Almanac on Security Sector Oversight in the Western Balkans
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Almanac on Security Sector Oversight in the Western Balkans Serbia Bosnia and Croatia Herzegovina 2012 Macedonia Kosovo Montenegro Albania Belgrade Centre for Security Policy Project Leaders Belgrade Centre for Security Policy Research Consortium partners Project donor Publishers: the Belgrade Centre for Security Policy and Geneva Centre for the Democratic Con- trol of Armed Forces Authors: Besnik Baka, Andreja Bogdanovski, Emsad Dizdarević, Arjan Dyrmishi, Miroslav Hadžić, Denis Hadžović, Emir Kalač, Sandro Knezović, Zvonimir Mahečić, Gorana Odanović, Predrag Petrović, Đorđe Popović, Florian Qehaja, Mariola Qesaraku, Rajko Radević, Jelena Radoman, Marko Savković, Sonja Stojanović, Mentor Vrajolli Editors: Franziska Klopfer and Douglas Cantwell with Miroslav Hadžić and Sonja Stojanović Design and Layout: Marko Marinković Printed by: UNAGRAF d.o.o., Belgrade Printing: 2000 copies CIP - Каталогизација у публикацији Народна библиотека Србије, Београд 351.86(497) ALMANAC on Security Sector Oversight in the Western Balkans : 2012 / [urednici Franziska Klopfer ... [et al.] ; prevela Zorica Nenadović]. - Beograd : Beogradski centar za bezbednosnu politiku ; Geneve : DCAF, 2012 (Beograd : Unagraf). - 219 str. : tabele ; 30 cm Tiraž 2.000. - Napomene i bibliografske reference uz tekst. - Bibliografija: str. 217-218. ISBN 978-86-83543-99-1 a) Безбедносни сектор - Балканске државе COBISS.SR-ID 189860876 ©Norwegian Royal Ministry of Foreign Affairs, BCSP, DCAF All rights reserved Belgrade 2012 4 Table of Contents Acknowledgements . 6 Introduction . 8 Sonja Stojanović Country case studies 1 . Albania . 15 Arjan Dyrmishi, Mariola Qesaraku and Besnik Baka 2 . Bosnia and Herzegovina . 47 Denis Hadžović and Emsad Dizdarević 3 . Croatia . 73 Sandro Knezović and Zvonimir Mahečić Almanac on Security Sector Oversight in the Western Balkans Almanac on Security Sector Oversight in the Western 4 . Kosovo . 103 Florian Qehaja and Mentor Vrajolli 5 . Macedonia . 129 Andreja Bogdanovski 6 . Montenegro . 159 Rajko Radević and Emir Kalač 7 . Serbia . 181 Predrag Petrović, Gorana Odanović, Đorđe Popović, Marko Savković and Jelena Radoman 8 . Accountability of Statutory Security Actors in the Western Balkans . 211 Miroslav Hadžić Project methodology and grades: Mapping and monitoring security sector reform in the Western Balkans 9 . Security Sector Reform Index: Measuring to Advance Democratisation . 239 Sonja Stojanović Grades for Parliamentary Control and Oversight, General Transparency and Financial Transparency . 273 5 Acknowledgements This almanac on security sector oversight in the Western Balkans was developed by a consortium of researchers as part of the project Civil Society Capacity Building to Map and Monitor Security Sector Reform in the Western Balkans. The project was co- organised by the Geneva Centre for the Democratic Control of Armed Forces (DCAF) and the Belgrade Centre for Security Policy (BCSP) and ran from February 2009 to April 2012. It brought together seven think tanks from the Western Balkans to map and monitor security sector reforms in their countries. DCAF and BCSP therefore wish to express sincere gratitude to: The civil society organizations that conducted research and made up the member- ship of this research consortium, besides BCSP: Analytica (Macedonia), the Centre for Democracy and Human Rights (Montenegro), the Centre for Security Studies (Bosnia and Herzegovina), the Kosovo Centre for Security Studies (Kosovo), the Institute for Democracy and Mediation (Albania), and the Institute for International Relations (Croatia). Each organization participated as a committed member whose hard work, commitment, local knowledge and insights have made this publication possible. It would not have been possible to successfully complete this volume without the in- valuable support of a number of individuals: Dr Timothy Donais and Dr Cornelius Friesendorf provided incisive comments and in- puts on early drafts of the country case studies. From BCSP, Ms Sonja Stojanović and Dr Miroslav Hadžić co-managed the project im- plementation over three years. They contributed as authors while providing feedback to the various research teams both for their Almanac chapters and separate studies that each organization produced on each of eight different reform criteria. Sonja also provided guidance on the methodology for measuring SSR used throughout the proc- ess and designed the training curricula for the capacity building component of this project. Ms Gorana Odanović provided extensive support throughout the process to all participating organizations; her availablilty to handle frequent administrative and substantive inquires regarding the content of the different publications was essential to the project. Mr Marko Milosević provided useful assistance throughout the publica- tion process. From DCAF, Ms Franziska Klopfer managed the culmination of the project and over- saw the editing process. Mr Douglas Cantwell edited, provided comments and proof read the publication. Mr Ruchir Sharma and Ms Martha Baillargeon provided addition- al proofreading support. Ms Helena Ziherl, Ms Suzana Anghel and Ms Kristina Huszti- Orban managed the early stages of the project and provided extensive feedback on criteria studies. Mr Darko Stančić provided general guidance throughout the three years of the project and also commented on several of the publication’s chapters. 