Chairman-in-Office's Activity Report for 1998

1. During 1998 the OSCE's contribution to European security underwent a process of qualitative refinement and enlargement in rapid response to risks and challenges. The Organisation's political mission of enhancing peace and stability in the OSCE area through consolidation of common values, broadly understood conflict prevention and promotion of co-operative security has been constantly put to the test by the challenges posed by existing and emerging potential conflict. Activities aimed at furthering compliance with OSCE principles and commitments continued to be a responsibility requiring great attention by the Organisation.

2. The OSCE faced a variable and complex security environment that mobilised the development of its operational capabilities and stimulated its mission of creating solidarity and partnership among participating States in meeting common challenges. The evolving crisis in Kosovo challenged the OSCE's ability to adapt itself adequately to the requirements of conflict prevention. While the institutions and numerous missions of the OSCE continued to pursue their tasks, the Organisation expanded its presence in Central Asia and created conditions for similar enhancement in the Transcaucasus. The commitment of the OSCE to fine-tuning its role within a non-hierarchical security system for Europe resulted in the active consideration of a future OSCE Charter on European Security. This consideration was backed up by the development of dynamic co-operation with other international organisations and institutions, furthering their mutual reinforcement in pursuit of common goals and objectives.

3. During 1998 the OSCE has been reaffirming its key role in fostering security and stability by applying instruments for early warning, conflict prevention, crisis management and post-conflict rehabilitation. Long-term missions and representatives of the OSCE in the field have continued to serve throughout the area as effective, responsive and flexible tools of preventive and mitigating action in the face of the manifold risks and challenges to security and stability. The OSCE has continued to prove its reliability as a mechanism for promoting dialogue, solidarity, partnership and co-operation. It has maintained its focus on aiding the implementation of basic principles and commitments, including the fundamental aspects of greater respect for human rights and the building of democracy.

4. In all its endeavours the OSCE has been working closely together with relevant international organisations and institutions. This co-operation, based on the Common Concept for the Development of Co-operation between Mutually-Reinforcing Institutions, as defined by the 1997 Copenhagen OSCE Ministerial Council, has been guided by the principles of pragmatism, responsible burden-sharing and the use of the comparative advantages of all the actors involved. The range of OSCE contacts with its partner organisations and institutions in 1998 was unprecedented, both at the headquarters level and in the field. It encompassed, in addition to the activities of the Chairman-in-Office, those of the OSCE institutions and of its missions and representatives throughout the OSCE area.

5. The operational activities of the OSCE in 1998 included the consolidation and adjustment of activities as well as the assumption of new mandates. In addition to several continuing efforts, operations of a new type, such as compliance verification and police monitoring, have been initiated by the OSCE, leading to the defining of new potential capabilities in the Organisation's conflict prevention role. In the field of preventive diplomacy and in contributions to crisis management and post-rehabilitation efforts, stress was laid on early warning of risks and challenges.

6. Eight months elapsed in 1998 before the Federal Republic of Yugoslavia (FRY) was persuaded by the international community to cease warfare in Kosovo and to start withdrawing in substantial numbers its special forces from the province. Subsequent resolutions of the United Nations Security Council (Nos. 1160, 1199 and 1203) reflected and defined the international community's positions on the Kosovo crisis and the requirements for FRY compliance. It was nevertheless only the threat of military intervention that prevented Belgrade from continuing its pacification activities in the province with its toll of death and displacement for many civilians. The OSCE reacted immediately to Serb repression of the ethnic Albanian population in Kosovo. This was reflected in the statement issued by its Chairman-in-Office on 2 March, followed up by the Chairman-in-Office's plan of action for Kosovo and the Permanent Council's Decision No 218 urging the FRY to halt its excessive use of force in the province and to initiate a genuine dialogue with Kosovo Albanian representatives. The Chairman-in-Office also pointed to the need to draw up status proposals on Kosovo and to hold round-table talks in the FRY with international participation as crucial aspects of the search for political solutions. The OSCE continuously pursued the objectives of reinstating the mission of the Personal Representative of the Chairman-in-Office, Mr. Felipe Gonzalez, and of ensuring a permanent OSCE presence in the FRY, including Kosovo. For several months the Chairman-in-Office maintained dialogue at ambassador level with the Yugoslav authorities on the question of the FRY's participation in the OSCE. Such participation was, however, used by the FRY as a condition for the return of the OSCE to the country, a demand that led to the suspension of the talks. Pursuant to Security Council Resolution No. 1160, the Chairman-in-Office began providing the United Nations with monthly information on the situation in Kosovo and on the measures taken by the OSCE in response to that crisis. In March the OSCE strengthened its field presence in Albania and the Former Yugoslav Republic of Macedonia in order to make its monitoring efforts more effective.

