By Peter Gowan
In the midsts of the bombing campaign it is impossible for
us
to grasp the full significance of the NATO war against
Yugoslavia. This is particularly true for those of us living
in
NATOland since the war, for us, is purely synthetic
experience, television images as part of our daily, normal
routine and images which are themselves increasingly
routinised and thus normal. Indeed for us the whole war is
part of our everyday routine: yesterday it was Iraq, some
newsflashes about Sudan and somebody with an exotic name
in Afghanistan, today Kosovo, tomorrow Taiwan -- all far
away places which we naturally care deeply about but about
which we know little and need to know less.
But one of the significant consequences of the NATO attack
on Yugoslavia is almost certainly that it marks the end of
the
European project as a political project for Western and
Central Europe. That political project could only have
succeed if the member states of the European Union had
been prepared to stick to their words and reconstruct the
European political order as a norm-based rather than a
power-politics based system, becoming democratic and
embracing the Eastern part of the continent. This war seems
certain to bring that effort to an end. A gathering of
intellectuals at the Marc-Bloc Foundation in Paris on 29th
May, entitled 'After the Emotion the Political Reflection
began to tackle this question seriously. Claude Lanzmann,
the
producer of Shoah, the documentary account of the
Holocaust spoke. He said that the NATO attack on
Yugoslavia was a new Dreyfus Affair. It is, but this time
with
a whole European nation, the Serbs, cast in the role of
Dreyfus. A handful of French intellectuals sensed quickly
that
the whole case against Dreyfus was constructed out of lies.
Millions upon millions of people across Europe now see the
Serb nation for what it is: a victim of the power plays of
Western powers which have constructed this war on a
foundation of lies, shattering the entire normative scaffolding
upon which the new Europe was supposed to be built.
Powerful States can and so wage wars rooted in fictions and
falsehoods, and get away with it. But attempts to build
transnational, post-nation state structures like the European
Union, the Council of Europe or the OSCE on a power
politics that displays contempt for the supposedly founding
principles of such bodies are unlikely to be sustainable.
The continuation of the European project as a form of
political development for Europe will be possible only if
one
of two conditions are met: either the NATO Dreyfus affair
in
the Western Balkans can be quickly forgotten in a rapid move
to prosperity, peace and hope in a reconstructed Western
Balkans; or the political and intellectual resources of Europe
are mobilised to decisively repudiate the entire aggressive
war
against Serbia and against a tolerable future for all the
peoples
in that region. Neither of these two conditions seems a remote
possibility. As a result, the European project is likely to
become a Single Market project, harmonised with the
requirements of American business plus a currency under
American tutelage. And the tendency will be for the main
West European powers to be constantly involved in power
politics manoeuvres on an American led agenda, manoeuvres
focused largely on mounting chaos in the Eastern and South
Eastern part of the continent.
The NATO attack on Yugoslavia was the result of American
diplomacy, just as the war itself is essentially an American
war legitimated by the fact that it is run as a NATO war.
For
many months during 1998, the West European powers did try
to resist the American drive for a NATO war. Their
resistance was partly based upon the fact that there strategic
interests differed from those of the Americans but the form
of
their resistance was that of attempting to resolve the conflict
in Yugoslavia by mediation and by peaceful means. But in
late January,1999 the British and the French governments
broke ranks and lined up behind the Clinton Administration
for war.
Thus to understand the current war we have to understand
the character of American aims. There are broadly speaking
two approaches to this question. One approach says that the
Clinton Administration was reacting to events in the Western
Balkans in deciding to go for war. Its aims were governed
by
the plight of the Kosovar Albanians. This line of argument
then leads to the conclusion that there was an extraordinary
mismatch between US aims and US methods, a mismatch
which the European pundits supporting the war explain by
reference to supposed American stupidity. We will survey the
diplomatic background and the launch of the war to explore
the validity of this theory which we will call the Theory
of
American Stupidity. In doing so we will show how the
approaches of the US and the West Europeans to the Kosovo
issue in the run-up to war were not complementary: they
were directly contradictory. The US approach undermined
European efforts at mediation and peaceful resolution of the
conflict. The West European approaches constantly
undermined the US drive for war, until the Franco-British
turn in January 1999. Those who support the war need to
address this conflict of approaches in order to provide
themselves with a consistent position. They can say that the
European approach was complicit with the Serbian
government; or they can say that the US approach was
responsible for much of the terrible sufferings of the Kosovo
Albanians both before the NATO attack and especially after
it
had begun. But they should not evade these issues.
But there is a second way of understanding US aims in
launching this war. This says that the Clinton Administration's
drive for war was dictated by US strategic political aims
in
Europe and in the international arena and thus that a war
against Yugoslavia over Kosovo was simply an instrument in
US geopolitical strategy: the Kosovo Albanians' plight was
a
pretext and the Kosovar Albanian political groups were simply
pawns. This view is, of course, anathema to the media
pundits in NATOland, but it is overwhelmingly popular in the
foreign offices and state executives of the states of Europe
and of the entire world. On this view, the war demonstrates
one central lesson: the inability of the main West European
powers to sustain a collective political will in the face
of
unremitting US pressure. Thus, despite the very strong
political and economic interests of the main West European
capitalist states in maintaining a collective stance in the
face
of US manoeuvres over European affairs, their rivalries and
vanities can always ultimately be exploited by the US to
divide them. In essence this gives us a theory of the current
war in terms of the West European states' stupidities. We
will
examine that theory, which we will call the Theory of
European Stupidity.
