YUGOSLAVIA AND ITS NEIGHBORS: A NEED FOR MORE RATIONAL POLITICS
 

Without good relations and a developed cooperation with the neighboring countries, it is not possible to speak either of a favorable international position of a country or of a successful foreign policy. Due to major changes in the Balkans and in the broader international surrounding as well as to the fact that Yugoslavia is now a small country that is held back by the war and its regime, internationally isolated and without support and respect in the world - the development of good neighborly relations with the new and old neighbors, as well as peace and stability in the region represent an even more significant and more pressing foreign policy priority of the country.
 
Substantial normalization of relations with states that emerged in the territory of the former Yugoslavia, initialization of the complex and difficult process of restructuring mutual trust that was totally destroyed in the last Yugoslav war and the creation of conditions favorable for economic, political and other cooperation - all these cannot be further postponed and avoided without far-reaching negative consequences upon the development and international position of Yugoslavia. To achieve this, it is first of all necessary to adapt to the reality that SFRY has disintegrated that it does not exist anymore and that good neighborly relations should be built without prejudice and burdens from the past.
 
Of special significance is the solution of problems that resulted from the war and the disintegration of the former common state, such as the issue of succession (it is necessary to genuinely and not only declaratory accept the standpoint that all states that emerged from the former SFRY are its successors), creating prerequisites and conditions for a free and safe return of refugees and expatriates, regulating problems pertaining to families, property rights and status of individuals. Solution of these and other questions represents, in fact, a real beginning in the normalization of the situation in the area of the former Yugoslavia, and this is one of the essential conditions for a full inclusion of our country into international relations and the removal of the so-called outer wall of sanctions.
 
Generally speaking, the process of normalization of relations with the new neighbors has not much advanced, although it represents both a major interest and obligation from the Dayton peace agreement. Not denying the complexity of the problems that have to be solved in this regard, it is necessary, however, to state that the regime is continuing to show lack of genuine political will and necessary initiative for developing relations and cooperation with neighboring countries in accordance with long-term interests.
 
In practice, fifteen months after Dayton Yugoslavia does not have an elaborated politics with regard to its neighbors, but is rather making extorted and late moves, which - as a rule - are made under strong pressures by the international community. It is impossible to find a politically justified explanation for such behavior, except if one is not searching for it in the xenophobia of the regime towards the world in general, a xenophobia that was really never fully suppressed, and which is based in nationalist and totalitarian understandings and standpoints. The damage done and the consequences of such behavior are becoming an increasing burden for the country.
 
Having in mind the historic and other circumstances pertaining to Serb-Croat relations, the normalization of relations and the development of cooperation between Yugoslavia and Croatia is of special significance, both for their bilateral interests and for peace and security in the region. Without this normalization, it is neither possible to secure the success of the peace process in Bosnia-Herzegovina. It is in the state interests of Yugoslavia and Croatia to approach the problem without further delays, outsmarting, various conditioning and exclusivism and to open perspectives for a free flow of people, goods and capital, for cultural and other exchange, for a full restoration of communication, economic and traffic relations, all of which will significantly contribute also to the economic reconstruction of both states.
 
It is of special importance to create political, economic, security and other conditions for the return of Serbs who fled form Croatia, and also adequate conditions for the survival of Serbs in Eastern Slavonia, Baranja and Western Srem. This implies also the obligation for FR Yugoslavia and Serbia to create conditions for a safe return of Croats who emigrated during the war due to nationalist pressure.
 
In the politics of Yugoslavia with regard to Bosnia-Herzegovina it is essential that the Dayton Agreement be implemented persistently and in its entirety, and first of all that FR Yugoslavia respects the sovereignty and territorial integrity of Bosnia-Herzegovina. The right to develop special relations between the Republic of Srpska and FR Yugoslavia, as envisaged in the Dayton agreement, must in no case be used for disintegration and division of Bosnia-Herzegovina.
 