7. In the autumn of 1998 intense negotiations between the United States special envoy Mr. Richard Holbrooke, and Belgrade led to the acceptance by the FRY of political talks and brokerage between the parties to the Kosovo conflict. Agreement was reached on the establishment of a regime to verify compliance by the FRY with the requirements of the international community. The OSCE showed itself ready to contribute to the concerted international effort to put an end to violence in Kosovo through the establishment of the Kosovo Verification Mission in October. The relevant Agreement signed on 16 October in Belgrade by the Chairman-in-Office and the FRY has opened fresh prospects for an end to repression in Kosovo and the start of a return to political dialogue between the parties to the conflict. At the same time, the OSCE has been faced with the extraordinary task of organising a huge and unprecedented verification operation, thus opening a qualitatively new chapter in OSCE conflict prevention activities.

8. During 1998 the OSCE continued to fulfil the role assigned to it under the Dayton General Framework Agreement for Peace in Bosnia and Herzegovina (GFAP). Both confidence- and security-building measures under Article II and the sub-regional arms control under Article IV of Annex 1-B to the GFAP were consolidated. The work on the mandate for negotiation on regional stabilisation under Article V was advanced towards acceptance. In Bosnia and Herzegovina the OSCE contributed significantly to the efforts of the international community with regard to the consolidation of state structures, democracy-building and human rights implementation. This was done in line with the recommendations of the Peace Implementation Council (PIC). While OSCE tasks in connection with the general elections held in September were in the forefront of the activities of its mission further support was provided through action on behalf of democratisation, human rights including those of returnees, and the build-up and functioning of democratic institutions such as the office of the ombudsman. In Bosnia and Herzegovina the complementary nature and the mutual reinforcement of the activities of different international organisations and institutions have been proving their value. The OSCE's contribution to the preparation and conduct of the elections in that country must have been on the right track, seeing that the voters opted for a more pluralistic political spectrum. The dedication of the OSCE election personnel deserves high praise.

9. The continuous presence of the OSCE mission in Croatia has been contributing to the strengthening of that country's efforts in the fields of post-war confidence building, return of refugees, and the further development of democratic standards. The implementation of its international obligations by Croatia was a precondition for OSCE assistance to government and local authorities as work continued towards furthering tolerance, reconciliation, the rule of law and civil society. The OSCE embarked on a new mandate in Croatia and a new dimension in the develop<->ment of its own capabilities through the establishment of a police monitoring operation in the Danubian region of that country. The assumption by the OSCE of the tasks and responsibilities of the United Nations Police Support Group in the Danubian region was completed in October 1998. Integrating the Serb local community into Croatian society and ensuring sustainable implementation of the refugee return programme continued to be challenging tasks, as did assistance in drafting legislation covering human rights, the judiciary, the media and elections.

