PRESS INFO 4 July 1997

The NATO-led Stabilisation Force (SFOR) in Bosnia and Herzegovina Background On 14 December 1995 the Bosnia Peace Agreement was signed in Paris, after it had been negotiated in Dayton, Ohio. On 16 December the Alliance's North Atlantic Council launched the largest military operation ever undertaken by the Alliance, Operation Joint Endeavour. Based on UN Security Council Resolution 1031 NATO was given the mandate to implement the military aspects of the Peace Agreement. A NATO-led multinational force, called the Implementation Force (IFOR), started its mission on 20 December 1995. IFOR was given a one year mandate. IFOR's primary mission was to implement Annex 1A (military aspects) of the Peace Agreement. It succeeded in accomplishing its primary military tasks by maintaining the cessation of hostilities; separating the armed forces of the Bosniac-Croat Entity (the Federation) and the Bosnian Serb Entity (the Republika Srpska) by mid-January 1996; transferring areas between the two Entities by mid-March; and, finally, moving the Parties' forces and heavy weapons into approved sites, which was realized by the end of June. In the remainder of the year IFOR continued to patrol along the 1,400 km long demilitarized Inter-Entity Boundary Line and regularly inspected over 800 sites containing heavy weapons and other equipment. In carrying out these tasks it opened 2,500 km of roads, repaired or replaced over 60 bridges, and freed up Sarajevo airport and important railway lines. Due to IFOR's early success a secure environment was established, in which the High Representative nominated at the London Peace Implementation Conference of 8-9 December 1995, and other organisations, could start their work with regard to the implementation of the civil aspects of the peace agreement and the creation of conditions in which the return to normal life in Bosnia-Herzegovina could begin. Within the limits of its mandate and available resources IFOR provided substantial support to the High Representative and to the other organisations. One important element was the support given as a matter of priority to the Organisation for Security and Cooperation in Europe (OSCE), in preparing and conducting the elections held in September 1996. From IFOR to SFOR After the peaceful conduct of the September elections, IFOR successfully completed its mission. However, it became clear that much remained to be accomplished on the civil side and that the environment would continue to be potentially unstable and insecure. One week after the Bosnian elections, at an informal meeting in Bergen, Norway, NATO Defence Ministers concluded that the Alliance needed to reassess how it might continue to provide support for the establishment of a secure environment after the end of IFOR's mandate in December. One month later, the North Atlantic Council approved detailed political guidance for a study to be undertaken by the NATO Military Authorities of post-IFOR security options. In November and December 1996, a two-year consolidation plan was established in Paris and elaborated in London under the auspices of the Peace Implementation Council. On the basis of this plan and the Alliance's own study of security options, NATO Foreign and Defence Ministers concluded that a reduced military presence was needed to provide the stability necessary for the consolidation of the peace. They agreed that NATO should organise a Stabilisation Force (SFOR), which was subsequently activated on 20 December 1996, the day on which the mandate given to IFOR expired. SFOR's Role and Mandate Under UN Security Council Resolution 1088 of 12 December 1996, SFOR was authorised to implement the military aspects of the Peace Agreement as the legal successor to IFOR. Like IFOR, SFOR operates under Chapter VII of the UN Charter (peace enforcement). SFOR has the same rules of engagement for the robust use of force, if it should be necessary to accomplish its mission and to protect itself. The primary mission of SFOR is to contribute to the secure environment necessary for the consolidation of peace. Its specific tasks are: to deter or prevent a resumption of hostilities or new threats to peace; to consolidate IFOR's achievements and promote a climate in which the peace process can continue to move forward; to provide selective support to civilian organisations within its capabilities. It also stands ready to provide emergency support to UN forces in Eastern Slavonia. SFOR's size, with around 31,000 troops in Bosnia, is about half of IFOR's size. Building on general compliance with the terms of the Dayton Agreement ensured during the IFOR mission, the smaller-sized SFOR is able to concentrate on the implementation of all the provisions of Annex 1A of the Peace Agreement, i.e.: stabilisation of the current secure environment in which local and national authorities and other international organisations can work; and providing support to other agencies (on a selective and targeted basis, in view of the reduced size of the forces available). NATO is planning for an 18-month mission for SFOR. The North Atlantic Council intends to review SFOR's force levels after 6 and 12 months with a view to shifting the focus from stabilisation to deterrence and completing the mission by June 1998. The role of IFOR (Operation Joint Endeavour) was to implement the peace. The role of SFOR (Operation Joint Guard) is to stabilise the peace. The difference between the tasks of IFOR and SFOR is reflected in the names of their missions. SFOR Command Structure The Stabilisation Force has a unified command and is NATO-led, under the political direction and control of the Alliance's North Atlantic Council, as stipulated by the Peace Agreement (Annex 1A). Overall military authority is in the hands of NATO's Supreme Allied Commander Europe (SACEUR), General George Joulwan. General Joulwan has designated General William Crouch (NATO's Commander of Land Forces Central Europe - LANDCENT) as the Commander of SFOR (COMSFOR). Participation of non-NATO Nations Every NATO nation with armed forces is committing troops to SFOR, as was also the case with IFOR. Iceland, the only NATO country without armed forces, is providing medical support. But SFOR is more than a NATO operation. All the 18 non-NATO nations that participated in IFOR are also participating in SFOR: Albania, Austria, Bulgaria, Czech Republic, Estonia, Finland, Hungary, Latvia, Lithuania, Poland, Romania, Russia, Sweden and Ukraine - all of which