The Dayton Accord presumes that the UNSC has the legal authority to act in cases of internal conflict and that the international legal order of separate states allows a community of nations to enforce international law.
Lord Owen is one of those many unfortunates who, in the period of terminal decline of the British Empire, was sent off to sup with devils, equipped only with an undersized spoon.
Putting NATO at risk in order to carry out a dubious mission in Bosnia, for the sake of repaired reputation and not real interests, constitutes a political gamble of the first order.