10. The prevailing political instability in Albania challenged the OSCE to increase its determination and efforts to assist that country in fostering political dialogue and the amalgamation of democracy and the rule of law through the strengthening of its institutions. This goal was pursued jointly with other international organisations and institutions. The OSCE continued to provide a flexible co-ordinating framework for international support for Albania, inter alia, in its new role as Co-chairman, together with the European Union, of the "Friends of Albania" Group which brings together interested countries and international bodies and was established in September 1998. The international ministerial conference on Albania held in October in Tirana with the participation of the OSCE welcomed the comprehensive reform programme presented by the Government and laid down a number of priorities for the stabilisation and development of the country. The subsequent strengthening of the OSCE Presence in Albania demonstrated the Organisation's resolve to continue its assistance efforts. Earlier in the year a monitoring component was established as part of the Presence for the purpose of providing analysis of the situation in Kosovo and on the border between Albania and the Federal Republic of Yugoslavia.

11. The mandate of the OSCE Spillover Monitor Mission to Skopje has been implemented with a view to supporting sustainable internal stability in the Former Yugoslav Republic of Macedonia, which has been jeopardised in an unpredictable way by the crisis in neighbouring Kosovo. The situation in the country has remained stable and calm in the course of 1998, allowing the OSCE mission to concentrate its work on co-operation with the Government in promoting the internal aspects of stability, including respect for human rights, elections and economic opportunities.

12. The OSCE's Advisory and Monitoring Group in Belarus pursued a constructive dialogue with the Government and representatives of different segments of Belarussian society on a number of issues relating to the building of democratic institutions and civil society. The Group offered advice regarding the drafting of electoral legislation, the establishment of an ombudsman's office, the penal code and the code of criminal procedure, and also regarding projects considered by the Group to be important, such as proposed legislation on the electronic media. The Group also monitored compliance with international commitments in the fields of human rights, the rule of law and democracy-building, acting as a catalyst for democratic values and projects between governmental and non-governmental forces in Belarus. In spite of great efforts, meaningful progress was difficult to achieve. A round-table to overcome the constitutional crisis would be instrumental to promoting democracy in Belarus. Belarus should play its role as a democratic member of European organisations. This would also lead to the full observance of human rights in Belarus.

13. During this year the withdrawal of Russian troops, ammunition and equipment from the Transdniestria region of Moldova as well as an overall political settlement to the conflict over Transdniestria have been issues of concern to the OSCE. This long-standing commitment to a search for solutions to both questions was reflected in the holding by the OSCE of meetings on military transparency and political issues in July and October of 1998. Offers of practical assistance in the destruction of ammunition and continued adherence to an approach to the problem of troop withdrawal based on sequenced, achievable steps have remained at the centre of the OSCE's attention. The contributions of Russia and Ukraine as mediators to efforts aimed at the political solution of the conflict over Transdniestria should be noted.

14. 1998 saw continuing positive political transformation in Georgia towards a more open and democratic society and movement towards a market economy. There was some progress in the search for a peaceful settlement of the conflict over the Tskhinvali region of South Ossetia, in particular with regard to the military security situation and the return of refugees and internally displaced persons. However, no meaningful progress was achieved with respect to a peaceful solution of the conflict over Abkhazia, Georgia, although the search for a settlement has been stepped up and there are some grounds for optimism.

15. The OSCE continued its efforts to advance the work of resolving the conflict over Nagorno-Karabakh. The Co-chairmen of the Minsk Group continued their work with the parties with a view to an early resumption of negotiations. The monitoring of the line of contact by the Personal Representative of the Chairman-in-Office and his staff was essential for the consolidation of the cease-fire regime and for building confidence between the parties.

16. The visit of the Chairman-in-Office to the Caucasus in November underscored the importance the OSCE has been attaching to its continuing efforts to bring about a peaceful resolution of conflicts in that region. In Georgia the Chairman-in-Office emphasised the OSCE's long-standing commitment to work, through its mission, for the advancement of a political settlement of the South Ossetian conflict and to contribute to confidence-building between the parties to the dispute on the future status of Abkhazia. The possibility of the opening of an OSCE office in the Gali region was also discussed. As regards Nagorno-Karabakh, the Chairman-in-Office called on the parties concerned to demonstrate the political will to negotiate and compromise in the interests of achieving a mutually acceptable and mutually advantageous resolution of the conflict. An exchange of prisoners of war was agreed during the visit. Furthermore, Armenia and Azerbaijan gave a positive response to the suggestion of the Chairman-in-Office to establish OSCE offices in Yerevan and Baku. The Chairman-in-Office signed memoranda of understanding between the OSCE Office for Democratic Institutions and Human Rights (ODIHR) and the three countries aimed at deepening co-operation in the fields of democracy and human rights.

