In theory, the answer to that is that Milosevic had to be forced to negotiate. But you can't force someone to negotiate. You can only force them to negotiate for less. Anyway, Milosevic was negotiating at Rambouillet. He just didn't accept the presence of Nato troops in Kosovo.
And so we went to war to make him swallow that. But what, realistically, is the difference between forcing Milosevic to accept Nato troops in Kosovo and just invading the place? Nato as a whole signed up to a strategy that amounts in practice to a carte blanche for invasion. Now it just has to hold its nerve.
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