New York, Wednesday, October 14, 1998

The New York Times

SAVING LIVES IN KOSOVO

Peace and reconciliation are not coming to Kosovo, but at least the displacement and killing of civilians may abate under an agreement reached with Slobodan Milosevic. The deal, arranged by Richard Holbrooke, the American envoy, can save lives if it is vigorously enforced by the United States and its European allies.

Faced with the threat of NATO air strikes, Mr. Milosevic agreed to observe a cease-fire, withdraw many of his brutal special forces from Kosovo and allow unarmed observes and NATO overflights to monitor the agreement. If honored by Serbian forces, which will be difficult to assure, these steps can allow tens of thousands of ethnic Albanians now hiding in the forests and hills to return to their villages. With Serbian guns silent, international agencies can provide food and other aid desperately needed as winter approaches.

That was Washington's main objective, and the justification for authorizing NATO military action if Mr. Milosevic persisted with his terror campaign in Kosovo. Achieving that goal without bombing would be a diplomatic victory.

Mr. Milosevic has often broken his commitments. In this case, his assent to NATO monitoring flights over Serbia can help provide the means for early detection and swift retaliation for any Serbian violations of the accord. The murderous police forces that he will be permitted to keep in Kosovo must not be allowed to leave their barracks. In the absence of intermediate mechanisms to enforce the accord, NATO must remain ready to conduct air strikes if Mr. Milosevic breaks the agreement.

NATO vigilance will also be required because the 2,000 ground observers assembled to check Serbian compliance will be provided by the Organization for Security and Cooperation in Europe. The group, which includes nearly all European countries, lacks the unity and spine to deal effectively with the Serbs, and commands no military forces. It is also regrettable that Mr. Milosevic refuses to recognize the jurisdiction of the war crimes tribunal seeking to investigate possible crimes by Serbian forces, which could deter further atrocities.

The Holbrooke agreement rightly does not try to settle the question of Kosovo's political future, which will require complex negotiations. Washington and its allies will need to find ways short of military action to press Mr. Milosevic to restore the large degree of autonomy the province enjoyed before his assault on its people began in 1989.

Mr. Milosevic is incorrigible, and Washington has gained only a respite from his abuse and atrocities. Even as he retreats in Kosovo, his men have threatened the lives of independent journalists, scholars and politicians in Serbia who question his autocratic rule. But the killing and intimidation may stop in Kosovo - at least for now.