17. The OSCE Assistance Group to Chechnya, Russian Federation, continued to support and facilitate humanitarian assistance and to monitor the evolving internal situation including respect for human rights. The OSCE was the only international organisation present in Chechnya. Developments there do not provide grounds for optimism. The frequent kidnappings there are a matter of grave and continuing security concern. The extremely complex situation in Chechnya remained a major obstacle to the work of the Assistance Group, leading, among other problems, to temporary difficulties in ensuring the appropriate level of staffing in Grozny and its permanent presence there.

18. The OSCE assisted in the task of national reconciliation in Tajikistan by, inter alia, providing advice on the development of legal and democratic political institutions and processes. The OSCE continued its monitoring of the human rights situation, thereby promoting compliance with OSCE principles and commitments in Tajikistan. It should be noted that, although there has been some progress in the implementation of the peace agreement, implementation of the vast majority of the protocols is behind schedule.

19. In April the Chairman-in-Office paid visits to Kazakhstan, Kyrgyzstan, Turkmenistan, Uzbekistan and Tajikistan. These visits confirmed the willingness of the host countries to advance their integration within the framework of OSCE principles and activities, along with their desire, shared by all participating States, to strengthen the OSCE community. The implementation of the Chairman-in-Office's recommendations drawn from his trip to Central Asia led to the establishment of OSCE centres in Almaty, Ashgabad and Bishkek. This gives the OSCE and the countries involved a unique opportunity to intensify co-operation in all relevant spheres, including the economic, environmental, human and political aspects of security, and with a view to strengthening regional links and stability and preventing the emergence of risks and challenges to stability. The human dimension aspects of co-operation have been reinforced through memoranda of understanding between the ODIHR and, respectively, Kazakhstan and Kyrgyzstan. The memoranda were signed by the Chairman-in-Office at the Ministerial Council meeting in Oslo.

20. OSCE activities in Ukraine concentrated mainly on human rights and economic projects aimed at assisting in the implementation of OSCE principles and commitments by strengthening and stimulating the process of overall democratisation in the country. Clear progress in carrying out the mandate of the OSCE Mission to Ukraine has resulted in serious consideration being given to the scope and modalities of future co-operation between the OSCE representation in Ukraine and the host country authorities.

21. The OSCE missions to Estonia and Latvia continued to perform several useful and concrete functions as agencies promoting and assisting social integration in both countries. By pursuing this goal and contributing to the implementation of a number of related projects, they have had a stabilising effect on interethnic relations. OSCE representatives in Estonia and Latvia continued to assist the relevant governmental and inter-governmental bodies in solving problems relating to the legal status and situation of Russian military pensioners in both countries. In August, in line with the relevant bilateral agreement between Latvia and the Russian Federation signed in 1994, the Skrunda radar station in Latvia was switched off, marking the beginning of the dismantling of that installation. The Skrunda radar inspection regime, established by the OSCE at the request of the parties, and the work of its representative in the relevant joint commission contributed to the success of this task undertaken by the OSCE.

22. As well as consolidating and developing its operational activities, the OSCE was actively engaged, pursuant to the decisions of the 1997 Copenhagen Ministerial Council, in preparing a Charter on European Security. Considerable progress was achieved in this work, as noted in a separate report. This progress enables the OSCE ministers who have gathered in Oslo to call on the incoming Chairman-in-Office to organise the drafting of the future document with the aim of adopting it at the next meeting of the Heads of State or Government of the OSCE participating States. The OSCE's partner organisations and institutions played an active part in the development of the concept of a Platform on Co-operative Security, which is aimed at strengthening the mutually reinforcing character of the relationships in place among organisations and institutions concerned with the promotion of comprehensive and co-operative security within the OSCE area.

