ASSESSING THE IMPACT
KOSOVO’S COMMUNITY SAFETY ACTION TEAMS
mission in kosovo ACKNOWLEDGEMENTS
The Community Safety Action Teams Programme Team would like to thank the CSATs themselves, for their never-ending dedication to reducing crime and increasing safety in their communities with commitment and diligence, and for seeking every day to improve the quality of life for those in their cities, towns and villages.
The Team would like to thank the United States Department of Justice/ICITAP and the OSCE Mission in Kosovo Department of Public Safety for their fervent commitment to improving safety and liveability for all communities through their support of this important programme and the work that it undertakes.
The CSATs Programme Team owes a great deal of thanks to the Kosovo Centre for Public Safety Education and Development (KCPSED) for their consistent and enthusiastic support of this programme. By providing a “safe haven” for all of the CSATs during their training regardless of ethnicity, gender, disability, religion or age, the participants’ experience was a positive one.
The Programme Team would also like to thank all of those individuals who have contributed to the development and implementation of the CSATs programme. Specific thanks go to (in alphabetical order); Hana Bajrami, Steve Bennett, Visar Dermaku, Tamara Duffey, Shqipe Durguti, Julie Fleming, Jirina Foltysova, Erduan Gjigolli, Remzije Ibrahimi, Marija Jović, Monica Llamazares, Betim Llapashtica, Nikola Pajović, Anna Richards, Ardian Veseli, Bedri Xani, Arbernorë Ymeri and Ymer Zagragja, as well as the CSATs themselves, for their invaluable contributions throughout the design, research and writing of this Assessment.
FOREWORD
As people, we all have a right to live in safety, with freedom of movement and quality of life. Following the Kosovo conflict, individuals experienced a sense of insecurity in their communities due to a combination of crime and safety issues, as well as mistrust in their security providers.
In order to effectively identify and address these insecurities, we must work together in partnership with our communities, local government and police, to engage in prevention and problem solving efforts. In 2003, the United States Department of Justice International Criminal Investigative Training Assistance Program (USDoJ/ICITAP), in partnership with the OSCE Mission in Kosovo Department of Public Safety, initiated the ‘Community Safety Action Teams’ (CSATs) programme as a pilot in four (4) municipalities of Kosovo. This programme grew from the vision of Mr. Steve Bennett who, at that time, was Director of the Kosovo Police Service School (now the Kosovo Centre for Public Safety Education and Development (KCPSED). This vision to build the Kosovo Police Service (KPS) as a democratic police service working in partnership with communities and municipalities was complemented by the experience of a highly professional team of international experts in developing community safety initiatives, forming the basis for the CSATs programme in Kosovo. Now present in 20 municipalities, CSATs are comprised of concerned residents, police officers and municipal officials, who come together to work in partnership with other relevant stakeholders to identify and implement solutions to the safety and security problems they face in their communities. Based on the philosophy of community-oriented policing and the thinking of Sir Robert Peel that “the people are the police and the police are the people,” CSATs function as a bridge between the inhabitants and institutions, working on issues as diverse as the environment, traffic safety, poor living conditions in non-Albanian communities, and anti-social behaviour in schools. They continue to achieve success, improving the lives of those that they involve and forming sustainable and trusting partnerships as they work.
Building the capacity of local people to address their own concerns in this way presents a valuable opportunity for sustainable development. In summer 2007, a comprehensive study was initiated in order to assess the impact of CSATs on community safety in Kosovo. This report presents the findings of the study, analysing both the successes and challenges of the programme. It also identifies ways for the programme to move forward to a time when all the communities of Kosovo are equipped, ready and willing to address community safety concerns in co-operation with the police, municipal authorities, and other institutions responsible for ensuring safety and security in Kosovo.
Jeffrey A. Thomas Carsten Twelmeier Senior Law Enforcement Advisor Director, Department of Public Safety US Department of Justice/ICITAP OSCE Mission in Kosovo
This report assesses the impact that CSATs EXECUTIVE have had on safety, security and liveability SUMMARY in the municipalities where they operate, between 2003 and 2007. It represents the main findings of research undertaken during 2007 and 2008, focusing on issues of traffic safety, environmental safety, KPS and community relations and interethnic relations. The report also analyses the main strengths of the programme, the challenges that it and the CSATs face, and identifies a number of recommendations to strengthen the work of the CSATs in the future.
CSATs have had a significant impact on traffic safety, implementing several projects that concentrated on this issue. CSATs have installed road signs, created pedestrian crossings and built sidewalks, assisting in creating the basic preconditions for improved levels of safety on the roads, both for pedestrians and motorists. Further, CSATs, along with KPS officers, have been successful in raising awareness of traffic issues amongst Kosovo’s youth. As a result, the majority of CSATs participants and beneficiaries interviewed perceive levels of traffic safety to have improved locally. However, this report notes the need for full commitment from municipal authorities and other relevant stakeholders in order to achieve a sustainable improvement in levels of traffic safety in Kosovo.
CSATs have also had a great deal of CSATs have also proved active in building success in making improvements to local relationships between the youth in different environmental conditions. By undertaking communities, something that is necessary a number of clean-up operations and for long-term co-operation. other environment-focused projects, they have been able to improve the By assisting in implementing the visual environment, decreasing the risks philosophies of community policing, and caused by inappropriate rubbish disposal bringing the KPS and residents together and the dangers posed by stray dogs, a on a regular basis to work on projects, problem associated with excess rubbish. CSATs have achieved an increase in Public awareness of environmental issues communication, co-operation and trust appears to be increasing, and the level of between the community and the KPS. involvement in these projects is encouraging. However, this report also notes the need for CSATs have also been able to positively an increased commitment to the practical influence the attitudes of Kosovo’s youth in implementation of community policing in relation to environmental issues. As such, order for the KPS to inspire full public trust this report also notes the need for more and confidence. sustained input from municipal authorities, both with regard to rubbish disposal and the This report also shows that CSATs have measures necessary to deal with stray dogs proved successful in creating sustainable in the long-term. partnerships between various security and safety providers in Kosovo and the As a result of the inclusive approach that communities in which they work. By CSATs have taken, they have also been able bringing the authorities together with to positively impact on interethnic relations Kosovo’s inhabitants in order to work in several communities. By including together and implement solutions to members of different communities in community problems, awareness of their formation, and by working with common problems has increased and and for non-Albanian communities when communications between and within implementing projects, CSATs have been communities has improved. This report able to build cooperative and trusting also notes the need for CSATs to receive the partnerships, improving levels of trust, financial and logistical support necessary communication and freedom of movement. for ongoing and increased success.
