Bosnia and Herzegovina: Stability and Peace

I beg to move,

That this House notes the concerning political situation in Bosnia and Herzegovina; expresses its support for institutions set out in the Dayton Peace Agreement, and the office and work of the High Representative, Mr Christian Schmidt; and supports continued efforts by the UK Government and its allies to ensure peace and stability in Bosnia and Herzegovina and to uphold the provisions of the Dayton Peace Agreement.

Conflict in Bosnia and Herzegovina is not inevitable, yet today we find ourselves closer than ever to conflict in the Balkans. We see the rise of hatred, division, sectarianism and the ugly beast of nationalism. We see fears rising, and still-raw wounds being ripped open. That is why I have called for today’s debate.

I believe that all of us in this place have one common responsibility as parliamentarians, to protect our nation, but we also share the responsibility to seek to prevent loss of life and to uphold human rights. With the resolve of once-stalwart partners now in question, now more than ever Britain, and we in this place, must stand up and be counted.

More than 26 years ago, the same hatred, sectarianism and nationalism brought bloodshed to Bosnia. More than 8,000 Muslim men and boys were massacred, women were systematically raped and the lives of more than 100,000 people were taken in a war led by greed and inhumanity. In that war, 57 British soldiers were murdered. I stand here today because that loss of life, those murders and attempted extermination of the Bosniak people, cannot be repeated, and because those whose voices were stolen deserve that we should learn from their silence.

We are here today because peace in Bosnia is under threat, but conflict is not inevitable, and this House can make a difference. Deterrence diplomacy can make a difference. Today we seek to raise our voices to help prevent loss of life, and to uphold human rights and peace, because Britain and this House have an opportunity to prevent history from repeating itself.

Some 26 years ago, the international community secured a fragile truce. The Dayton peace agreement was signed, and in Bosnia a shot has not been fired in anger since. Bloodshed gave way to peace—a fragile peace, but a peace that prevented further loss of life. Over the past few months, however, the leader of Republika Srpska, Milorad Dodik, has put the Dayton peace agreement under enormous strain. He has long worked to systematically undermine the very instruments of stability that he is mandated, as the Serb member of the presidency, to protect.

Dodik has publicly repudiated the Office of the United Nations peacekeeper-in-chief, the UN High Representative, threatened to withdraw Republika Srpska from federal institutions and threatened to withdraw Bosnian Serbs from the armed forces, the judiciary and the police forces. Meanwhile he is significantly increasing military spending, militarising the police force and holding illegal independence day celebrations, showing off vast arrays of submachine guns.

What instigated the crisis we now see unfolding? Ultimately, it was Dodik’s refusal to stop his shameful and insidious campaign of genocide denial and glorification of war criminals. In July, the then High Representative banned the denial of the genocide that took place at Srebrenica. The war crimes that took place during the Bosnian war, and in particular in Srebrenica, are the most heinous committed on European soil since the second world war.

Under Milošević, the ethnic cleansing of Bosnia was industrial and the motive clear: extermination. I believe that this House is united in agreeing that what took place was a genocide. It is important that we say so here in this place, the mother of all Parliaments, and that the UK and our Parliament give the High Representative our full support in ensuring any genocide denial law is implemented. Amid that backdrop, I hope it is already abundantly clear to Members why the Dayton peace agreement must be upheld.

Some have rightly noted that the Dayton peace agreement merely froze the results of the ethnic cleansing, and did not represent a true healing. We have probably all asked ourselves whether there should be a redrawing of the lines if that would bring down tensions, but it would be a grievous error. That would be to give ethno-nationalism, hatred, and ethnic cleansing a victory, to say that communities cannot co-exist, that we will reward division and hatred as forms of negotiation, and that the policies of ethnic cleansing in the ‘90s were not only successful, but are now being mandated. I am deeply concerned about reports that there is a growing view or opinion in Brussels, and even in America, that Bosnia and Herzegovina should be split, and the Republika Srpska allowed to secede. If that is true, it is entirely contrary to the Dayton peace agreement, and contrary to our principles that we share as members of the international community. It would, in effect, enshrine the results of 1990s ethnic cleansing.

I congratulate the hon. Lady on securing this important debate, and I agree with what she is saying about not redrawing boundaries that have now been established for more than 25 years. Does she recognise that one way that we can perhaps try to evolve the Dayton agreement is through trying to build up civil society in Bosnia, particularly on a multi-ethnic basis, and to encourage and support those voices to come together and try to create more of a shared vision for Bosnia in its entirety as a single entity?

The hon. Gentleman is absolutely right, but I had a chilling conversation this morning with the UN High Representative, who joins us today from the Gallery. He said that civil society is not where it should be, that it is chilling how divided it is, and how it is not able to bring people together. But yes, the Foreign Office should be looking at exactly how we support civil society, as should all our allies.

