The quest for legitimacy in independent Kosovo: the unfulfilled promise of diversity and minority rights

When Kosovo declared its independence in 2008, it did so not as a nation-state, but as a “state of communities,” self-defining as multiethnic, diverse, and committed to extensive rights for minorities. In this paper, this choice is understood as a response to a dual legitimation problem. Kosovo experienced both an external legitimation challenge, regarding its contested statehood internationally, and an internal one, vis-à-vis its Serb minority. The focus on diversity and minority rights was expected to confer legitimacy on the state both externally and internally. International state-builders and the domestic political elite in post-conflict Kosovo both pursued this strategy. However, it inadvertently created an additional internal legitimation challenge, this time from within Kosovo’s majority Albanian population. This dynamic is illustrated by the opposition movement “Lëvizja Vetëvendosje” (Self-Determination Movement), which rejects the framing of Kosovo as first and foremost a multiethnic state. The movement’s counter-narrative represents an additional internal legitimation challenge to the new state. This paper thus finds that internationally endorsed “diversity management” through minority rights did not deliver as a panacea for the legitimacy dilemmas of the post-conflict polity. On the contrary, the “state of communities” continues to be contested by both majority and minority groups in Kosovo.     

Unintended consequences of state-building and the management of diversity in post-conflict Kosovo

This paper examines the adoption of a multiethnic liberal-democratic model of governance in post-independence Kosovo and the dual task of state-building to secure unity and manage diversity. This article explains why in post-conflict and post-independence Kosovo, its domestic sovereignty and legitimization have become conditioned by the integration, accommodation, and protection of its minorities. While the existing literature has mainly focused on the shortcomings deriving from the exogenous character of state-building in Kosovo, this paper aims to challenge and complement this view by drawing on the “state-in-society” approach developed by Joel Migdal, which highlights that the actual states have less coherence than their theoretical counterparts. Analysis of post-independence Kosovo reveals the legislation-implementation gap and the unintended consequences arising under the impact of endogenous factors. Overall, this article shows that multiethnic state-building in Kosovo has been crucially transformed and “limited” by local idiosyncrasies.     

The Missing Democratic Revolution and Serbia's Anti-European Choice: 1989–2008

In 1989, as the countries of the Soviet bloc took a turn toward democracy and Europe, Yugoslavia and Serbia plunged into a bloody war and moved in the opposite direction. This article argues that the legacy of that era is still strongly felt in postwar and post-Milosevic Serbia. Now, like then, the choice is not simply for or against Europe. By holding on to the nationalism of the Kosovo myth, which territorializes both the Serbian ethnos and the opposition between Christianity and Islam, Serbia is tracing a tortuous path toward democratization and European integration. In the contemporary context, the Kosovo myth impedes Serbia’s recognition of Kosovo as an independent state; it continues to fuel the rhetoric of fractious elites that never cease to tap its capacity for rallying the public; and it provides room for “pro-European” leaders to negotiate EU integration, straddling the fence between Europe’s Atlantic propensities and the resurgent power of Russia. This nationalist myth thus plays a normative and an instrumental role, both domestically and internationally. Outside Serbia, it also engages with a narrow and “thick” notion of Europe, which gained traction within Europe itself in the post-9/11 climate of heightened fear of Islam, where cultural identity trumps the values of liberal democracy.     

Crimea: Competing Self-Determination Movements and the Politics at the Centre

While the breakup of Yugoslavia produced divided loyalties and competing claims, leading to the establishment of seven separate states ending with the de facto independence of Kosovo, Crimea was a source of geopolitical instability that threatened to engulf the region in ethnic and geopolitical conflict. As a result of the negotiations during the 1990s and a de facto settlement between Slavs and the Ukrainian state, between Slavs and returning Crimean Tatars, and between Ukraine and the Russian Federation, Crimea has remained a peaceful and even increasingly wealthy area of Ukraine. Reflecting on the case of Kosovo, this paper looks at the prospect for a similar conflict in and over Crimea. Our primary question concerns the degree to which the Kosovo case sheds light on a somewhat similar case of co-ethnics, religious differences and a weakened state. We argue that the greatest source of instability lies not with ethnic claims or geopolitics, but with Ukrainian political and commercial interests that threaten the de facto settlement between the region and the centre.     

Ending the impasse in Kosovo: partition,decentralization, or consociationalism?