6 Mr Marko Marinković provided lay-out and design services for both the cover and interior of the publication. UNAGRAF printing ensured quality standards in the printing process. Thanks go in particular to the group of motivated researchers who demonstrated considerable enthusiasm and professionalism in contributing to this volume and who agreed to write under significant time pressure. They include: Besnik Baka (Albania), Andreja Bogdanovski (Macedonia), Emsad Dizdarević (Bosnia and Herzegovina), Ar- jan Dyrmishi (Albania), Denis Hadžović (Bosnia and Herzegovina), Emir Kalač (Mon- tenegro), Sandro Knezović (Croatia), Zvonimir Mahečić (Croatia), Gorana Odanović (Serbia), Predrag Petrović (Serbia), Djordje Popović (Serbia), Florian Qehaja (Kosovo), Mariola Qesaraku (Albania), Rajko Radević (Montenegro), Jelena Radoman (Serbia), Marko Savković (Serbia), and Mentor Vrajolli (Kosovo). Finally, thanks must be given to the Norwegian Ministry of Foreign Affairs, whose gen- erous contribution funded the work of the consortium for the duration of the project. Without their long-term support, this publication would not exist. Almanac on Security Sector Oversight in the Western Balkans Almanac on Security Sector Oversight in the Western 7 Introduction While official cooperation and exchange between Western Balkan states have signifi- cantly improved in the last few years, the transparency of security governance across the region is still weak. Information about which security actor is in charge of which domain, what their competencies are, who controls different actors and what their budgets are is not consistently available in all countries. This lack of transparency impedes national oversight of the security sector and also hinders the confidence building necessary for regional security cooperation. In a post-conflict environment where security issues are still predominantly discussed from collectivist and ethno-nationalist perspectives, greater availability of information and analysis based on thorough research could help prevent the emergence of new security dilemmas. The second assumption behind this publication is that the civil society has to be empow- ered to become an active participant of democratic civilian control and oversight, along- side politicians, if security sector reforms are to be sustainable and citizen-oriented. It is expected that participation of citizens and civil society organisations in oversight of se- curity policies contributes considerably to the social legitimisation of security institutions in society. The key question in this phase is not whether the security sector should be reformed or why, but how to accomplish reform in the most efficient and effective way with a participation of all relevant actors, including statutory and on-statutory actors. This publication aims to provide an independent research-supported overview on the key achievements and weaknesses in the accountability of security sectors of Albania, Bosnia and Herzegovina, Croatia, Kosovo, Macedonia, Montenegro and Serbia and to and what effect this has on the countries’ democratic transition. The Almanac on Security Sector Reform in the Western Balkans is a key output of a three-year long collaborative research project of seven Western Balkan think-tanks and the Geneva Centre for the Democratic Control of Armed Forces (DCAF), focused on improving the capacity of civil society organ- isations to map and monitor security sector governance and encourage security sector reform. The partners of this project, which was entitled “Civil Society Capacity Building to Map and Monitor SSR in the Western Balkans” and which ran from early 2009 to early 2012 included: Analytica, Skopje; Belgrade Centre for Security Policy – (BCSP), Belgrade; the Centre for Security Studies (CSS), Sarajevo; the Center for Democracy and Human Rights (CEDEM), Podgorica; the Kosovar Centre for Security Studies (KCSS), Pristina; the Institute for International Relations (IMO), Zagreb; and the Institute for Democracy and Mediation (IDM), Tirana. Additionally, the project was supported by DCAF and funded by the Norwegian Ministry of Foreign