Introduction In its Helsinki Decision of July 1992, the Organization for Security and Co-operation in Europe (OSCE) established the position of High Commissioner on National Minorities (HCNM) to be an instrument of conflict prevention at the earliest possible stage in regard to tensions involving national minority issues. In the course of 15 years of sustained activity, the institution of the HCNM has gained a unique insight into identifying and addressing potential causes of conflict involving national minorities. In this context, the HCNM has devoted much attention to those situations involving persons belonging to ethnic groups who constitute the numerical majority in one State but the numerical minority in another (usually neighbouring) State. This issue engages the interest of government authorities in several States and constitutes a potential source of inter-State tension, if not conflict. Indeed, such tensions have defined much of modern and contemporary European history. Ethno-cultural and State boundaries seldom overlap. Almost all States have minorities of some kind, with many belonging to communities which transcend State frontiers. These communities often serve as a bridge between States, contributing to prosperity and friendly relations, and fostering a climate of dialogue and tolerance. For this reason, persons belonging to national minorities should be able to establish and maintain free and peaceful contacts across State borders and to develop cultural and economic links. When transfrontier cultural ties, however, take on political significance and States unilaterally take steps to defend, protect or support what they describe as “their kin” outside their sovereign jurisdiction, there is a risk of political tension or even violence. In the past, the HCNM has confronted such tensions in many regions of the OSCE area and remains acutely aware of potential dangers associated with excessive politicization of minority issues in inter-State relations. In the view of the HCNM, Recommendations on National Minorities in Inter-State Relations 1