Security Council acts six more times on Yugoslav crisis.

Up to 400,000 people could die from the cold and hunger without emergency assitance in the new State of Bosnia and Herzegovina in the winter of 1992, a UN official warned in Geneva on 29 September. The Office of the United Nations High Commissioner for Refugees (UNHCR) predicted that only an immediate and huge international effort could save those people.

Secretary-General Boutros Boutros-Ghali, describing the situation in Bosnia and Herzegovina, called it "one of the worst humanitarian emergencies of our time".

"Many lives are at risk", he said on 4 September in launching a consolidated appeal for $434 million in humanitarian assistance - food, shelter and health services - for victims of the conflict in the former Yugoslavia. Hundreds of thousands of refugees and displaced persons were facing the prospect of a harsh winter without adequate food and shelter, he said.

A grim picture of conditions was also painted by UN High Commissioner for Refugees Sadako Ogata. Refugees had been subjected to "horrifying atrocities", through systematic expulsions, forcible relocations, assassinations and other forms of persecution "aimed at persons for no other reason but their national, ethnic or religious origin", Mrs. Ogata said. The policy of "ethnic cleansing" lay at the heart of the conflict.

The potential for displacement in the coming months was "frightening". She observed: "The perversion of minds seems so violent, the destruction of houses so colossal that rebuilding of both may rapidly become impossible. We are poised on the edge of a humanitarian nightmare."

Almost 3 million people, she said, trapped in besieged cities and regions, were directly affected by the conflict in Bosnia and Herzegovina and dependent on external aid. "The numbers continue to rise daily in a horrendous spiral."

A UNHCR-led inter-agency assessment mission visited the republics of the former Yugoslavia from 9 to 16 August. It reported that more than 2.7 million people had been directly affected by the crisis and needed emergency humanitarian assistance.

Mr. Boutros-Ghali said a "particularly unconscionable" aspect of the conflict was the deliberate attempt to prevent much needed relief from reaching affected populations. Without a political solution, human suffering would grow worse.

Security Council acts

Between 1 July and 30 September, the Security Council met 10 times to consider the deteriorating situation in the former Yugoslavia. It adopted six resolutions, bringing the total number of texts adopted to 19 since the Council first acted on the situation in September 1991 (see UN Chronicle, September 1992).

During those three months, it also issued several presidential statements, most dealing with the progressively worsening situation in Bosnia and Herzegovina and its capital city of Sarajevo.

In a bid to find solutions to the ongoing impasse, the International Conference on the Former Yugoslavia, jointly organized by the UN and the European Community (EC), was held in London on 26 and 27 August. British Prime Minister John Major, acting on behalf of the EC, who co-chaired the conference with Secretary-General Boutros-Ghali, said the meeting achieved significant results.

On 25 August, the General Assembly, in resolution 46/242, urged the Council to take further measures under Chapter VII of the UN Charter to end the fighting in and restore the unity and territorial integrity of Bosnia and Herzegovina.

In a special resumed session on 13 and 14 August, the UN Commission on Human Rights met on the situation in the former Yugoslavia and condemned "ethnic cleansing" and the human rights violations, especially in Bosnia and Herzegovina.

An international airlift to provide humanitarian assistance to Sarajevo and its environs had delivered more than 12,000 tonnes of desperately needed food, medicine and other relief supplies by 3 September, when it was suspended following the shooting-down of an Italian Air Force plane participating in the airlift.

It was announced on 20 August that the 15,000-strong United Nations Protection Force (UNPROFOR) - established on 21 February by the Council to create the conditions of peace and security required for the negotiation of an overall settlement of the Yugoslavia crisis - had so far suffered 12 fatal casualties.

Emergency airlift

begins

Following the withdrawal of Serbian forces from Sarajevo airport on 29 June, the UN began an emergency airlift on 3 July to provide humanitarian assistance to 450,000 residents of the besieged city of Sarajevo and its environs. Before the airlift, the city had been cut off by fierce fighting for three months. Many families had had nothing to eat but bread, noodles or rice.

On 1 July, the Secretary-General reported (S/24222) to the Security Council President that the situation in Sarajevo, in particular in relation to the airport, "remains preoccupying" in view of continued fighting. Following consultations on 2 July, Council President Jose Luis Jesus of Cape Verde strongly appealed to all parties involved to cooperate fully with UNPROFOR and the UN, in order to reach a complete cease-fire in and around Sarajevo.

