    [Public Papers of the Presidents of the United States: William J. Clinton (1998, Book I)]
    [March 3, 1998]
    [Pages 325-326]
    [From the U.S. Government Publishing Office www.gpo.gov]

    [[Page 325]]

    Message to the Congress on United States Armed Forces in
    Bosnia-Herzegovina
    March 3, 1998

    To the Congress of the United States:
        I hereby certify that the continued presence of U.S. armed forces,
    after June 30, 1998, in Bosnia and Herzegovina is required in order to
    meet the national security interests of the United States, and that it
    is the policy of the United States that U.S. armed forces will not serve
    as, or be used as, civil police in Bosnia and Herzegovina.
        This certification is presented pursuant to section 1203 of the
    National Defense Authorization Act for Fiscal Year 1998, Public Law 105-
    85, and section 8132 of the National Defense Appropriations Act for
    Fiscal year 1998, Public Law 105-56. The information required under
    these sections is in the report that accompanies this certification. The
    supplemental appropriations request required under these sections is
    being forwarded under separate cover.
        America has major national interests in peace in Bosnia. We have
    learned from hard experience in this turbulent century that America's
    security and Europe's stability are intimately linked. The Bosnian war
    saw the worst fighting--and the most profound humanitarian disaster--on
    that continent since the end of the Second World War. The conflict could
    easily have spread through the region, endangering old Allies and new
    democracies alike. A larger conflict would have cast doubt on the
    viability of the NATO alliance itself and crippled prospects for our
    larger goal of a democratic, undivided, and peaceful Europe.
        The Dayton framework is the key to changing the conditions that made
    Bosnia a fuse in a regional powder keg. It is decisively in American
    interests to see Dayton implemented as rapidly as feasible, so that
    peace becomes self-sustaining. U.S. leadership is as essential to
    sustaining progress as it has been to ending the war and laying the
    foundation for peace.
        I expect the size of the overall NATO force in Bosnia and
    Herzegovina will remain similar to that of the current SFOR. However,
    the U.S. contribution would decline by about 20 percent, as our Allies
    and partners continue to shoulder an increasing share of the burden.
        Although I do not propose a fixed end-date for this presence, it is
    by no means open-ended. Instead, the goal of the military presence is to
    establish the conditions under which Dayton implementation can continue
    without the support of a major NATO-led military force. To achieve this
    goal, we have established concrete and achievable benchmarks, such as
    the reform of police and media, the elimination of illegal pre-Dayton
    institutions, the conduct of elections according to democratic norms,
    elimination of cross-entity barriers to commerce, and a framework for
    the phased and orderly return of refugees. NATO and U.S. forces will be
    reduced progressively as achievement of these benchmarks improves
    conditions, enabling the international community to rely largely on
    traditional diplomacy, international civil personnel, economic
    incentives and disincentives, confidence-building measures, and
    negotiation to continue implementing the Dayton Accords over the longer
    term.
        In fact, great strides already have been made towards fulfilling
    these aims, especially in the last ten months since the United States
    re-energized the Dayton process. Since Dayton, a stable military
    environment has been created; over 300,000 troops returned to civilian
    life and 6,600 heavy weapons have been destroyed. Public security is
    improving through the restructuring, retraining and reintegration of
    local police. Democratic elections have been held at all levels of
    government and hard-line nationalists--especially in the Republika
    Srpska--are increasingly marginalized. Independent media and political
    pluralism are expanding. Over 400,000 refugees and displaced persons
    have returned home--110,000 in 1997. One third of the publicly-indicted
    war criminals have been taken into custody.
        Progress has been particularly dramatic since the installation of a
    pro-Dayton, pro-democracy Government in Republika Srpska in December.
    Already, the capital of Republika Srpska has been moved from Pale to
    Banja Luka; media are being restructured along democratic lines; civil
    police are generally cooperating with the reform process; war criminals
    are surrendering;

    [[Page 326]]

    and Republika Srpska is working directly with counterparts in the
    Federation to prepare key cities in both entities for major returns of
    refugees and displaced persons.
        At the same time, long-standing obstacles to inter-entity
    cooperation also are being broken down: a common flag now flies over
    Bosnian institutions, a common currency is being printed, a common
    automobile license plate is being manufactured, and mail is being
    delivered and trains are running across the inter-entity boundary line.
        Although progress has been tangible, many of these achievements
    still are reversible and a robust international military presence still
    is required at the present time to sustain the progress. I am convinced
    that the NATO-led force--and U.S. participation in it--can be
    progressively reduced as conditions continue to improve, until the
    implementation process is capable of sustaining itself without a major
    international military presence.

                                                          William J. Clinton

    The White House,

    March 3, 1998.

    Note: This message was released by the Office of the Press Secretary on
    March 4.