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TheDisadvantagesandAdvantagesofAutonomyasASolutiontoIntrastate

Conflicts

Abstract

Autonomyhasbeenaworkablemethodwhendealingwithintrastateconflictsinthe

modernworld.Whilesomeautonomiessucceed,othersfailed.Theessayfirstlydefinesthe

conceptandroleofautonomy,withvariousinterpretationofscholars.Themainmissionof

theessayistodiscusstheadvantagesanddisadvantagesofautonomy,throughtwocase

studieswhichareBosniaWarandAutonomyofCrimea.Thoughbuildingautonomycould

temporarilyeasethetensionandofferstheopportunitiesforfurthernegotiation,itisnot

easytoforecastthefutureofautonomy.Inotherwords,dangerscouldunderlythefaceof

peace.Theessayproposessomekeyissuesthatneedtobeexaminedwhenestablishingan

autonomyintheend,andconcludesthatautonomyshouldbetreatedasthestartofanew

process,butnotmerelyasolutionofconflicts.

Introduction

FromBosniatoPalestine,fromSudantoIndonesia,secessionisminvariablybringabout

mercilessandbloodyconflicts.Nowadaysmostintrastateconflictsareovertheterritorial

organizationorpartitionofthestate.(DarbyandGinty,2008,p.242)Disputesamongthe
centralgovernmentandindependencerequiringminorities,sometimesinvolvinganother

foreigncountrydonotalwaysentailviolenceandcompletesecession.Asmanypolitical

scientistssuggest,autonomy,theflexiblesolutiontointernalconflicts,couldbeaworkable

andpeacefulcompromise.(Lapidoth,1997)

Theessaywilldiscusstheadvantagesanddisadvantagesofautonomy,byanalyzingtwo

casestudies:internalwarsofBosniaandtherecentdisputesamongCrimea,Ukraineand

Russia.Itarguesthatalthoughsettingupanautonomyisaworkableandeffectivemethod

toceaseviolenceandseekforfurtherdevelopmentintheshortterm;itis,meanwhile,a

dangerousandriskyexistencewhichmightacceleratesecessioninthelongrun.Itshouldbe

implementedcarefully,asthebeginningofanewprocess.Theconclusionsuggestsseveral

issuesthatmayincreasetheprospectsofautonomy.

Thefirstpartwillgivethedefinitionandconceptionsofautonomyinbothphilosophyand

politicalrange,anddemonstratesthemultiplereasonsthatleadtoarequestforautonomy.

Themostsalientreasonistheethnictension,whichincludesminoritiesandindigenous

peoplethathaveaffiliatewithforeigncountries.Otherreasonsofeconomicstructureor

rejectofinternationalizationalsocontributetothedemand.

Thesecondpartdiscussestheadvantagesanddisadvantagesofautonomy,throughthecase

studyofinternalwarsinBosniafrom1992.Thebloodywarinvolvedthreecountries,

experiencedethniccleansingandaltogether97,000peopledied.Itlastedforthreeyearsand

finallyendedupwiththeDaytonPeaceAgreementandarelativelysuccessfulautonomyof

RepublikaSrpska.TheRepublikaSrpskausedtobeamodelofautonomyafterwar,but

recentlyproblemsthatwereunderminedbytheoddpoliticalstructurejustemerge.
ThethirdpartisthecasestudyofthefailedautonomyCrimeainUkraine,andwherebythe

discussionofdisadvantagesofautonomy.CrimeahasbeentheautonomyofUkrainefor

halfacentury,butthepeopletherekeepastrongaffectiontowardRussiaFederation,and

Russiaalsohasitsselfinterest.Theautonomyislikeatimebomb,thatpromotesthe

secessionandbringsaboutthedominoeffectofindependentprotestsinUkraine.

Finally,theconclusionsuggeststhatpoliticiansandscholarsshouldnottakeautonomyas

merelyasolutionofconflicts,butmorethestartofatoughprocessofstatebuilding.

Itproposesseveralkeyissuesthatneedfurtherexaminationinbuildingamoredependable

autonomousentity.Althougheachautonomydiffers,certainfactorsshouldbecountedon

intheestablishment.

