PDF you are right. I must go deep inside this problem, as I think there's something bugged in the scenario goals checks...
Indeed the scenario goals can be scripted (this game is strongly oriented to modding), and there's something wrong...
Look at the Goals.xls DB (
[game dir]\Modding\Scenario\Belgrade folder) and you'll see how the Serbia scenario goals are scripted... Anyway, the Ledger gives you a text representation (interpretation) of these scrips.