Transitional administrations in former Yugoslavia: A repetition of failures or a necessary learning process towards a universal peace-building tool after ethno-political war?

Abstract

Are transitional administrations a suitable and universally applicable peace-building tool after ethno-political war? In order to answer this question, this study compares the conditions, structures, mandates, resources and outcomes of three transitional administrations in former Yugoslavia. My analysis will show that the administrations, which were created in short suc-cession by the European Union, the United Nations and the High Representative for Bosnia, brought along various assumptions as to how to fulfill their mission and, as a result, achieve different results. The lesson emerges that a host of preconditions must be in place to prevent the administration from becoming a mere plaything of the local parties or being exploited for practical advantage. These preconditions for a successful operation include political coherence within the responsible international organisation, consistency in the entire administrative field of action, as well as the capability to use the power at its disposal. Further insights emerge, first, that improvements in the standard of living do not necessarily lead to the reestablishment of trust between formerly warring parties nor contribute to permanent conflict resolution; and second, that the parties cannot be forced to cooperate in reward for material benefits or through diplomatic pressure, when their own interests run contrary to the administration’s mandate.