are Partnership for Peace countries - plus Egypt, Jordan, Malaysia and Morocco. All of the last four, except Malaysia, are participating in the Alliance's Mediterranean dialogue. Slovenia and Ireland have also joined SFOR, bringing the total of non-NATO participating nations to 20. Non-NATO nations have been incorporated into the operation on the same basis as forces from NATO member countries. They take orders from the SFOR Commander through the multinational divisional headquarters. Several non-NATO countries are represented in SFOR headquarters in Sarajevo which has personnel from 25 NATO and non-NATO nations. Contributing non-NATO countries have liaison officers at SHAPE and have been involved in planning operations and generating the necessary forces through the SFOR Coordination Centre. At NATO headquarters, contributing non-NATO countries are consulted at key junctures and are given the opportunity to express their views or associate themselves with NAC decisions. The main mechanism for political consultation is the so-called NAC+N - North Atlantic Council meeting with non-NATO contributors. Participation by non-NATO countries not only contributes to the accomplishment of the SFOR mission but has a wider significance. It provides all the participating forces from Partnership Countries with practical experience of operating with NATO forces. It shows that NATO and non-NATO countries can work closely together in a NATO-led operation in the cause of peace. This has a broader impact on the region and contributes to enhanced security in the whole of Europe and beyond. Russian Participation The participation of Russia in IFOR and SFOR is very important and is an example of how NATO and Russia can work together successfully. It is a major step in the evolving NATO-Russia cooperative relationship. Russian forces joined IFOR in January 1996 and Russia continues to contribute to SFOR. Russia's participation is subject to special arrangements between NATO and Russia. The Russian contingent is directly subordinated to Col.General Leontiy Shevtsov, as SACEUR's deputy. In theatre, the Russian brigade is under the tactical control of the US-led Multinational Division (North). Civilian Aspects For lasting peace in Bosnia-Herzegovina, full implementation of the civilian aspects of the Peace Agreement is crucial. By continuing the implementation of the military aspects of the Dayton Agreement, NATO is helping to ensure a secure environment conducive to civil and political reconstruction. The civilian aspects of the Agreement are being carried out by appropriate international organisations, under the coordination of the High Representative, Carl Bildt. In view of the importance of the civilian aspects of the Peace Agreement, SFOR continues to provide support for civilian tasks. However, with fewer forces at its disposal, SFOR has had to prioritise its efforts and carefully select where they will be applied. To be effective, SFOR and the other organisations will continue to plan together and identify objectives to ensure that SFOR support is applied where and when needed. Among the institutions and organisations implementing the civilian aspects of the Peace Agreement are the Office of the High Representative (OHR), the International Police Task Force (IPTF), the UN High Commissioner for Refugees (UNHCR), the Organisation for Security and Cooperation in Europa (OSCE) and the International Criminal Tribunal for the former Yugoslavia (ICTY). Many other intergovernmental and non-governmental organisations are also playing an important role. Directed by the North Atlantic Council, SFOR will provide the secure environment for the municipal elections to take place in September 1997. It will also be prepared to provide other form of support to the OSCE in the preparation and conduct of these elections. SFOR will, for example, continue to support the OSCE in its role of assisting the Parties in the implementation of the Confidence- and Security Building Agreement and the Sub-Regional Arms Control Agreement. The latter Agreement limits the holdings of heavy weapons by the Parties in order to eliminate the danger of a sub-regional arms race and to bring about an overall reduction of heavy weaponry in the area. SFOR is also continuing to support UNHCR in its supervising tasks for the return of refugees and displaced persons. It is ensuring that no weapons, other than those of SFOR, are carried in the Zone of Separation. Any exceptions need the specific approval of SFOR which is thus providing support for the implementation of the procedures for facilitating returns to the Zone of Separation negotiated among the various organisations involved and the Parties. SFOR will try to prevent any conflict with regard to the return of refugees and displaced persons. However, it is the responsibility of the Parties to restore order and normal conditions if an incident takes place. Like its IFOR predecessor, SFOR continues to work closely together with the UN International Police Task Force (IPTF). It will be available to support the IPTF in its role in promoting local law and order, which is essential for establishing lasting peace. The implementation of the Brcko Arbitration Agreement of 15 February 1997 is also being supported by SFOR, by providing a secure environment in and around Brcko and by supporting the Brcko Supervisor, the IPTF, UNHCR and other agencies involved in the implementation. The support already provided by IFOR to the International Criminal Tribunal for the former Yugoslavia (ICTY) is being maintained by SFOR. This includes the provision of security and logistic support to ICTY investigative teams, and surveillance and ground patrolling of alleged mass grave sites. The North Atlantic Council has authorised SFOR to detain and transfer to the ICTY persons indicted for war crimes, when SFOR personnel come into contact with them while carrying out their duties. Finally, SFOR headquarters includes a specialized group of over 300 personnel consisting of lawyers, educators, public transportation specialists, engineers, agricultural experts, economists, public health officials, veterinarians, communication experts and many others. They are part of the Civil-Military Cooperation (CIMIC) structure, which provides technical advice and assistance to various commissions and working groups, civilian organisations, non-governmental organisations and SFOR units, many of which have their own CIMIC experts carrying out civil support work.