This paper argues that current Western-backed approaches to conflict resolution in Kosovo have failed to alter Serbia's policy toward the region and have contributed to the exacerbation of political tensions between Belgrade and Brussels, while deepening ethnic cleavages between Serb and Albanian communities. While there is no possibility of Kosovo returning to Serbia's control, there is an equal unlikelihood that Serbian-populated regions of Kosovo, especially the north, will submit to Pristina's authority. Most importantly, there is little hope that Kosovo can gain full international recognition and membership in international organizations without a compromise settlement with Serbia. While territorial partition has long been a suggested option, I conclude that the best possible solution for Kosovo, given the positions of all parties involved, is a process of significant decentralization beyond the internationally supported measures in the Ahtisaari Plan. A model of consociational power sharing is one in which Serbian and Albanian municipalities are granted high levels of autonomy similar to arrangements made for Bosnia. While this solution may not be ideal and further weakens central authority, I argue that consociationalism reduces the problems of ethnic conflict, encourages local self-government, and preserves the overall territorial integrity of Kosovo.     

Minority Political Inclusion in Mikheil Saakashvili's Georgia

Georgia's Rose Revolution promised sweeping economic and political reforms, designed in part to enhance the livelihoods of ethnic and religious minority populations. The Rose events, however, occurred concomitantly with a surge in ethnic unrest. This article examines this paradox, arguing that the three major policy goals of the Saakashvili regime: the devolution of power to minorities, anti-corruption reform and state capacity building, have resulted in contradictory policy outcomes that have disproportionately hurt ethnic and religious minority enclaves.     

Comparing China’s frontier politics: how much difference did a century make?

In response to foreign demands for concessions and territories, China’s last imperial court in the early twentieth century executed reforms to strengthen fiscal, personnel, military, and cultural control over its frontier regions. However, in so doing, it provoked an awakening of the national consciousness of the elites of non-Han ethnic minorities there. Much has changed over the past 100 years regarding the governance of China’s frontier territories of Inner Mongolia, Tibet, and Xinjiang, with the diffusion of nationalist claims among increasing numbers of the ethnic minority populace, heightened focus of foreign actors on the humanitarian and rights situations of the ethnic minorities, and greatly extended reach and firmer grip of the central government. What remained unaltered is the “state integration” purpose of Chinese regimes, as manifested in the practices of “internal colonialism” or “ethnic assimilation,” which has led to grievances and resistance by China’s ethnic minorities against the Chinese state.     

Notes on contributors

This paper examines the impact of development, including the impact of government and donor programmes, on ethnic minorities and indigenous peoples in Southeast Asia. Through an examination of government policy, it considers arguments that mainstream development strategies tend to generate conflicts between states and ethnic minorities and that such strategies are, at times, ethnocidal in their destructive effects on the latter. In looking at more recent government policy in the region, it considers the concept of ethno-development (ie development policies that are sensitive to the needs of ethnic minorities and indigenous peoples and where possible controlled by them), and assesses the extent to which such a pattern of development is emerging in the region. Since the late 1980s, it argues, governments across the region have made greater efforts to acknowledge the distinct identities of both ethnic minorities and indigenous peoples, while donors have begun to fund projects to address their needs. In many cases, these initiatives have brought tangible benefits to the groups concerned. Yet in other respects progress to date has been modest and ethnodevelopment, the paper argues, remains confined to a limited number of initiatives in the context of a broader pattern of disadvantage and domination.     

Mass Violence and the Recognition of Kosovo: Suffering and Recognition

In instances of international negotiations over state recognition, the way the violence sustained by a given group is categorised becomes a critical factor in the international community's decision to support independence or not. This essay argues that the recognition of Kosovo in February 2008 was made possible by the use of justifications based on Kosovo Albanians' collective status as victims of ethnic cleansing. The essay bridges the gap between two bodies of literature that have not been used in conjunction up to now, namely normative theories of ‘remedial’ secession and works on the logic of mass violence against ethnically defined groups. It finds that the international community has used the ‘remedial argument’ for Kosovo's recognition because it allowed it to minimise the risk of further unilateral declarations of independence in a volatile region.     

