France and Germany with a « non-pper » for Republika Srpska, here’s what measures the document proposes

The European Union should suspend financial projects that are useful to the Republika Srpska, and consider the establishment of target sanctions on individuals in this Bosnia and Herzegovina entity, which undermine the state’s sovereignty and constitutional order. This is stated, among other things, in an unofficial document (« non-Paper »), compiled by France and Germany, which was provided by Radio Free Europe.

The document dated May 12, 2025, which has just over two pages, states that the current constitutional crisis « is the most serious challenge for sovereignty, unity and territorial and functional integrity of Bosnia and Herzegovina in the last 30 years ». The existence of this document was announced by the Chief of the General Staff of the Serbian Army, Milan Mojsilovic, on May 22, following a meeting of the Council for National Security, where he said that the document, presented by Serbian President Aleksandar Vucic, « makes the position of Republic Srpska difficult. »

Why is this document compiled?

According to the authors, Republika Srpska has taken some legal actions and processes that undermine the constitutional order of Bosnia and Herzegovina, especially after the conviction of the President of this entity, Milorad Dodik, on February 26, by the Bosnia and Herzegovina Court to comply with the decisions of the High Representative.

These actions include the adoption of some laws, such as prohibiting the functioning of the state institutions of Bosnia and Herzegovina in the territory of Republika Srpska including the State Court and Prosecutor’s Office, and the State Investigation Agency (SIPA) and the Law on the High Judicial and Prosecutorial Council of the Republic of Srpska, and the Law on the Special Organizations Register. Also, contested actions are the new draft of the Constitution of the Republic of Srpska, presented in March, and the Law on the Protection of the Constitutional Order of the Republic of Srpska.

The immediate purpose of the document is to « repeal the unconstitutional laws and the withdrawal of the new constitutional draft ». « The long -term resolution of the crisis will require, in particular, the full and irreversible return of the Republika Srpska to the Constitutional Order of Bosnia and Herzegovina, the restoration of Bosnian Serbs’ commitment to the functioning of state institutions, and the fulfillment of all steps listed in the European Commission’s recommendation, »

What measures does the document propose?

According to the authors, the measures to be taken include: limiting financial support to the Republic of Srpska, establishing target sanctions, slowing the EU membership process, and interrupting contacts with officials of this entity. The document requires that the EU keep all projects that are, directly or indirectly, useful to the Republic of Srpska within the Western Balkans Investment Framework (WBIF).

The European Commission should not propose new projects that are useful to the Republika Srpska. The criteria for unlocking the measures will be developed after the leader of the Republic of Srpska takes constructive steps, with prior consultation of Member States.

The EU should also be coordinated with other international financial institutions, such as the World Bank, to adopt similar access. Bilateral financial aid for projects that help Republika Srpska should also be suspended. Regarding sanctions, it is proposed to use the existing framework for restrictive measures against individuals or entities that undermine sovereignty, territorial integrity and constitutional order of Bosnia and Herzegovina. The document states that « it is expected that the senior representative and/or vice president of the commission will bring proposals in the coming weeks ». Since there is no full consensus on the EU on this issue, the document suggests that Member States individually impose travel prohibitions for some officials of the Republika Srpska.

« National measures are temporary and reversible measures, with the aim of changing the behavior of target individuals and entities, » the document reads. It is also recommended that the EU suspend high-level contacts with convicted or accused leaders of the Republic Srpska, including Dodik, Prime Minister Radovan Vishkovic and Speaker of Parliament, Nenad Stevandic. Communicating with government officials of the Republic Srpska or the Social Democratic Alliance (SNSD) should focus on emphasizing the risk of continuing the unconstitutional course of the Dodik President, and the EU’s willingness to reduce tensions when there are signs of change.

Bosnia and Herzegovina is a candidate country for EU membership and the authors of the document estimate that it should be clearly emphasized that the actions of the Republika Srpska are incompatible with this path. What is « non-pper »? « Non-Paper » is an unofficial document, without a firm, without emblem and without official shipment channels. It contains a proposal or idea, and can be discussed informally by political leaders or diplomats. /REL/