Fighting escalates, UN role in question.

With escalation of bitter and bloody fighting and ensuing deterioration of the situation throughout the former Yugoslavia, UN peace-keepers have found themselves in a predicament that is "no longer tolerable", Secretary-General Boutros Boutros-Ghali declared at the end of May.

The United Nations Protection Force (UNPROFOR) in Bosnia and Herzegovina remained in a "war situation" where, after more than three years, there was "still no peace to keep", he said. UN troops were being continuously obstructed, targeted by warring sides, denied resupply, restricted in movements, and subjected to constant criticism.

Following two air strikes on 24 and 25 May against a Bosnian Serb ammunition dump near Pale, conducted by the North Atlantic Treaty Organization (NATO), some 400 UN personnel were detained by the Bosnian Serb forces, many "in humiliating circumstances and in violation of international norms of military conduct", the Secretary-General stated in his 30 May report (S/1995/444). Moreover, some had been used as "human shields to deter further air attacks on potential targets".

The Bosnian Serbs' violation of the Sarajevo exclusion zone, their "criminal shelling of civilian targets in Tuzla and elsewhere", and their inexcusable retaliation" against UN personnel had violently highlighted" the conditions in which UNPROFOR had to operate and the "dangers inherent in the inconsistencies of its present mandate", he stated.

For example, the Force's original peace-keeping authority, which could not be implemented without the cooperation of the parties, had gradually been "enlarged to include elements of enforcement". That had caused UNPROFOR to be "seen as a party to the conflict".

Also, the safe-area mandate required the Force to "cooperate and negotiate daily" with a party upon whom it was expected to "call air strikes in certain circumstances" and upon which sanctions had been imposed by the UN.

As a result, the Secretary-General continued, Bosnian Serbs had "now largely withdrawn their consent and cooperation from UNPROFOR", declaring in response their own "sanctions" to the UN.

Since neither side appeared to have reached a firm conclusion that it had a "better chance of achieving its objectives at the negotiating table than on the battlefield", all efforts to reduce the intensity of the conflict might be seen by the parties as "more of a hindrance than a help", he observed.

Also, UNPROFOR was not, as many of its critics seemed to believe, deployed to end the war in Bosnia, he stressed. Nor was it an army sent out to "fight on one side in the war". its objectives were: to assist in providing humanitarian aid; contain the conflict by imposing constraints on the belligerents through safe areas and exclusion and "no-fly" zones; and negotiate local cease-fires and other measures aimed at achieving an overall political settlement.

In view of the "untenability" of UNPROFOR's current situation, there was a "need to clarify whether its role is peace-keeping or enforcement", Mr. Boutros-Ghali stated. In that regard, four options for UNPROFOR might be considered: withdraw the Force, leaving a "small political mission, if that was the wish of the parties"; retain its present form; permit "greater use of force"; and revise the mandate to include "only those tasks that a peace-keeping operation can realistically be expected to perform".

The Secretary-General believed that a "realistic mandate" would enable UNPROFOR to help contain the situation in Bosnia "without creating expectations that it could either enforce an end to the war or join it to fight on the side of one of the parties".

Resolution 998:

'Rapid reaction capacity'

The Security Council on 16 June authorized an increase of up to 12,500 additional troops for UN forces in Bosnia, in order to establish a "rapid reaction capacity" to enable UNPROFOR to carry out its mandate.

In adopting resolution 998 (1995) by a vote of 13 to none with 2 abstentions (China, Russian Federation), the Council also demanded that the Bosnian Serb forces release immediately and unconditionally" all remaining detained UNPROFOR personnel. it called upon the parties to agree without further delay to a cease-fire and a complete cessation of hostilities.

Stressing that there could be "no military solution to the conflict", the Council reiterated its demand that the Bosnian Serb party accept the peace plan prepared by the Contact Group-France, Germany, Russian Federation, United Kingdom and United States - as as a "starting point".

All parties were told to fully respect the safety of UNPROFOR personnel and others engaged in the delivery of humanitarian assistance, ensure their complete freedom of movement, and allow unimpeded access for such assistance to all parts of Bosnia, particularly the safe areas.

The Council authorized the Secretary-General to carry forward the implementation of its decision and encouraged him to "intensify efforts aimed at reaching agreement with the parties on the modalities for demilitarization, taking particular account of the need to ensure the safety of the civilian population". The parties were also called upon to cooperate fully with those efforts.

Explaining its abstention, the Russian Federation said the resolution left the impression that the rapid reaction force was "intended to operate against one of the Bosnian parties". China said it believed that such a force would "bring about a de facto change to the peace-keeping status" of UNPROFOR, which would then be "bound to become a party to the conflict".