TABLE OF CONTENTS
1. INTRODUCTION...... 11
2. BUILDING CAPACITY: AN OVERVIEW OF THE CSATs PROGRAMME...... 14
2.1 Creating and training CSATs...... 14
2.2 The CSATs Executive Council...... 16
2.3 Training of Trainers...... 17
3. PROJECT-SPECIFIC IMPACTS...... 18
3.1 Traffic safety...... 18 3.1.1 Key concerns and issues addressed by CSATs...... 18 3.1.2 Community perceptions of traffic safety...... 19 3.1.3 Social involvement in traffic safety initiatives...... 21 3.1.4 Involvement of, and impact upon, young people...... 22 3.1.5 Contribution of CSATs partners...... 23 3.1.6 Partnerships and problem-solving...... 24
3.2 Environmental conditions and safety...... 25 3.2.1 Key concerns and issues addressed by CSATs...... 26 3.2.2 Community perceptions of environmental conditions...... 29 3.2.3 Social involvement in environmental initiatives...... 30 3.2.4 Involvement of, and impact upon, young people...... 32 3.2.5 The contribution of CSATs partners...... 33 3.2.6 Partnerships and problem-solving...... 35
3.3 Conclusion...... 36
3.4 Recommendations...... 38
4. BROADER PROGRAMMATIC IMPACTS...... 39
4.1 Interethnic co-operation...... 39 4.1.1 Key concerns and issues addressed by CSATs...... 39 4.1.2 Community perceptions of interethnic relations...... 43 4.1.3 Social involvement in projects with an interethnic element.....45 4.1.4 Involvement of, and impact on, young people...... 46 4.1.5 Partnerships and problem-solving...... 47
4.2 Community-KPS relations...... 47 4.2.1 The concept of community policing...... 48 4.2.2 Key concerns and issues addressed by CSATs...... 49 4.2.3 Community perceptions of the KPS...... 50 4.2.4 Social involvement in KPS-community relations...... 53 4.2.5 Involvement of, and impact on, young people...... 54 4.2.6 Partnerships and problem-solving...... 55
4.3 Conclusion...... 58
4.4 Recommendations...... 58
5. STRENGTHS, CHALLENGES AND LESSONS LEARNED...... 60
5.1 Strengths of the CSATs programme...... 60 5.1.1 Linking the community and public institutions...... 60 5.1.2 Building cooperative working relationships...... 61 5.1.3 The CSATs’ training and facilitation programme...... 62
5.2 Challenges of the CSATs programme...... 63 5.2.1 Financial and logistical support...... 63 5.2.2 Intra-CSATs communication...... 65
5.3 Lessons learned and the way forward...... 65
6. CONCLUSION AND RECOMMENDATIONS...... 68
10 community concerns, then implement long- 1. term solutions from the bottom-up. CSATs INTRODUCTION work with a number of stakeholders in order to achieve their objectives, including In order for safety and security concerns to the Kosovo Police Service (KPS), Municipal be effectively addressed, local communities authorities, the multi-national NATO must work together with security providers peacekeeping force (KFOR), local non and institutions. Kosovo’s Community governmental organisations (NGOs) and Safety Action Teams (CSATs), created and community leaders, and, of course, the administered through a bilateral partnership residents and communities themselves between the United States Department of (including non-Albanian community Justice International Criminal Investigative representatives, women, youth and religious Training Assistance Programme (ICITAP) leaders). This provides individuals with an and the OSCE Mission in Kosovo opportunity to work together as a team to Department of Public Safety, seek to facilitate improve opportunities to achieve change this co-operation and, in so doing, increase and create firm foundations for the future the quality of life and the levels of safety and development of their community. security in Kosovo’s communities. This is particularly important given the 1998-1999 In 2006, the CSATs programme team conflict in Kosovo, which contributed to a decided to undertake an assessment of sustained feeling of insecurity in a number the programme in order to establish what of communities, and exacerbated already effect the CSATs are having on crime, safety existing community safety concerns. and liveability, as well as, wider social change. As such, it was decided to initiate Since the beginning of the programme an assessment that was participatory in in 2003, CSATs, now operating in 20 nature, a Participatory Impact Assessment municipalities across Kosovo, have (hereafter, referred to as the Assessment). addressed several different grassroots Such a study is useful in documenting crime, safety and security concerns, from unintended impacts of a long-term traffic safety to domestic violence, from programme that may not be identified violence in schools to the dangers posed in narrower monitoring/evaluation by stray dogs. Each CSAT is formed as a exercises. It is useful for examining long- result of a thorough selection and training term programmes that, due to their time- programme, before beginning their work frame, are likely to have broader impacts to create viable partnerships, to identify than more quickly implemented projects. Moreover, it is a useful learning process ICITAP works with governments abroad to develop for organisations/teams and their partners professional and transparent law enforcement institutions who want to examine their interventions in that protect human rights, combat corruption, and reduce complex settings (e.g., Kosovo’s post-conflict the threat of transnational crime and terrorism. For further information, please see: www.usdoj.gov/criminal/icitap reconstruction) where multiple actors/
11 activities intervene at multiple levels. The The main research tools were field-based inclusion of implementers, implementing individual and group interviews to elicit partners, and beneficiaries in a collaborative qualitative data, as well as structured effort to document and learn from the questionnaires to complement this with programme’s impacts not only makes quantitative data to allow comparative the findings more valid, it also promotes analysis. An initial methodology design ownership of the process. session was held to elicit the viewpoint of the CSATs Programme Team as the principal The 20-month-long Assessment has programme implementers. Tentative brought together external consultants, the impacts, feasible indicators, and suggested programme implementers, and a small team means of verification were discussed. The of local research assistants, while actively participatory nature of the Assessment was engaging CSATs members to critically ensured from the start, as CSATs contributed examine the 5-year-long programme. The to the design of the research methodology. aim of the study, from its inception, was to Several workshops were facilitated by the bring together the CSATs Programme Team research team where CSAT members elicited and the CSATs members as implementing key indicators and means of verification partners of a participatory exercise: which guided the work of the research team. During these workshops the timetable • To elicit lessons learned from four years of the research, as well as the roles and of programme implementation in order to responsibilities of the CSATs in supporting increase sustainability. the Assessment, were decided. • To mainstream these lessons as they emerged into the new phase of the CSATs programme The field research commenced in February to be implemented in 2007 and 2008. 2007 with the support and participation of all 16 CSATS operating at the time. During the CSATs Executive Council A series of community visits were held, Meeting in October 2006 in Štrpce/Shtërpcë, during which individual and group the CSATs Programme Team introduced the interviews were conducted with key idea of jointly implementing a participatory programme stakeholders and beneficiaries, impact assessment. The response was including municipality representatives, positive and supportive, although it became school teachers, police officers and clear that this would be a challenging community members. In total, over 250 new experience for the CSATs and the individuals participated in the research, CSATs Programme Team as no systematic evaluation of the programme or CSATs’ Dragash/Dragaš, Fushë Kosovë/Kosovo Polje, Gjakovë/ projects had taken place previously. Đakovica, Istog/Istok, Kaçanik/Kačanik, Kamenicë/Ka- menica, Klinë/Klina, Leposavić/Leposaviq, Lipjan/Lipljan, Novobërdë/Novo Brdo, Obiliq/Obilić, Prizren, Rahovec/ For further information on this mechanism, please see Orahovac, Štrpce/Shtërpcë, Viti/Vitina and Vushtrri/ section 2.2. Vučitrn.
12 including members of Kosovo’s diverse Assessment has necessarily examined ethnic communities. Special care was less tangible objectives: it attempts to taken to include the views of women and identify a change in social attitudes and youth. The sample of those interviewed approaches, which can only be accurately for the Assessment does not claim to be measured over a significant period of representative of Kosovo, or even of those time and through qualitative methods. municipalities where the research was Nonetheless, this Assessment outlines a undertaken. Rather, interviews offer an number of solid findings regarding the insight into the experiences of those directly contribution that CSATs have made and or indirectly involved in or affected by the the impacts they have had on community CSATs programme to elicit useful learning. safety in Kosovo. It presents an overview Field interviews were carried out over a of the CSATs programme, the project- period of five months (May to September specific impacts that it has had in relation 2007), which should be remembered to to traffic and environmental safety, and best contextualize ’change’ or impact in the the broader impacts of the programme, timeframes given by the study (e.g., ‘how including KPS-community relations and do you think levels of traffic safety have interethnic relations. This focus not only improved in your neighbourhood during the reflects the regularity with which CSATs last twelve months?’), as it may account for have tackled these issues, it also reflects variations in interviewees’ responses. the emphasis that CSATs have placed on both ‘regular’ safety concerns (those that The analysis and write-up of data began are at the forefront of everyday life), and in the autumn of 2007, when the research those issues with longer-term objectives company ‘Prishtina Regional Enterprise and more complex roots. The Assessment Agency’ (Prishtina-REA) was contracted also offers an analysis of the programme’s to provide a statistical analysis of the strengths, the challenges that it has faced, quantitative elements of the field interviews. and its lessons learned (a number of which Some additional research was undertaken are already being applied to the ongoing in the spring of 2008. However the analysis programme). Finally, the Assessment offers contained in this Assessment refers to a number of recommendations for the future activities and impacts until mid-2007, unless development of CSATs and their activities. otherwise stated. These will be delivered to and discussed with the relevant stakeholders, particularly This report discusses some of the most CSATs and their partners, their communities significant impacts that the CSATs and the key international actors operating programme has had throughout Kosovo in Kosovo, in order to maximise success, in the areas of crime, safety, security, and facilitate the strategic development of CSATs liveability, as well as the strengths and in the future, and ensure sustainability challenges of the same. Though impact throughout Kosovo. is often measured quantitatively, this
13 Community visit to a camp for Internally Displaced Persons in Klinë/Klina
whilst seeking to equip individuals with 2. the skills they need to undertake their role BUILDING in an effective manner. CAPACITY: AN OVERVIEW OF THE CSATs 2.1 Creating and training CSATs PROGRAMME Creating and training a CSAT encompasses six stages. Each seeks to equip team The Community Safety Action Teams members with the necessary tools to programme was initiated in 2003 in identify and address problems in their four pilot sites: Fushë Kosovë/Kosovo community, as well as provide the Polje, Vushtrri/Vučitrn, Novobërdë/ foundation for the team to become a (self-) Novo Brdo and Gjakovë/Đakovica. The sustainable partner and stakeholder in their success of these led to the creation of respective communities. CSATs in Dragash/Dragaš, Kaçanik/ Kačanik, Leposavić/Leposaviq and Stage 1: Community selection Rahovec/Orahovac, in 2004, Istog/Istok, Lipjan/Lipljan, Kamenicë/Kamenica The programme team selects a site for the and Štrpce/Shtërpcë in spring 2005 and future CSAT. The participating site must Klinë/Klina, Obiliq/Obilić, Prizren and meet the following criteria: Viti/Vitina in autumn 2005. During 2007, • The municipality and local police must a further two municipalities joined the exhibit a commitment to co-operating and programme, whilst training for two collaborating with each other and with their more took place during spring 2008. The community, in order to identify issues of CSATs programme utilises the philosophy crime, safety and liveability, and to develop that ‘the police are the people and the and implement project action plans to people are the police’. Its intention is to address these issues; facilitate interaction between community • The local police units must be diverse in leaders, municipal officials and the KPS their composition, and demonstrate high in order to create cooperative working levels of professionalism; and relationships so that they can work • The community, police and municipality together to identify and address issues of must agree to work together in a crime, safety and liveability. As a result, cooperative and democratic way to include the selection and training programme all non-Albanian communities. for CSATs’ members are based on the principles of inclusiveness and diversity, Recommendations from other organisations working to implement community safety initiatives have been a valuable tool in the Ferizaj/Uroševac and Hani I Elezit/Đeneral Janković. Gjlane/Gnjilane and Peja/Peć. selection of sites.
