The operation would be modeled on a largely forgotten initiative in the Yugoslav wars -- the UN transitional administration in Eastern Slavonia, a Serb-held region of eastern Croatia. A force of 5,000 blue helmets secured the area and the border with Serbia, an election was organized, a managed transition to Croatian control followed -- all in the space of two years from 1996 to 1998. The region retained a soft border with Serbia; thousands of refugees returned to their homes, although some residents of eastern Slavonia moved to Serbia as UNTAES wrapped up. [...]
Gowan's proposals for eastern Ukraine are based on a simple logic. The Minsk agreements require a local election before Russia restores control of the border to Ukraine. Elections won't take place without an external catalyst and wouldn't be fairly conducted without international administration and policing. Ergo, something close to a full international takeover of eastern Ukraine is desirable. It's also the only way to alleviate Russian President Vladimir Putin's stated concerns for the safety of the pro-Russian population if Ukrainians were allowed to re-establish control, a risk that Gowan acknowledges. The international administration would also serve as a buffer for non-combatants who have worked for the "people's republics" -- such as teachers or public servants -- to transition to a peaceful life in which they aren't persecuted by a vindictive Ukrainian government. [...]
"In peacekeeping as in war, no plan survives first contact with reality," Gowan concedes. It's important, however, to start with a clear understanding of the strategic political goals and then fit the means to them, and Gowan does just that. His proposal gives the Kremlin a way to end the conflict without surrendering the rebels to Kiev's vengeance and to maintain cultural and economic times with eastern Ukraine; and it provides the Kiev government with a way to getting its territories back and the border with Russia under its control again.
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