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April 10, 2026

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"Dayton shook the leadership elite of post-Cold War Europe. The Europeans were grateful to the United States for the leading the effort that finally ended the war in Bosnia, but some European officials were embarrassed that American involvement had been necessary. Jacque Poos's 1991 assertion that Europe's "hour had dawned" lay in history's dustbin, alongside James Baker's view that we had no dog in that fight. "One cannot call it an American peace", French Foreign Minister de Charette told the press, "even if President Clinton and the Americans have tried to pull the blanket over to their side. The fact is that the Americans looked at this affair in ex-Yugoslavia from a great distance for nearly four years and basically blocked the progression of things." But de Charette also acknowledged that "Europe as such was not present, and this, it is true, was a failure of the European Union." Prime Minister Alain Juppé, after praising the Dayton agreement, could not resist adding, "Of course, it resembles like a twin the European plan we presented eighteen months ago" - when he was Foreign Minister. Agence France-Presse reported that many European diplomats were "left smarting" at Dayton. In an article clearly inspired by someone at the French Foreign Ministry, Le Figaro said that "Richard Holbrooke, the American mediator, did not leave his European colleagues with good memories from the air base at Dayton." They quoted an unnamed French diplomat as saying, "He flatters, he lies, he humiliates: he is a sort of brutal and schizophrenic Mazarin." President Chirac's national security assistant, Jean-David Levitte, called to apologize for this comment, saying it did not represent the views of his boss. I replied that such minidramas were inevitable given the pressures and frustrations we faced at Dayton and were inconsequential considering that the war was over."

- Richard Holbrooke

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"There was also a real Dayton out there, a charming small Ohio city, famous as the birthplace of the Wright Brothers. Its citizens energized us from the outset. Unlike the population of, say, New York, Geneva or Washington, which would scarcely notice another conference, Daytonians were proud to be part of history. Large signs at the commercial airport hailed Dayton as the "temporary center of international peace". The local newspapers and television stations covered the story from every angle, drawing the people deeper into the proceedings. When we ventured into a restaurant or a shopping center downtown, people crowded around, saying that they were praying for us. Warren Christopher was given at least one standing ovation in a restaurant. Families on the air base placed "candles of peace" in their front windows, and people gathered in peace vigils outside the base. One day they formed a "peace chain", although it was not large enough to surround the sprawling eight-thousand-acre base. Ohio's famous ethnic diversity was only on display. We did everything possible to emphasize the fact that in the American heartland people from every part of southeastern Europe lived together in peace, their competition restricted to softball games, church rivalries, and the occasional barroom fight. (...)"

- Richard Holbrooke

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"The fighting in western Bosnia intensified as the cease-fire approached. (...) Facing the end of the fighting, the Croats and the Bosnians finally buried their differences, if only momentarily, and took Sanski Most and several other smaller towns. But Prijedor still eluded them. For reasons we never fully understood, they did not capture this important town, a famous symbol of ethnic cleansing.* (*In March 1997, I attended a showing at the Council on Foreign Relations in New York of a powerful documentary film, Calling the ghosts, that recounted the brutal treatment two Bosnian women from Prijedor had suffered during their incarceration at the notorious Omarska prison camp. Following the film, the two women angrily asked me why they were still unable to return to their hometown. I told them we'd repeatedly encouraged an assault on Prijedor. They were astonished; they said General Dudakovic, the Bosnian commander, had told them personally that "Holbrooke would not let us capture Prijedor and Bosanski Novi". I subsequently learned that this story was widely believed in the region. This revisionism was not surprising; it absolved Dudakovic and his associates of responsibility for the failure to take Prijedor. I suspect the truth is that after the disaster at the Una River the Croatians did not want to fight for a town the would have to turn over to the Muslims - and the Bosnians could not capture it unaided."