14 Members of the Klinë/Klina Participant Recruitment Committee and CSATs Programme Team
Stage 2: Community visitation Stage 4: Community meeting and orientation Following selection of the community, the CSATs Programme Team meets with Members of the CSATs Programme Team municipal and KPS leadership in the meet with the Participant Recruitment community in order to provide information Committee to organise a community about the programme and secure their meeting and orientation session. full support and co-operation. By meeting This initial meeting provides CSATs them at the same time, the Programme representatives with information about Team is able to ensure that both individuals the programme and the role that they are willing to work in co-operation on will play. It is also an opportunity for the the programme, and the receipt of prior Programme Team to learn about CSAT commitments in this way has proved representatives’ perceptions of safety, levels critical to the success of the teams and of communication between the various programme. stakeholders, and understanding about the various roles and responsibilities. Stage 3: Participant Recruitment Committees A second meeting is then held to assess the concerns of the wider community Following the community visitation, that relate to crime, safety and liveability. the municipal and KPS leaderships Between 50 and 200 concerned community identify one municipal representative, members, local government representatives one KPS representative, one community and police officers from the different ethnic member and one youth leader from the groups share their concerns through a participating community to form the facilitated discussion. These concerns are Participant Recruitment Committee. recorded. Participants then vote on the Of these four individuals, at least issues that are most important in their one should be a woman, and one community. These issues are brought to from a non-Albanian community. the training on ‘Problem-Solving’, during Each representative is an established which projects are developed by the CSAT leader, committed to the principles of members to find solutions to the problem. the programme. The Committee then recruits between 35 and 40 leaders from A third community meeting is held at the the municipality, KPS and communities end of the training, during which CSAT motivated to work as volunteers, to members share the projects they have become CSAT representatives. It is initiated and they provide an update on ensured that participants reflect the the status of the issues being addressed. diversities present in their communities, Meeting participants have an opportunity including those of age, gender, ethnicity to ask questions, provide their input on the and profession. projects, and volunteer their assistance.
15 Prizren CSAT members learning the value of diverse partnerships during problem-solving training
Meeting of the CSATs Executive Council in Dragash/Dragaš (left) A session of the ‘Training of Trainers’ course (right)
Stage 5: Training for relationship building to continue outside the classroom, as well as ensuring The training of CSATs lasts for seven days that the full focus of participants is on and includes two core components: the the training. The training programme has first focuses on ‘Community Partnerships proved successful, with full participation and Team Building’ and includes sessions and strong relationship and team-building. on, for example, partnership development, Its administration by locally trained trainers team building, overcoming differences, during the most recent cycles (see section bridging the gap between police and 2.3 below) has also proved beneficial to the community perspectives, group facilitation, students. consensus building and the organisation of community meetings. Students are able Stage 6: Coaching and follow-up to practice working as a team, as well as developing a vision and mission statement Following the training, CSATs participants for their CSAT. begin to implement their project action plans, and hold a third community meeting The second component focuses on to report on findings and progress to their ‘Problem-Solving’ and includes sessions community. The CSATs then continue to on the SARA problem-solving model, operate, and support the work of the Local encompassing ‘Scanning’, ‘Analysis’ (of Public Safety Committees (LPSCs) and the problem and partners), ‘Response’ Municipal Community Safety Councils and ‘Assessment’ as well as project (MCSCs) in their efforts to address action planning. This offers participants issues of crime, safety and liveability. In an opportunity to explore well defined order to ensure sustainability, the CSATs solutions to the problems identified during Programme Team continues to offer the community meeting outlined in stage 4 support, providing encouragement and above. coaching on both general aspects of the programme and project-specific issues. By The training employs interactive and celebrating success and helping CSATs to participative methods. Further, it gives overcome any challenges, the Programme participants an opportunity to acquire Team seeks to ensure that the motivation valuable skills, working together to develop within CSATs is maintained, as well as strategies and action plans to address offering an opportunity for networking and the issues identified during the earlier brainstorming of future activities. community meetings.
During the training, the participants 2.2 The CSATs Executive Council stay together on the Kosovo Centre for Public Safety Education and Development An additional layer of support and campus. This offers a valuable opportunity coordination is provided by the CSATs
16 Executive Council. The Executive experience to future participants of the Council was envisaged as a forum in CSATs programme, whilst acquiring which CSATs representatives can share additional coaching expertise, and to information, exchange the experiences ensure that the work the teams undertake is of their respective Teams, and work effective. together to identify available resources from their municipalities. Comprised of The Training of Trainers course has two representatives from each CSAT, the proved to be successful, with participants Executive Council meets quarterly in a demonstrating a good level of commitment different ‘host’ municipality. Although to the course and the responsibilities representatives from the CSATs Programme they assume following graduation. They Team are present, the meetings are continue to train new CSATs and new facilitated and recorded by Council Training of Trainers participants, as well members, offering a valuable opportunity as assisting in the training programmes for further skills development and for Local Public Safety Committees and sustainability. Municipal Community Safety Councils.
It is important to note that the CSATs 2.3 Training of Trainers programme is a fluid process: the above stages and elements are used as The need for the CSATs programme a framework that can be adapted to the to be sustainable is paramount to the needs and subtleties of the community in programme. The Training of Trainers question. The programme has thus evolved programme, delivered since 2004, thus over time and continues to develop, seeks to equip each CSAT with three drawing on the experiences and feedback representatives (one KPS officer, one of participants in order to continually municipal official and one community improve. Implementing lessons learned leader) with training and facilitation skills. during the formation of new CSATs Participants of the course represent a wide thus, it is believed, provide the optimum range of backgrounds, professions and foundations for success. age, and these individuals can then be utilised for the benefit of their CSATs and wider communities, providing a valuable resource. Further, whilst CSATs training was provided by international consultants at the beginning of the programme, graduates of the Training of Trainers course are now facilitating the CSATs training. This provides them with an opportunity to transfer their knowledge, skills and
17 and often municipal authorities, identified 3. community needs in relation to traffic PROJECT – issues, and have implemented projects SPECIFIC IMPACTS designed to address them. It can be seen that the CSATs programme has thus had a Introduction visible impact on the levels of traffic safety and awareness in these municipalities. Since their inception, CSATs have During the planning process for this been involved in hundreds of projects Assessment, eight of the 16 CSATs sites throughout Kosovo. Focusing on issues as chose to place the research focus on this diverse as negative behaviour in schools, issue. Though official statistics regarding prostitution, health education and the traffic accidents can be an indicator of homeless, CSATs have identified and changes in the level of traffic safety, addressed numerous safety and security inhabitants’ perceptions of safety and the concerns in the communities in which they level of public involvement in projects can work. During this time, CSATs have worked also prove a useful tool in gauging the in partnership with several different extent to which awareness has been raised. stakeholders, including the communities themselves, the KPS and the municipal 3.1.1 Key concerns and issues addressed authorities, to implement projects aimed at by CSATs positively impacting on the levels of safety and liveability enjoyed by the residents of CSATs have focused on two primary issues these communities. within the area of traffic safety: increasing the level of traffic signage and raising youth Though CSATs have worked on many awareness. By working to install traffic and different issues, two areas that have road signs in Kosovo’s towns and villages, received particularly close attention during CSATs have been able to produce a tangible the programme are traffic safety and impact on traffic safety that extends beyond environmental standards. As such, this the group of people who were directly section of the report focuses on the impacts involved. This issue was touched upon by that have arisen from the implementation of one CSAT member who stated: “I wasn’t projects targeting these issues. involved in the implementation of the traffic projects, but I know they are good. It is obvious on the main street, and in almost 3.1 Traffic safety the whole town.” During the lifetime of the
One of the most recurring themes Fushë Kosovë/Kosovo Polje; Kaçanik/Kačanik; Kame- throughout the duration of the CSATs nicë/Kamenica; Lipjan/Lipljan; Novëberdë/Novo Brdo; Obiliq/Obilić; Prizren and Viti/Vitina. programme is traffic safety. Several CSATs Kosovo Bosniak female, CSAT member, Obiliq/Obilić, have, in partnership with the local KPS 15 May 2007.
18 CSATs members in Kaçanik/ Kačanik, with one of the newly installed pedestrian signs, 2006
programme, the CSAT in Kaçanik/Kačanik, Kosovo, where cars are commonly seen for example, created zebra crossings and parked on sidewalks. There is also a erected traffic signs in the town, immediately perception that the significant decrease in improving the conditions for pedestrians road traffic accidents in Prizren is a result and encouraging further municipal action not only of the increased number of signs, (the authorities went on to install additional yet also of the heavy municipal investment traffic signs). According to one police in traffic issues and the particularly active officer, they have resulted in a decreased nature of the KPS traffic patrols12 - all factors necessity for police traffic patrols: “We are that are critical to sustainable success in very satisfied…because before we put up the improving levels of traffic safety. traffic signs it was necessary to have a high police presence”. Though police patrols are Several CSATs have also worked with still required and provided, the presence of local schools and KPS officers to educate traffic signs has facilitated a situation where children and young people on traffic safety. the need for static traffic patrols in the town Involving lessons, classes, and practical has decreased. events like bike races, these programmes have elicited wide participation and a Similar initiatives have been implemented good level of success, ensuring that those in Kamenicë/Kamenica, in co-operation involved have an increased understanding with the inhabitants, KPS and Municipal of traffic safety issues. Due to their heavy Assembly. The CSAT in Istog/Istok worked focus on youth, these projects are discussed with the KPS and the Municipality to build in more detail in section 3.1.4. a sidewalk in Gjurakovc/Đurakovac village, something also undertaken by the CSAT in 3.1.2 Community perceptions of traffic Prizren. The Prizren CSAT has also, with safety involvement from the Municipality and KPS, installed a number of traffic signs and Though there was a significant body of traffic lights around three schools in the people who either did not know, or opted municipality with the intention of decreasing not to answer the question, the CSATs the number of accidents involving school participants and beneficiaries interviewed children.10 Actions to remove illegally were generally optimistic about levels of parked vehicles from the road are also traffic safety, both throughout Kosovo and becoming more frequent in Prizren town,11 within their particular neighbourhood. something that is perhaps unusual for Over half (52%) of those questioned considered that in the 12 months prior to the date of the interview, levels of CSAT member, Kaçanik/Kačanik, 20 May 2008. Kosovo Albanian male, KPS Officer/CSAT member, traffic safety in their neighbourhood had Kaçanik/Kačanik, 8 May 2007. 10 Kosovo Albanian male, KPS Station Commander, Prizren, 4 September 2007. 12 Kosovo Albanian male, CSAT member, Prizren, 4 11 COP Officer/CSAT member, Prizren, 4 September 2007. September 2007.