Part1TheConceptandRolesofAutonomy

1.1TheConceptofAutonomy

Thewordautonomy,etymologically,derivesfromtwoGreekwords:auto,whichmeans

self,andnomos,meaninglaworrule.Thus,theoriginalmeaningofthewordwastheright

tomakeonesownlawsandrules.(Taylor,2013)Today,theworddevelopsbroader

conceptions,inphilosophyandethicaltheory,aswellaspoliticalscienceandinternational

relations.

Fromphilosophyviews,autonomyisanagentwhichiscapableofchoosingwhattodo,

whetherhewilldoorrefrain.(DownieandTelfer,1971)Kantgavethemosttraditionaland
significantdefinitionthat,autonomywasarationalagentwiththecapacityforrationality

thatiscapableofestablishingreasonsforactingindependently.(LeBar,2005)Lateron

manyphilosophersdebateontheKantianinterpretation.Apartfromjusticeandfreedom,

Rawlsfocusesmoreonthecollectivechoiceandconditionsoftheworstgroupofpeople.

(Rawls,2005)StephenDarwallquestionsontheheteronomouschoicesofautonomy.

(Darwall,1976)

Asforpoliticalscience,althoughthereisindividualautonomy,itistakenasinstitutionalor

organizationalautonomy,forthatautonomyofthestateorthenationisthewombof

individualautonomyinasociety.(Lane,1981)IntherecenteditionofOxfordConcise

DictionaryofPolitics,definestheconceptasselfgovernment.Itdescribestherelationship

betweenindividualautonomyandinstitutionalautonomycomplicatedweneedto

distinguishcollectiveselfgovernmentofagroup,andtheselfdirectionofanindividual

memberofthatgroup.(OxfordConciseDictionaryofPolitics,2009)TheIsraelpolitical

scholarRothLapidothgaveamoreprecisedefinitionthat,autonomymeanstheorganic

independence,ortheconditionofaphenomenonconformingonlytoitsownlawsandnot

beingsubjecttohigherrules.(Lapidoth,1997)

Tosumup,autonomyhastwoaspects:individualandinstitutional.Individualautonomyisa

personwhocanactaccordingtohisowndirectionandfreedom;institutionalautonomyisan

entitythatcouldmakeitsownlaws,regulateitsownaffairs,andithasdifferentdegreesof

selfgovernance.Inthisessay,autonomyisseenasaninstitutionalone.

1.2TheRoleofAutonomyandReasonsofConflicts
Todaythemostinternalconflictsareovertheterritorialorganizationorpartitionofthe

state.Thehistory,legends,selfrule,jurisdiction,nationalsecurityandresourcesgivethe

landpoliticalandemotionalmeanings.(Ghai,2008)

Hence,autonomyhasitsuniquecharacteristicswhenmanagingtheterritorialconflicts.

First,itbringsnationstogetherinregionalassociationsandformsalargerpower,asthe

EuropeanUnion.Second,itmeetstherequirementsofapartythataskingforindependence

whilekeepsthestateintegrated,forexample,theComarcaKunaYalaAutonomyin

Panama.

Noteverymanofafreemindwouldaskforindependence,norgroupsunlessthereare

extremetensions.Manyreasonscontributetothedisputesandconflicts.Themostsalient

oneistheethnictension,whichincludesethnicminorities,indigenouspeopleandpeopleof

selfdetermination.

Accordingtotheexpertofinternationallaw,FrancescoCapotorti,aminorityisagroup

whichisnumericallyinferiortotherestofthepopulationofaStateandinanondominant

position,whosememberspossessethnic,religiousorlinguisticcharacteristicswhichdiffer

fromthoseoftherestofthepopulationandwho,ifonlyimplicitly,maintainasenseof

solidaritydirectedtowardspreservingtheirculture,traditions,religionor

language.(Lapidoth,1997)Althoughtherightsofminoritieswereputmoreemphasisin

manycountriesaftertheWorldWar,notallofthemareprotected,andcertainMinorities

stillsufferfromdiscrimination.