Of course, the word 'stupidity' is a polite one, it is a neutral,
problem-solving word, without significant ethical
connotations. It is necessary, perhaps to add that the word
is
used here in an ironical sense. The moral and political
consequences of this war for Europe are terrible to
contemplate. The hopes of a better future for the continent
10 years ago are over. Never glad confident morning in
Europe again, at least not for decades. The next phase of
European history will be marked by the efforts of the United
States to push further its drive for global hegemony in Europe
and elsewhere. As soon as it has finished its bombing
campaign in the Western Balkans it will switch its pitiless
gaze
East towards the coming truly awesome confrontation with
China. Back and forth between Asia and Europe the US will
move, attempting to beat the world into shape for the next
millennium. The really strong arguments for the NATO war
are actually the general arguments for US global hegemony.
These take two forms. First, those who actually believe that
US hegemony will produce a new world of global citizens
rights, global prosperity and global justice. Secondly, the
pragmatists argue that we cannot buck the trend, we must
bandwagon with the hegemon in order to subvert it later from
within its secure security zone. That subversion will take
the
form of transforming hegemonic dominance into a
cosmopolitan set of institutions of global governance and
justice. We will survey those arguments at the end of this
article.
PART 1: THE THEORY OF AMERICAN STUPIDITY
The notion of American stupidity is really a British idea.
It
has been a double-sided notion throughout the post-war
period in Britain: on one side it is a variety of
Anti-Americanism much beloved in the British upper classes
(especially those on the Right); on the other side it is a
message of hope -- perhaps we can be cleverer than the
Americans and manipulate them to our advantage. Thus have
the British upper classes reconciled themselves to being
constantly managed -- often for the benefit of the world's
populations, as in the case of Suez -- by successive American
administrations in an uninterrupted progress of British decline.
The notion of American Stupidity is now becoming a
European idea during the course of the present war. It has
become the absolutely central conceptual mechanism for
overcoming the contradictions in the efforts to justify the
NATO air war against Yugoslavia.
These contradictions derive from one single source: the
attempt to explain the origins of the NATO attack as lying
in
a reactive effort to respond to the plight of the Kosovar
Albanians. The contradictions disappear if we explain the
attack as an attempt involve the European NATO members in
a war to destroy the existing Serbian state. But that latter
explanation raises a great many new questions about this war
which NATO governments are seeking, so far very
successfully, to evade.
The distinction between seeking to help the Kosovar
Albanians and seeking to destroy the existing Serbian state
may seem a fine one. Common sense may suggest that the
two goals are simply two sides of a single coin: supporting
one side in a local conflict against the other side. But the
NATO attack on Yugoslavia has involved much more than
support for one side against another. It has entailed a decision
by NATO to overthrow the normative cornerstones of the
post-war international order: the principle of state sovereignty
and the outlawing of aggression against a state without UN
Security Council mandate. To take that step, the NATO
powers could not simply claim that they were opposed to the
domestic policies of the Yugoslav state. They had to claim
that they were taking drastic action to save the Kosovo
Albanians from a genocidal catastrophe. More, they had to
claim that nothing other than military aggression against
Serbia could prevent the catastrophe because all other
methods had been tried and had failed.
>From this stance come all the contradictions in the NATO
position. For during the 14 months up to the launch of the
NATO war, the West European and Russian governments
were in continuous conflict with the USA over Kosovo, the
USA systematically tried to sabotage a peaceful settlement
of
the conflict in Yugoslavia and the way in which the Clinton
Administration launched the war invited a genocidal slaughter
of the Kosovo Albanians.
The European variant says that for 14 months the
'International Community' tried every possible means of
resolving the conflict peacefully. All efforts were thwarted
by
the Yugoslav authorities. So there was no choice but to turn
to US air power. The US variant claims that for 14 months
the US was struggling to gain agreement to a war against
Yugoslavia, but the Europeans and Russians were blocking
war. But finally, the US managed to push the Russians out
of
the picture (along with the UN) and bounce the West
Europeans into a just war that they had been resisting.
These two variants may not appear incompatible, but a glance
at that 14 month history shows that they were, because the
failure of the European-Russian efforts to gain a negotiated
solution was the direct result of the activities of the US
State
Department. Only for a brief moment at the very start of the
current phase of the Kosovo crisis did the USA appear to be
on the same line as the Europeans, in viewing the KLA as a
terrorist group. To search for the real origins of the war
we
need to survey this history.
1. The US both encouraged the Serbian government to
launch the counter-insurgency and wanted war against
the Serbian government because of its
counter-insurgency.
From early March 1998, Albright wanted war against Serbia
on the grounds that the Serbian government was genocidal.