19 improved, with a further 20% considering accidents of approximately 50% in Prizren, that it had remained the same. Just one KPS statistics actually show that in four person (2% of the sample) thought that of the eight municipalities14 there was traffic safety had decreased during that actually a significant increase in reported time frame. The individual resides in road traffic accidents. This inconsistency Obiliq/Obilić, which, according to official could be due to the fact that people were KPS statistics, saw a 50% rise in road traffic being questioned about the period from accidents from 2006 to 2007.13 mid-2006 to mid-2007, whereas the statistics refer to 2006 and 2007 in their entirety. It The optimistic perceptions of traffic safety could also result from a difference between in local neighbourhoods are echoed in that the number of accidents reported to the for Kosovo as a whole. KPS and the total number of reported
52% 47%
30% 27% Kosovo 20% 20% Neighbourhood
3% 2%
Improved Remained the same Deteriorated Don't know/No answer
Figure 1: Overall, do you think the and unreported accidents. However, the levels of traffic safety in (Kosovo/your research shows a perception of increased neighbourhood) have …? (Base No = 64) safety in those municipalities where CSATs projects have taken place, with several of There is also a strong perception that those interviewed expressly attributing the number of traffic accidents have this to the work that the teams and the KPS decreased. A large majority (76%) of those have undertaken. For example, one school questioned stated that the incidence of Director directly linked the decrease in traffic accidents in the neighbourhood had traffic accidents suffered by his students decreased during the previous 12 months, on their journey to school to a project with the remaining 24% considering that implemented by the local CSAT that it had remained constant. Interestingly, provided transport for the children, where though there were slight decreases in three they had previously been walking.15 municipalities, and a decrease in reported 14 Fushë Kosovë/Kosovo Polje, Lipjan/Lipljan, 13 There were a total of 82 recorded road traffic accidents Novobërdë/Novo Brdo and Obiliq/Obilić. in Obiliq/Obilić during 2006 and 124 in 2007. Official KPS 15 Kosovo Albanian male, school Director (Shaban Sha- statistics, obtained March 2008. bani School), Dragash/Dragaš, 14 June 2007.
20 73% 64%
Time 25% Money 9% 13% 3% 5% 2% 5% 2%
Strongly agree Somewhat agree Somewhat disagree Strongly disagree Don't know/No answer 3.1.3 Social involvement in traffic safety Figure 3: To what extent do you agree with initiatives the statement “I am willing to contribute my time/money to a traffic safety project in Of the individuals interviewed for this my community”? (Base No = 41) Assessment, many had taken part in a traffic safety project at some stage during Further, most of those interviewed the previous two years. Though 38% were expressed that they would be prepared to yet to participate, 55% had already taken become involved in traffic safety projects part in such projects: 22% had taken part in the future, with almost three-quarters in one project, a further 8% had taken part stating that they ‘strongly agreed’ with the in two, and 25% of those interviewed had principle of committing their time to such participated in at least three traffic safety an initiative. initiatives, such as working to install traffic signs, pedestrian crossings or sidewalks. It is interesting that 79% of those who had never previously participated in a traffic Never 8% safety initiative were willing to become involved in the future. Nobody interviewed Once 38% who had previously participated in two or 25% more traffic safety projects stated that they Twice were no longer willing to contribute their Three times time to such an initiative. The significant or more level of current social involvement in 8% Don't know traffic safety initiatives and the increasing 22% inclination towards community action is therefore encouraging, and something that the CSAT programme has sought Figure 2: How many times during the to develop from the beginning. Even last two years have you participated in a more encouraging is that a significant traffic safety project in your community? proportion of those interviewed indicated (Base No = 64) a preparedness to contribute their own
21 KPS and CSAT representatives and children during activities focusing on road traffic safety in Gjakovë/Đakovica
money to such a project. However, it was participants that have ever been in any often stated that in reality their incomes are [traffic] lectures…are more prepared and too modest to enable them to do so readily: more careful crossing the road”.19 “If I have money then I am willing and more than happy to give for [traffic projects Similar programmes have been undertaken in] my community”.16 in Prizren, Obiliq/Obilić, Dragash/Dragaš and Kaçanik/Kačanik. In the latter, the 3.1.4 Involvement of, and impact upon, KPS and CSAT delivered monthly lessons young people to children around the municipality, with approximately 1700 pupils benefiting from One of the most common projects this programme to date.20 In one Kaçanik/ undertaken by CSATs in the field of traffic Kačanik school alone, there have been three safety is the implementation of a youth different traffic safety lectures delivered awareness programme, aimed at educating by the KPS and the CSAT, with the children, young people and students about participation of almost 270 students.21 The the dangers associated with road traffic. lessons were considered to be particularly During these lectures, classes, and practical valuable to the children, with one student events (such as ‘bike races’), KPS officers stating: “We really needed this information, and CSAT members have sought to educate because there were accidents on our students on different elements of road streets… Respecting the traffic signs and safety. rules mean there will be fewer accidents”.22
In Lipjan/Lipljane for example, the CSAT, The programme in Viti/Vitina involves in partnership with the KPS, has been even wider partnership, with the offering an ongoing series of traffic lectures community, village councils, US KFOR in schools. Over 2,500 students have taken and the municipality all co-operating on part in these classes to date.17 One teacher the initiative. These partnerships were interviewed considered the information complemented by assistance that was transmitted during these classes as the provided by three different municipal reason for a decrease in traffic accidents departments23 for the reconstruction of involving children, despite the school’s sidewalks and installation of traffic signs. location on a busy road.18 The value of these lessons was further stressed by a 19 Kosovo Albanian female, elementary school student, Lipjan/Lipljane, 3 May 2007. student who had participated: “All the 20 KPS officer/CSAT member, Kaçanik/Kačanik, 20 May 2008. 21 Kosovo Albanian male, Kaçanik/Kačanik, 8 May 2007. 16 Kosovo Albanian male, CSAT member, Kaçanik/ 22 Kosovo Albanian female, elementary school student Kačanik, 8 May 2007. (Ali Asllani School, Doganaj/Doganović), Kaçanik/ 17 Kosovo Albanian male, KPS officer/CSAT member, Kačanik, 8 May 2007. Lipjan/Lipljane, 20 May 2008. 23 The Department of Education, the Department of Pub- 18 Kosovo Albanian male, elementary school teacher lic Services and the Department for Reconstruction and (Vllezërit Frashëri School), Lipjan/Lipljane, 3 May 2007. Development.
22 Children assisting the Kaçanik/ Kačanik CSAT to paint a pedestrian crossing in the town, 2006
The KPS has also installed check-points was an area of focus during the research in the areas heavily used by students on for this Assessment. As of May 2008, their way to school in order to ensure that there are 522 dedicated traffic patrol drivers respect the speed limit and drive officers throughout Kosovo, which responsibly. accounts for approximately 7% of the entire KPS.26 In the eight municipalities Several school Directors considered these that considered improvements in traffic education programmes to be especially safety to be a significant impact of the effective, stating that the impact they CSATs programme, people were generally had had on the students and their safety satisfied with the work that the KPS does was significant: a process “of interest to enforce traffic laws. In fact, 30% of those to all society”.24 Further, the impact of interviewed ‘strongly agreed’ that the these projects is clearly evidenced by level of KPS enforcement of traffic laws the increased awareness of traffic safety met the needs of their community, and a indicated by the students themselves; further 31% ‘agreed somewhat’. Just 1% students have repeatedly stated that as disagreed that the KPS did a satisfactory a result of the KPS-CSAT traffic safety job in this regard.27 However, some have lessons in schools, they are more careful expressed a desire to see a more grass-roots and, as a result, feel safer.25 This element approach to traffic safety from the KPS. of the CSAT programme clearly shows For example, instead of placing so many that, when working in partnership stationary police vehicles along the road to with the KPS and other stakeholders, apprehend speeding motorists, KPS officers it is capable of positively impacting could dedicate more time to meeting with upon levels of awareness and safety - a residents and educating them on road sustainable result. traffic safety in order to change attitudes and increase safety in a more sustainable manner.28 3.1.5 Contribution of CSATs partners Further, the majority of those As well as participating in the interviewed considered the KPS to be implementation of traffic safety projects doing either an ‘excellent’ or ‘good’ job in co-operation with CSATs (as discussed in sharing information about traffic above), the KPS has an obvious law safety with the inhabitants of Kosovo enforcement role to play in the field of generally and, more specifically, their traffic safety and, as such, its contribution community.