There have been increasing noises that the EU will also accept negotiation on genocide denial and electoral law, accommodating Dodik’s appalling undermining of state institutions and stability. I hope the House will join me in condemning those sentiments without qualification, and that the Minister will make representations to her European Union counterparts that any such split would be unacceptable. No deal can be done as long as the threat of secession is used as a bargaining chip. I wish also to acknowledge that Dodik does not have unanimous support for his behaviour, and it is important that we do not internationally accept his position as representative of the will of Serbs and Bosnian Serbs. There is opposition. Only a couple of weeks ago he tried to pass laws that would undermine the Dayton agreement, and his majority unravelled.

Before I turn to my asks of the Minister, I wish to thank her, as well as my right hon. Friends the Foreign Secretary and the Defence Secretary, for their engagement on this situation over the last two months, and I put on record the alacrity with which they have responded to the concerns raised. I commend them for inviting the High Representative, Christian Schmidt, to the UK, for putting Bosnia on the agenda at the NATO ministerial meeting in Riga this week, for arranging two ministerial visits to Bosnia just this week, and for announcing this morning a special envoy for the western Balkans. But I now turn to my further asks, and I urge the Minister to build on that track record urgently and raise the situation with her American counterparts who, only this morning for the first time, tweeted their concerns about this issue. Yes, it is just a tweet, but words and diplomacy matter.

My hon. Friend is making an important point about international diplomacy. Does she agree that obviously we need to put pressure on our allies in America, but we also need to stand up to those in the wider world who are using the situation in Bosnia as a pawn or bargaining chip in a greater play? We must ensure that those countries hear the voice of this Chamber, and of all those in western Europe who would like to see stability maintained in the western Balkans.

My hon. Friend puts it well, and I hope I can shortly make the same point as elegantly as he did.

Some 73% of Republika Srpska exports go to the EU, so the UK and our EU partners can work to impose multilateral sanctions in line with those of our American allies. Even minimalist sanctions would have an impact, because we cannot accept a situation where pro-integrity forces are told that efforts to undermine the peace will serve to further a negotiating position. Part of the reason we are where we are today is a lack of clear, unambiguous pushback against secessionist politics from the international community. If we do not push back now, Dodik and his enablers will be emboldened to escalate. The time for deterrence diplomacy is now. We talk about deterrence in terms of military interventions, but deterrence can be a diplomatic effort, and that is something the UK should lead on.

The UK is also one of the world’s best conveners—I would say it is second to none when it comes to foreign policy—so I hope the Government will use the immense expertise in the Foreign Office to secure multilateral engagement and commitments to de-escalate, by convening the NATO Quint and G7 Foreign Ministers, and by raising the issue at the UN Security Council, to demonstrate that diplomacy can be an effective deterrent.

I totally endorse what my hon. Friend is saying, but could I perhaps encourage her to amplify this point? I get a sense of déjà-vu from 30 years ago, when we looked the other way for too long, but involvement became inevitable. Will she emphasise that the timeliness and promptness of an intervention is all the more important?

My hon. Friend is absolutely right, which is why this debate is so important. We as parliamentarians can raise the flare and ask the international community to sit up and take action now, not wait until the first shot is fired.

I ask that when the Minister convenes the Quint, the G7, or UN partners, we seek to secure an uplift to our personnel at NATO HQ Sarajevo. A joint exercise in the Balkans would also have much merit. As ethnic tensions rise, I ask that the UK activates the new conflict centre for which I lobbied and campaigned. It would map actors, identify those perpetrating identity-based violence, look at what multilateral activity is needed to prevent conflict, and act as an early warning system. I urge the Government to create a cross-Government, counter-atrocity strategy for what is happening in Bosnia, as well as in China and so many other places. Indeed, the Prime Minister has received an excellent letter about that from Protection Approaches, which is a fantastic charity. We need a strategy that would allow us to identify emerging tensions and early signs of human rights abuses, and trigger action before mass bloodshed.

One might ask why Dodik feels so emboldened to act in this way. When threatening the secession of Republika Srpska, Dodik stated:

“If anybody tries to stop us, we have friends who will defend us.”

Those friends—they say you should judge a man by his friends—are Russia, Serbia, China, and even a handful of EU member states. Dodik himself has named Hungary, Slovenia, and even, in his words, “the Brussels Administration” as having an understanding of his position. Some of those hostile states are using their influence to foment instability and ethnic tension, to distract from their own heinous actions at home, to secure their own territorial ambitions, or to feed instability in Europe’s near neighbourhood.

Dodik has stated publicly:

I thank the hon. Lady for her brilliant speech. In light of all the threats that Bosnia and Herzegovina is facing, would it help if we helped to facilitate Bosnia joining NATO?

The hon. Gentleman will be unsurprised to know that I fully agree we should be doing that. However, we must also recognise that that is one of Russia’s greatest concerns and fears, and that is why it is acting to undermine in such a way. Yes, NATO membership is more achievable than EU membership, so let us stand and fight for that.