On March 7th,1998, just after and in response to the Serbian
security force operation in the Benitsar region of Kosovo,
she
declared: "We are not going to stand by and watch the
Serbian authorities do in Kosovo what they can no longer get
away with doing in Bosnia." Two days later she reserved the
right for the US to take unilateral action against the Serbian
government, saying, 'We know what we need to know to
believe we are seeing ethnic cleansing all over again.' This
remained the US line right the way through from that first
Serbian counter-insurgency drive against the KLA in Benitsar:
Albright demanded war against Serbia. But the signal for the
Serbian government to launch its counter-insurgency in
Benistar also, intriguingly, came from Albright's own State
Department. This signal was given by the United States
special envoy to the region, Ambassador Gelbard. The BBC
correspondent in Belgrade reported that Gelbard flew into
Belgrade to brand the KLA as a terrorist group.
' "I know a terrorist when I see one and these men are
terrorists," he said...At the time, the KLA was believed to
number just a several hundred armed men. Mr. Gelbard's
words were interpreted in the Yugoslav capital, Belgrade,
as a
green light for a security forces operation against the KLA
and the special police conducted two raids in the Benitsar
region in March.'
So the Clinton administration encouraged the Serbian
counter-insurgency in order to liberate the Kosovo Albanians
from it through a NATO war. The Europeans on the other
hand, wanted the Serbian counter-offensive against the KLA
to result in an internationally brokered compromise peace
granting Kosovo Autonomy within Serbia.
2. The ''international community' tried for 14 months to
broker a peaceful solution, but the Clinton
Administration did not.
The UN (in its resolution 1199), the West European powers
and the Russians sought, during 1998, to bring about a cease
fire and a negotiated solution in Kosovo, granting autonomy
to the Albanians within Serbia. The Serbian government,
from March 1998 declared its support for this, and there was
support for this approach, as an interim solution, from the
Rugova shadow government in Pristina. Only two major
actors opposed this: Madeleine Albright and the KLA.
Albright and the whole Clinton administration gave massive
political support to the KLA, undermining the line of the
other
members of the Contact Group and the line of UN resolution
1199.
Support for the KLA did not involve support for its aims: the
Clinton administration has always opposed the aims of both
the KLA and the Rugova leadership, both of whom demand
independence for Kosovo. The Clinton administration did,
however, support the KLA's means -- guerrilla warfare
against the Serbian state -- by repeatedly and vigorously
making demands upon the Serbian government which
strengthened and encouraged the KLA war.
This US support for the KLA became unequivocal by June
1998, by which time NATO military planning for an attack on
Yugoslavia was completed. In that month, White House
spokesperson Mike McCurry asserted that Serbia 'must
immediately withdraw security units involved in civilian
repression, without linkage to...the 'stopping of terrorist
activity.' In parallel, Pentagon spokesperson Kenneth Bacon
said: 'We don't think that there should be any linkage between
an immediate withdrawal of forces by the Yugoslavs on the
one hand, and stopping terrorist activities, on the other.
There
ought to be complete withdrawal of military forces so that
negotiations can begin.' In other words, Washington was
insisting that before any cease-fire or negotiations on a
Kosovo peace settlement, the Serbian authorities must
withdraw all their forces for Kosovo, handing over the
territory to the KLA's military forces despite the fact that
the
urban Albanian population of Kosovo was far more
pro-Rugova than the KLA. As Gary Dempsey explains, the
US was demanding that the Serbian government 'effectively
hand over one of its territories to an insurgency
movement.....This...led many ethnic Albanians to further
conclude that the Clinton administration-- despite its official
statements to the contrary -- backed their goal of
independence....Although US policy was officially opposed
to
independence for Kosovo, Washington would not allow
Belgrade to forcibly resist it.'
Air War supporters thus have a choice of interpretations on
these matters: either the US was right to back the KLA and
sharpen the internal conflict in preparation for a NATO
attack, in which case the Europeans are the Russians were
presumably covert supporters of the dictatorial, genocidal
Milosevic regime. Alternatively, they can argue that the
European-Russians-UN were right to seek an internal
cease-fire and negotiated solution and the US was wrong to
try to sabotage this. But Air War supporters cannot embrace
both variants.
3. Sabotaging the October 13th Cease-Fire:
On 13th October, Albright's rival in the Clinton
administration, Richard Holbrooke, negotiated a cease-fire
agreement with Yugoslav President Milosevic. The cease-fire
would be monitored in Kosovo by OSCE observers.
Milosevic agreed on the basis that the US administration
would ensure that the KLA did observe the cease-Fire.
But the Clinton administration sabotaged the whole operation.
The OSCE monitors did not enter Kosovo for a whole month
after the agreement. During that time, the KLA did not
respect the cease-fire, continued its operations and extended
its reach in Kosovo. During the delay, the Clinton
administration took control of the OSCE, placed William
Walker, a key organiser of the Contra operation in Nicaragua
and the blood-bath in El Salvador, in charge of the OSCE
monitoring force. Some 2,000 trained monitors waiting in
Bosnia to be sent into Kosovo were blocked by the US, who
put US ex-military personnel in as the monitoring force and
from mid-November they surveyed every bridge, cross-roads,
official building, security force billet and barracks -- every
item that could be relevant to a future NATO-KLA joint
offensive.
