Charles Kupchan, former director of European affairs at the U.S. National Security Council, says that Kosovo’s Prime Minister Albin Kurti should not have refused to meet with Serbia’s President Aleksandar Vučić at the meeting called by the European Union on June 26.
According to him, “this does not benefit Kurti.”
“…because, firstly, it portrays Kosovo as the more stubborn party and, secondly, long-term disputes are never resolved with ultimatums,” Kupchan told Radio Free Europe.
The EU’s High Representative for Foreign Affairs, Josep Borrell, said on Wednesday that Kurti conditioned the continuation of the dialogue for normalizing relations with three demands: the signing of the Agreement on the Path to Normalization of Relations, the withdrawal of the letter in which Serbia officially refused to implement the agreement with Kosovo, and the extradition to Kosovo of Milan Radoičić and his group, who are suspected of the armed attack in Banjska.
Borrell said that Vučić was not willing to fully accept Kosovo’s conditions.
Kupchan, now a professor at Georgetown University, says that the leaders of the two countries will eventually have to make “difficult compromises” and explains what those are.
Radio Free Europe: Despite efforts, the European Union failed to bring together Kosovo’s Prime Minister Albin Kurti and Serbia’s President Aleksandar Vučić. The EU’s High Representative for Foreign Affairs, Josep Borrell, said that Kurti presented some conditions that Vučić did not accept. Can we consider this situation a deadlock?
Charles Kupchan: This round of negotiations is certainly a deadlock. The fact that talks continue is a good sign, but they have certainly become extremely difficult. There has been very little progress since the verbal agreement [on normalizing relations], known as the Ohrid Agreement.
I think it does not benefit Kurti to refuse to sit at the negotiating table, because, firstly, it portrays Kosovo as the more stubborn party and, secondly, long-term disputes are never resolved when one side gives ultimatums or refuses to negotiate. The parties need to sit face-to-face and resolve the issues at the table.
I think it would have been better if Kurti had spoken with Vučić and brought his concerns to the table.
But, setting preconditions and walking away from the table because those preconditions are not met does not seem constructive to me.
Radio Free Europe: How do you evaluate his preconditions?
Charles Kupchan: I think two of them are reasonable – one needs to be reconsidered. The reasonable demand is the extradition of Radoičić, who has admitted to participating in the bloodshed in Banjska. Whether it is the legal authority of Kosovo or the legal authority of Serbia, he is an individual who needs to be brought to justice.
The second reasonable demand concerns the letter [from former Serbian Prime Minister Ana Brnabić]. I think that letter is unnecessarily provocative because the Ohrid Agreement does not specify recognition, it does not specify that Serbia must recognize Kosovo as an independent state, but focuses on normalization. We know that normalization is a step towards final recognition, but it is not productive for Serbia to make such a black-and-white statement.
As for Kurti’s insistence that Vučić sign the agreement, I think this is a weaker argument. Because, in my opinion, Vučić rightly believes that Kosovo should establish the Association of Serb-Majority Municipalities before formalizing the agreement.
Radio Free Europe: But, it has been nine months since the attack in Banjska and Radoičić is still free. Who should be held accountable for this?
Charles Kupchan: Considering that Radoičić has admitted his guilt, primarily, the Government of Serbia and the courts of Serbia have a duty to act. So far, they have failed to hold him accountable. And I think Kurti is right when he says this is unacceptable.
Radio Free Europe: Is there any risk that Kosovo will face new punitive measures, since Borrell clearly said that Kosovo was not ready for dialogue?
Charles Kupchan: In the recent past, both the United States and the EU have taken a much tougher stance towards Kosovo. This is understandable to me because Kurti has taken provocative steps, such as over car license plates or the appointment of Albanian mayors [in Serb-majority municipalities in the north]. I do not think this has been a productive strategy.
Until recent years, I think the United States and Europeans saw Serbia more as the problem, and consequently, the pressure had to be applied to Belgrade. It was the Serbian Government that refused to do things, but now there is the perception that Pristina also refuses and that Pristina shares part of the responsibility for the paralysis. I do not think this is in Kosovo’s interest.
Radio Free Europe: But, at least regarding car license plates, Kurti can say that he has succeeded, because in northern Kosovo there are no longer cars with illegal Serbian license plates…
Charles Kupchan: If this achievement comes at the expense of Kosovo, its relations with its main supporters in Europe and the United States, and the normalization of relations with Belgrade, I am not sure it is worth it.
Radio Free Europe: So, what is the way out?
Charles Kupchan: Follow the path of normalization. I think the United States and the EU have brought renewed energy and determination to this issue. I do not think they will let Kurti and Vučić rest. I think they will put pressure on both. And, sooner or later, we will reach the finish line. The question is when Kurti and Vučić – or whoever comes after them, if it does not happen during their terms – will see it politically favorable to make difficult compromises.
Radio Free Europe: And, those difficult compromises are?
Charles Kupchan: For Kosovo – to agree to provide the Serbs living in Kosovo with a level of autonomy that many Kosovars might not be comfortable with.
For Serbia – to accept the reality that it has lost Kosovo forever and that, at the end of the day, Serbia will be better off.
But, as I said, these are difficult and painful decisions that political leaders need to make.
Radio Free Europe: Considering that this may have been Borrell’s last effort to mediate a meeting between Kurti and Vučić, as his mandate is coming to an end, how would you rate Borrell’s commitment over the past five years?
Charles Kupchan: Borrell deserves high marks as a high representative. I think he has done an excellent job in a difficult position. Because member states [of the EU], in a way, are not comfortable with a high-profile European foreign minister, fearing that this undermines their own foreign ministers. So, the person in this position has a difficult path to follow. And, I think Borrell has done well.
Radio Free Europe: What are your expectations from the new EU leadership regarding the Kosovo-Serbia dialogue?
Charles Kupchan: I do not foresee any significant change of course or loss of enthusiasm.
Radio Free Europe: Will the current strategy work?
Charles Kupchan: Eventually, yes. The question is: will you and I be alive when it works?!