In April, May and June, the Security Council met formally on 12 occasions to consider the situation in the former Yugoslavia, adopting six resolutions and issuing seven statements.

Also, from I April through 30 June, some 1,437 violations of the ban on military flights, imposed under Council resolution 816 (1993), were reported - 597 more than in the previous three months, bringing to 5,71 i the total number of apparent violations since monitoring began in November 1992 under resolution 781 (1992).

Respect demanded

On 23 June, the Security Council condemned interference with humanitarian supplies and UNPROFOR's freedom of movement by all parties in Bosnia and Herzegovina, and demanded that they fully respect the safety and security" of the personnel of UNPROPOR to enable it to carry out its mandate.

In a statement by its President, Detlev Graf zu Rantzau of Germany. the Council also expressed deep concern at the blockading by Bosnian Government forces of UNPROFOR personnel in the Visoko, Gorazde, Gorni Vakuf and Kladani areas, "which included on 20 June 1995 placing mines outside the UNPROFOR camp in Visoko".

The Council was deeply concerned also at the deterioration in the situation in and around Sarajevo, the obstruction by the Bosnian Serb party of freedom of movement and utilities to the city, and the "continued obstruction of the normal operation of Sarajevo airport". The parties were called upon to "agree without further delay to a cease-fire and a complete cessation of hostilities".

Concern over

airlift suspension

Concern over the "recent deterioration" of the situation in Bosnia and the obstruction of the normal operation of Sarajevo airport, including the "suspension of the humanitarian relief airlift" caused by Bosnian Serb threats against UN aircraft, was expressed by the Security Council on 3 May, as it issued two presidential statements.

In one text, the Council called upon the Bosnian parties to reach a ceasefire, fully support UNPROFOR's negotiating efforts, and "abstain from any steps which may lead to further escalation of the conflict".

The second statement contained a Council demand that all parties and others concerned fully comply with the 5 june 1992 agreement on reopening the Sarajevo airport under UN authority, and immediately create the necessary conditions for "unimpeded delivery of humanitarian supplies" to the city, as well as other parts of Bosnia.

The Council also called upon the Bosnian Serbs to "guarantee the safety of all UNPROFOR supervised flights" to Sarajevo, including humanitarian relief flights.

Resolution 987

UNPROFOR security

The Security Council on 19 April, gravely preoccupied at the attacks on UNPROFOR personnel in Bosnia and the "fatalities resulting therefrom", demanded that all parties and others concerned "refrain from any act of intimidation or violence" against the UN personnel. In unanimously adopting resolution 987 (1995), the Council also emphasized the parties' responsibility for UNPROFOR safety and security.

In a 14 April statement, the Council had expressed indignation that a French soldier of UNPROFOR had been "deliberately targeted and shot to death by an unidentified sniper" in Sarajevo. It strongly condemned such acts directed at "peace-keepers who are serving the cause of peace". The Council was also concerned over the killing of other UN soldiers in similar circumstances.

Deliberate targeting of UNPROFOR personnel, which reflected the "overall deterioration of the situation" in Bosnia, was "totally unacceptable", the Council stated. All parties and others concerned must respect fully the status of UN peace-keepers, it stated.

Sarajevo fighting

Tension and fighting around Sarajevo, which ultimately led to the NATO air attacks, had intensified after the 31 December 1994 cessation-of-hostilities agreement expired on 1 May, the Secretary-General reported on 30 May.

A 7 May Bosnian Serb mortar attack on a Sarajevo suburb had killed 10 persons and wounded 30. Fighting the following day had been the "heaviest the city had experienced since February 1994", he said.

On 16 May, Government and Serb forces had again engaged in "heavy fighting around key features", dominating both the city and the Serb-controlled road to Pale and escalating to the use of heavy weapons by both sides.

On 24 May, Bosnian Serbs again fired heavy weapons and Government forces responded from various positions within the city. As a result, 16 civilians and military personnel had been killed and at least 60 wounded, it was reported.

Later the same day, both sides were warned by UNPROFOR that their forces would be attacked from the air if all heavy weapons did not cease firing by 1200 hours the next day. Bosnian Serbs were told to return four heavy weapons removed from weapons collection points.

A second deadline, 24 hours later, was set up for the removal out of range, or the placement in weapons collection points, of all heavy weapons introduced by both sides.

Air strikes,

'human shields'

The first NATO air attack - limited to two bunkers within an ammunition dump near Pale, in order to make an effective strike while reducing the risk Of casualties or unnecessary collateral damage" - had taken place at 1620 hours on 25 May, the Secretary-General reported.

