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Daytonatdeath’sdoor,ChristopherBennett
Opinion&Analysis
21
designedtopreparecountriesforaccessionarenotconflict-resolutiontoolsand
theshortcomingsofthisapproachwereimmediatelyevident.
AslongastheOHRmaintainedafirmhandonthepeaceprocessanddrove
throughreforms,itwaspossibletomakeitappearasifBosniaandHerzegovina
wasmakingprogress.However,thescaleoftheinternationalinvolvementand
thepressurebroughttobearonalmosteverymatterweresoenormousthatthey
maskedthetruestateofaffairs.Sincetheinternationalcommunity’soverriding
aimhadbeentodevelopself-sustaininginstitutionscapableoftakingBiHfrom
theueraofDayton”totheueraofBrussels”
,theultimatetestofthepeaceprocess
wastheabilityofthoseinstitutionstofunctionintheabsenceofinternationalin-
tervention.Whentheywereputtothetestinthecourseof2006and2007,they
werefoundwanting.
TetestcamesoonafterLordAshdownsteppeddownattheendofJanuary
2006tobesucceededbyChristianSchwarz-Schilling.Schwarz-Schillingcameinto
officecommittedtooverseeingatransfertolocalownershipofthepeaceprocess.
TiswastoberealisedbyclosingtheOHRandrestructuringtheinternational
presenceinfavourofareinforcedEUmissiontosupportBosniaandHerzegovina’s
furtherrecoveryandguideittowardseventualmembershipoftheEuropeanUn-
ion.Asthepoliticalclimatedeterioratedanditbecameclearthatthispolicywas
failing,Schwarz-SchillingchangedcourseandpersuadedthePeaceImplementa-
tionCouncil,thegroupofcountriesandinternationalinstitutionsoverseeingthe
peaceprocess,tokeeptheOHRopen.Despitethis,therewasnoreturntothe
upushofDayton”
.TeHighRepresentative’sexecutivepowerswereretainedonly
asaninsurancepolicy.
Terewereatleastthreereasonsforthis.TeCouncilwasdividedandthere-
foreunpreparedtoprovidethekindofsupporttheHighRepresentativerequired.
Whatwaspossibletoachievebyusingexecutivepowershad,inanycase,already
largelybeenachieved.Tejustificationforusingexecutivepowers,whichwerees-
sentiallyanemergency,post-warmeasure,becameincreasinglyquestionablewith
thepassageoftime.Indeed,theCouncilofEurope’sVeniceCommissionhadpub-
lishedinMarch2005ananalysisoftheBosnianconstitutionandthepowersofthe
HighRepresentative,drawingalinkbetweenthegradualphasingoutoftheHigh
Representative’sexecutivepowersandaparallelprocessofconstitutionalreform.
Challengingthestatusquo
AUSnon-governmentalorganisationdidattempttoputtogetheraconstitu-
tionalreformprocess,whichwaslatertakenoverbytheUSembassy.Moreover,