23. As regards human dimension issues in 1998, apart from assistance in comprehensive implementation of commitments, the OSCE put strong emphasis on the supervision and monitoring of elections. Co-operation between the ODIHR and the Parliamentary Assembly of the OSCE on electoral observation was strengthened and improved in several cases through joint efforts with the Council of Europe. The new methodology for electoral assistance and observation developed by the ODIHR, which includes the monitoring of the entire election process, has proved to be efficient and reliable in terms of assessing compliance with OSCE commitments. Numerous projects were prepared and run by the ODIHR in co-operation with a number of OSCE missions and other international and national institutions. They strengthened the role of the OSCE in the promotion of democracy, the rule of law and respect for human rights, and helped in the build-up and consolidation of democratic institutions in several participating States. The modalities for OSCE implementation meetings on human dimension issues, agreed upon in July, helped to integrate more closely the human dimension into the daily work of the OSCE and also to increase the contributions of relevant inter-governmental and non-governmental organisations to OSCE activities. The Warsaw meeting on human dimension issues held in October-November provided a framework for thorough discussion of compliance with OSCE commitments. The OSCE developed further, through the ODIHR and in other ways, its role vis-a-vis the regional conference on problems of migration in and around the Commonwealth of Independent States, and it focused particular attention on issues of equality of opportunity between men and women. The OSCE worked on formulating a more effective response to the problems of Roma and Sinti ethnic groups.

24. The High Commissioner on National Minorities continued to contribute to the promotion of comprehensive security in the OSCE area, especially in regions where tensions involving national minorities might have potential consequences for peace and stability. The range of the High Commissioner's activities was very broad and concentrated on efforts aimed at assisting Governments in responding to the political and human rights aspirations of persons belonging to national minorities. Among the numerous initiatives to this end it is worth mentioning the international conference on "Governance and Participation: Integrating Diversity" organised in October in Locarno. The benefits of decentralisation and subsidiarity as means of accommodating diversity in society and, ultimately, of contributing to the resolution of minority-related issues were discussed.

25. The Office of the OSCE Representative on Freedom of the Media became operational in the first quarter of 1998. The OSCE media representative has established an extensive network of contacts with Governments and with international and non-governmental organisations and is co-operating constructively, inter alia, with the Council of Europe and the ODIHR. The work of the Office has focused primarily on early warning activities and on rapid response to serious cases of non-compliance with OSCE commitments regarding freedom of expression and the media.

26. OSCE activities in the economic dimension have been intensified during the year. The Co-ordinator for Economic and Environmental Activities has begun to implement actively his mandate. This has resulted in much closer OSCE co-operation with the United Nations Economic Commission for Europe, the European Bank for Reconstruction and Development, the Organisation for Economic Co-operation and Development and the European Commission, and in better interaction with the Parliamentary Assembly of the OSCE. An expanded network of contacts with non-governmental organisations and the private sector has also been put into place. The successful Sixth Meeting of the Economic Forum held in June of this year in Prague, along with the regional seminars organised in the run-up to next year's Economic Forum, helped to raise the profile of the Organisation's economic dimension.