We know that as part of their support to Dodik, the Russians and even the Chinese and the Serbians are spreading disinformation in Bosnia. The UK is a world leader in countering disinformation, particularly that of Putin. During my time in the Foreign Office, we exposed his devious disinformation networks, knocked him off balance and countered his lies. As a result, I am on a no-fly list. I take that as success. We know how to counter Russia’s disinformation and we should be doing more of it, so I urge the Minister to consider establishing a NATO counter-disinformation capability at NATO headquarters in Sarajevo.

There is a cost to inaction. That cost would be felt in Bosnia, throughout Europe and most certainly here in the UK, and it would be felt by our veterans, who gave so much and witnessed appalling atrocities while serving in Bosnia. Were conflict to reignite between communities in Bosnia, I can think of no greater recruiting sergeant for the far right or Islamists across the world. As in the 1990s, bloodshed would displace thousands of people, and we would need to respond with boots on the ground. Peace in Bosnia is not just a moral imperative but a security necessity for all of us in this place.

I am heartened to see so many colleagues here today—we are united in our resolve—and I thank them all. I am grateful that so many took the time this morning to meet the High Representative to show our support for his office and the work of the international community.

In 1992, the world moved too slowly. Three years of bloodshed stained the western Balkans and our collective conscience. It was a failure of the international community then, and we cannot accept a failure of the international community now. As we establish ourselves as global Britain, let us make one of our great acts of foreign policy to de-escalate tensions in the Balkans. Let us prove what we as the United Kingdom can do. I hope that by speaking with a clear voice today, our Parliament is making it clear that we stand by our duty to the people of Bosnia, that peace in Bosnia will remain a priority for us, that the time for deterrence diplomacy is now, and that violence in Bosnia is most certainly not inevitable.

Order. As colleagues will see, this is a very well subscribed debate. I would prefer not to introduce a time limit, but I urge contributors to take approximately six minutes, or slightly less, so that we can get everybody in.

I take note of your suggestion, Madam Deputy Speaker.

In October 2013, I visited Bosnia and Herzegovina with the Inter-Parliamentary Union; my hon. Friend the Member for Rhondda (Chris Bryant) was with us. Before the visit, I travelled across the western Balkans from Dubrovnik to Sarajevo. The winding journey through the mountains was incredible—the scenery was spectacular—but the number of graves in every community we went through was really striking. It was truly horrific.

When I arrived in Sarajevo, I was met by a young woman Government official, who greeted me with some surprise because I was getting off a bus. She took me to the Government headquarters, and I was making polite conversation with her. I asked her simply what the civil war in the early 1990s meant for her. She showed me the wound on her leg and explained that she had been shot by a sniper when she was a small child. That is what the conflict meant for her. That illustrates better than anything I can think of just how horrific the situation was in the former Yugoslavia. As internationalists—as people who are concerned about justice, life and civility—we must make every effort possible to ensure that similar situations never happen again.

In recent times, the UK—unfortunately, in my view—has not been as proactive in the situation in Bosnia and Herzegovina as it might have been. I am pleased to say, however, that things may be changing. I welcome the Government’s announcement of the appointment of Sir Stuart Peach as special envoy. That is a positive statement and a real contribution to ensuring that many of the problems that the people of Bosnia currently face will be addressed. I am pleased that his brief appears to be wide—to support the civil institutions, to work with others in the area, and to make sure that the British Government give a firm commitment to do everything possible to stabilise and hopefully improve the situation.

As the hon. Member for Rutland and Melton (Alicia Kearns) said, Putin is the common factor in destabilising Belarus, Ukraine and Bosnia. Just as we support them, should we not also make it clear to the Serbs that if they continue to destabilise and to help Putin, EU membership will remain a distant dream for them?

Yes, I think we have to be objectively very critical of a number of players in the area. Russia is, of course, destabilising the situation for its own ends—as, indeed, it is doing elsewhere—and I think the House will be united in condemnation of its efforts. However, other countries leave a lot to be desired in their activities too; the hon. Member correctly refers to Serbia. We need to be determined in saying to our friends and allies that we do not expect that kind of behaviour, and we really have to work together as an international community to stabilise the situation and take things forward.

However, it is important to recognise that the main external disruptor is indeed Russia. We have to be very clear with Russia, in a whole host of ways and in different spheres, that its material efforts at destabilisation are totally unacceptable. We realise what is happening, we will not have the wool pulled over our eyes, and we must stand united against its destabilisation efforts.

It is extremely important that this debate is taking place today and that a powerful and united message is sent from all democrats and peace lovers in this House, right across the Chamber. But a debate is not enough; we need to make sure, dare I say it, that our Government are wholeheartedly involved and using their maximum diplomatic and material effort to stabilise the situation. It is important, too, that we do not see this as a one-off debate but that we maintain our interest and concern so that we have a genuine, long-lasting peace in Bosnia and Herzegovina.