24 Kosovo Albanian male, Director of Arbana elementary 26 KPS Traffic Headquarters, 16 May 2008. school, Prizren, 4 September 2007. 27 It should be noted that a significant proportion of those 25 Kosovo Albanian male, elementary school student interviewed failed to respond to this question. (Selman Riza School), Fushë Kosovë/Kosovo Polje, 17 May 28 Former CSAT programme staff, Vushtrri/Vučitrn, 28 2007. May 2008.
23 39% 39% 32% 30% 19% 17% 9% 9% 3% 3%
Excellent Good Fair Poor Don't know/No answer
Kosovo-wide Municipal level
Figure 4: ‘How well do you feel that 3.1.6 Partnerships and problem-solving the Kosovo Police Service is doing in providing information about traffic The CSATs often operate as proactive safety to the citizens of Kosovo?’ problem-solvers in their approach to (Base No = 64) traffic safety: as well as partnering with the Municipal Assemblies, KPS and local However, when attempting to raise schools in various projects, they have led awareness of traffic issues, there have projects on many occasions. For example, been some challenges of communication. it has been seen that CSATs have initiated This is particularly the case in Kaçanik/ projects focused on installing traffic signs, Kačanik, where the lack of television a process that requires extensive co- network was highlighted as an obstacle operation between different stakeholders. to efficient information-sharing;29 a This ensures that strong and sustainable system of awareness-raising through, for partnerships are created. For example, example, posters may be more effective.30 the highly cooperative nature of the During 2008, the KPS is undertaking a project in Kaçanik/Kačanik was stressed comprehensive information campaign on by the Municipal Assembly President, road traffic safety in partnership with the who emphasised that “CSATs know how Ministry of Internal Affairs, the Ministry of to identify problems, such as the lack Transport and Telecommunications and the of traffic signs. Then they discuss with OSCE Mission in Kosovo. It is, therefore, [the municipality] and the residents how hoped that this will alleviate some of these to resolve the issues, and together we shortcomings. implement the project”.31 Co-operation with KFOR has also been encouraged by 29 Municipal Assembly President, Kaçanik/Kačanik, 08 the CSATs programme, particularly in May 2007. 30 Kosovo Albanian male, Municipal Assembly President, Viti/Vitina, 10 May 2007. Additionally, poor access to tele- 31 Municipal Assembly President, Kaçanik/Kačanik, 08 vision networks has been reported elsewhere in Kosovo. May 2007.
24 Kaçanik/Kačanik, where the peacekeeping However, some people interviewed noted force has often been involved in the that occasional failures of co-operation traffic safety projects, either as observers and partnership have produced negative or assisting in implementation. As a impacts on the viability of such projects. result, co-operation between KFOR and For example, limited support from the the CSAT and KPS in the municipality municipal leaderships has been cited as a is generally considered to be of a good factor restricting the level of success that level.32 can be achieved by CSATs in the area of traffic safety.35 One clear example of this More generally, the cooperative is the failure of projects initiated by the relationships developed during the various Lipjan/Lipljane and Fushë Kosovë/Kosovo traffic safety projects were highlighted Polje CSATs to create pedestrian crossings by several interviewees, particularly in and install road signs, due to the inability relation to the involvement of CSATs. of the Municipal Assemblies to provide Interviewees in Lipjan/Lipljane focused adequate financial support.36 Examples on the role that the CSAT now enjoys as such as these only serve to stress that the a primary contact point for any problem full commitment of all parties to the work facing the community. This was noted as a undertaken by communities through result of the excellent working relationship the CSATs is necessary. However, the developed since its inception in 2005 widespread strengthening of co-operation and the level of co-operation enjoyed in communities between all parties is between the community, the KPS and something to be applauded, and is a the CSAT.33 Proactive co-operation has positive indication of the programme’s far- also been seen in Istog/Istok: the CSAT reaching impacts. initiated a programme whereby the KPS patrols the roads around a local school at midday to prevent potential accidents 3.2 Environmental conditions and safety arising from the congregation of vehicles outside the school exit.34 The high level of Standards of environmental health involvement of KPS officers in the CSATs is and safety and the related issue of also a positive mechanism for co-operation; global warming are at the forefront of most CSATs have KPS officers present, international consciousness. Kosovo is no and this is reflected in the work that they exception: its industrial pollution problems undertake and the level of information that are significant and well-documented.37 is transmitted to communities. 35 Kosovo Albanian male, CSAT member, Prizren, 4 September 2007; Municipal Assembly Vice President, 32 US KFOR Officer, Kaçanik/Kačanik, 08 May 2007. Dragash/Dragaš, 14 June 2007. 33 Kosovo Albanian male, elementary school teacher 36 KPS officer/CSAT member, Lipjan/Lipljane, 20 May (Vllezërit Frashëri School), Lipjan/Lipljane, 3 May 2007. 2008; KPS officer/CSAT member, Fushë Kosovë/Kosovo 34 Kosovo Albanian male, CSAT member, Istog/Istok, 20 Polje, 20 May 2008. September 2007. 37 Ministry of Environment and Spatial Planning Kosovo,
25 Members of the Leposavić/ Leposaviq CSAT, working to clear the bridge area of debris
The creation of a healthier environment initiated by CSATs since their inception is for the inhabitants of Kosovo has thus neighbourhood clean-ups and associated been the motivation of several CSATs awareness-raising. For example, projects projects during the last five years, with to improve and maintain environmental CSATs working in co-operation with a standards in Istog/Istok have been wide range of actors in order to achieve a ongoing for several years, often as part number of different goals, including cleaner of ‘Environment Month’.39 The regular neighbourhoods and the related issue of clean-up projects, though financed by reducing the number of stray dogs, more the Municipality, are implemented in co- pleasant recreational areas and increased operation with the Red Cross, the KPS, the public awareness. Consequently, the impact Department of Environment and Spatial that CSATs have had on environmental Planning, local cleaning companies, and conditions was the focus of the Assessment inhabitants of several villages.40 These in ten municipalities.38 Though it is projects have also involved co-operation difficult to reliably measure any change in between different communities, including environmental standards, the level of social Kosovo Albanians, Kosovo Serbs and involvement and the number of projects Ashkali.41 Similar projects are implemented undertaken indicate a trend towards in Kamenicë/Kamenica, where the CSAT increased environmental awareness, a has undertaken annual ‘environmental precondition for long-term improvement. clean-ups’ on 22 April, ‘Earth Day’, since 2004. These are undertaken in partnership 3.2.1 Key concerns and issues addressed with the local communities, the KPS, the by CSATs Municipal Assembly, KFOR, KPC, local schools and the Red Cross. Every year, CSATs have implemented a wide the CSAT advertises the action through range of initiatives aimed at improving the local media, ensuring participation environmental standards. However, of between 4500 and 5000 people in the one of the most common activities project.42
Comprehensive clean-up operations Kosovo Environmental Action Plan 2006 – 2010 (2006). Available at: http://www.ks-gov.net/mmph/document/eng- have also been undertaken by the Štrpce/ lish/Kosovo_Environmental_Action_Plan.pdf ; Ministry of Shterpcë CSAT, in partnership with local Environment and Spatial Planning Kosovo, Kosovo State inhabitants of the municipality,43 the CSATs of the Environment Report (2003) Available at: http://en- rin.grida.no/htmls/kosovo/Kosovo_SOE_part1.pdf and Regional Environmental Center for Central and Eastern 39 Kosovo Albanian male, Director of Haxhi Zeka second- Europe, Strategic Environmental Analysis of Kosovo ary school, Istog/Istok, 20 September 2007. (2000). Available at: http://www.rec.org/REC/Publications/ 40 Municipal representative, Istog/Istok, 20 September 2007. CountryReports/Kosovo.PDF 41 Kosovo Albanian male, Istog/Istok, 20 September 2007. 38 Dragash/Dragaš; Fushë Kosovë/Kosovo Polje; Is- 42 Kosovo Albanian male, KPS Officer/CSAT member, tog/Istok; Kamenicë/Kamenica; Klinë/Klina; Leposavić/ Kamenicë/Kamenica, 5 June 2007. Leposaviq; Obiliq/Obilić; Prizren; Rahovec/Orahovac and 43 Kosovo Serb male, CSAT member, Štrpce/Shterpcë, 12 Štrpce/Shterpcë. June 2007.