Anothersourceofsupportforautonomyistheriseofawarenesstoprotectindigenous

people.TheWorldHealthOrganizationhasdevelopedamodernunderstandingofthisterm

basedonthefollowing:selfidentificationasindigenouspeoplesattheindividualleveland
acceptedbythecommunityastheirmember;historicalcontinuitywithprecolonialand/or

presettlersocieties;astronglinktoterritoriesandsurroundingnaturalresources;distinct

social,economicorpoliticalsystems;distinctlanguage,cultureandbeliefs;formnon

dominantgroupsofsociety;resolvetomaintainandreproducetheirancestralenvironments

andsystemsasdistinctivepeoplesandcommunities.(TheWHO,2007)Sometimesthese

groupsdonottakethemselvesasminorities,forthattheirancestorsoriginallyinhabitedin

thelandwherethelatterbecomesthemajority.Therefore,theyclaimtherightsoftheir

ancestors landandemphasizetheirrightsforallthetraditionalsystem,resources,andthe

wayoflife.(Lapidoth,1997)

Thethirdimportantbutstillvaguecauseisthegrouppeopleofselfdetermination.Itis

enigmaticbecausethegroupoftenhasdisputeswhenchoosingtheirpreferredpolitical

system,forexample,someindigenouspeoplelivinginQuebecpreventthesecessionfrom

Canada.

Apartfromthethreemostsignificantreasonsofethnictensions,othersituationsalsocallfor

thebuildofautonomy.OneofsignificantexamplesistheautonomyHongKongandMacau

inChina.ThetwocitiesweregivenbackfromtheUnitedKingdomandPortugalrelatively,

inatotallydifferenteconomicsystemfrommainlandChina.GhaitooktheGreenlandand

Faroeastheotherexamples.ThetworegionsrejectedtojoinintotheEUwhileDenmark

wasnegotiating.Intherapidgrowthofinternationalization,noteachregioniswillingto

participateintothetrend.(Ghai,2008)

Toconclude,theincreasingconsciousnessofethnicprotectionandfreedomengendersthe

fightforindependence.Autonomythusactstheroleofmediationthatsatisfiesthose

demandswhilepreservetheintactofthewholestate.
Part2CaseStudy:BosniaandHerzegovinaFederationandtheRepublikaSrpska

2.1TheOverviewofBosniaWar

BosniaandHerzegovinaisapieceofvitallandintheBalkans,whereisfullofdisputesand

strugglesforalongtimeonthehistory.Thedestinyofthecountryistoplaythedifficult

roleofthemiddleareabetweenCatholicandOrthodoxcommunitiesaswellasbetweenthe

MuslimandChristianWorld.(Stipcevic,1998)Multiculturalandmultinationalidentities

arewellperformedinthiscountry.AsafederationinYugoslaviafrom1918to1941,

BosniaandHerzegovinafoughtandannouncedtheindependenceaftertheYugoslavia

brokedown,onFebruary1992.Atthattime,thecomponentsofthisnewmultinationalstate

were:MuslimBosniaks44%,OrthodoxSerbs31%andCatholicCroats17%.However,the

BosnianSerbsrejectedthereferendumandestablishedtheirownrepublic.Supportedbythe

SerbiangovernmentandformerYugoslavia,theBosnianSerbsopenedfireinBosniaand

HerzegovinainMarchthesameyear,inordertosecuretheirSerbianland.Soon,thewar

spreadtothewholecountry,accompaniedwiththeethniccleansingoftheMuslimBosniak

andCroatpeople,andthentheCroatiatookpartintothewar,toprotecttheirpeople.About
100thousandpeoplediedinthewar,whichisregardedasthemostfierceandcrucialwarin

EuropeafterWorldWarII.(Malcolm,1994)

TheSrebrenicaMassacrecausedover8000peoplekilledamongwhichmostwomenwere

rapedandkilled,andICTY(InternationalCriminalTribunalfortheformerYugoslavia)later

judgedthiseventasagenocide.

Aftertwoyears chaosandbloodywar,theUnitedNationsrequestedtheNATO(TheNorth

AtlanticTreatyOrganization)toseekfornegotiation.TheNATOgavewarnbyshotdown

fourSerbaircraftsandthenwastotallyinvolvedintothewar.(Nuhanovic,2007)

2.2TheDaytonAccord

In1995,alongwiththeinitiativetookbyBosniakCroatallianceontheland,theArmyof

RepublikaSrpska(VRS)committedseveralcasesofmassacre:theTuzlamassacreon25

May,theSrebrenicamassacreandthesecondMarkalemassacreon28August.Onthis

account,theNATOwidespreadairstrikesagainstSerbsimmediately,andinthemeantime,

draftedthebasicprinciplesofthepeaceagreement.A60dayceasefirecameintoeffect,

andthepeacetalkamongthewarringpartiestookplaceinDayton,OhioinNovember.The

AgreementwasfinallysignedinDecember1995inParis.