At the same time the European-Russian-UN line continued to
be to seek an internal solution and blamed the KLA for the
failure to achieve it. Thus, for example, at their General
Affairs Council on 8th December, 1998, Cook and the other
foreign ministers of the EU assessed the situation in Kosovo.
The report of the meeting in the Agence Europe Bulletin of
the following day stated: 'At the close of its debate on the
situation in the Western Balkans, the General Affairs Council
mainly expressed concern for the recent 'intensification of
military action' in Kosovo, noting that 'increased activity
by
the KLA has prompted an increased presence of Serbian
security forces in the region.' ' Thus, the EU saw the KLA
as
the driving force undermining the possibility of a cease fire
and a compromise solution. They were simply on a different
line from Albright. And they continued to be right through
January.
4.Turning the Rambouillet Negotiations into an
Ultimatum, while overthrowing the Rugova Leadership:
The two variants continue into the Rambouillet process. The
idea of bringing the two sides together into face to face
negotiations under international auspices came from the
French government. The Clinton administration had been
against such an idea, favouring a straight move towards
bombing. But on this occasion, the differences were
overcome in favour of the French getting their way on the
form while the US would get its way on the substance. This
was a turning point. The French and British switched over
to
the US position at a meeting of the contact group in London
on 29th January,1999, exactly a week before the opening on
6th February of the Rambouillet 'negotiations'. From that
moment on the NATO attack on Yugoslavia was a virtual
certainty. We can see why when we appreciate that the
Rambouillet 'negotiations' were not negotiations at all: they
were an ultimatum to the Serbian government which was
drafted in such a way as to ensure that it would be rejected.
The Serbian government wanted face to face negotiations at
Rambouillet with the Kosovo representatives. This the
Americans absolutely refused, presumably with British and
French support since they were formally supposed to be in
charge of the process. It is also fairly clear that there
were
some on the Kosovo side who were interested in discussing
with the Serbian authorities. Why else would be Clinton
administration have decided to overthrow the elected Rugova
government of Kosovo and replace it with a KLA-led
government, there and then, at Rambouillet?
The Serbian side was then required to agree to the
'Agreement' without changing it, or face NATO attack on
Yugoslavia. If the Serbian government had signed the
'Agreement' the agreement would have had no status in
international law, since treaties signed under threat of
aggression have no force in international law. But the Serbian
authorities, probably wisely, did not have any confidence
in
their ability to rely upon international law, so they refused
to
sign.
Most people assume that the Serbian government refused to
sign, because the 'Agreement' would lead to the independence
of Kosovo. The 'Agreement' did involve a de facto NATO
Protectorate (not, by the way, a democratic entity. The Chief
of the Implementation Force could dictate to the Kosovo
government on any aspect of policy he considered relevant
to
NATO (ie US) concerns.)
But the real sticking point for the Serbian government seems
to have been the threat that the 'Agreement' posed to the
rest
of Yugoslavia. The NATO compliance force would have
complete control of Kosovo deploying there whatever types
of forces it wished: ' NATO will establish and deploy a force
(hereinafter KFOR) which may be composed of ground, air,
and maritime units from NATO and non-NATO nations,
operating under the authority and subject to the direction
and
the political control of the North Atlantic Council (NAC)
through the NATO chain of command. The Parties agree to
facilitate the deployment and operations of this force.' Thus,
if the US wished to use Kosovo as a base for the invasion
and occupation of the rest of Yugoslavia it could do so.
This was threat enough. But the so-called 'Appendix B' added
to the document at Rambouillet itself and kept secret until
it
was leaked and eventually published in the French press,
insisted that NATO forces could move at will across the
whole of Yugoslavia. Thus: 'NATO personnel shall enjoy,
together with their vehicles, vessels, aircraft, and equipment,
free and unrestricted passage and unimpeded access
throughout the FRY including associated airspace and
territorial waters. This shall include, but not be limited
to, the
right of bivouac, manoeuvre, billet, and utilisation of any
areas or facilities as required for support, training, and
operations.' NATO could also alter the infrastructure of
Yugoslavia at will: 'NATO may.... have need to make
improvements or modifications to certain infrastructures in
the FRY, such as roads, bridges, tunnels, buildings, and utility
systems.' It could thus move around investigating all
Yugoslav infrastructures with a view to destroying them (in
an attack) later. And the Yugoslav authorities 'shall provide,
free of cost, such public facilities as NATO shall require.'
The
Yugoslav authorities 'shall, upon simple request, grant all
telecommunications services, including broadcast services,
needed for the Operation, as determined by NATO. This
shall include the right to utilise such means and services
as
required to assure full ability to communicate....free of
cost.'
'NATO is granted the use of airports, roads, rails, and ports
without payment of fees, duties, dues, tolls, or charges
occasioned by mere use.' The Yugoslav authorities must not
merely tolerate this: they must facilitate it:' The authorities
in
the FRY shall facilitate, on a priority basis and with all
appropriate means, all movement of personnel, vehicles,
vessels, aircraft, equipment, or supplies, through or in the
airspace, ports, airports, or roads used. No charges may be
assessed against NATO for air navigation, landing, or takeoff
of aircraft, whether government-owned or chartered.