Planes from nearly 20 countries participated in the airlift, coordinated by UNHCR and UNPROFOR. After unloading, supplies were taken by UNHCR to five main warehouses in the city, then distributed by local humanitarian organizations to 102 municipal districts.

On 13 July, the Council authorized the Secretary-General to deploy immediately additional UNPROFOR elements to ensure the security and functioning of Sarajevo airport and the delivery of humanitarian assistance.

In unanimously adopting resolution 764 (1992), the Council demanded that all parties and others concerned cooperate fully with UNPROFOR and international humanitarian agencies to facilitate the evacuation by air of cases of special humanitarian concern and to facilitate provision of aid to other areas of Bosnia and Herzegovina in desperate need of assistance.

The Council called on all parties concerned to resolve their differences through a negotiated political solution to the problems of the region and, to that end, cooperate with the renewed efforts of the European Community, with the support of States participating in the Conference on Security and Cooperation in Europe, within the framework of the European Community conference on Yugoslavia.

The Secretary-General was to keep in close contact with the developments within the framework of the conference and assist in finding a negotiated political solution. He was also asked to ensure unimpeded delivery of humanitarian assistance.

The Council reviewed a 10 July report (S/24263 and Add.1) of the Secretary-General on developments relating to the reopening of Sarajevo airport under UNPROFOR auspices.

Describing the situation in Bosnia and Herzegovina as "one of the worst humanitarian emergencies of our time", Mr. Boutros-Ghali recommended increasing the number of additional personnel required for the Sarajevo operation to 1,600, rather than the 1,100 originally proposed. The Sarajevo airport operation, he said, was based upon "foundations of the utmost fragility".

Heavy weapons

under supervision

On 17 July, the Council decided in principle to respond positively to the request made in a cease-fire agreement reached earlier in the day in London by representatives of the Serbian, Croatian and Muslim Slav factions in Bosnia and Herzegovina, calling for UNPROFOR to supervise all heavy weapons, such as combat aircraft, armour, artillery, mortars and rocket-launchers.

In a statement on behalf of the Council, President Jose Luis Jesus of Cape Verde welcomed the agreement signed within the framework of the European Community peace conference. The parties were called upon to declare immediately to the UNPROFOR Commander the locations and quantities of the heavy weapons to be placed under supervision.

They were asked to observe scrupulously the cease-fire through-out the entire territory of Bosnia and Herzegovina.

Agreements concerning the return of all refugees and the freedom of movement for civilians trapped by the military situation were welcomed. Maximum use of the cease-fire to bring humanitarian relief and supplies to all parts of Bosnia and Herzegovina was urged.

The parties agreed to a two-week cease-fire effective 19 July, during which time they would explore measures to strengthen the cease-fire in the longer term. They also agreed not to initiate fire of any sort, even in response to provocation, and to place their heavy weapons under international supervision.

Council concurs

At a meeting on 24 July, the Council concurred with the Secretary-General's view that "conditions do not yet exist" for the. UN to supervise the heavy weapons in Bosnia and Herzegovina, as envisaged in the 17 July London cease-fire agreement.

In a statement by Council President Jesus, the Council invited the European agencies concerned, particularly the European Community, to enhance cooperation with the UN. The Secretary-General was asked to contact all Member States, particularly those belonging to relevant European organizations, about possible contributions of personnel, equipment and logistic support.

The Council emphasized that parties must respect and maintain a cease-fire through the entire territory of Bosnia and Herzegovina and declare immediately to UNPROFOR the locations and quantities of heavy weapons to be placed under supervision.

On 21 July, the Secretary-General reported (S/24333) that the parties had not made available any relevant information, adding that conditions did not exist for him to recommend that the Council accept the parties' request that the UN supervise the heavy weapons in Bosnia and Herzegovina.

Until 19 July, 280 relief flights carrying 3,346 metric tons of humanitarian supplies had landed in Sarajevo. However, the airlift was suspended for one day on 20 July because of a "seriously" deteriorating situation around Sarajevo airport. The airlift was resumed on 21 July.

On 4 August, the Secretary-General condemned the shelling of the airport which obliged the UN to suspend humanitarian flights on three occasions during the day. The attacks, he said, appeared to have been "deliberate", jeopardizing the safety of both UN personnel and aircraft. UN operations at the airport were then suspended for 72 hours.

Humanitarian flights were resumed on 8 August. By 3 September, 1,025 flights were carried out, delivering 12,401 tons of relief supplies.