TheDaytonAccordsettlesmanykeyissues,includesmilitaryaspects,regionalstabilization,

interentityboundaryline,elections,constitution,arbitration,humanrights,refugees,

nationalmonuments,civilianimplementation,andinternationalpolicetaskforce,underthe

basicframeworkofthenewlybuilttwoautonomies:theFederationofBosniaand

Herzegovina,andtheRepublikaSrpska.(TheDaytonPeaceAccordsonBosnia,1995)
TheAccordpreservedBosniaasasinglestatemadeupoftwoterritorialparts,theBosniak

Croatfederation51%,andtheBosnianSerbRepublic49%,withSarajevoremainingasthe

undividedcapitalcity.(Clinton,2013)

2.3AdvantagesandDisadvantagesofAutonomy,andTheParadoxofBosnia

Undoubtedly,thepostDaytonBosniahasbeenmuchbetterthaninitspreviouschaos

period.DailylifeinBosniaishighlyimproved,althoughethnicdivisionsremaininnearly

alllevelsofsociety,peoplenolongertofearaboutpersonalsafety.(DaalderandFroman,

1999)Theadvantagesofautonomiesaresignificant.

First,itstoppedthebloodywarandcreatedthepeacefullifereturntonormalatleaston

thesurface.(McMahonandWestern,2009)JointinstitutionscreatedattheDaytonAccord

begantofunctionsandtriedtobridgethedivisionsleftafterthewar.EventheBosnian

presidencywasmoderatingandattemptedtoseekmorecooperation.(DaalderandFroman,

1999)Withthehelpofinternationalcommunities,thepoliticalandeconomicdevelopment

werecarriedthroughinanorderlyway.

Second,thebuildingofautonomiesguaranteestherightsofminorities,asdiscussedinthe

firstpart,fulfillingthedemandofselfprotectionandselfgovernance.Asoneofthecruel

battlesduringthecollapseoftheformerYugoslavia,thegoalofBosniaWarlaunchedby

BosnianSerbswastoavoidbeingminoritiesinthefallingstate,andtriedtoholdontowhat

wasalreadytheirs.(Boyd,1995)
Third,thepeacefulconditionspromotethereturnofrefugeesandinhabitedpeople.The

senseofsecuritykeptincreasing,whichacceleratedinrefugeereturns,with60,000

inhabitedpeoplereturnedtowheretheywerein1999.(DaalderandFroman,1999)

Fourth,theautonomiescreateapossibleplatformforthecountrytorecoveritseconomyin

thepostwarperiod.Basedontherespectofminoritiesandnewlybuiltautonomies,both

sideholdstheirowncurrenciesandmanagingtheirowneconomicissuesandpolicies.

Daytonsfirstandmostimportanttargethasbeensuccessfullygained.However,themore

advancedgoalofcreatingamulticultural,democraticandsustainablepeaceinthecountry

seemstobeimpossible,duetothedisadvantagesofautonomy.In2009,Bosnianswereonce

againtalkingaboutthepotentialforwar.

Firstly,thecreationofRepublikaSrpskaisseenasadecriminalizationoftheatrocitythat

committedbytheSerbians.ItleavesshadowofethniccleansingoneveryBosnianMuslins

andCroatians,andtheundercurrentofrevengeisjustabouttooverflow.

Then,thepoliticalstructureofdecentralizationinthecountryisdysfunctional.Forthateach

levelofthepoliticalinstitutionsrequirealltherepresentativesofthreesides:Muslims,

CroatsandSerbs,thebureaucraticisbloated,withfartoomanyofficialsoverthecountry.It

retardstheprocessofimportantissuesandprojects,andeasilypiledup.