Similarly, no duties, dues, tolls or charges may be assessed
against NATO ships, whether government-owned or
chartered, for the mere entry and exit of ports.'
And in all such activities in the whole of Yugoslavia, NATO
shall be completely above the law: 'NATO shall be immune
from all legal process, whether civil, administrative, or
criminal.' And again: 'NATO personnel, under all
circumstances and at all times, shall be immune from the
Parties' jurisdiction in respect of any civil, administrative,
criminal, or disciplinary offences which may be committed
by
them in the FRY. ' And again: ' NATO and NATO personnel
shall be immune from claims of any sort which arise out of
activities in pursuance of the operation'.
This threat to move from Kosovo to the overthrow of the
entire Serbian and Yugoslav regime was underlined by the
fact that NATO claimed the right to dictate the fundamentals
of socio-economic policy within Kosovo, with the Yugoslav
and Kosovo governments completely under the diktat of US
policies. Thus:' The economy of Kosovo shall function in
accordance with free market principles.' And: 'There shall
be
no impediments to the free movement of persons, goods,
services, and capital to and from Kosovo.' And again:
'Federal and other authorities shall within their respective
powers and responsibilities ensure the free movement of
persons, goods, services, and capital to Kosovo, including
from international sources. There must also be complete
compliance with the IMF and World Bank. Thus:
'International assistance, with the exception of humanitarian
aid, will be subject to full compliance with....conditionalities
defined in advance by the donors and the absorptive capacity
of Kosovo.' The Yugoslav government must also agree to
handing over economic assets to foreign interests. Thus: 'If
expressly required by an international donor or lender,
international contracts for reconstruction projects shall
be
concluded by the authorities of the Federal Republic of
Yugoslavia.'
These statements made it perfectly clear that NATO was out
to destroy the existing character of the Serbian economy.
The
ultimatum also demonstrated that NATO was determined to
wage war against the Serbian media. It demanded 'Free
media, effectively accessible to registered political parties
and
candidates, and available to voters throughout Kosovo.' And
it said that 'The IM shall have its own broadcast frequencies
for radio and television programming in Kosovo. The Federal
Republic of Yugoslavia shall provide all necessary
facilities.....'
Rambouillet was thus an ultimatum for a war against Serbia
and the terms of the ultimatum demonstrated that if the
Serbian government accepted Rambouillet they would very
likely face a crushing attack in the future from NATO forces
on Yugoslav soil.
5. The Launch of the War and the Need for Stupidity With
the 'failure' of Rambouillet, the Clinton Administration took
open charge of the preparations for war. And it is at this
point
that the analysis of those who support the NATO Air War
faces absolutely irreconcilable contradictions. For the way
in
which the war was launched is, on the face of it, absolutely
inexplicable.
The bombing campaign was launched in 24th March. But
President Clinton announced on the 19th of March that the
bombing campaign would be launched and nothing now could
block it. The US administration thus gave the Serbian
government 5 days in which they could do as their pleased
in
Kosovo. And when the bombing started, it was organised so
that the Serbian authorities could continue to have a free
hand
in Kosovo for more than a week. The air war's first phase
was directed largely at targets outside the Kosovo theatre
itself for a full week.
And this military side of the attack was combined with an
absolutely contradictory set of explanations for NATO's
aggression. On one side, the attack was justified as an attempt
to prevent the genocidal threat to the Kosovar Albanians from
the Milosevic regime. But on the other side, the attack was
simultaneously justified by the claim that the Milosevic
regime had no such genocidal intentions and indeed wanted
the bombing campaign in order to use it to sell Rambouillet
to
the Serbian people.
These contradictions cannot be explained away by haste,
improvisation and confusion on the part of the Clinton
administration. We know that the US National Security
Council and the State Department had been planning this war
in detail for 14 months before it started. We know also from
the Washington Post that the experts in the US administration
spent those 14 months running over, day after day, all the
variants of the course of such a war, all the scenarios of
possible Yugoslav government responses to the air attack.
We
know that they foresaw the possibilities of mass refugee exits
from Kosovo. The Pentagon foresaw a long air war: the
notion that Milosevic wanted the bombing attack was political
spin put about by General Wesley Clark: it was nonsense. So
why did they plan the start of the war in this particular
way?
There is only one serious explanation: the Clinton
administration was giving the Serbian authorities the
opportunity to provide the NATO attack with an ex post facto
legitimation. The US was hoping that the five days before
the
launch of the bombing and the first week of the war would
give various forces in Serbia the opportunity for atrocities
that
could then be used to legitimate the air war.
This was a rational calculation on the part of the US planners.
They knew that the main political opponents in Serbia of
Milosevic's Socialist Party -- the Radical Party of Seselj
and
various Serbian fascist groups -- supported the ethnic
cleansing of Kosovo, though the Socialist Party did not. They
knew also that Yugoslav military forces would pour into
positions in Kosovo as the OSCE personnel left, clearing
strategic villages, driving forward against KLA-US supporters.
