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2 Rusland werkte niet mee in de OVSE Edwin Bakker en Bert Bomert Het Nederlandse voorzitterschap van de OVSE heeft een teleurstellend slot gekregen. Voor Jaap de Hoop Scheffer betekende dit een enigszins teleurstellend einde van zijn ministerschap. Toch wordt het Nederlands voorzitterschap over het algemeen als geslaagd gezien, mede gelet op het feit dat Nederland de voorzittershamer overnam in een voor de OVSE moeilijke periode. Begin december 2003 vond in Maastricht de jaarlijkse bijeenkomst plaats van de ministers van Buitenlandse Zaken van de 55 landen die bij de Organisatie voor Veiligheid en Samenwerking in Europa (OVSE) zijn aangesloten. De OVSE is 's werelds grootste regionale veiligheidsorganisatie die van Vancouver tot Vladivostok actief is op politiek-militair terrein, op economisch gebied en op het terrein van de rechten van de mens, democratisering, de ontwikkeling van de rechtsstaat en het milieu. De bijeenkomst in Maastricht was vooral vanwege de negatieve houding van Rusland die de totstandkoming van een slotverklaring blokkeerde, niet bepaald een groot succes te noemen. Russische onvrede Een van de kernproblemen van de huidige OVSE is dat haar positie in het internationale krachtenveld veranderd is. Was zij in de jaren zeventig en tachtig nog het uitgelezen forum om Oost en West in dialoog met elkaar te brengen, meer dan tien jaar na de val van de Muur is de OVSE niet meer de enige of de meest voor de hand liggende ontmoetingsplaats. Zowel de NAVO als de Europese Unie hebben hun vleugels oostwaarts geslagen en activiteiten ontplooid die de OVSE tot haar taken rekende. In het verleden beschouwde Rusland de OVSE als hét forum voor contacten met het Westen, maar door de verbetering van de betrekkingen met de Verenigde Staten en de NAVO is het belang van de OVSE voor Rusland afgenomen. Rusland is bovendien in steeds sterkere mate ontevreden over het reilen en zeilen van de OVSE. De Russen hebben herhaaldelijk hun beklag gedaan over de vermeende onevenwichtigheid in de OVSE-activiteiten: de organisatie is bijna uitsluitend actief in het voormalige communistische deel van de OVSE-regio, in het bijzonder in het 'nabije buitenland' van Rusland, en de OVSE heeft een te eenzijdige aandacht voor de rechten van de mens, democratisering en de ontwikkeling van de rechtsstaat. Daarnaast dringt Moskou aan op een formalisering van procedures, met name met betrekking tot de Permanente Raad (het hoogste
3 besluitvormende orgaan) en de aansturing van de OVSE-missies in het veld. Nederlandse prioriteiten Voor het Nederlands voorzitterschap stelde De Hoop Scheffer een prioriteitenlijstje op, dat tot op zekere hoogte als een erkenning van en tegemoetkoming aan de Russische gevoelens van onvrede kan worden gezien. Zo wordt gesproken over de noodzaak van een geografische herschikking van activiteiten en een meer evenwichtig takenpakket van veldmissies. Ook wordt gewezen op de noodzakelijk geachte versterking van de politieke aansturing van de missies. Dit kan deels worden gelezen als een tegemoetkoming aan de (Russische) kritiek dat OVSE-vertegenwoordigers in het veld te vaak meningen ventileren die niet noodzakelijkerwijze de formele opvattingen van de OVSE zijn. Een tweede prioriteit wordt gezocht in een accent op crisisbeheersing en - preventie, en in dat kader het mogelijk bereiken van een doorbraak in ten minste één van de frozen conflicts, waarbij in het bijzonder aan Moldavië werd gedacht. Wat betreft deze tweede prioriteit werd terecht geconstateerd dat, gezien de locatie van frozen conflicts in het 'nabije buitenland' van Rusland, intensief contact met Moskou noodzakelijk zou zijn. Ook inzake de derde prioriteit, het aanbrengen van meer evenwicht tussen de verschillende veiligheidsdimensies - zonder overigens de taken op het gebied van de mensenrechten en de ontwikkeling van een rechtsstaat te laten verslappen - zou een goede relatie met Moskou