Bosnian Serbs, in response, surrounded some weapons collection points and shelled all safe areas, except Zepa, which resulted in particularly heavy casualties in Tuzla" where some 70 civilians were killed and more than 130 injured.

On 26 May, a second attack on the six remaining bunkers in the Pale ammunition dump was conducted. Bosnian Serbs surrounded additional weapons collection points, taking UN military observers into custody and "using a number of them as human shields to deter further air attacks on potential targets", the Secretary-General said.

An UNPROFOR observation post at the Vrbanja bridge in Sarajevo was recaptured by UNPROFOR, but some 200 UNPROFOR personnel were subsequently detained by Bosnian Serb forces. A further 224 were at locations where "access and movement were being denied" by those forces, the Secretary-General stated.

Some 121 UN peace-keepers-primarily from France, Canada and the United Kingdom-detained after the May NATO air strikes, were released on 4 June.

Croatia:

Situation worsens

In Croatia, the situation worsened, providing a bitter example of the consequences that occur when conflicting parties forsake peaceful options and resort to war", the Secretary-General reported (S/1995/467) on 9 June.

While mediation efforts on the part of the UN Confidence Restoration Operation in Croatia (UNCRO) had

contributed significantly" to the avoidance of further escalation of hostilities, UNCRO's redeployment by 30 june, as required by Council resolution 982 (1995) of 31 March, was "no longer possible", he said.

After a 1 May Croatian military offensive against the local Krajina Serbs in Sector West-violating the 29 March 1994 cease-fire agreement - and the Serbs' retaliatory missile attacks on Zagreb and some other Croatian towns, tensions between the parties had risen to an "extremely high level", the Secretary-General stated.

Despite a 3 May cessation of hostilities agreement, shelling and other military activity continued in Serb-inhabited areas. Those moves "further weakened the integrity of the cease-fire" agreement and threatened UN positions, the Secretary-General observed.

In such circumstances, notwithstanding both parties' requests that UNCRO should stay and complete its redeployment, "more than words are required to justify the continuation of this expensive and dangerous mission", he stressed.

That was especially so because there remained on both sides "influential elements that continue to be unreconciled to the objectives of the international community and who are inclined to pursue their ends by military means", he said. in that regard, he expressed "grave concern" at reports of ongoing joint military manoeuvres by the Croatian Army and Bosnian Croat forces "in the area of Mount Dinara adjacent to Sector South, including the shelling of UNCRO positions".

Reconciliation

or violence

On 18 April, the Secretary-General had warned (S/1995/320) that the situation on the ground in that area of Croatia was volatile and "could quickly deteriorate further". However, both the Government and local Serb authorities were aware that the alternative to reconciliation would be "more violence and a resumption of war", he said.

Noting that complete redeployment of UN peace-keepers in Croatia by 30 june 1995 was not possible, the Security Council on 16 june condemned the continuation of offensive actions and the intimidation of UNCRO personnel.

In a statement by Council President zu Rantzau, it nevertheless asked the Secretary-General to "proceed as expeditiously as possible" with the redeployment, with the aim of fulfilling all UNCRO's tasks under its mandate.

Demanding that the parties cooperate with UNCRO, the Council reiterated its warning that if they did not refrain from any military action that could lead to the escalation of the situation, further steps to ensure such compliance would be considered.

Moves by local Serb authorities in Croatia and in Bosnia to establish a union would be "inconsistent" with the Council's commitment to the sovereignty and territorial integrity of the two countries, it stated.

The parties, particularly the Croatian Government, were also called upon to cease military actions and uphold the 29 March 1994 and 2 December 1994 agreements.

In welcoming Croatia's agreement to a continued UNCRO presence "in the area of Western Slavonia known as Sector West" and noting both parties' desire that the UNCRO mission should continue, the Council said that cooperation with UNCRO and compliance with the March 1994 cease-fire were essential "for progress towards a negotiated settlement".

Resolutions 994, 990:

Withdrawal asked,

troops authorized

Stressing the need for the early re-establishment of UNCRO's authority in Croatia, the Security Council on 17 May demanded that the Operation's status and mandate, as well as the safety and security of its personnel, be respected.

In unanimously adopting resolution 994 (1995), the Council also demanded that the parties "complete without further delay the withdrawal of all their troops from the zones of separation and refrain from any further violations of chose zones".

Parties were warned that in the even of failure to refrain from taking any military measures or actions that could lead to the escalation of the situation, the Council would consider further steps to ensure compliance.

The Council demanded that the Croatian Government "respect fully the rights of the Serb population, including their freedom of movement", and allow access to them by international humanitarian organizations. Steps to ensure the safety and security of the Zagreb-Belgrade highway and its immediate environs were asked.