They could predict also that there would be a refugee flow
across the borders into Macedonia and Albania.
And the US planners were proved right. Extremist Serbian
groups did, it seems, go on the rampage in Pristina for three
days after the start of the war. Refugees did start to flood
across the borders. And the resulting news pictures did indeed
swing European public opinion behind the war. As for the
Serbian government organising a genocidal mass slaughter,
this did not happen: the Clinton administration organised
the
launch of the war to invited the Serbian authorities to launch
a genocide, but the Milosevic government declined the
invitation.
It is simply impossible to argue that the US military campaign
was designed to stop the brutalities against the Kosovo
Albanians. It would be far easier to demonstrate that this
thoroughly planned and prepared war was designed to
increase the chances of such brutalities being escalated to
qualitatively higher levels. The way that the war was
launched was designed to increase the sufferings of the
Kosovar Albanians in order to justify an open-ended US
bombing campaign against the Serbian state. The technique
worked. But this success cannot be acknowledged. Instead it
must be hidden by the notion of Clinton administration
stupidity.
And to this stupidity the European pundits of NATO can add
many other supposed American stupidities. The stupidity of
trying to save the Kosovar Albanians with an air war instead
of a ground war. The stupidity of killing so many Albanian
and Serbian civilians. The stupidity of not swiftly admitting
such killings when they occur.
And then there is the most fascinating stupidity of all: the
bombing of the Chinese Embassy in Belgrade. This particular
stupidity must have been a defining moment for the European
powers, a moment for hard, focused thinking, for one very
simple reason: stupid or not, the governments of Western
Europe know that it was not a mistake. They know that the
US military attaches in Belgrade had dined more than once
at
the Chinese Embassy compound in the city before the war
started. They know very well how prominent the compound
is and how professional the US intelligence operation for
targeting is. They know that the Embassy was hit on a special
mission by a plane from the United States. And they noted
Clinton's casual response: no press conference to make a
formal public apology. Just an aside about an unfortunate
mistake in a speech about something else. They know too
that China is by far the most important issue in the entire
current US foreign policy agenda.
And the West European states have learned more about the
stupidity of the bombing of the Chinese Embassy since it has
occurred: it resulted in the collapse of weeks of
German-Russian diplomacy which had gone into producing
the G8 declaration agreed just before the Embassy was
bombed. That G8 declaration threatened to undermine the
US's 5 conditions for ending the war and threatened to
rebuild the central authority of the UN over NATO: the
Embassy bombing put a stop to all that. More, it completely
sabotaged Schoder's planned business visit to China: West
European efforts to steal contracts with China by taking a
softer line than the Clinton administration were brought to
a
standstill and the West Europeans are being brigaded into
line
behind Washington's policy in a new confrontation with
China.
All this, for the West Europeans is surely the height of
stupidity. But pennies have been dropping in the
Chancelleries of Western Europe. They are realising that even
if there has been plenty of stupidity in the NATO war against
Yugoslavia, the stupidity may not lie in Washington. It may
lie in quite a different quarter, namely in the state executives
of Western Europe itself. To see why, we need an entirely
different take on the origins of the NATO attack on
Yugoslavia.
PART 2: THE THEORY OF EUROPEAN STUPIDITY
The alternative take on the origins of the NATO war against
Yugoslavia starts from the fact that the war did not derive
from big power reactions to local events in the Balkans at
all.
Instead, this theory starts from the premise that the Clinton
administration was seeking a war against Yugoslavia as a
means for achieving political goals outside the Balkans
altogether. The conflict between the Serbian state and the
Kosovar Albanians was to be exploited as a means to achieve
US strategic goals outside the Balkans on the international
plane.
This conception turns the cognitive map used by the
proponents of American stupidity on its head. Thus, for
example, instead of thinking that the US was ready to
overthrow the norms of the international order for the sake
of
the Kosovar Albanians, we assume exactly the opposite: the
US was wanting to overthrow the principles of state
sovereignty and the authority of the UN Security Council and
used the Kosovo crisis as an instrument for doing so. Instead
of imagining that the US was ready to shut Russia out of
European politics for the sake of the Kosovar Albanians, we
assume that the Clinton administration used the NATO attack
on Yugoslavia precisely as an instrument for consolidating
Russia's exclusion. Instead of assuming that the US was
ready to abandon its policy of engagement with China for the
sake of the Kosovo Albanians, we assume that the Clinton
administration used the war against Yugoslavia to inaugurate
a new phase of its policy towards China. And last but not
least, instead of assuming that the US firmly subordinated
the
West European states to its military and political leadership
in
order create a new dawn in the Western Balkans, it used a
number of ingenious devices -- especially the dilettantish
vanity of messieurs Chirac and Jospin -- to drag the West
European states into a Balkan war that would consolidate US
hegemony over them, the EU and the Euro's development.
