmful commercial or industrial development and to preserve their cultural dignity. It also guaranteed enhanced physical security for selected vulnerable sites. The Church and its internal organization would be explicitly recognized by Kosovo authorities, with rights to property inviolability, tax exemptions, and customs privileges, similar to other religious organizations worldwide.
All refugees and internally displaced persons would have the right to return and reclaim their property. The agreement also called on Kosovo and Serbia to fully cooperate with the International Committee of the Red Cross in resolving the fate of missing persons.
A new, multi-ethnic Kosovo Security Force would be established within one year, with a maximum of 2,500 active members and 800 reservists. The existing Kosovo Protection Corps would be disbanded within the same timeframe.
Recognizing the complexity of implementing these provisions, the agreement requires an international presence to supervise and support Kosovo authorities. This included three main components:
An International Civilian Representative (ICR), also serving as the EU Special Representative, would be appointed by an International Steering Group composed of key international actors. The ICR would have ultimate supervisory authority over implementation, including the power to annul decisions or remove officials acting contrary to the agreement.
A 120-day transition period would follow the agreement’s entry into force, during which the mandate of United Nations Interim Administration Mission in Kosovo would remain unchanged. However, the ICR would monitor implementation and make recommendations to UNMIK to ensure compliance.
During this transition period, Kosovo’s Assembly, in consultation with the ICR, would be responsible for adopting a constitution and the necessary legislation. These would enter into force immediately after the transition period.
Within nine months of the agreement’s entry into force, general and local elections would be held.
