Major General Angelo Michele Ristuccia has headed KFOR, the NATO mission in Kosovo, since last October. A country forever balanced in an area, that of the Balkans, riddled with constant tensions.
General, can you give us an initial assessment of this mission of yours?
It has certainly been a busy month. Already in the preparatory phase of the mission, all indicators provided for the development of a complex, articulated and contextually extremely explosive situation, as it became apparent in reality at the time. In October, the definition by the Kosovo institutions of the implementation measures of the free movement agreements signed in 2011, 2016 and 2017 led to a sharp escalation of tensions, particularly with regard to the change of number plates, which led to a polarization in relations between the parties, a direct consequence of a deterioration that began as early as 2021 and which meant that a purely administrative aspect, combined with a factor highly symbolic and related to identity, immediately became the cause of the escalation. The inability of the parties to capitalize on the results achieved up to that point, including the positive results of the decisions taken as part of the Berlin process, then led to progressive increases in tension, which further aggravated the state of precarious equilibrium, leading to the resignation of the Serb Kosovars of posts in public administration in northern Kosovo.
Division General Angelo Michele Ristuccia, Head of KFOR
What happened then?
Within days, mayors, city councillors, police officers, judges, prosecutors and civil servants resigned, leading to real institutional paralysis and a dangerous vacuum in the administration and security of the four Serb-majority municipalities in the north of the country (Northern Mitrovica, Zvecan, Leposevac and Zubin Potok). However, intense diplomatic pressure from the European Union and the United States, combined with the presence of KFOR, made it possible to reach an agreement between Pristina and Belgrade in November 2022, according to which Serbia would not issue signs with the names of the city of Kosovo and the Kosovo would have avoided further coercive measures (fines and confiscation of cars) if vehicles with Kosovan number plates were not re-registered.
What do these events mean?
However, the events that have transpired have shown how each balance restored at the end of a moment of tension turns out to be always more precarious than the previous one.
That means?
Coinciding with the start of the organizational activity of the municipal elections, which were introduced to replace the posts of the outgoing candidates, again in November, nervousness flared up again and was expressed in clashes, which led the municipal authorities to postpone the ballot until April this year. However, a series of arrests following the judicial authority’s decisions against suspected participants in these clashes and the attitude of the Kosovar police led to protests by Kosovar Serbs, culminating in the construction of roadblocks along the main thoroughfares of the four northern municipalities, further increasing tension with the resulting enormous risk that the situation could get out of control. All this reinforced by a narrative aimed at unilaterally influencing the actors involved and by an accompanying disinformation that increases the likelihood that a physical confrontation will occur and that this confrontation is not only caused by miscalculations but also by misunderstandings (more or accidental) could be caused.
How did the tension melt away?
In this case, too, intense diplomatic pressure from the EU and the US and the involvement of KFOR (in close coordination with the other international missions present on the ground: EULEX, UNMIK, OSCE) enabled the representative leaders of the two parties to return to the negotiating table and restore a normality, albeit precarious, that is still characterized by the institutional vacuum that exists in northern Kosovo. The complete peaceful removal of the barricades by the Kosovar Serbs was welcomed by the international community, which recognized the crucial role of KFOR as a complement to all actors who have been and are constantly involved in the peace process, which is essential to ensure the overall security conditions. This state of calm, albeit fragile and evident, made it possible to reach the important agreements in Brussels on February 27th and in Ohrid on March 18th, which bodes well for a positive evolution of the situation.
How are these continuous tensions to be interpreted?
They do not represent the true nature of the problem, but rather the most immediately noticeable symptoms of it. In fact, there is a fundamental distrust between the parties, which leads to perceptions and the assumption of responsibility for decisions that are likely to bring about real change. There are still outstanding issues that threaten to undermine the building of a concrete forward-looking relationship, and which the agreements of the last few weeks have brought to light.
What was your role in these situations?
As commander of the KFOR mission, I have tried to support the dialogue between Pristina and Belgrade, firmly convinced that actively seeking an agreement with the aim of achieving a détente climate is the only viable solution to bring the situation back to an appropriate level of security to promote the normalization of relationships. KFOR will continue to promote the EU-sponsored dialogue and call on the parties to engage concretely in order to find a compromise to resolve the outstanding issues peacefully.
How has the mission changed over the years?
KFOR has been deployed in Kosovo for more than 23 years. June 12 marks 24 years since the first personnel and equipment rate entered this theater of operations. The multinational contingent operates in Kosovo under the mandate of United Nations Security Council Resolution 1244 with the task of ensuring a secure environment and freedom of movement for all communities in Kosovo. His presence indicates that much remains to be done to create the conditions of irreversible stability capable of guaranteeing a better future for all Kosovars. In 1999, the mission comprised approximately 50,000 men and women from NATO member countries, partners and non-partners, under unified command and control. KFOR’s initial goals were to deter new hostilities, create a stable environment, ensure public order and security, demilitarize the Kosovo Liberation Army, support international humanitarian efforts, and coordinate with the international civilian presence. Since then, the situation has been marked by moments of significant progress in achieving safety and stability standards, but also by moments of great tension and standoffs. Improving the security environment made it possible to reduce the troop strength, first to 26,000 units, then to 17,500 in 2003.