On 28 April, the Council had authorized the deployment of some 8,750 UNCRO troops by unanimously adopting resolution 990 (1995). It also urged the Government and the local Serb authorities to "cooperate fully with UNCRO in the implementation of its mandate".

Incursions condemned

Expressing deep concern over the continuation of hostilities, the Council on 4 May condemned "incursions into the zone of separation" by the forces of the Croatian Government in Sectors North and South, and by both sides in Sector East, and demanded that they withdrew immediately.

In a statement by Council President Jean-Bertrand Merimee of France, it also condemned the bombardment of Zagreb and other centres of civilian population by local Serbs and demanded that they cease immediately.

Acts of harassment and intimidation against UN personnel were condemned, and the Council reminded the parties of their "obligations to respect such personnel at all times and to ensure their safety, security and freedom of movement".

Deeply concerned by reports that human rights of the Serb population in Western Slavonia were being violated, the Council demanded that Croatia respect fully their rights, in conformity with internationally recognized standards.

The parties were also called upon to cooperate fully with UNCRO, the Office of the UN High Commissioner for Refugees and the International Committee of the Red Cross in "protecting and assisting the local civilian population and any displaced persons".

End to offensive

demanded

Deeply concerned by the resumption of hostilities in Croatia "over the last few days", the Security Council on I May demanded that the Government "put an end immediately to the military offensive launched by its forces in the area of Western Slavonia known as Sector West which started on the morning of 1 May 1995, in violation of the ceasefire agreement of 29 March 1994".

In a statement by Council President Merimee, it also urged the parties to cease hostilities, comply with the existing cease-fire agreement, and fully respect the safety and freedom of movement of all UN and European Community Monitoring Mission personnel in the area concerned.

Resolution 988:

Further suspension

A further suspension, until 5 july, of some of the economic sanctions imposed against the Federal Republic of Yugoslavia (Serbia and Montenegro) - the FRY - was authorized by the Security Council on 21 April. That suspension, originally enacted under resolution 943 (1994) of 23 September 1994 and extended by resolution 970 (1995) of 12 January 1995, applied to: restrictions on air travel; impoundment of vessels, vehicles and aircraft; maritime traffic; sporting events; and cultural exchanges.

The initial wide-ranging sanctions against the FRY, including an air embargo, had been imposed by resolution 757 (1992) of 30 May 1992. On 17 April 1993, the Council tightened them to prevent diversion of commodities and products "said to be destined for other places", and to freeze funds held in other States.

In adopting resolution 988 (1995) by 13 votes to none, with 2 abstentions (China and Russian Federation), the Council also asked the Secretary-General to report immediately if he had any evidence that the FRY was not implementing its decision to close its border with Bosnia and Herzegovina or was permitting "substantial diversion of goods, except foodstuffs, medical supplies and clothing for essential humanitarian needs".

The importance of a "thorough investigation of reports that helicopter flights may have crossed the border" was stressed.

Compliance certified

Lord David Owen and Thorvald Stoltenberg - Co-Chairmen of the international Conference on the Former Yugoslavia (ICFY) Steering Committee - reported (S/1995/510) on 23 June that the FRY was "continuing to meet its commitment" to close the border with the areas of Bosnia and Herzegovina under Bosnian Serb control, and there had been "no commercial transshipments across the border".

The ICFY Mission, deployed since 14 September 1994, had 185 international staff as of 22 June; its financial situation had improved, so that an increase in personnel to 200 had been authorized, the report stated.

The Mission continued to enjoy full freedom of movement within the FRY, and cooperation with its authorities also remained good, despite some minor incidents, mostly in conjunction with developments in Bosnia, the Co-Chairmen stated.

Mission Coordinator Tauno Nieminen of Finland had found that local border officials "increasingly deny passage to buses carrying commercial quantities of goods and regularly confiscate fuel and other commodities", they reported.

FRY compliance had also been certified by the Co-Chairmen on 17 May (S/1995/406) and 11 April (S/1995/302), as they continued to report every 30 days on border closure measures, pursuant to Council resolution 943 (1994).

As for the alleged cross-border helicopter flights into Bosnia, a special ICFY Mission inquiry team reported (S/1995/385) on 9 May that a "detailed analysis" of unexplained radar traces did not give rise to suspicion that "some unauthorized border crossings by slow flying objects" might have taken place between 2 and 7 April. Other evidence would be required to "prove or to disprove conclusively each case", it said.

Although no such information was available, an incident on 6 April still looked highly suspicious", the team stated.