This is where the European stupidity enters the theory. The
one strategic interest of the main West European states
(Germany and France) in the Balkans lies in maintaining
stable and strong enough states in the region to keep their
impoverished populations firmly in place. West European
military intervention in the Balkans has essentially been
concerned with preventing mass migrations Westwards when
states collapse. Anglo-French military involvement in
Yugoslavia through UNPROFOR was essentially about that:
'humanitarian aid' in the war zone to ensure that the civilian
population did not leave the war theatre. Italian military
intervention in Albania in 1997 was about the same thing:
stanching the flood of humanity out of Albania Westwards,
by rebuilding an Albanian state while blocking emigration
and
asylum rights. Anglo-French efforts in Macedonia and
Albania in the current war are similarly about caging the
Kosovar Albanians within the Western Balkans. Yet now the
American air force has, with European support, turned the
Western Balkans into twenty years (minimum) of chaos from
which all the energetic younger generations of all ethnic
groups will rightly wish to flee West for decades to come.
This is the first European stupidity.
The second strategic interest of the West European states
(especially Germany) in Eastern Europe is to maintain stable,
friendly governments in Russia and Ukraine. That too can be
ruled out as a result of this war as far as Russia is concerned;
Ukraine will have to choose between Russia and the USA
(the EU is not a serious alternative. And both Russia and
Ukraine could spiral out of control with disastrous
consequences for Central Europe Western Europe. This is the
second European stupidity.
The third strategic interest of the main West European states
has been to combine an effort to bandwagon with US power
with preserving an effective check on US efforts to impose
its
will on their foreign policies, whether in Europe or other
parts
of the world. That too seems finished now. The basic West
European check on US power was the French veto at the UN
Security Council, restraining the US with its 2 votes
(including that of the UK). Now that Chirac has chosen to
discredit the UN Security Council, he has undermined his
own ability to speak for Europe at the UNSC and to be a
useful partner for other states seeking to gain European help
to restrain the US. That is a third stupidity.
A fourth West European priority was to be able to claim that
the EU is an independent, West European political entity with
a dominant say at least over European affairs. Yet the current
war demonstrates that this is a piece of pretentious bluff:
the
EU has played absolutely no role whatever in the launching
or
the management of this war. It will play no role whatever
in
the ending of the war. It is simply a subordinate policy
instrument in the hands of a transatlantic organisation, the
North Atlantic Council, handling the economic statecraft side
of NATO's policy implementation. And within the North
Atlantic Council the United States rules: the way the war
ends
will shape the future of Europe for at least a decade, yet
that
decision will be taken in the White House: the West European
states (not to speak of the EU institutions) are political
voyeurs with their noses pressed against the windows of the
Oval Office trying to read the lips of the people in there
deciding Europe's fate. This is a fourth stupidity.
To explain the background to these stupidities we must
examine US strategy since the collapse of the Soviet Bloc.
US GLOBAL STRATEGY IN THE 1990s
In some conditions the cognitive framework -- local actions,
big power reactions -- is useful. Such conditions exist when
the superpower is satisfied and secure that the structures
which it has established to ensure its dominance are safely
in
place. It is sitting astride the oceans comfortably and it
reacts
now and again to little local blow-outs and break downs.
Some might regard that as being the situation of the United
States after the collapse of the Soviet Bloc. If we look at
the
power of the United States in the 1990s in resource terms,
it
has had no rival or even potential group of rivals in the
military field, it dominates the international political economy,
there is no power on earth remotely able for the foreseeable
future to challenge the United States for world leadership.
Yet curiously enough, the United States has been far from
satisfied with its situation in the 1990s. It has felt itself
to be
facing a number of important challenges in the two key
traditional regions of the world where it must exercise
leadership -- Europe and the Pacific Rim -- and the challenges
there are linked to another big challenge: the battle to ensure
the preponderant weight of US capitalism in the so-called
'emerging markets'. Leadership of Europe and of the Pacific
in turn ensure that the United States can channel the activities
of these states to ensure that US interests predominate in
designing regimes to open up and dominate the 'emerging
markets'.
These problems were all connected to another, deeper issue:
concerns about the basic strength and dynamism of the
American economy and American capitalism. When the
Clinton administration came into office it was determined
to
rejuvenate the dynamism of American capitalism through an
activist foreign drive to build a new global set of political
economy regimes accented to the strengths and interests of
American capitalist expansion. Getting leverage over the
Europeans and Japanese to achieve that was key.
To understand US policy in the 1990s, we must appreciate
the double-sided situation that it found itself in: on one
side,
its old way of dominating its capitalist 'allies' had been
shattered by the Soviet Bloc collapse, giving lots of scope
for
these 'allies' to threaten important US interests in their
particular regional spheres. But on the other side, the US
had
gigantic resources, especially in the military-political field
and
if it could develop an effective political strategy it could
convert these military power resources into a global imperial
project of historically unprecedented scope and solidity.
We
must grasp both the challenges and the great opportunities
after the Soviet Bloc collapse to understand the strategy
and
tactics of the Bush and Clinton administrations.