But there were also moments of crisis…
However, in March 2004 there was a setback on the road to a stable, multi-ethnic and democratic Kosovo when renewed violence between Albanians and Serbs erupted. At the time, KFOR units were under attack and another 2,500 troops were quickly deployed to reinforce the mission’s units. As a result of diplomatic efforts and continuous work on the ground, the security situation continued to improve, despite further tense situations, until June 2009, when NATO defense ministers decided to gradually adjust the position of KFOR forces to the current situation, defined as a “deterrent presence”.
What is meant by “deterrent presence”?
That NATO will continue to reduce the number of ground forces as appropriate and based on the unfolding of events over time, while the remaining forces in the theater of operations will increasingly need intelligence and flexibility. Today the mission has about 3,800 units. It should also be noted that the gradual reduction in the number of KFOR troops was also made possible by the advances of local security institutions and organizations, which were gradually given many responsibilities. While the core of the mandate has never changed (namely, ensuring freedom of movement and security for all communities in Kosovo), the Mission’s structure has also changed over time.
As?
Many of the activities carried out in the last decade concern support for local administration and reconstruction, according to a multidisciplinary approach and in harmony with all international actors in this field: International Organizations (EU, UN, NATO, Eulex, etc.). In the face of these changes, the general obligation to promote the development of a stable, peaceful and self-sufficient region remains unchanged. Since the mission began, KFOR has worked in full transparency, in accordance with the resolution and with impartiality in relations with the different ethnic groups in Kosovo. In this context, however, NATO will continue to promote stability, security and cooperation in the region; Indeed, NATO’s New Strategic Concept, adopted in Madrid in 2022, reaffirms the importance of the Atlantic Alliance’s presence in the Western Balkans. However, it is useful to emphasize that any change in the presence of KFOR is based solely on specific parameters and conditions to be achieved and not on a pre-established schedule. As mentioned above, the recent crises and their associated risks still demonstrate the importance of our posture and our presence, which means that much remains to be done to create the conditions for irreversible stability.
Tensions between the Serb and Albanian populations are regularly revived. Is there a real escalation?
The events of the last few months, the unilateral actions of the parties, the functional rhetoric designed solely to catalyze internal audiences and disperse dialogue, the inability to find win-win solutions, the risk of miscalculations and misunderstandings in a moment in which tensions are amplified by biased narrative, they do not allow a scenario to be ruled out a priori.
What is your personal opinion?
As a soldier, it is personally important to me to prepare my units for the worst possible case. However, I firmly believe that an armed confrontation is not really in the will and interests of the parties. The recent agreements in Brussels and Ohrid bode well, and the international community’s constant calls to seize this opportunity to reach converging positions on the basis of normalizing relations demonstrate the negotiators’ clear will to decisively advance the dialogue. As commander of KFOR, I have repeatedly urged the parties to show restraint and a constructive approach, to refrain from provocative violent demonstrations and to seek solutions based on peaceful negotiations.
Which areas are most at risk?
As the situation in the northern part of Kosovo has repeatedly reached high alert levels in recent months, KFOR has focused its efforts on this area. In the rest of Kosovo, however, the situation remained calm. That’s not to say the overall effort has changed priorities. Our attention is on the whole area and in accordance with the mandate established by UN Security Council Resolution 1244 of 1999.
How is the situation now?
In summary, the current situation in the theater of operations can be described as calm, but at the same time extremely fragile, volatile and unpredictable. As tensions rise, there will be growing uncertainty among the population and with it the risk that a single incident could worsen security conditions on the ground and jeopardize the results achieved over the years. The ability to intervene impartially and transparently is and remains a priority for KFOR in order to create the conditions for the development, consolidation and progress of the Belgrade-Pristina dialogue. For this reason, KFOR remains vigilant and continues to monitor the situation, continuously adapting its stance as the situation in the region evolves.
Does the war in Ukraine change the balance in Kosovo in any way?
The war in Ukraine changed the world balance and affected all of Europe. In this situation, Kosovo, due to its geographical position, the historical path it has taken and the dense web of international relations that exist in this area, is exposed to the influence of everything that happens on the fringes of the continent. The region has always been subject to intense geopolitical competition, converging efforts and divergent interests. However, past and recent tensions stem from various local factors rather than the war in Ukraine. As Secretary General Jens Stoltenberg has stated on several occasions, NATO has long urged Russia to play a constructive role in the Western Balkans; although the opposite seems to happen regularly. As Europe faces its worst crisis in decades over the conflict in Ukraine, it is all the more important that Belgrade and Pristina work together in good faith and find a mutual agreement that will guarantee the stability of the region.
Last November, some intelligence reports spoke of the presence of the Wagner Brigade on the Serbia-Kosovo border. It really is like that?