Third,theeconomicdevelopmentinthecountryasawholeisstunted,duetothedisunionof

theeconomicsystemandtheseverecorruptionpenetratedinalllevelsofthesociety.Bosnia

receivesahugeamountofinternationalaidseveryyear.In1999,theinvestigation

discoveredthatmorethan1billionUSdollarshadbeenpouredintothecountry,butnearly

onefifthofthetotaljustdisappeared.(McMahonandWestern,2009)TheBosniansbecome

moreandmorereliableonforeignhelpandmaterialaids,ratherthanthemselves.
ThecurrentBosniaautonomiesjustfailedintoaparadox:Asamultiethniccountry,the

refugeesneedtogobacktotheirhomes;theneconomicreforminthenewcountryisneeded

tocreatemorejobopportunities;corruptionsmustbediminishedandthefatbureaucratic

shouldberegulated;whilebeforeallthedevelopmentabovecouldbepromoted,political

reformintoamulticulturalsocietymustbeadopted.

Inshort,autonomyendsviolence,respectsandguaranteestherightsofminorities,butalso

leaveaseriesofproblems.Buildinganautonomyisnotasolution,butastartofamuch

complicatedprocess.

Part3Casestudy:the2014CrimeaCrisis

3.1TheOverviewoftheAutonomousCrimeaandtheOngoingConflict

The2014Crimeacrisisisanongoinginternationalcrisis,whichderivedfromtheinterstate

conflictofUkraine,CrimeaanditsneighborRussia.Thoughthesituationsisstillelusive

andchangingrapidly,itisdescribedasthemostdangerousconflictaftertheColdWar,for

thatitdragstheWesternforcesintothedisputes.

TheCrimeaPeninsulaisamultiethnicregionwhichwasadministeredbyUkraineasthe

AutonomousRepublicofCrimea,withtheseparatemunicipalityofSevastopol.The

majorityoftheAutonomousCrimeawasethnicRussia,withminoritiesofbothethnic

UkraineandCrimeanTatars,ofwhichthelatterwastheindigenouspeopleofthelandsince

14thcentury.(Schnle,2001)
TheConflictbrokeoutinFebruary2014,aftertheproRussiaformerPresidentViktor

YanukovychwasdismissedintheUkrainianRevolution.DuringtheRevolution,the

UkrainianparliamentelectedanewinterimPresidentandformedanewinterimgovernment

thatobtainedthesupportoftheWhiteHouse.(TheMoscowTimes,2014)Soon,thepro

RussianforceswhichwidelybelievedtobeRussianmilitarywithoutemblem,begantotake

controloftheCrimeaAutonomy,andinthemeantime,theindependentreferendumwas

launchedintheAutonomousCrimea.(NewYorkTimes,2014)Twoquestionswereasked

intheballot:first,doyousupportthereunificationofCrimeawithRussiawithalltherights

oftheRussiafederation?Second,doyousupporttherestorationoftheConstitutionofthe

RepublicofCrimeain1992andthestatusoftheCrimeaaspartofUkraine?Asaresult,

96%ofthepeoplesupportedthereunion.(VoiceofAmericaandBBCNews,2014)

OnMarch17,theCrimeaparliamentannounceditsindependencefromUkraineandasked

tobelegitimateddistrictofRussiathatlaterapprovedbytheRussiaPresidentPutin.

However,theUNGeneralAssemblypassedanonbindingresolutiondeclaringinvalid

Crimea'sMoscowbackedreferendumandrejectedtoadmitthesecessionofCrimea.

(CharbonneauandDonath,2014)

3.2TheTurbulentSituationofCrimeaAutonomy

FormerlypartofRussianEmpire,CrimeawasoccupiedbySovietRussiain1921and

grantedthestatusofanautonomousrepublicsincethen.AftertheWorldWarII,theSoviet

authoritiesdeportedtheCrimeanTatarsanddepriveditsautonomystatusin1945.Andthen,
itwassenttoUkrainein1954asagiftsymbolizingthepeacebetweenUkraineandthe

Soviet.(MinistryofForeignAffairsofUkraine,2012)

Buthowdoestheintrastateconflictexpandtoaninternationalcrisis?Ontheonehand,the

westernpartintendstoabsorbtheUkraineintotheEuropeanUnion,whiletheCrimea

peoplewhoareethnicRussiafeltthethreat.TheoriginalmilitarydistancefromtheUSto

Russiacouldbeshortentolessthan500milesonceUkraineisbelongedtotheEU.Onthe

otherhand,PutinsomehowcouldbeseenasthesecondStalinwhotryingtorestorethe

SovietUnion,andcouldbethebiggestworryoftheUSandtheEC(EuropeanCommunity).