27. In 1998 the OSCE has reinforced its network of co-operation channels with other international organisations and institutions. A number of high-level consultations on specific subjects has been held during the year. These have led to operational conclusions and the strengthening of co-operation frameworks involving OSCE institutions and missions. The OSCE has strengthened its role as a regional arrangement under Chapter VIII of the United Nations Charter, through, inter alia, the establishment of the Kosovo Verification Mission which has been endorsed by the United Nations Security Council. Memoranda on co-operation were concluded between the Secretary General of the OSCE and the United Nations High Commissioner for Refugees (UNHCR), the ODIHR and the UNHCR, and the ODIHR and the United Nations High Commissioner for Human Rights. The OSCE maintained close co-operation and held consultations with several United Nations agencies, the Council of Europe and NATO. The Kosovo Verification Mission of the OSCE became an important testing ground for co-operation between the OSCE and NATO. The information exchange among international organisations and institutions have increased, with the OSCE in a position to provide useful data thanks to its strong field presence.

28. In accordance with the relevant decision of the Copenhagen Ministerial Council Meeting, a group of experts was established in the OSCE to review possible ways of further enhancing the Secretariat's operational capacities. As a result of its work several relevant problems were defined and recommendations set out on how best to approach them. Based thereon, decisions were taken on adjustments to the structure of the Secretariat, carried out by the Secretary General. During 1998 the OSCE devised a "strategy for capacity-building and training for conflict prevention and human rights". This strategy is aimed at improving the ability of OSCE institutions and missions to carry out their mandates, to strengthen their internal performance, and in this way to improve the effectiveness and sustainability of OSCE activities. The strategy envisages a number of short- and long-term measures in pursuit of its objective. The challenge of the Kosovo Verification Mission requires an appropriate response in terms not only of the continuing reform of the OSCE Secretariat but also of adequate training.

29. In 1998 the OSCE maintained and developed good contacts and co-operation with its Partners for Co-operation, Japan and Korea. The partners' continued interest in OSCE activities and work was recognised. Their contribution and willingness to sustain it in support of the efforts of the international community, including the OSCE, in Bosnia and Herzegovina and in Kosovo is highly appreciated. In May the OSCE welcomed Jordan as a new Mediterranean Partner for Co-operation. Co-operation between the Mediterranean partners and the OSCE participating States has been stepped up during the year in the framework of monthly meetings of a Contact Group that brings all of them together and serves as a useful instrument of dialogue and exchange. The OSCE invited the Mediterranean partners to send their representatives on visits to its missions and to participate in election monitoring operations organised by it. This year's OSCE Mediterranean seminar was regarded by all who took part as another significant element in the dialogue between the Organisation and the partners.

30. During the year the Chairmanship followed the guidelines governing the method of work that had been submitted by the Chairman-in-Office to the Permanent Council on 15 January. Efforts were undertaken to strengthen existing interaction and complementarity between the OSCE and other international organisations dealing with European security. The number of contacts established and the numerous forms of interaction demonstrate that this goal has become a reality. Another aim was to make the early warning system more effective. The flow of early warning information within the OSCE framework in 1998 can be regarded as good. However, the capability to process that information and the linkages permitting co-ordinated action once early warning has been received needs further improvement, even though the ad hoc convening of special plenary sessions of the Permanent Council in Vienna on short notice was used quite frequently. The idea of conducting periodic, brief evaluations of OSCE activities was implemented to a limited extent (reinforced meetings of the Permanent Council) and deserves further study. Furthermore, it was the Chairmanship's intention to preserve a multidimensional system of consultations in the OSCE in keeping with the democratic nature of this Organisation. Here, the record is quite satisfactory, considering the number of informal open-ended and bilateral consultations held.

31. It is worth pointing out that during this year the Chairman-in-Office and the Chairmanship established very close co-operation with the Secretary General and the OSCE Secretariat, as well as other OSCE institutions and representatives in the field. The co-operation within the OSCE Troika worked well. The Chairman-in-Office paid official visits to Albania, Armenia, Azerbaijan, Belarus, Bosnia and Herzegovina, Croatia, Georgia, Kazakhstan, Kyrgyzstan, the Former Yugoslav Republic of Macedonia, Tajikistan, Turkmenistan, Ukraine, Uzbekistan, the Federal Republic of Yugoslavia. These visits as well as consultations in several other countries provided an opportunity to discuss matters of interest to the Organisation.