An Analysis of Race Equality Policy and Practice in the City of Birmingham,UK

The city of Birmingham is home to a significant number of ethnic minorities. In 2004 it is estimated that almost a third of the city's one million people are of ethnic minority origin. How the city's institutions have responded to race equality issues is analysed in the light of the Stephen Lawrence Inquiry Report (1999) and the Race Relations (Amendment) Act 2000. Based on secondary analysis of documentary evidence and interviews with key actors, it is shown that ethnic minorities are disadvantaged in education, the labour market, and in relation to health and housing. It is argued that the local authority has made some genuine efforts to ensure that all its citizens are provided equality of opportunity; however, given the diversity and socio-economic polarity of the ethnic minorities in Birmingham, we conclude that race equality policies remain ineffective and a great deal more is required to ensure that ethnic minorities are treated equally as full British citizens.     

The Mordvins: Dilemmas of mobilization in a biethnic community

The paper negotiates ideas, views and beliefs of Bulgarians towards the ethnic minorities of their country published in the Bulgarian press during the period of 2005–2009. Through these aspects it becomes clear that three years after Bulgaria's accession to the European Union and despite various state attempts to integrate minorities – mostly initiated and funded by the EU and various governmental and non-governmental organizations – prejudice and racism have not been overcome, the Other is still differentiated and the way to multiculturalism is very long. The research field is limited to the Turkish and the Roma minorities, which are “visible” in the sense that they are officially recognized.     

Understanding the exclusionary politics of early Turkish nationalism: an ethnic boundary-making approach

Turkish nationalism has long presented a study in contrasts. The nationalist movement that created the Republic of Turkey sought to define the nation in explicitly civic and inclusive terms, promoting a variety of integrationist reforms. Those same nationalist politicians, however, endorsed other policies that were far more exclusionary, expelling many religious and ethnic minorities from the new nation and imposing harsh restrictions on those who remained. The seemingly contradictory nature of Turkish nationalist policies has been mirrored by much of the scholarship on Turkish nationalism, which has often viewed Turkish nationality through the lens of the “civic/ethnic divide,” with various scholars arguing that the Turkish nation is exclusively civic or ethnic. This article seeks to transcend this dichotomous way of looking at Turkish nationalism. I argue that the policies previously seen as being exclusively civic or ethnic are in fact both examples of boundary-making processes, designed to forge a cohesive nationalist community. Seen through a boundary-making perspective, the seemingly contradictory nature of Turkish nationalist policies in its early years is not paradoxical at all, but represents a multidimensional effort to construct a cohesive national community that could replace the defunct Ottoman state.     

Disputes over the 15-point agreement on normalization of relations between Kosovo and Serbia

This paper examines the 15-point agreement on normalization of relations between Kosovo and Serbia. Two mainstream discourses have prevailed since the agreement was ratified by both countries: on one hand, the Government of Kosovo has branded this agreement as historic, given the fact that in the last century no agreement has ever been reached between Kosovo and Serbia. On the other hand, Kosovo's political opposition has critiqued this agreement stressing that the 15-point agreement devastates Kosovo's statehood. Beyond both extreme stances, we argue that an enhanced autonomy for four northern Serb municipalities ought to be seen as a tool for integration, rather than disintegration of Kosovo statehood. This paper concludes that the dialogue between Kosovo and Serbia as a top-down arrangement lacks transparency, and this might jeopardize the achievements reached through this process. Moreover, the EU position should be clearly articulated that redrawing and rearranging the borders of Kosovo and Serbia might overturn the EU's and USA's immense investments in stability, peace, and prosperity in the Western Balkans.     

In pursuit of homogeneity: the Lausanne Conference,minorities and the Turkish nation

Following World War I, the Allied Powers signed Minority Treaties with a number of Central and Eastern European states. These treaties delineated the status of religious, ethnic and linguistic minorities in their respective countries. Turkey would be one of the last states that sat down to the negotiation table with the Allied Powers. In the Turkish case, the Lausanne Treaty would be the defining document which set out a series of rights and freedoms for the non-Muslim minorities in the newly created nation. The present article explores how and why the non-Muslim minorities were situated in the fringes of the new nation. In doing so, the article highlights the content of the discussions in the Lausanne Conference and in the Turkish Grand National Assembly with an emphasis on the position of the Turkish political elite.     

