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For over four years following the breakup of Yugoslavia and the onset of war, first in Croatia and then in Bosnia, the United States refused to take the lead in trying to end the violence and conflict. One notable exception is Richard Holbrooke, who recounts his own crucial contribution to the negotiation of the Dayton Peace Accords in his book To End a War. It was on the basis of that decision that Holbrooke subsequently undertook his negotiating effort. Why, when numerous previous attempts to get involved in Bosnia were half-hearted in execution and ended in failure?
The answer is complex, involving explanations at two different levels. It was clear that events on the ground and decisions in allied capitals as well as on the Capitol Hill were forcing the administration to seek an alternative to muddling through.
Second, at the level of the policy-making process, the president encouraged his national security adviser and staff to develop a far-reaching and integrated strategy for Bosni a that abandoned the incremental approach of past efforts. This process produced agreement on a bold new strategy designed to bring the Bosnia issue to a head in , before presidential election politics would have a chance to intervene and instill a tendency to avoid the kind of risk-taking behavior necessary to resolve the Bosnia issue.
Based on new extensive research, including numerous interviews with key participants, it is now possible to begin filling in some of the critical details on how the administration arrived at its decision in August That shift stemmed from a decision, reached by the Bosnian Serb leadership in early March, that the fourth year of the war would be its last.