26 The bridge area following the clearing operation
in Kaçanik/Kačanik and Obiliq/Obilić, and the Ashkali community, local youth, the by the Prizren CSAT, which worked with Municipal Assembly and an international local schools, the Municipal Assembly NGO.47 The same NGO, ‘Health for All’, and the KPS to clean school grounds and also planted one tree for every house in the city gardens.44 The CSAT in Leposavić/ neighbourhood.48 The CSAT in Dragash/ Leposaviq has also been particularly Dragaš was also highlighted as particularly active in relation to environmental clean- active in environmental issues. As well as up projects. Since its creation in 2004, the initiating a number of lessons on rubbish CSAT has undertaken several different disposal and environmental cleanliness in bridge-cleaning projects and a number co-operation with schools, and undertaking of initiatives to clean river banks, public several ‘clean-up’ operations throughout parks, mountain paths and around power the municipality,49 the CSAT worked in lines. The CSAT worked to clean a road partnership with the organisation ‘Era e linking one village with a nearby church. ndryshimeve’ (‘Time for Change’) to print Additionally, in co-operation with a local and distribute a brochure outlining the NGO and community volunteers, it also importance of, and key steps towards, marked approximately 100km of mountain taking care of the environment.50 paths and assigned responsibility to a number of members to ensure that the The issue of inappropriate disposal of various picnic locations remain clean and household waste exacerbates the dangers encourage hikers to remove their litter.45 associated with stray dogs in Kosovo. The multiple impacts of this project were As a result, CSATs, by undertaking the noted by one CSAT member, who said that, environmental clean-up operations “climbing…creates better living conditions. discussed above in combination with more Many people decided to use [the paths] targeted actions, have sought to positively after they heard about our project. We impact upon this issue. Though, in the past, increased the awareness of people about people would shoot stray dogs in an effort keeping the environment clean”.46 to control them, the occurrence of this is now much reduced. This is largely a result Other projects with a notable of a common misperception, exhibited by environmental impact include one in several interviewees, that the hunting of Fushë Kosovë/Kosovo Polje, which aimed stray dogs is specifically prohibited by law. to improve a neighbourhood inhabited 47 Kosovo Albanian male, Municipal Assembly represent- by the Ashkali community. This was ative, Fushë Kosovë/Kosovo Polje, 17 May 2007. undertaken by the CSAT, members of 48 Ashkali male, elementary school student, Fushë Kos- ovë/Kosovo Polje, 18 May 2007. Tree planting initiatives 44 Kosovo Albanian male, KPS Officer, Prizren, 4 Septem- have also taken place in Novobërdë/Novo Brdo, Dragash/ ber 2007 Dragaš and Obiliq/Obilić. 45 Kosovo Serb male, CSAT member, Leposavić/ 49 Kosovo Albanian male, CSAT member, Dragash/ Leposaviq, 29 May 2007. Dragaš, 14 June 2007. 46 Kosovo Serb male, CSAT member, Leposavić/Leposav- 50 Kosovo Albanian male, CSAT member, Dragash/ iq, 24 May 2007. Dragaš, 14 June 2007.
27 Though this is not technically the case, the both undertaken in co-operation with and restrictive legislation regarding weapons support from the Municipal Assembly, possession and their use51 means that it KPS and the local hunting association. is, in practical terms, unlawful to shoot A multilateral partnership was created stray dogs. However, there are legislative in Kamenicë/Kamenica, where the CSAT provisions that specifically provide for worked with the KPS, Municipal Assembly, stray animal control: the Law on Hunting52 KFOR and the local hunting association provides that “the Ministry [of Agriculture, to destroy a large number of stray dogs.58 Forestry and Rural Development], through Projects undertaken by the CSAT in a bylaw, may authorize hunting area Obiliq/Obilić, funded by the Municipal managers to control stray dogs and cats in Assembly and implemented in partnership hunting areas”,53 and, by virtue of section with KFOR, the KPS and the local hunting 13 of The Veterinary Law,54 “in accordance association, have also proved successful with the procedures set out by the Minister and contributed to a decrease in dog attacks [responsible for veterinary services], on people in the municipality,59 as have Municipal Authorities shall undertake:…c. similar measures in Rahovec/Orahovac and the catching of stray dogs and cats and, if Štrpce/Shterpcë. necessary, their euthanasia”. Despite these positive achievements, it However, CSATs and their partners have is difficult to ascertain whether or not been able to implement a number of the issue of stray dogs is improving. projects aimed at addressing the issue However, there appears to be a perception of stray dogs, with tangible results. For amongst the Assessment participants, example, in Leposavić/Leposaviq, 119 stray and indeed the wider public, that dogs were destroyed in such an initiative, despite some localised improvements, leading to a reduction in the number of the problem remains pressing. Indeed, attacks on residents.55 Approximately 700 even in those municipalities where the and 900 stray dogs have been eliminated authorities and/or CSATs have taken in Istog/Istok56 and Prizren respectively,57 action to address the issue, there is a perception that a considerable number 51 See Regulation No. 2001/7 ‘On the Authorization of stray dogs remain. This is particularly of Possession of Weapons in Kosovo’. Available at: the case in rural and mountainous areas, http://www.unmikonline.org/regulations/unmikgazette/ 02english/E2001regs/RE2001_07.htm such as Dragash/Dragaš, where attacks 60 52 Law No. 02/L-53. Available at: http://www.assembly- continue to occur. The lack of readily kosova.org/common/docs/ligjet/2005_02-L53_en.pdf 53 Article 56.4. September 2007. 54 Law No. 2004/21. Available at: http://www.assembly- 58 Kosovo Serb male, KPS Officer, Kamenicë/Kamenica, 5 kosova.org/common/docs/ligjet/2004_21_en.pdf June 2007. 55 Kosovo Serb male, CSAT member, Leposavić/ 59 Kosovo Albanian male, Municipal Assembly President, Leposaviq, 24 May 2007. Obiliq/Obilić, 15 May. 56 Kosovo Albanian male, Istog/Istok, 20 September 2007. 60 Kosovo Albanian male, CSAT member, Dragash/ 57 Secretary of Hunting Association Sharri, Prizren, 4 Dragaš, 14 June 2007.
28 available and affordable medication improved in the 12 months preceding suitable for potential rabies cases was also research (see below). A further 11% thought noted as a cause for concern.61 Further, that standards had remained constant. a different financial issue has also been The results were largely consistent with raised. As discussed by the Vice-President perceptions of the environment at a more of the Municipal Assembly in Dragaš/ localised level: 40% thought that the quality Dragash, the increased costs involved of their local environment had improved when stray dogs must be euthanized, in the same timeframe, with a further 23% by lethal injection, has prohibited the stating that it had remained the same.
100% 17% 80% 28% 20% Don't know/No answer 60% 23% Deteriorated 23% 40% 11% Remained the same
20% 37% 40% Improved 0% Kosovo Neighbourhood practical implementation of projects Figure 5: Taken as a whole, how do you aimed at reducing the dangers posed by think the environment in Kosovo/your stray dogs.62 Support from the Municipal neighbourhood has changed during the authorities is thus critical for CSATs and last twelve months? (Base No = 35) their partners to be legally permitted and practically equipped to undertake stray However, a significant minority (20%: dog removal projects. ‘neighbourhood’, 23%: ‘Kosovo’) of those interviewed stated that they thought the 3.2.2 Community perceptions of quality of the environment had deteriorated environmental conditions during the previous 12 months. Some interviewees noted that a public lack Though it is not possible to corroborate of awareness of environmental issues their perceptions at this time, it is contributed to such a perceived decline encouraging to see that 37% of those in environmental standards, with one interviewed considered that the interviewee stating: “It’s so sad no one cares environmental conditions in Kosovo had about preserving the beauty of Kosovo… [People] don’t think about the future for 61 Kosovo Albanian male, CSAT member, Dragash/ their children”.63 Dragaš, 14 June 2007. 62 Kosovo Albanian male, Municipal Assembly Vice Presi- dent, Dragash/Dragaš, 14 June 2007. 63 Kosovo Serb female, Leposavić/Leposaviq, 29 May 2007.
29 Those interviewed were generally positive 3.2.3 Social involvement in environmental about the progress made in keeping the initiatives roads and sidewalks clear. Forty-five per cent (45%) thought that the issue As with traffic safety projects,64 inhabitants of unkempt streets and sidewalks had of the communities where CSATs operate improved during the previous 12 months, show a willingness to involve themselves with a further 17% considering it to have in environmental projects. Indeed, a total of remained the same. However, a total of 16% 68% of those interviewed had participated of respondents stated that the issue had in a clean-up type project in the preceding deteriorated during that timeframe. two years, with the majority of those having taken part several times.
22% 3%
29% Never Improved Once 45% Remained the same Worsened Twice Three times or more 16% Don't know/No answer 48% Don't know/No answer 6%
14% 17% 3% 22%
29% Never Improved Once 45% Remained the same Twice Worsened Three times or more 16% Don't know/No answer 48% Don't know/No answer 6%
14% 17% Figure 6: As a whole, what do you think about Figure 7: How many times during the the issue of unkempt streets and sidewalks in last two years have you participated in a your neighbourhood over the last twelve months? development project, such as a clean-up, in Has it …? (Base No = 64) your community? (Base No = 35)
As discussed above, CSATs, in co-operation The positive impact of social involvement in with the residents themselves and a number such projects was noted by several interviewees. of other stakeholders, have undertaken a One individual shared that not only do her considerable number of clean-up projects in children now play in the river every day during recent years targeting both urban and rural the summer, but the improved water conditions areas. It is quite possible that these actions also benefit those who like to fish.65 may have contributed to the perception of elevated environmental conditions amongst 64 See section 3.1.3 above. the communities in which CSATs work. 65 Kosovo Serb female, Leposavić/Leposaviq, 24 May 2007.