An undisclosed story of roses: church,state, and nation in contemporary Georgia

Since the Rose Revolution (2003), Georgia has encountered an unprecedented scale of institutional reforms concomitant with the rise of American and European involvement in the “democratization” process. Various scholars have suggested that Georgian nationalism developed from an ethno-cultural basis to a more civic/liberal orientation after the Rose Revolution. This paper analyzes Georgian nationalism under President Mikheil Saakashvili to demonstrate the significant divergence between political rhetoric on national identity, the selection of symbols, and state policy toward the Georgian Orthodox Church versus state policy toward ethnic minorities. The aim of this article is to examine the at times conflicting conceptions of national identity as reflected in the public policies of Saakashvili’s government since the Rose Revolution. It attempts to problematize the typologies of nationalism when applied to the Georgian context and suggests conceptualizing the state-driven nationalism of the post-Rose Revolution government as “hybrid nationalism” as opposed to civic or ethno-cultural.     

Stalin's Genocides

In this essay I explore the ways in which the internal Albanian politics of memory in Kosovo rely on a longer, lived history of militant self-organisation than the Kosovo Liberation Army (KLA) war period alone. On the basis of recent ethnographic research, I argue that the memory of prewar militant activism is symbolically codified, ritually formalized, and put on the public stage in Kosovo today. Not only has this process effectively rehabilitated and consolidated the personal, social, and political status of specific former activists, it also has produced a hegemonic morality against which the actions of those in power are judged internally. On the one hand, this process reproduces shared cultural references which idealise ethno-national solidarity, unity and pride and which have served militant mobilisation already before the 1990s. On the other, it provides the arguments through which rival representatives of the former militant underground groups (known as Ilegalja) compete both socially and politically still today. Although this process demarcates some lines of social and political friction within society, it also suggests that international efforts to introduce an identity which breaks with Kosovo's past and some of its associated values, face a local system of signification that is historically even deeper entrenched than is usually assumed.     

Resisting an Oppressive Regime: The Case of Kosovo Liberation Army

Although no war faction escapes controversy, it is often said that the Kosovo Liberation Army (KLA) is one of the most successful guerrilla movements in recent history. This article suggests that KLA's success can be attributed to the symbiosis between national and international legitimacy. The guerrilla's mission should be understood in the context of persistent oppression of the Kosovo Albanians by Serbian governments. Whilst failure of peaceful resistance enabled KLA's national legitimation, its tactics and strategy acted as a force multiplier for its recognition and success. KLA's resilience in the face of vicious Serbian suppression of Kosovo Albanians raised international awareness and prompted NATO's support, an act that contributed to guerrillas’ endorsement at the international level.     

“Serbs” in Bela krajina: a (deliberately) forgotten minority?

There are three constitutionally recognized national/ethnic minorities in Slovenia: the Italians, the Hungarians and the Roma. In addition, there are other ethnic groups that could perhaps be considered as “autochthonous” national minorities in line with Slovenia's understanding of this concept. Among them is a small community of “Serbs” – the successors of the Uskoks living in Bela krajina, a border region of Slovenia. In this article we present results of a field research that focused on the following question: Can the “Serb” community in Bela krajina be considered a national minority? On the basis of the objective facts, it could be said that the “Serbs” in four Bela krajina villages are a potential national minority, but with regard to their modest social vitality and the fact that they do not express their desire for minority status, the realization of special minority protection is questionable.     

Kosovo's Gordian knot: the contested north and the search for a solution

Until 1999, Kosovo was a little-known province of Serbia. NATO's intervention, however, changed this. Suddenly, everyone was talking about Kosovo and the plight of the Kosovo Albanians. Today, Kosovo is no longer a major talking point; few authors are now writing about post-independence Kosovo and the many challenges that confront the young state. Particularly striking is the relative absence of scholarly writings that discuss the Gordian knot of northern Kosovo. Seeking to rectify this neglect, this article has three core aims: to provide new empirical insights into the situation on the ground in northern Kosovo, to explore Serb and Albanian viewpoints regarding the status of the north (and in particular to examine Serb fears and concerns) and to discuss possible solutions. It argues that granting the north a special, autonomous status within Kosovo is the ultimate way to resolve the “northern problem,” and indeed this now seems the most likely solution following the recent conclusion of the First Agreement on Principles Governing the Normalization of Relations. This research is based on five weeks of fieldwork in Kosovo in July and August 2012. During this time, the author conducted 56 semi-structured interviews, 29 of which took place in northern Kosovo.