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English Language and IT Courses POLICE REFORM IN MONTENEGRO 2006-2011 Assessment and Recommendations Organization for Security and Co-operation in Europe Mission to Montenegro POLICE REFORM IN MONTENEGRO 2006-2011 Assessment and Recommendations Authors Sonja Stojanović Novak Gajić Reviewer Dr Barry J. Ryan, Keele University, UK Prepress and design Gojko Mitrović Published by the OSCE Mission to Montenegro Bulevar Svetog Petra Cetinjskog 1 81000 Podgorica, Montenegro www.osce.org/montenegro Podgorica, October 2012 Organization for Security and Co-operation in Europe Mission to Montenegro The views and opinions presented in this publication are those of the authors, their inclusion does not imply official endorse- ment or acceptance by the OSCE Mission to Montenegro. TABLE OF CONTENTS EXECUTIVE SUMMARY ......................................................................................7 ABBREVIATIONS ...............................................................................................12 ACKNOWLEDGEMENTS ...................................................................................14 1. INSTITUTIONAL FRAMEWORK FOR POLICE REFORM ..............................15 1.1 Police Administration’s Role within Montenegro’s Public Administration ....................... 15 1.2 Organization and Structure of the Police Administration ................................................... 17 1.3 Human Resources Management ............................................................................................... 21 1.4 Police Education and Training ................................................................................................... 24 1.5 Capacity ......................................................................................................................................... 25 1.6 Courses provided by the Police Academy ............................................................................... 26 1.7 Financial Resources Management ............................................................................................ 29 1.8 Recommendations ....................................................................................................................... 33 2.FG THE I HT AGAINST SERIOUS AND ORGANIZED CRIME .........................35 2.1 Contextual Considerations About Organized Crime in Montenegro................................. 35 2.2 Legal Context of the Fight against Serious and Organized Crime...................................... 37 2.3 Strategy for the Fight against Corruption and Organized Crime 2010-2014 ................... 40 2.4 Methods and Capacities for the Fight against Serious and Organized Crime.................. 41 2.5 Police Organization and Interagency Co-operation in the Fight against Serious and Organized Crime ................................................................................................................................. 45 2.6 International Co-operation in the Fight against Serious and Organized Crime .............. 46 2.7 Recommendations ....................................................................................................................... 47 3. BORDER POLICING .......................................................................................49 3.1 The Reason of Success: Border Police Reform as a Political Priority ................................... 49 3.2 Border Police Development and Current Organization ....................................................... 49 3.3 Human Resources Capacity ........................................................................................................ 53 3.4 Border infrastructure and Equipment...................................................................................... 55 3.5 Community-Oriented Border Policing ..................................................................................... 56 3 3.6 Integrated Border Management in Montenegro ................................................................... 56 3.7 Intra-agency co-operation ......................................................................................................... 57 3.8 Interagency co-operation........................................................................................................... 58 3.9 International co-operation ......................................................................................................... 59 3.10 Way Forward for Integration into a Europe in the Globalised World ............................... 59 3.11 Recommendations .................................................................................................................... 60 4. COMMUNITY POLICING ...............................................................................63 4.1 The Development of Community Policing in Montenegro .................................................. 63 4.2 Phase 2 (2006-2008): Choice of model and pilot sites .......................................................... 64 4.3 Phase 3: national roll-out of community policing ................................................................. 66 4.4 Good Practices .............................................................................................................................. 66 4.5 Planning Phase Four: embedding community policing ....................................................... 68 4.6 Areas of Concern .......................................................................................................................... 72 4.7 Support to contact police officers from the rest of police service ...................................... 73 4.8 Mainstreaming community policing throughout police service ....................................... 74 4.9 Development of training capacity ............................................................................................ 74 4.10 Recommendations: ................................................................................................................... 76 5. A POLICE CCOUNTABILITY ...........................................................................78 5.1 Presentation of police accountability system in Montenegro ............................................ 78 5.2 Mapping of Key Challenges ....................................................................................................... 78 5.3 Legal Accountability .................................................................................................................... 80 Internal Accountability ..........................................................................................................................................................80 Dysfunctional complaints system .....................................................................................................................................85 Police Ethics Board ..................................................................................................................................................................86 Independent State Bodies ...................................................................................................................................................86 Oversight Performed Through Judicial Branch ...........................................................................................................88 5.4 Financial Accountability ............................................................................................................ 89 5.5 Transparency and Protection of Personal Data ...................................................................... 90 5.6 Political accountability – Parliamentary Committee for Security and Defense ............... 91 5.7 Recommendations ....................................................................................................................... 92 4 Annex I: CHronology of Main Police Related EventS in MONTENEGRO 2006-2011 ...........................................................95 ANNEX II: LIST OF INTERVIEWEES ................................................................98 ANNEX III: OVERVIEW OF POLICE OVERSIGHT BODIES ............................107 Annex IV: Follow-up meaSureS recommended by internal AFFAIRS MECHANISMS ..............................................................110 5 6 EXECUTIVE SUMMARY Police reform is one of the most important reform processes in Montenegro. Reform of the entire se- curity sector is necessary to ensure sustainable post-conflict reconstruction in other areas of society. A democratic police service is an essential prerequisite for establishing democratic structures. Overall safety and security are vital for economic, societal, cultural and political development. The establish- ment of an effective criminal justice sector—which includes law enforcement, prosecution, judiciary and penal system—is a natural and vital component of effective police reform. The purpose of this Re- port is to provide an assessment of the main developments since 2006 until 2011 in the areas which are vital for police reform in Montenegro. In October 2005, following the adoption of the Law on Police (2005), police were taken out of the Minis- try of Interior (MoI) to become a separate authority. The former MoI’s Public Security Sector became the Police Administration. This step was publically supported by the OSCE as a move towards the depoliti- cisation of police. The transition took several years and the process of separation had been mostly final- ised by 2007. The first recommendation1 of the previous
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