30 Local communities working with the CSATs to clean the environment in Istog/Istok, 2006
The vast majority (91%) of those had not yet taken part in such a project, interviewed therefore expressed a 80% expressed a willingness to do so in the preparedness to contribute their time future. Just 20% of those who had never to such projects in the future. A large been involved in community clean-ups proportion of people also signalled that stated that they were unlikely to participate they were willing to financially contribute either in terms of time or money, and to clean-up operations. only one person (3% of the total) who had
74%
51%
34% Time Money 17% 9% 11% 0% 3% 0% 0%
Strongly agree Somewhat agree Somewhat Strongly disagree Don't know/No disagree answer
Figure 8: To what extent do you agree with previously taken part in such a project were the following statement: “I am willing to disinclined to do so again. contribute my time/money to a development What is particularly encouraging is that project, such as a clean-up, in my a number of environmental projects community”? (Base No = 35) discussed by interviewees were initiated by the residents and then supported by However, as seen in relation to traffic-safety the CSATs. For example, an interviewee projects, though people are willing to in Istog/Istok noted that though there was contribute their money in principle, the an absence of municipal cleaning services practical implementation of this is less in her village, it was also the villagers’ likely. As one interviewee stated, “I would responsibility to ensure that the public give money if I had enough, but my house areas were maintained.67 Again, in Istog/ budget is too small to cover our monthly Istok, “almost all” of the inhabitants of needs”.66 one village undertake a collective cleaning exercise on a monthly basis.68 This elevated The degree of willingness to become sense of awareness is to be encouraged, as involved in clean-up initiatives is fairly it prompts sustainable self-action and can consistent across the age spectrum, an be replicated in all villages, towns and cities encouraging indication of the sustainability across Kosovo. of such projects. Furthermore, of those who
67 Kosovo Serb female, Istog/Istok, 20 September 2007 66 Kosovo Serb female, Istog/Istok, 20 September 2007. 68 Kosovo Serb male, Istog/Istok, 20 September 2007
31 3.2.4 Involvement of, and impact upon, more containers, but if I do not see one I young people put [the garbage] in my pocket and I throw [it away] when I see a container”. Kosovo Research for this Assessment suggests Albanian female, secondary school that Kosovo’s youth has been actively student (Xhelal Hajda School), Rahovec/ involved. Increased youth awareness of the Orahovac, 18 September 2007. consequences of a polluted environment is a visible and widespread impact of the The effect of these projects was also work that CSATs have been undertaking. noted by school Directors, with one The clean-up projects, in which school appropriately summarising the issue: students often participate, have helped “These projects have a very positive effect to generate a more developed sense of on children’s habits. They learn skills that understanding about the environmental they can use as adults…through these consequences of littering, with several projects we teach students to think and be students noting their new sense of responsible. The difference is huge.”69 awareness, as evidenced below. It can also be seen that a sense of • “Now we know where to put the garbage… collective responsibility has been and we behave differently because we have cultivated through the CSATs learned a lot from these projects held in environmental projects, with many our school”. Kosovo Albanian female, students noting the importance of co- elementary school student (Shaban operation and partnership and the Shabani School), Dragash/Dragaš, 14 need for everyone to “take care of the June 2007 environment”.70 In one school in Rahovec/ Orahovac, for example, the students • “Because I was part of this project, which collectively undertake a weekly clean-up has had an impact on the student’s of the school garden.71 More generally, conscience, I now throw the garbage in students noted an increased tendency the right place. When I see children I tell towards encouraging other children them not to throw the garbage in the street not to litter.72 This impact is especially because it has consequences for their health”. important because if such a level of Kosovo Albanian female, secondary awareness and sense of responsibility can school student (Haxhi Zeka School), Istog/Istok, 18 September 2007. 69 Kosovo Serb male, primary school employee, Štrpce/ Shterpcë, 12 June 2007. • “I participated in the project about cleaning 70 Kosovo Albanian female, elementary school student (Shaban Shabani School), Dragash/Dragaš, 14 June 2007. the environment in the school, city, and 71 Kosovo Albanian female, secondary school student park. The city is cleaner now and it has (Xhelal Hajda School), Rahovec/Orahovac, 18 September an effect on the air also… [Now] I throw 2007. 72 Kosovo Serb female, primary school student, Štrpce/ garbage in the container. In the city we have Shterpcë, 12 June 2007.
32 be engendered amongst Kosovo’s youth, with the service. Fourteen per cent of the then any increase in environment-related individuals interviewed expressed that activity is more likely to be sustainable public cleaning services at the Kosovo- over a longer period of time. As such, wide level were of a poor quality, and 23% continued actions in schools, both by considered this to be the case within their CSATs and by the school leaderships, is to individual municipalities. be encouraged. Though the number of people questioned on this issue is small, it is possible to see 3.2.5 The contribution of CSATs partners that the authorities in Istog/Istok and Rahovec/Orahovac were viewed particularly The majority of individuals questioned favourably, while those in Štrpce/Shterpcë about environmental cleanliness were were heavily criticized by the majority of generally satisfied with the level of service interviewees located there. Three of the four provided by Kosovo’s authorities in terms of people questioned in the latter municipality public cleaning, both in their municipality stated that the level of public cleaning was and across Kosovo. A total of 57% and 49% ‘poor’, though the lack of adequate resources of people interviewed thought that the was acknowledged as a contributory factor authorities were doing either an ‘excellent’ or in this regard.73 The shortage of appropriate ‘good’ job across Kosovo and in their specific facilities as an obstacle to the appropriate and municipality respectively: adequate disposal of household waste was
Excellent 11% 20%
Good 46% 29% Kosovo Fair 17% 20% Municipality
Poor 14% 23%
Don't know/No answer 11% 9%
Figure 9: Overall, how well do you think a recurring complaint, with one interviewee the authorities are providing public highlighting the issue particularly well: “The cleaning services to the residents of main problem is that we do not have any help Kosovo? (Base No = 35) from the municipality for the garbage dump,
However, it remains that a significant 73 Kosovo Serb male, Hunting Association employee, proportion of people noted dissatisfaction Štrpce/Shterpcë, 12 June 2007.
33 so we burn the garbage, and plastic cannot expectations.78 Further, Dragash/Dragaš be destroyed without proper recycling”.74 CSAT has worked in co-operation with However, uncontrolled or inappropriate the KPS mounted border police, the incineration of waste can generate harmful Municipal leadership, KFOR and the pollutants,75 and thus it is critical that authorities in Albania to address issues of adequate mechanisms for its disposal are illegal deforestation with some success,79 available. yet continued action by the KPS and A number of people interviewed noted Municipal authorities is necessary for this that the lack of systematic inspection or issue to be effectively addressed. penalties for those who fail to dispose of their household waste in an appropriate The standard of information provision manner exacerbates the already low level regarding environmental issues is of public consciousness towards this particularly important given that a issue.76 This is a matter that should be developed level of understanding and examined by the Municipal Assemblies, awareness is integral to increased action. as an excess of inappropriately disposed It is therefore encouraging that a majority household waste causes problems not only of interviewees (63%) considered that their to human health and the aesthetic and municipal authorities were doing either material health of the environment, it also an ‘excellent’ or ‘good’ job in providing contributes to the dangers caused by stray information about environmental issues, dogs.77 though a smaller proportion (40%) The problem of illegal deforestation was considered this to be the case across also raised by several interviewees, who Kosovo. expressed a desire for the authorities in Kosovo to effectively address the issue. For However, a significant minority (20%) example, some measures have been taken considered that the Municipal Assemblies by the Istog/Istok CSAT to address this were doing a ‘poor’ job in providing issue in co-operation with the Municipal information on the environment. One authorities, and though there has been interviewee voiced her concern about some success in terms of arrests, a CSAT the issue both in her municipality and representative noted that the impact they in Kosovo generally: “The municipality have been able to have has not met their does not distribute any information about projects or activities…If every municipality is doing [as] ours, I must say 74 Kosovo Serb female, Istog/Istok, 20 September 2007. the situation [across Kosovo] is poor.”80 75 European Environment Agency, Dangerous substances in waste (2000), pp. 16-21. Available at: http://reports.eea. europa.eu/technical_report_no_38/en/tech38.pdf 78 Kosovo Albanian male, Municipal representative/CSAT 76 For example, Kosovo Albanian male, CSAT member, member, Istog/Istok, 20 May 2008. Dragash/Dragaš, 14 June 2007 and Kosovo Serb female, 79 Kosovo Albanian male, Municipal representative/CSAT Leposavić/Leposaviq, 24 May 2007. member, Dragash/Dragaš, 20 May 2008. 77 See section xx above. 80 Kosovo Serb female, Istog/Istok, 20 September 2007.