On 3 September, an Italian Air Force plane carrying about 1,000 pounds of blankets crashed south of Sarajevo airport while participating in the airlift. Four crew members were killed. Following the incident, it was announced that all humanitarian activity in the area had been suspended pending an investigation.

Abuses condemned

In unanimously adopting resolution 769 (1992) on 7 August, the Council, strengthening UNPROFOR's mandate to perform immigration and customs functions, also resolutely condemned abuses committed against the civilian population, particularly on ethnic grounds. All parties and others concerned must cooperate with the Force, the Council demanded.

The Council also approved the increase of more than 800 staff in UNPROFOR's civil affairs component and in the number of civilian police monitors. This was recommended in a 27 July report (S/24353 and Add.1) of the Secretary-General on UNPROFOR's progress in implementing its mandate in Croatia, difficulties encountered by the Force, and concerns of the Croatian Government regarding control of its international borders.

On 13 August, the Security Council, recognizing that the situation in Bosnia and Herzegovina threatened international peace and security and acting under Chapter VII of the Charter, called upon States to take, nationally or through regional arrangements, all necessary measures to facilitate, in coordination with the UN, the delivery of humanitarian assistance to that republic.

In adopting resolution 770 (1992) by a vote of 12 to none, with 3 abstentions (China, India, Zimbabwe), the Council reaffirmed its demand that all parties and others concerned in Bosnia and Herzegovina stop the fighting immediately.

The Council demanded that unimpeded and continuous access to all camps, prisons and detention centres in the country be granted immediately to the International Committee of the Red Cross (ICRC) and other humanitarian organizations, and that all parties and others concerned take the necessary measures to ensure the safety of UN and other personnel engaged in the delivery of humanitarian assistance.

In a second resolution - 771 (1992) - adopted unanimously the same day, the Council called upon States and international humanitarian organizations to collate substantiated information relating to violations of humanitarian law, including grave breaches of the 1949 Geneva Conventions, being committed in the territory of the former Yugoslavia and to make the information available to the Council. The Secretary-General was to summarize the information and recommend additional measures.

It strongly condemned any violations of international humanitarian law, including "ethnic cleansing", and demanded that all parties in the former Yugoslavia and all military forces in Bosnia and Herzegovina immediately cease and desist from breaches of international humanitarian law.

Acting under Chapter VII, the Council decided that failure by all parties and others concerned to comply with its demand would require the Council to "take further measures under the Charter".

Interference, intervention

The Council met at the request of a number of countries, including Bosnia and Herzegovina, which on 10 August asked (S/24401) for an urgent Council meeting "in view of the grave and deteriorating situation in Bosnia and Herzegovina, with regard to the most serious violations of human rights and international law, involving acts of interference and armed intervention by a foreign country, threatening international peace and security".

The Council was asked to take "appropriate collective measures" under Chapter VII of the Charter to restore peace and stability in the region.

On 4 August, the Council expressed deep concern at continuing reports of widespread violations of international humanitarian law, in particular regarding imprisonment and abuse of civilians in camps, prisons and detention centres within the territory of the former Yugoslavia and especially in Bosnia and Herzegovina.

In a statement by Council President Li Daoyu of China, the Council condemned "any such violations and abuses" and demanded that relevant international organizations, and in particular the ICRC, be granted immediate, unimpeded and continued access to all such places. The Council also wanted any further information regarding those camps and access to them.

The Council reaffirmed that all parties were bound to comply with obligations under international humanitarian law and in particular the 1949 Geneva Conventions.

The Council met in response to requests from the United States and Venezuela which expressed concern over abuses of civilian prisoners in camps and torture of citizens.

The Assembly acts

On 25 August, the General Assembly, after a two-day debate, urged the Security Council to consider urgently taking further measures, as provided in Chapter VII of the Charter, to end the fighting in, and restore the unity and territorial integrity of Bosnia and Herzegovina.

It also condemned the violation of the sovereignty, territorial integrity and political independence of Bosnia and Herzegovina, as well as the massive violations of human rights and international humanitarian law, in particular the abhorrent practice of "ethnic cleansing", and demanded that that practice be ended immediately and that further steps be taken urgently to stop the forcible displacement of population from and within the country.

It did so in adopting Assembly resolution 46/242 by a vote of 136 to 1 (Yugoslavia), with 5 abstentions (Ghana, Lesotho, Malawi, Namibia, the Russian Federation).

