[Weekly Compilation of Presidential Documents Volume 35, Number 14 (Monday, April 12, 1999)]
[Pages 580-582]
[Online from the Government Publishing Office, www.gpo.gov]

<R04>
Letter to Congressional Leaders Reporting on the Decision To Send 
Certain United States Forces to Macedonia and Albania

April 3, 1999

Dear Mr. Speaker:  (Dear Mr. President:)

    Since I reported to the Congress on March 25, 1999, under section 
8115 of the Department of Defense Appropriations Act, 1999 (Public Law 
105-262), there have been dramatic and very serious developments in 
Kosovo and the region, particularly Macedonia and Albania. Belgrade's 
sustained and accelerating repression and ethnic cleansing in Kosovo has 
created a humanitarian crisis of staggering dimensions. Estimates are 
that more than 800,000 Kosovars have been displaced from their homes and 
villages, with large concentrations in Albania, Macedonia, and 
Montenegro, and with the numbers rising dramatically every day. 
Throughout Kosovo, Serb forces have burned villages. Homes throughout 
the region have been looted and are smoldering. In Pristina, Kosovars 
are being forced into rail cars and shipped to the Macedonian border.
    As the refugee flow out of Kosovo has surged, the limited ability of 
Albania and Macedonia to deal with the situation has been overwhelmed. 
The international organizations engaged in refugee assistance do not 
currently have in the region the ability and resources to deal with a 
refugee crisis of this magnitude. Unless adequate care can be provided 
for these refugees, a humanitarian disaster of immense proportions will 
result. In addition to the human suffering involved, such a disaster 
carries with it the very real possibility of destabilizing the 
governments and societies of Albania and Macedonia. This disaster could 
have the effect of spreading violence in the region that NATO is 
determined to prevent.
    In the light of these disturbing events, I have directed that 
additional U.S. forces be deployed to Albania and Macedonia in order to 
support disaster relief by, among other activities, delivering food and 
essentials, constructing shelter, providing coordination and assisting 
in onward movement, and when necessary, providing protection for relief 
supplies and refugees. In regard to the elements of section 815(a)(1)-
(8), I am providing the following information.
    1 & 2. National Security Interests. I hereby certify that the 
deployment of additional forces to Albania and Macedonia as described 
above is necessary in the national security interests of the United 
States. These actions will provide additional forces to aid in the 
relief efforts supporting Kosovar refugees. They also will contribute to 
the overall effort to stabilize this region that has historically been a 
tinderbox, thereby helping to preserve peace and security in the region.
    3. Numbers. The number of U.S. personnel who will be deployed for 
these purposes cannot be definitively provided at this time, since 
planning for the deployment is ongoing. I would anticipate, at a 
minimum, a deployment of 1,000 personnel. It can be anticipated that 
headquarters elements, air crews, airlift control elements, selected 
transport and rotary wing aircraft, security personnel, civil affairs 
and psychological operations personnel, medical and engineer forces, and 
logistics support forces may become involved in the operation. These 
forces

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will operate under U.S. and NATO operational control. I will ensure that 
the Congress is informed in a timely manner about deployments described 
in this report when the information is available.
    4. Mission/Objectives. As stated above and in my report to the 
Congress of March 25, the overall objective of our efforts with our 
allies is to maintain stability in the region and prevent a humanitarian 
disaster resulting from the ongoing offensive against the people of 
Kosovo. The specific military mission of the forces deployed as 
described in this report would be to support disaster relief operations 
to aid in the care and protection of Kosovar refugees and to provide for 
their own security.
    5. Schedule. At this point, it is not possible to determine how long 
these deployments to Albania and Macedonia in response to this dire need 
will be required. This will be affected by how long Belgrade continues 
its campaign of ethnic cleansing and how long beyond the cessation of 
that campaign it will take before the Kosovar refugees will be able to 
return to their homes or resettle elsewhere. Circumstances permitting, 
it will be our objective to transfer responsibility for the refugees to 
other organizations such as the United Nations High Commissioner for 
Refugees as soon as possible.
    6. Exit Strategy. The duration of the requirement for a U.S. 
military presence in Albania and Macedonia for these purposes will 
depend on the course of events, and in particular, on Belgrade's conduct 
on the ground in Kosovo. So long as Belgrade forces the Kosovar refugees 
to remain dispossessed, and the enormity of the situation continues to 
overwhelm the ability of Albania, Macedonia, and the international 
relief community to deal with the situation, it is likely that U.S. 
forces deployed for these purposes will be required. Nevertheless, as 
stated above, it will be our objective to transfer responsibility for 
the refugees to other organizations as soon as the emergency has 
subsided. In addition, we are working with our European partners to 
provide temporary asylum to some of the refugees in third countries.
    7. Costs. The costs of the deployment described in this notice will 
be paid initially from FY99 Defense appropriations, including the 
provision of defense commodities and services directed pursuant to 
Presidential Determination 99-20 of March 31, 1999. An estimate of 
likely costs for these deployments is being prepared, and I will ensure 
that it is provided to the Congress as soon as it is available.
    8. Effect on Morale, Retention and Readiness. In the first instance, 
these deployments will have a positive effect on morale, retention and 
readiness because they will demonstrate the commitment of the necessary 
resources to those aspects of operations relating to response to the 
worsening conditions brought by the refugee crisis in the area.
    United States forces participating in these operations, as well as 
U.S. forces deployed for other purposes in the region are dedicated 
professionals serving with great pride and enthusiasm. Given the 
importance of these activities, particularly in humanitarian terms, we 
anticipate that U.S. forces would maintain the highest morale and 
effectiveness. It has been our experience that personnel serving in 
these types of operations manifest great pride and satisfaction in 
demonstrating America's capacity to ensure care and protection for 
people in need.
    However, we recognize that even deployments for the best of reasons 
increase the periods of separation from family and add other burdens to 
military service.
    The Department of Defense has underway extensive and effective 
programs to do what is necessary to manage personnel and other resources 
so as to reduce these problems. As with any operational deployment, the 
effects on readiness are mixed. In these operations, U.S. forces will be 
conducting one of the missions they have been trained to perform, which 
will provide an unparalleled opportunity to apply their skills in a 
unique environment. We believe that this will contribute significantly 
to a high state of morale and readiness.
    Sincerely,
                                            William J. Clinton

Note: Identical letters were sent to J. Dennis Hastert, Speaker of the 
House of Representatives, and Albert Gore, Jr., President of the Senate. 
This letter was released by the Office of the Press Secretary on April 
5.

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