Therefore, it is inadmissible that the ruling party in Serbia officially greets the Agreement on special parallel relations between FR Yugoslavia and the Republic of Srpska as a document “between two states”. Is this yet another propagandistic platitude designed for internal needs, or is it that the regime cannot reconcile with the forestalled war aims?
 
In any case, this standpoint cannot lead to the creation of mutual trust, to a genuine normalization and the development of good neighborly relations between FR Yugoslavia and Bosnia-Herzegovina, and hence it can neither contribute to successful cooperation with the Republic of Srpska.
 
Although the normalization of relations between Yugoslavia and Macedonia has made major progress, there still are no adequate initiatives and measures to make use of the mutual need to develop relations and the significant possibilities for promotion of  economic, cultural and other cooperation.
 
There are no rational political reasons for postponing agreement on normalization and establishment of diplomatic relations between Yugoslavia and Slovenia, nor for the indifference and passivity in restoring broken economic and other ties, even more so because between Yugoslavia and Slovenia there are no serious controversies apart from the problem of succession.
 
The long-lasting unsuccessful negotiations with regard to succession of SFRY show that FR Yugoslavia is kept by illusions because it persists on standpoints that are unacceptable for other states that emerged in the territory of the former SFRY, and also do not fit into the standpoint of the international community with regard to non-recognition of the international legal continuity of FR Yugoslavia with SFRY. Stubborn persistence of the FR Yugoslavia upon the standpoint that other Yugoslav republics are secessionists and that they seceded Yugoslavia by illegal acts, continues to postpone the possibility for arriving at mutually acceptable solutions and a genuine normalization of relations with the former Yugoslav republics. Official explanations like the one that persistence with regard to continuity is motivated with possible demands of the former Yugoslav republics to get compensation for war damages from FR Yugoslavia are with no legal foundation; it rather provokes doubts among other states with regard to economic, financial and political intentions of FR Yugoslavia.
 
It seems as if the Yugoslav regime does not understand the elementary message of the international community that without, inter alia, the solution for the question of succession, namely without a constructive approach to the search for solution in this field, the doors of international political, economic and financial organizations and institutions, and hence the access to the world capital market, will remain closed for FR Yugoslavia.
 
With the majority of the old neighbors, there is a long tradition in relations. However, it is necessary to adapt these relations to the new conditions and demands of contemporary development. Some burdens and limitations from the past were overcome, so that the new period in relations can develop without prejudice. The favorable circumstance is that there are no longer bloc divisions, and hence no military, ideological and other confrontation and limitations that resulted from them. The neighbors, the former socialist countries, are in a process of transition, of creating market economies and democratic changes, all of which should in principle be favorable for the development of bilateral and regional cooperation on new foundations. Of course, the prerequisite is that Yugoslavia enters the process of transition and democratic changes, in which it is intolerably late.
 
There are doubtlessly interests and broad possibilities for cooperation with Hungary, Romania, Bulgaria, as well as with the “more distant” neighbors - Greece, Turkey, Italy, and Austria. Relations with Albania will decisively depend upon the solution to the problem of Kosovo. A democratic solution of this question (broad autonomy of Kosovo within FR Yugoslavia and Serbia, which is also the standpoint of the international community) can be sought only based on dialogue and negotiations with the legitimate representatives of Albanians in Kosovo. Any further delay carries a growing danger of overt conflicts and, actually, to destabilization of Yugoslavia and a conflict in the Balkans.
 
A constructive policy towards neighboring states, as well as constructive foreign policy in general can be conducted only if fundamental democratic changes and economic reforms in the country can be secured. Only a democratic Yugoslavia and Serbia can secure internal stability and prosperity on these grounds and contribute significantly to the development of relations with neighboring countries, to peace and stability in the region. There are, however, no serious indications that the regime has drawn lessons and that it is ready to make adequate changes and transform significantly the attitude of FR Yugoslavia with regard to the world. There is a continuing creation of international enemies, instead of friends and partners. A continuation of such irrational behavior results not only in continuation but also in a rapid increase of damages and negative consequences for state interests and the citizens.

CSS Survey, No.15, March 1997