The Assembly demanded that the Yugoslav People's Army units and the Croatian Army elements in Bosnia and Herzegovina be either withdrawn, subjected to the authority of the Government of Bosnia and Herzegovina, or disbanded and disarmed with their weapons placed under effective international monitoring.

It was also demanded that ICRC be granted immediate, unimpeded and continued access to all camps, prisons and other places of detention within the territory of the former Yugoslavia and that all parties ensure complete safety and freedom of movement for ICRC and otherwise facilitate such access.

The Assembly demanded the safe, unconditional and honourable repatriation of refugees and deportees to their homes in Bosnia and Herzegovina and recognized their right to receive reparation for their losses.

All parties and others concerned were urged to take measures to secure the safety of UNPROFOR and all other UN personnel.

Turkey had requested the Assembly meeting on behalf of the 47-member Organization of the Islamic Conference, in light of the violation of sovereignty and territorial integrity of Bosnia and Herzegovina and the "grievous suffering" of its inhabitants.

London conference 

The London international conference was attended by some 40 countries, the parties to the conflict and international organizations.

In a joint press conference with the UN Secretary-General on 27 August, United Kingdom Prime Minister Major reported that the Yugoslav parties had pledged themselves to a code of conduct.

For the first time, Mr. Major continued, all parties had accepted a settlement that would include recognition of Bosnia and Herzegovina by all former Yugoslav republics, respect for integrity of present frontiers unless changed by mutual agreement and the principle that acquisition of territory by force would not be accepted.

There was also agreement on a mechanism to secure the end of hostilities. The humanitarian effort should be stepped up. Unconditional agreement was reached to dismantle detention camps.

More sanctions,

if necessary

Finally, agreement was reached on specific ways to tighten existing sanctions, including better reporting and monitoring of breaches. Most conference participants were ready to apply further sanctions, if necessary, he stated.

Both Mr. Major and Secretary-General Boutros-Ghali agreed that the conference would "remain in being until a final settlement of the Yugoslav problem".

On 31 August, Cyrus Vance, the Secretary-General's Personal Envoy on Yugoslavia and Co-Chairman of the Steering Committee established at the London Conference, told the press in New York that because the conference had decided that the European Community and the UN should meld their activities - bringing together peace-keeping, peacemaking and peace-building - an important institutional process had been set in motion.

Bosnian-Serb leader Radovan Karadzic had said that his side would notify the UN of the position of all heavy weaponry, which would be put under continuous UN supervision.

The Bosnian-Serb side would expect the Bosnian Government to take reciprocal action, but its own action would be unilateral. In negotiations between the Bosnian parties, it would withdraw from a substantial portion of the territory under the control of its forces.

Call for cooperation

On 2 September, the Security Council, noting the urgency of the situation in Bosnia and Herzegovina, called on the parties concerned to cooperate fully with the Steering Committee to help achieve a comprehensive settlement.

In a statement by its President, Jose Ayala Lasso of Ecuador, the Council expressed full support for the principles adopted and agreements reached at the conference. It shared the hope that the political will shown in London would speedily be transformed into the concrete actions foreseen in conference documents.

The Council expressed satisfaction that the conference had established the framework within which an overall political settlement of the crisis might be achieved. It called for the complete implementation of all previous Council resolutions relating to the former Yugoslavia.

The Council also noted the commitments entered into by the parties and others concerned within the conference framework, underlining the importance it attached to the full implementation of those commitments as rapidly as possible.

On 14 September, the Council authorized the enlargement of UNPROFOR's mandate and strenght in Bosnia and Herzegovina, in order to provide protection for convoys transporting humanitarian aid and released detainees.

In adopting resolution 776 (1992) by a vote of 12 to none, with 3 abstentions (China, India, Zimbabwe), the Council approved the Secretary-General's report (S/24540) proposing that the Force be expanded by a factor of four or five, in order to enable the delivery of some 5,000 tonnes a week of humanitarian relief, under UNHCR supervision. The expansion was to be carried out at no cost to the UN, as a number of States had offered their support.

Member States were also urged to provide the Secretary-General with such assistance as he deemed appropriate in the performance of UNPROFOR's expanded functions.

The Secretary-General had reported that additional resources could also be used to protect convoys of released detainees. An expansion should represent "the best possibility for ensuring increased deliveries of humanitarian relief to the suffering people of Bosnia and Herzegovina", he stated.

On 12 September, the Council had agreed that, on an exceptional basis. UNPROFOR could use existing resources to protect some 4,000 or more Muslim and Croat detainees to be released from Serb detention camps in northern Bosnia and Herzegovina and be taken to transit facilities in Croatia.

