THE THREE-RING CIRCUS
MILOSEVIC'S INTRANSIGENCE set many wheels in motion at NATO. On the diplomatic front, the Europeans still hoped to head off a military confrontation, and toward that end a new round of negotiations was begun at a French palace in the village of Rambouillet, outside Paris. The negotiations were to encompass all that had been discussed to date, with the aim of creating a comprehensive package that would end the repression, promote democratic standards, and establish the basis for a political solution in Kosovo. The Western nations, and even the United States, had come to recognize that a NATO force on the ground was essential in precluding a renewed outbreak of fighting in Kosovo, but they also knew that it would require Serb permission to place such a force there. The diplomats once again adopted a "carrot-and-stick" approach, warning the Serbs that if they didn't negotiate and accept the proposed agreement, and the NATO-led force along with it, then they would be hit by NATO airstrikes.
My staff and I were involved in drafting the military agreements for the Rambouillet negotiations, for which we used the Military Annex from the Dayton Agreements as a model, but we were simultaneously