wenselijk zijn. Relatie met Rusland Omdat samenwerking met Rusland van groot belang werd geacht, wekt het geen verbazing dat De Hoop Scheffer al snel na zijn aantreden als voorzitter een bezoek aan Moskou bracht. Ook gedurende de rest van het jaar investeerde hij in goede contacten met zijn Russische collega, Igor Ivanov. De OVSE, in de persoon van haar Nederlandse voorzitter, mocht dan goede betrekkingen met Moskou van groot belang achten, Rusland op zijn beurt leek de OVSE een minder warm hart toe te dragen. Zowel aan het begin als het einde van het jaar deinsde Rusland er niet voor terug de organisatie en haar voorzitter voor het hoofd te stoten of zelfs te schofferen. Door Russisch dwarsliggen was het eind 2002 al niet mogelijk gebleken het mandaat van de OVSE-missie in Tsjetsjenië na 1 januari 2003 te verlengen. Dat Moskou de grenzen sloot van deze opstandige republiek
4 voor de OVSE-vertegenwoordiging was een tegenslag voor de nieuwe voorzitter. In 2003 leek Moldavië het frozen conflict te worden waarin de OVSE onder Nederlands voorzitterschap een voorzichtige dooi, wellicht resulterend in een echte doorbraak, zou kunnen bereiken. In twee kwesties die in Moldavië spelen - de eerder afgesproken terugtrekking van Russisch militair materieel en de constitutionele positie van de pro-russische regio Transdnestrië - was de stem van Moskou cruciaal. Dankzij de niet aflatende inzet van De Hoop Scheffer en zijn Speciale Vertegenwoordiger, de Nederlandse topdiplomaat Jacobovits de Szeged, leken de verschillende partijen bereid aan de onderhandelingstafel plaats te nemen en een politiek compromis te sluiten. In het najaar werd al voorzichtig gespeculeerd over de stationering van een door de OVSE gemandateerde multilaterale vredesmacht, bestaande uit waarnemers en troepen uit de Europese Unie, Rusland en andere landen. Nog begin november bezocht De Hoop Scheffer Rusland, in de hoop de laatste rimpels glad te kunnen strijken. Tot verrassing van velen kwam Rusland aan de vooravond van de OVSEtop in Maastricht met een eigen 'oplossing' voor Moldavië. De OVSE, evenals de Verenigde Staten en de Europese Unie die bij de onderhandelingen waren betrokken, waren niet blij met Moskou's Alleingang; ook waren zij niet bereid de Russische voorstellen te accepteren. Rusland op zijn beurt weigerde vervolgens tijdens de bijeenkomst in Maastricht een gezamenlijke OVSE-verklaring over Moldavië te onderschrijven. Maar ook bij andere in Maastricht besproken kwesties lag Rusland dwars. De Russische delegatie weigerde hardnekkig akkoord te gaan met steunbetuigingen aan de onafhankelijkheid en de territoriale integriteit van Georgië en Moldavië. Ook verzette zij zich tegen de oproep om, conform eerder gemaakte afspraken, Russische troepen zo snel mogelijk uit beide landen terug te trekken. De weinig coöperatieve houding van Rusland verhinderde de totstandkoming van een slotverklaring en maakte pijnlijk duidelijk dat de investeringen van het Nederlandse voorzitterschap in goede relaties met Rusland en het pogen tegemoet te komen aan Russische onvrede met betrekking tot de OVSE zich in het geheel niet terugbetaalden. Dit lijkt overigens met name voor Rusland een probleem te zijn. In Maastricht stond het alleen in zijn obstructie en het Nederlands voorzitterschap - met de VS en de EU achter zich - is niet voor de Russische druk bezweken.
5 Edwin Bakker is verbonden aan het Nederlands Instituut voor Internationale Betrekkingen 'Clingendael'. Bert Bomert is hoofd van het Centrum voor Internationaal Conflict - Analyse & Management (CICAM) van de KU Nijmegen.
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Nadere informatieDe OVSE aan de vooravond van het Nederlands voorzitterschap
De OVSE aan de vooravond van het Nederlands voorzitterschap EDWIN BAKKER, BERT BOMERT & IGE DEKKER De Organisatie voor Veiligheid en Samenwerking in Europa (OVSE) is een bij het grote publiek relatief
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