In reality, we have no evidence of such presences, although local media and partisan reports constantly mention them, often attributing their affiliation to the Russia-Ukraine conflict. We closely follow any evolution of the situation, being especially careful not to exclude dangerous weak signals that could be important for deciphering unforeseen developments in terms of security, stability and freedom of movement. In addition, we consider essential the coordination with local institutions and in particular with the Police of Kosovo, which bears the responsibility for the application of the law and thus for the performance of the functions related to law enforcement and the implementation of the rule of law. For this reason, the military of KFOR and the Carabinieri of the Specialized Multinational Unit (MSU) are present in the area, developing patrol activities aimed at demonstrating our presence, expressing deterrence and intervening where necessary when the situation requires it, while continuing monitor the information environment and maintain continuous liaison with other international organizations whose responsibilities complement ours.
China sent missiles to Serbia. How do you read this step?
I recently met with the Serbian Defense Chief of Staff, with whom I regularly and continuously exchange information to de-escalate, prevent potential problems and counteract disinformation. I can safely say that there is solid cooperation between the respective armed forces and that even in moments of greatest tension there has never been a conflict. All played their role in relation to each other’s functions and with the aim of preventing the situation from escalating. Serbia is a NATO partner country. The cooperation built up over the past decades is tailored to the needs and requirements of the mission and brings benefits to both sides. NATO respects the stance of Serbia, a sovereign state that legitimately acquires weapon species with full autonomy.
Why is the Balkans so important for our country?
Italy has always participated in all peacekeeping missions in the Balkans since the beginning and has played a leading role where it has deployed its forces. This presence has always been appreciated for the quality and professional level of the commitment made. Contemporary history has taught us how closely our security is linked to that of this region, especially at a time like the current one, when we also have to respond to a dramatic crisis that has hit the old continent by working towards the stability of the continent contribute rest of Europe. This consideration is especially relevant now that we are dealing with a hyper-connected, hyper-competitive, hyper-congested, volatile, uncertain and ambiguous geopolitical context in which the consequences of events occurring in a given area project their impact in space and time with a unpredictable logic. Since 1999, Italy has been at the forefront in Kosovo. The augmentation of our armed forces with the assumption of command of the NATO mission is part of a commitment that characterizes the national interest in an area of intense geopolitical competition, where peace and stability play a determinant role in the international balance. Currently, through the coordination of the Joint Operational Command (COVI), the Italian contingent represents the largest contributor among the 27 countries that make up the Kosovo Force. As the 13th Italian commander of the 27 national teams that have succeeded one another since the mission began, I feel responsible for this mission, especially in a complex situation that represents an unprecedented moment in contemporary history. As explained by our Defense Minister Guido Crosetto, KFOR and the Italian contingent manage to engage in dialogue with the Albanian people and the Serbian community in the same way, to be respected by both sides and to improve mediation and relationship skills, that they have always had. Characteristics of the values that characterize our civilization and our country. Thanks to the work of our military all these years, Italy is accepted as a peacemaker and mediator between all communities living in Kosovo.
In recent years, several reports of the jihadist threat in Kosovo have raised alarm. Is it a real danger?
Terrorism is a global threat and no nation can consider itself immune. Contrasting and repressing these activities falls within the responsibilities of the local authorities, and in particular the Kosovo Police, which is effective in countering the radicalization of highly impressionable individuals. The secret service of Kosovo itself plays a leading role in this area. The Kosovo judiciary is also currently examining various measures to increase the penalties for those guilty of crimes related to international terrorism and the like. As far as KFOR is concerned, I believe that acting to protect the security of our contingents is a priority, and we are very cautious in assessing and responding to all forms of threats, including those related to religious extremism.
Last month, an agreement between Belgrade and Pristina within the year aimed at normalizing relations between the two countries was discussed. Do you actually see this possibility?
The peace process is going through a delicate phase, which focuses on dialogue between the parties, particularly at the political and diplomatic level. Efforts are aimed at finding an agreement that satisfies both parties; Intent confronting a past marked by significant differences of opinion and interests between them. The international community invests an enormous amount of resources in this process and undertakes mediation to achieve normalization of relations between Serbia and Kosovo through the European Union’s High Representative for Foreign Affairs and Security Policy, Josep Borrell, and the Special Envoy for the dialogue between Belgrade and Pristina, Miroslav Lajčák. US support in this regard is significant. The last meeting, held on March 18 in Ohrid (Northern Macedonia), although not signed, committed the parties to normalizing their relations and sticking to the agreements already reached in the past, where there are numerous standoffs. The population needs normality. No growth without security and stability. These two pillars constitute the necessary conditions for development. The recognition of the commitments made only opens brighter horizons for all the communities concerned. I am convinced that it is in the interests of Belgrade and Pristina to turn the challenge of diversity into an opportunity that only dialogue can provide. I think it’s unlikely that their respective leaderships failed to understand the importance of this. I want to be optimistic and you must be. In this context, KFOR will continue to exercise its role as a security provider within the framework of competence and legitimacy defined by UN Security Council Resolution 1244 of 1999.