- Richard Holbrooke

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"Shattuck and I were particularly concerned with the activities of Zeljko Raznatovic, popularly known as Arkan, one of the most notorious men in the Balkans. Even in former Yugoslavia, Arkan was something special, a freelance murderer who roamed across Bosnia and eastern Slavonia with his black-shirted men, terrorizing Muslims and Croats. To the rest of the world Arkan was a racist fanatic run amok, but many Serbs regarded him as a hero. His private army, the Tigers, had committed some of the war's worst atrocities, carrying out summary executions and virtually inventing ethnic cleansing in 1991-92. Western intelligence was convinced he worked, or had worked, for the Yugoslav secret police. (...) Although the [Hague ICTY] Tribunal had handed down over fifty indictments by October 1995, these did not include Arkan. I pressed Goldstone Richard Goldstone, ICTY president] on this matter several times, but because a strict wall separated the tribunal's internal deliberations from the American government, he would not tell us why Arkan had not been indicted. This was especially puzzling given Goldstone's stature and his public criticisms of the international peacekeeping forces for not arresting any of the indicted war criminals. Whenever I mentioned Arkan's name to Milosevic, he seemed annoyed. He did not mind criticism of Karadzic or Mladic, but Arkan - who lived in Belgrade, ran a popular restaurant, and was married to a rock star - was a different matter. Milosevic dismissed Arkan as a "peanut issue", and claimed he had no influence over him. But Arkan's activities in western Bosnia decreased immediately after my complaints. This was hardly a victory, however, because Arkan at large remained a dangerous force and a powerful signal that one could still get away with murder - literally - in Bosnia."

- Richard Holbrooke

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"The situation also gave U.N. Secretary-General Boutros-Ghali a chance to start the U.N.'s disegagement from Bosnia, something he had long wanted to do. After a few meetings with him, I concluded that this elegant and subtle Egyptian, whose Coptic family could trace its origins back over centuries, had disdain for the fractious and dirty peoples of the Balkans. Put bluntly, he never liked the place. In 1992, during his only visit to Sarajevo, he made the comment that shocked the journalists on the day I arrived in the beleaguered capital: "Bosnia is a rich man's war. I understand your frustration, but you have a situation here that is better than ten other places in the world. … I can give you a list." He complained many times that Bosnia was eating up his budget, diverting him from other priorities, and threatening the whole U.N. system. "Bosnia has created a distortion in the work of the U.N.", he said just before Srebrenica. Sensing that our diplomatic efforts offered an opportunity to disengage, he informed the Security Council on September 18 that he would be ready to end the U.N. role in the former Yugoslavia, and allow all key aspects of implementation to be placed with others. Two days later, he told Madeleine Albright that the Contact Group should create its own mechanism for implementation - thus volunteering to reduce the U.N.'s role at a critical moment. Ironically, his weakness simplified our task considerably."

- Richard Holbrooke

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"Months later, Roger Cohen would write in The New York Times that preventing an attack on Banja Luka was "an act of consummate Realpolitik" on our part, since letting the Federation [of Bosnia-Herzegovina] take the city would have "derailed" the peace process. Cohen, one of the most knowledgeable journalists to cover the was, misunderstood our motives in opposing an attack on Banja Luka. A true practitioner of Realpolitik would have encouraged the attack regardless of its human consequences. In fact, humanitarian concerns decided the case for me. Given the harsh behavior of Federation troops during the offensive, it seemed certain that the fall of Banja Luka would lead to forced evictions and random murders. I did not think the United States should contribute to the creation of new refugees and more human suffering in order to take a city that would have to be returned later. Revenge might be a central part of the ethos of the Balkans, but American policy could not be party of it. Our responsibility was to implement the American national interest, as best as we could determine it. But I am no longer certain we were right to oppose an attack on Banja Luka. Had we known then that the Bosnian Serbs would have been able to defy or ignore so many of the key political provisions of the peace agreement in 1996 and 1997, the negotiating team might not have opposed such an attack. However, even with American encouragement, it is by no means certain that an attack would have taken place - or, if it had, that it would have been successful. Tuđman would have had to carry the burden of the attack, and the Serb lines were already stiffening. The Croatian Army had just taken heavy casualties on the Sarva. Furthermore, if it fell, Banja Luka would either have gone to the Muslims or been returned later to the Serbs, thus making it of dubious value to Tuđman. There was another intriguing factor in the equation - one of the few things that Milošević and Izetbegović had agreed on. Banja Luka, they both said, was the center of moderate, anti-Pale sentiment within the Bosnian Serb community, and should be built up in importance as a center of opposition to Pale. Izetbegovic himself was ambivalent about taking the city, and feared that if it fell, it would only add to Croat-Bosnian tensions."

- Richard Holbrooke

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