(Schepp,2014)

AlexanderLvashevskywasatourguideinSovietUniontime.Nowaged64,hehasalready

retired,buthegaveaguidetoRussiasvisionofCrimeatotheBBCjournalistPatrick

JacksoninMarch.ThesitesareallboundupinRussianhistory,andAlexanderbelievesthat

althoughsomeyoungpeopleunder22wanttoremaininUkraine,overwhelmingmajority

wantreunificationwithRussia.Forhim,Ukraineisawickedstepmother whopromised

CrimeanRussiansabetterlifeafterindependencein1992,butdeceivedthem.Inallthose

22years,hesays,neverfeltUkrainian.(BBCNews,2014)

Fromthecaseabove,wecouldfeelthestrongaffectionofCrimeapeopletowardstheir

mothercountry,Russia,regardlessofalltheotherpoliticalelements.Itcouldbeoneofthe

fataldisadvantagesofautonomy:thegrantofautonomypreservesandsometimeseven

promotestheaffectionoftheminoritiestowardsaforeigncountry.Thesovereigntyseemed

tobepreservedbythecreationofautonomy,but,infact,itacceleratesthesecessionofthe
minoritypeople.Oncethecentralgovernmentfailedtoprovidethesatisfyingenvironment

andaflashpointisformed,theywouldriseandfight.

Theotherbrutaldisadvantageofautonomyisthedominoeffectitbringsabout.Afterthe

announcementofindependenceofCrimea,therehappenedseveralproRussiaprotests

aroundthecountryinmorethan10citiesintherecentmonth.On6April,theleadersofthe

separatistgroupDonetskRepublicannouncedthatareferendum,onwhetherDonetsk

Oblastshould"jointheRussianFederation",wouldtakeplace"nolaterthan11May2014.

(BBCNews,2014)TheOblastcouncilofLuhanskOblastvotedtodemandgivingRussian

languagethestatusofsecondofficiallanguageonApril8.Althoughthereisdoubtthat

theseprotestsaremanipulatedbytheRussiaauthorities,everymoveoftheautonomyjust

arousesthefollowbyotheronesthathaveselfdesires.

Tosumup,thecreationofAutonomousCrimeafromSoviettimetoUkrainetimeisproved

tobeadeadlymistake.WhiletheCrimeaisfightingtobereunitedtoRussian,theTatar

minorityisseekingforanotherautonomy,fortheirhateofSovietsexpel.(Reuters,2014)

Autonomyhasbeenusedbypoliticiansasamanipulatinglever,withlessconsiderationof

thepeople.

ConclusionContradictionofAutonomyandImportantIssues

Throughthecasestudiesanalyzedabove,theautonomyholdssignificantadvantagesbut

alsoisariskperse.Itcontradictsforthatitseekstosolvetheproblemofterritory,yetmay
aggravateit;itintendstosolvetheproblemofidentity,yetmayaccentuateit.(Darbyand

Ginty,2008)

Althougheachcaseofautonomydiffers,itseemsthatcertainissuescouldbegenerally

countedon.

First,theestablishmentofanautonomyshouldbasedontheconsentofthemajorityofthe

population.Duetosomehistoricalreasons,theminoritiesmaystillholdstrongaffectionto

anotherforeigncountry,whichburiesdangerunderpeace.

Second,theestablishmentoftheautonomyshouldachievetheconsentoftheforeign

countrytowhichtheminorityhaveaffectionwith.(Lapidoth,1997)

Third,thedivisionofpowershouldbedefinedasclearaspossible,whichpreventsthe

divergenceinthefuture.

Next,atleastonecooperationinstitutionshouldbesettled,topromotethesustainablepeace

andfriendshipbetweenthecentralgovernmentandtheautonomy.

Lastbutnotleast,thepoliticalsystemneedtobesettledwithgreatcarefulness,whichisto

someextentdecisiveofthefutureoftheautonomy.(DarbyandGinty,2008)

Toconclude,autonomyshouldbetreatedasnotonlyasolutiontointrastateconflicts,but

ratherahardprocesswhichneedsextraeffortandexaminationfromtimetotime.
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crimeatatarsidUSBREA2S09320140329][March29,2014]

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