A worsening situation

On 9 September, Special Rapporteur Mazowiecki said he was deeply concerned about the worsening situation in Sarajevo, "which has reached dramatic dimensions". "Most serious crimes" had been perpetrated continuously. The city had been cut off from humanitarian aid and there was a critical shortage of food and water. Heavy weapons had not yet been placed under international control and shelling by heavy artillery continued unabated.

He appealed to "all those committing acts of aggression" to halt immediately the use of weapons to avoid further loss of innocent lives. He was confident that the Security Council and all international organizations involved in peace and relief efforts would do their utmost to save Sarajevo from a "holocaust".

Airlift resumed

On 19 September, the three leaders in the conflict in Bosnia and Herzegovina signed agreements in Geneva giving assurances to UNHCR fo the security of humanitarian operations throughout the region. Upon receipt of the assurances, which covered both land and air operations by UNHCR and its partners, High Commissioner Ogata recommended to participating Governments the immediate resumption of the airlift as soon as possible because of the urgent need to stockpile supplies before the onset of winter.

Following a meeting with the Secretary-General on 25 September, the Foreign Ministers of the five permanent members of the Security Council issued a statement expressing their deep concern over the situation in the former Yugoslavia. They called on all the parties in Bosnia and Herzegovina to stop military actions immediately.

Commission on Human Rights:

'Ethnic cleansing' condemned

The first exceptional session of the 53-member Commission on Human Rights, which met on 13 and 14 August in Geneva on the human rights situation in the former Yugoslavia, condemned "ethnic cleansing" and human rights violations, especially in Bosnia and Herzegovina. It asked that its Chairman appoint a Special Rapporteur to investigate the human rights situation in the former Yugoslavia.

(Commission Chairman Pal Solt of Hungary subsequently appointed Tadeusz Mazowiecki, former Polish Prime Minister, as Special Rapporteur.)

In adopting the resolution without a vote, the Commission also demanded immediate, unimpeded and continued access by ICRC to all camps and places of detention.

The Special Rapporteur was to gather credible information, visit "areas of interest" and report urgently to Commission members, providing a preliminary report no later than 28 August.

Such information, including that which might constitute war crimes, could be of possible future use in prosecuting violators of international humanitarian law. The Secretary-General was asked to make that report available to the Security Council.

The Commission demanded that all parties in the territory of the former Yugoslavia cooperate fully with the Special Rapporteur in implementing its resolution.

The Commission's session was the first of its kind in the body's history. It was convened in accordance with a 1990 provision authorizing such meetings between regular sessions if a majority of members so agreed. The session was convened at the request of the United States, with the support of 35 Commission members.

On 5 August, Morris B. Abram, United States Ambassador to the UN in Geneva, cited the "dangerous deterioration of the human rights situation in the former Yugoslavia", as well as great concern over "potentially massive human rights violations".

He referred to reports of citizens being rounded up and summarily and arbitrarily executed, and of villages being destroyed and homes demolished, as well as international authorities being hindered in their efforts to gain access to sites of alleged brutality.

Special Rapporteur Mazowiecki reported (A/47/418-S/24516) to the Assembly and the Council on 3 September that "massive and grave violations" of human rights were being perpetrated throughout Bosnia and Herzegovina by "all parties to the conflicts". There were victims on all sides. However, the situation of the Muslim population was "particularly tragic" - they felt that they were "threatened with extermination".

Acts of violence were tolerated and often even encouraged by responsible authorities. Rule of law did not exist. The indoctrination of a large part of the population that was taking place encouraged national and religious hatred.

Despite a high level of commitment, UN personnel were unable adequately to protect the affected population and were helpless to prevent human rights violations. The Special Rapporteur stressed the need for immediate concerted action. Even when peace was achieved, serious violations of human rights were likely to continue due to the "intensity of mutual distrust and hatred", he affirmed.

Membership not automatic for Yugoslavia 

The Security Council, in adopting resolution 777 (1992) on 19 September, recommended that the General Assembly decide that the Federal Republic of Yugoslavia (Serbia and Montenegro) should not participate in the work of the Assembly and should apply for membership in the UN. It considered that the Federal Republic could not automatically continue the membership of the former Socialist Federal Republic of Yugoslavia in the Organization.

The vote was 12 to none with 3 abstentions (China, India, Zimbabwe). The Assembly, in resolution 47/1, on 22 September took the action requested by the Council.