While they are more than 1,600 kilometers apart and vastly different in size, Kosovo and Ukraine share a common struggle over sovereignty -- one still reeling from war 26 years ago, the other fighting to preserve its territorial integrity against Russia.
As discussions continue about what a peacekeeping force might look like in Ukraine, Kosovo’s quarter-century of experience with international peacekeepers could provide valuable insights -- should a cease-fire be reached in the full-scale war Russia launched in 2022.
Ivan Vejvoda, a senior fellow at the Institute for Human Sciences in Vienna, said that any peacekeeping mission in Ukraine must involve all parties.
“All stakeholders should be on board, of course, the aggressor, Russia, the country that was invaded, Ukraine, the European Union, the United States, NATO," Vejvoda told RFE/RL. "So, there are a lot of pieces to the puzzle for a successful peacekeeping mission.”
“What can be learned is the need to strengthen the foundations of peace and show political willingness. But, of course, on fair terms -- especially for Ukraine, a sovereign European country that was invaded for no reason by its nuclear-armed neighbor, Russia,” Vejvoda said.
Keeping The Peace In Kosovo
NATO’s peacekeeping mission in Kosovo, known as KFOR, was deployed in June 1999 under NATO's command, following the alliance's bombing of the Federal Republic of Yugoslavia.
NATO launched the military campaign to end the humanitarian crisis and ethnic cleansing of Kosovo's ethnic Albanian population by Yugoslav forces led by authoritarian leader Slobodan Milosevic.
In the wake of the bombing campaign and years of fighting between the Kosovo Liberation Army (UCK) and Serbian security forces, the peacekeeping mission’s objectives were to maintain security, ensure freedom of movement, and support the establishment of a stable, democratic, and multiethnic Kosovo.
KFOR operates under United Nations Security Council Resolution 1244, which authorized an international military presence in Kosovo after Serbian forces withdrew in 1999.
While NATO initially deployed around 50,000 troops to Kosovo, the current force is significantly smaller, with approximately 4,600 personnel from 27 contributing countries. Italy currently provides the most troops, with 1,258.
What Could A Peacekeeping Force In Ukraine Look Like?
European military chiefs are currently meeting in Paris to discuss what a potential deployment could look like. While the United States is at the forefront of efforts to end the conflict, Washington has consistently maintained that US troops will not be deployed on the ground.
The United Kingdom and France have expressed a willingness to contribute troops but have stressed the need for US guarantees before proceeding. Such a "backstop" could mean military support without sending troops, or economic and logistical support.
Russia, however, has rejected the idea of peacekeepers from European or NATO countries.
Several media outlets, including The New York Times, have reported on a 31-page proposal drafted by the Geneva Center for Security Policy, outlining what a cease-fire in Ukraine might look like.
The plan suggests establishing a 10-kilometer-wide buffer zone between the two armies, with 5,000 civilians and police officers patrolling the area.
According to the proposal, which was drafted in consultation with international cease-fire and mediation experts, around 10,000 foreign troops would be required to ensure security.
In January, Ukrainian President Volodymyr Zelenskyy said that. if a cease-fire deal were reached with Russia, at least 200,000 European peacekeepers would need to be deployed in Ukraine to prevent further Russian attacks.
"Otherwise," Zelenskyy said, "it’s pointless."
What Were KFOR's Main Challenges?
In 1999, Kosovo was not an independent state and lacked its own army. As Vejvoda said, a peacekeeping mission in Kosovo was then absolutely crucial because "things were not settled."
As a result, tensions often reached a breaking point -- such as during the 2004 riots, the largest ethnic clashes since the Kosovo War ended in 1999. The violence was sparked by false rumors that three ethnic Albanian children had drowned as a result of Serb actions.
The riots led to 19 deaths, including 11 Albanians and eight Serbs.
KFOR was considered to have failed to prevent and halt the large-scale violence.
“It was not widely publicized, but NATO troops were shooting at Albanians who were desecrating Serbian houses and churches,” Vejvoda recalls.
General Holdger Kammerhoff, who served as the commander of KFOR, said at that time that ''proportionate force'' would be used to ensure the troops' safety.
As Vejvoda said, this was a major learning experience for KFOR and its commanders, who realized that the challenges were far greater than they had initially anticipated when they arrived in Kosovo in 1999.
“I think they certainly rethought their strategy for maintaining peace and order,” Vejvoda said.
NATO troops also suffered badly in clashes that took place in May 2023 in Zvecan, a town in northern Kosovo. Tens of KFOR personnel were injured, some critically, in battles with Serbian protesters.
Dozens Injured Amid Clashes In Serb-Majority Town In Kosovo
On a trip to Kosovo on March 11, NATO Secretary-General Mark Rutte emphasized the alliance’s enduring commitment to its peacekeeping mission in Kosovo. He also urged leaders in Belgrade and Pristina to accelerate their dialogue, resolving outstanding issues and laying the groundwork for a lasting peace.
Speaking about a potential peacekeeping force in Ukraine, Rutte said that "One way to do that would be European troops in Ukraine. But there could be also other ways to do this."
"I think [US] President [Donald] Trump is right: before you can keep a peace, you need to have the peace. And the peace is not yet there," he added.
Kosovo declared independence from Serbia in 2008 and is recognized by 104 UN member states. After meeting with Rutte, the Kosovar President Vjosa Osmani said that the peacekeeping mission "demonstrates the triumph of democratic and peace-loving states when they stand united around the values of freedom and human dignity."
