The NATO countries have been clear about the postwar agenda in Kosovo and Serbia. The first goal has been to create conditions under which peace and order might return to Kosovo. That means providing a credible police force that not only allows the Albanian refugees to return but also—a much more difficult task—protects Serbs from retaliatory violence. The second goal has been to bring relief and development aid to the region, thereby laying the basis for future economic and political stability and eventual integration into Europe. NATO has insisted that the second goal be conditionally linked to a third: the removal of Slobodan Milosevic from power in Serbia.