Global Facilitation Network for Security Sector Reform (GFN-SSR)

The Prospects for a Future Kosovo: The Role of Security Sector Reform

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What role will the EU play in Kosovo’s security sector reform (SSR)? What challenges does the EU-led presence face? This paper from European Security Review takes Kosovo as a test case for the EU in striving for a comprehensive approach to SSR. A complex history and political background, ethnic divides and widespread corruption all pose challenges. In learning from experience and continuing present efforts, the EU must take up its responsibilities as a global actor in crisis management.

The intention to integrate Kosovo within Euro-Atlantic structures is motivated by EU considerations of regional and international stabilisation. The EU has a triple presence in Kosovo: the European Union Rule of Law Mission in Kosovo (EULEX), the International Civilian Office (ICO) and the European Commission Liaison Office to Kosovo. In delivering a comprehensive package of SSR, the EU is taking up the challenge of supporting Kosovo in its transition from autonomy to full independence. 

Several points are relevant to the pivotal role of the EU in Kosovo:

• The UN international trusteeship administration (UNMIK) was established to administer the territory while creating self-governing institutions. This did not improve local ownership. The UN showed a lack of long-term strategy and inability to effectively manage activities, personnel and resources.
• Kosovo’s political legacy means the state is seen as a violator of human rights rather than a provider of security. Coupled with strong cultural Albanian traditions of self-sufficiency, this hinders trust between civil society and new state entities.
• The judicial system is critical for SSR. There are concerns over corruption, political interference, inefficiency, inadequate personnel, lack of protection for staff and witnesses, and a large backlog of cases.
• The police sector is more efficient, performing daily tasks satisfactorily. However, little progress has been made in the conduct of investigations, particularly sensitive cases such as corruption, inter-ethnic crimes and organised crime. 
• The creation of the Kosovo Security Force (KSF) should enable inclusion of communities and individuals that do not affiliate themselves with the Kosovo Liberation Army. The government is also building a democratically controlled Kosovo Intelligence Agency (KIA).
• Mitrovica, the Northern region of Kosovo, threatens to become a political and legal vacuum. Discussions are ongoing between main stakeholders and the ICO has a team working exclusively on status implementation in Mitrovica.

Recommendations relate to the EU’s role in ensuring SSR sustainability in Kosovo:

• With its complex history and political background, Kosovo will require more balanced and carefully considered efforts than the EU has previously demonstrated.
• Lack of adequate attention to poverty reduction and development could fuel further conflict if left unchecked. Tensions created by lack of opportunities for a new generation of Kosovars must be forestalled.
• Lack of unanimity among EU member states in recognising Kosovo as an independent state may create difficulties in the long term.
• Lessons should be learnt from Bosnia and Herzegovina (BiH). The EU was successful in promoting reforms in BiH while using European integration as enticement. The EU also managed to build local capabilities. Slower, more comprehensive implementation lays a stronger foundation for sustainable reform.
• A comprehensive approach is needed to ensure cooperation across EU institutions. The European Commission will need to support socio-economic and administrative reforms in conjunction with reforms under the mandate of EULEX.

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