Sanctions watch

A UNHCR request to use Belgrade international airport for supplies within its humanitarian programme in the former Yugoslavia was approved on 27 June by the Security Council Committee established pursuant to resolution 724 (1991) to monitor the implemenation of the arms embargo against the former Yugoslavia - the Sanctions Committee. Two other requests - to use the Zagreb-Belgrade highway and the Port of Bar - were deferred.

Sanctions Committee Chairman Emilio J. Cardenas of Argentina said hat in considering again the situation with regard to fuel smuggling through Albania to the FRY, the Committee was encouraged by Albania's recent success in that area. It noted with satisfaction Italy's adoption of further measures to verify hydrocarbon shipments destined for Albania.

In view of the Security Council arms embargo under resolution 713 (1991), the Sanctions Committee had also deferred, pending receipt of additional technical information, a request for 20 planes for a Croatian university for training purposes.

Resolution 992:

nAVIGATION ON dANUBE

Security Council resolution 992 (1995) of 11 May, allowing the FRY to use the Romanian locks of the Iron Gates I system on the left bank of the Danube river, while those on the right bank were being repaired, came into force on 23 June.

Chairman Cardenas said that the Danube Commission - a watchdog body set up by riparian States - had informed the Sanctions Committee on 22 june that it was satisfied with the completion of preparations for the repairs to the locks on the right bank.

The Council on 11 May, in unanimously adopting resolution 992 (1995) at Romania's request, had also/decided that the exception to the sanctions should remain in force for an initial period of 60 days and might be extended further for up to 60 days, if the Council was notified by the Sanctions Committee that "each such further period is required for completion of the necessary repairs".

Romania was asked to deny passage through the iron Gates I system to any vessel "identified as being a party to any suspected or substantiated violation" of the relevant Council resolutions and, with the assistance of the European Union/Organization for Security and Cooperation in Europe Sanctions Assistance Missions, to strictly monitor that use, including by inspections of the vessels and their cargo, so that "no goods are loaded or unloaded during the passage by the vessels through the locks of the iron Gates I system".

On 11 May, Mr. Cardenas told reporters that the locks had not been repaired since 1993, and the Sanctions Committee was very concerned about the risks posed to navigation and the ecology of the area".

Under the sanctions regime set up by Council resolution 713 (1991) and strengthened by resolution 820 (1993), no vessels registered in the FRY, or owned by a person or undertaking in or operating from that State, were permitted to pass through installations, including river locks or canals, within territories of Member States.

Humanitarian appeal

On 2 June, a revised consolidated inter-agency appeal for more than $261 million to meet a funding shortfall for humanitarian assistance for the former Yugoslavia in 1995 was launched at Headquarters.

High Commissioner for Refugees Sadako Ogata and Under-Secretary-General for Humanitarian Affairs Peter Hansen said that due to resurgence of the conflict, more than 2 million people needed humanitarian help, particularly those unable to return to their homes, the sick, wounded and those in need of protection.

About $65 million were pledged by some 20 countries at a second donor conference for the UN Action Plan for Sarajevo, held on 14 June in Vienna.

William Eagleton, Special Coordinator for Sarajevo, told participants that over 300 projects - such as boiler houses for heating apartment buildings, gas valves, water leak repairs, water quality control, waste disposal, health services, rail service and school repair - were being implemented under the plan.

Appointments,

troop contributors

Byung Suk Min, the Republic of Korea's Ambassador to the Czech Republic, became the first Chief of Mission of UNCRO on 5 July. Two other appointments-Antonio Pedauye, Spain's Ambassador-at-large for the former Yugoslavia, as Chief of Mission of UNPROFOR; and Henryk J. Sokalski of Poland, Director and Coordinator for the international Year of the Family at the UN Office in Vienna, as Chief of Mission of the UN Preventive Deployment Force (UNPREDEP) in the former Yugoslav Republic of Macedonia - were announced on 24 May.

Bosnian Minister killed

Secretary-general Boutros-Ghali on 30 May expressed shock and sadness over the 28 May deaths of Bosnian Foreign Minister Irfan Ljubjankic and his party near Bihac. The deaths underscored the "importance of all parties to exercise the greatest effort to bring a solution to this terrible conflict", he said.

The successful rescue on 8 June of American Pilot Scott O'Grady, whose NATO F-16 fighter jet had been down on 2 June while patrolling a no-fly zone over Serb-controlled territory in Bosnia and Herzegovina, was welcomed by the Secretary-General with "relief an satisfaction". Boutros-Ghali, in an 8 June statement, also expressed concern about UN personnel "still detained or blocked in Bosnia" and called for their immediate release.