(a) The Post-Cold War Problems
The challenge to the US in Europe created by the collapse of
the Soviet Bloc has too often been ignored. That collapse
not
only made the USA the sole global super-power. It also
simultaneously destroyed the political structures through
which the USA had exercised its direct leadership over West
European capitalism. And it simultaneously opened the whole
of Eastern Europe for business with the West, a business and
political expansion opportunity which the West European
states, especially Germany, would spontaneously tend to
control. What if West European capitalist states threw off
US
leadership, forged their own collective military-political
identity, joined their capitals with Russian resources and
Russian nuclear capacity? Where would that leave the USA in
Western Eurasia outside of Turkey?
The central political pillar of US leadership over Western
Europe during the Cold War was NATO. The US-Soviet
confrontation positioned Western Europe on the front line
in
the event of a US-Soviet war. This situation enable the USA
to gain political leadership over Western Europe by supplying
the military services -- the strategic nuclear arsenal --
to
protect Western Europe. In return for these military services,
the West European states agreed to the US politically
brigading them under US leadership. The US could exercise
control over their foreign policy apparatuses, integrating
the
bulk of their military forces under US command, imposing
discipline of the dealings of West European capitalism with
the East and so on. And the US could also exercise this
political leadership for economic purposes, especially to
assure the free entry of US capitals into Europe, to ensure
that Europe worked with the US over the management of the
global economy etc. So NATO was a key military- political
structure. The hierarchy was: US military services give
political leadership which gives leadership on the big
economic issues, those to do with the direction of
accumulation strategies.
But the Soviet collapse led to the redundancy of the US
strategic arsenal which led to the redundancy of NATO, the
collapse of the political leadership structure for the US
in
Europe and the undermining of the US's ability to impose its
core political economy goals for Europe and for the world
on
the West Europeans. This is one of the key things that has
made the United States a paradoxically dissatisfied power
in
the 1990s. It has had to combat all kinds of European
schemes for building political structures that deny the US
hegemonic leadership in Europe. And in combating such
schemes it has had to develop a new European programme
and strategy for rebuilding US European leadership. In short,
the USA has been an activist and pro-active power in Europe
during the 1990s, not a satisfied and reactive power. The
1990s have been a period of political manoeuvres amongst
the Atlantic capitalist powers as the key players have sought
to advance their often competitive schemes for reorganising
the political structures of the continent.
And in these manoeuvres, the territory and peoples of the
former Yugoslavia have played a very special role. The states
bearing competing programmes for a new European political
order have all sought to demonstrate the value of their
political project for Europe by showing how it can handle
an
important European problem: the long Yugoslav crises.
Yugoslavia has been the anvil on which the competing great
powers have sought to forge the instruments for their new
European orders. No power has been more active in these
endeavours than the United States.
And this means that a cognitive framework for understanding
the Balkan wars cannot take the form of: local actions, great
power reactions. We need an entirely different framework:
great power European strategies, and the tactical uses of
Yugoslavia's crisis for advancing them.
(b)The New Opportunities.
Yet the United States was not just a power dissatisfied with
the international arrangements it confronted at the end of
the
Cold War. It was also aware that it had a gigantic relative
lead
over all other powers in the world in terms of the resources
for entirely reshaping arrangements on the planet. It had
not
only unrivalled military capacity but command of new
military technologies that could enable it to strike safely
and
fairly accurately at will anywhere on the planet. It could,
for
example, out of a clear blue sky, destroy the great dam on
the
Yangtse river and drown 100 million Chinese at the heart of
the Chinese economy without the Chinese government being
able to stop it: that kind of power. It could take on China
and
Russia together and win. It could militarily seal of Japan
and
Western Europe from their sources of vital inputs for their
economies and from the export markets vital for their
economic stability.
The United States also have supreme command over the
international political economy through the dominance of the
Dollar-Wall Street Regime over international monetary and
financial affairs and through US control over the key
multilateral organisations in this field, especially the IMF
and
the World Bank.
With resources like these, the collapse of the Soviet Bloc
opened up the possibility of a new global Empire of a new
type. An empire made up of the patchwork of the states of
the entire planet. The legal sovereignty of all these states
would be preserved but the political significance of that
legal
sovereignty would be turned on its head. It would mean that
the state concerned would bear entire juridical and political
responsibility for all the problems on its territory but would
lose effective control over the central actual economic and
political processes flowing in and out of its territories.
The
empire would be centred in Washington with Western Europe
and Japan as brigaded client powers and would extend across
the rest of the world, beating against the borders of an
enfeebled Russia and a potentially beleaguered China.
And it would be an Empire in which the capitalist classes of
every state within it would be guaranteed security against
any
social challenge, through the protection of the new Behemoth,
provided only that they respected the will and authority of
the
Behemoth on all questions which it considered important. It
the US played its new strategy for empire building effectively,
it could thus earn the support and even adulation of all the
capitalist classes of the world.
Thus the decade from 1989 to 1999 has been marked above
all by one central process: the drive by the US to get from
(a)
to (b): from political structures left over from the Cold
War
which disadvantaged and even threatened the US in the new
situation, to entirely new global political and economic
structures which would produce an historically new, global
political order: New Democrats, New Labour, New NATO,
new state system, new world economy, new world order.
This is the context in which we can understand the various
Yugoslav wars, including the current one. CP
Peter Gowan is a correspondent for the New Left Review.