34 50% 43%
40% 26% 30% 37% Kosovo 20% 20% 20% Municipality 20% 14% 10% 17% 3% 0% 0% Excellent Good Sufficient Poor Don't know/No answer
Figure 10: Overall, how well do you think 3.2.6 Partnerships and problem-solving the authorities are doing in the provision of information about the environment to the Though there have been challenges and residents of …?’ (Base = 35) limitations, projects undertaken by CSATs in the field of environmental safety have The contribution made by the KPS to contributed to the creation of cooperative improving environmental conditions was multilateral relationships between various also highlighted by those interviewed for stakeholders and community members. this Assessment. Indeed, there are many Not only have these had a clear and excellent examples of the KPS working in positive impact on the inhabitants of these partnership with the CSATs to implement municipalities, they are also critical for projects that impact upon environmental sustainability. Whether these partnerships safety and awareness, in addition to the role are ad hoc and project-specific or more KPS units have played in the addressing structured and regular in nature, it can be the issue of stray dogs. In almost all of the seen that CSATs regularly seek to develop ‘clean-up’ initiatives discussed in section supportive working relationships with 3.2.1 above, for example, KPS officers have relevant organisations and actors in order been directly involved. Further, the KPS to achieve project objectives. has been particularly active in schools. For example, in one community in Štrpce/ In addition to the partnerships that CSATs Shterpcë there is a biannual cleaning project have forged with municipal authorities initiated by the KPS and undertaken in and KPS units while implementing partnership with the local school.81 environment-focused projects, they have also worked in co-operation with hunting 81 Kosovo Serb male, school employee, Štrpce/Shterpcë, associations. This has occurred not only 12 June 2007.
35 in relation to initiatives aimed at reducing and trusted to resolve different problems the prevalence of stray dogs, but also in in partnership with the inhabitants connection with more general activities. themselves.85 As one CSAT member noted, For example, in Štrpce/Shterpcë, the the inhabitants of Kosovo are accustomed hunting association has been involved to the promises of different organisations in river and street cleaning activities and actors and, as such, levels of trust can several times a year, in partnership with be low. However, “people see [CSATs] the local CSAT, the KPS, local schools and actions, [which have] proved our words. the municipal authorities.82 The hunting As a result public trust in CSATs has association in Leposavić/Leposaviq often increased…[People] see the results [of holds monthly meetings with CSAT CSAT] projects and they trust [them].”86 representatives to discuss community The importance of such co-operation was problems. 83 further summarised by one CSAT member, Further, involvement of and co-operation who said “without partnership, some with local communities is necessary in serious things cannot be done”.87 The Vice- order for such programmes to be sustained President of the Municipal Assembly in over a longer period. One interviewee Dragash/Dragaš further highlighted this noted that “we [have shown] the valuable impact, noting that “thanks to community that nothing can be changed the CSATs programme, the partnership by itself…if we want something done between the municipality, the KPS and the regarding improvements to our living community has improved. Communication conditions…we need to work together as has improved and the environment has a team….This type of work has increased improved”.88 community awareness that nobody can solve your problems if you do not make any kind of move yourself”.84 3.3 Conclusion
As a result of the partnerships continually It is clear that the work of the CSATs developed and utilised by the CSATs, has had a visible impact on the not only is environmental awareness at a perceived levels of traffic safety in good level, as evidenced by the significant several municipalities and has created social involvement in CSATs environment preconditions necessary for improving projects, there seems to be a good level actual safety. The number of traffic of faith that CSATs can be approached signs and pedestrian crossing installed
85 Kosovo Serb male, Leposavić/Leposaviq, 29 May 2007. 82 Kosovo Serb male, Hunting Association employee, 86 Kosovo Albanian male, CSAT member, Istog/Istok, 20 Štrpce/Shterpcë, 12 June 2007. September 2007. 83 Kosovo Serb male, CSAT member, Leposavić/Leposav- 87 Kosovo Albanian male, CSAT member, Istog/Istok, 20 iq, 24 May 2007. September 2007. 84 Kosovo Serb male, CSAT member, Leposavić/ 88 Kosovo Albanian male, Municipal Assembly Vice Leposaviq, 09 Aug 2007. President, Dragash/Dragaš, 14 June 2007.
36 represents a positive development, efforts to educate people on the dangers yet much more remains to be done. In posed by their careless garbage disposal order for success to be maximised, full should be intensified in order to provide support from the municipal authorities a sustainable solution to the problem. is necessary. Individuals involved in the Finally, inclusive and sustainable CSATs programme have reported that partnerships, sometimes across ‘ethnic they feel safer in and amongst traffic, boundaries’, have been created, with and that they feel the KPS is generally contact established between the CSATs, working well to meet the traffic needs of communities, Municipal Assemblies, the their communities. Thousands of students KPS, hunting associations and local NGOs, have been educated about traffic safety KFOR and others. and, as a result, possess a higher level of awareness of the dangers posed by traffic. Further, partnerships between the CSATs, KPS, schools, communities, and municipal authorities are being strengthened as a result of their shared goals. However, much more remains to be done in this field, both by the CSATs, the communities more generally, and the authorities, both law enforcement and municipal.
The success of the significant number of projects undertaken by CSATs that have had a direct and positive impact upon the quality of the environment in local communities is also evident. Though it is, at the present time, impossible to say whether the CSATs’ work has affected the degree of pollution in Kosovo, it is clear that the visual environment has been improved in the villages and towns in which they work. CSATs have made significant progress towards motivating local communities to take care of their immediate surroundings and raising the awareness of environmental issues amongst children. However, in order for the impact to be sustainable, clean- up activities need to be regular and
37 3.4 Recommendations Particular focus should be made on Kosovo youth in order to ensure sustainable improvements. Traffic safety • Municipal authorities should allocate • The strong leaning towards social adequate resources to longer-term action in the field of traffic safety is environmental projects, such as tree- clearly indicated by the work thus far planting, sustainable river cleaning, and completed by the CSATs, and the impact initiatives to lower levels of pollution in that they have had. As such, sustained order for the positive impacts of clean- implementation of traffic-related projects up and awareness-raising activities to be should be considered by the Municipal strengthened. authorities and relevant government departments in order to capitalise on and • Municipal authorities and the further recent success. government should seek to develop mechanisms to effectively address the issue • The Municipal authorities should of illegal wood-cutting in co-operation with provide sufficient support, both logistical the KPS. and financial, for the traffic safety projects undertaken by the CSATs and their partners • Municipal authorities should ensure in order to avoid failure of projects. that all villages and towns have proper garbage disposal facilities. They should • The KPS should, in partnership with also implement a comprehensive system CSATs and local schools, continue to of ‘checks’ throughout municipalities implement regular traffic awareness to ensure that household waste is being education programmes. disposed of in accordance with acceptable standards. The imposition of penalties • The KPS should seek to implement a on those who fail to comply with such ‘bottom-up’ approach to traffic policing, regulations should be strongly considered. with a change in attitudes being the ultimate and sustainable goal. • Municipal authorities should ensure that adequate support, both financial and practical, is given to environmental Environmental conditions and safety projects undertaken by the CSATs and their partners. • CSATs should continue to work towards engaging local residents in environmental • Municipal authorities should ensure that projects, and raising awareness of the timely decisions are made on proposed benefits associated with them and the actions towards stray dogs, and proper dangers caused by environmental damage. support be given to those involved.
38 4. 4.1 Interethnic co-operation BROADER The subject of interethnic relations remains PROGRAMMATIC a pressing and sensitive issue, and Kosovo’s communities and the relationships IMPACTS between them is often at the forefront of international discussion. One of the initial As well as having an immediately expectations of the Programme Team visible impact on issues, such as traffic at the inception of this programme was 89 safety and environmental conditions, that CSATs would provide a forum for CSATs have had a valuable opportunity interethnic communication and dialogue.90 to influence broader issues. This is due There have been a number of projects to the fact that CSATs are inclusive through which CSATs have explicitly in their approach: they are composed sought to improve these relationships, yet of residents, municipal officials, quite often an impact is also created as a community leaders and KPS officers; by-product of projects that have sought men, women and youth, who all work to achieve more discrete or tangible goals, together as part of the same team. such as environmental cleanliness. Due to Further, in the course of their work its importance, the research team thus chose they co-operate with many different to focus on this issue and, notwithstanding stakeholders and thus bring a range the challenges associated with accurately of actors together, as well as operating assessing any change in interethnic across ethnic lines. Though the broader relations within these areas, the research impacts of the programme are diverse, shows some positive developments. the Assessment sought to explore two aspects of this issue: interethnic co- 4.1.1 Key concerns and issues addressed operation in multi-ethnic areas and by CSATs CSATs’ impact upon relations between the residents and the KPS. As these CSATs have undertaken a number of issues necessarily include a focus on projects that specifically sought to bring individual attitudes, any significant different communities together and change will only become apparent improve co-operation and relations. One over a longer period of time. Yet it is of the most widespread and successful of possible to see indications of increased these has been a series of multi-ethnic youth co-operation and mutually beneficial camps organised by or with involvement relationships emerging from the from CSATs. These camps have brought programme thus far. children of different communities together
90 Former CSAT programme staff member, Vushtrri/ 89 See section 3, ‘Project specific impacts’. Vučitrn, 28 May 2008.
39 Obiliq/Obilić CSAT organised multi-ethnic youth camp in Brezovica/Brezovicë
for a week to participate in joint activities in a multi-ethnic environment. The camps and workshops. For example, such were well received, with one participant camps have been held in the Brezovica/ summarising their value: “I was very Brezovicë mountain resort, organised by happy to be with my working group, the Obiliq/Obilić and Vushtrri/Vučitrn we learned, talked and played together. CSATs in co-operation with the KPS. Getting to know students from other ethnic Camps have also been organised by CSATs communities was a great opportunity we in Dragash/Dragaš, Kamenicë/Kamenica never had before.”92 and Rahovec/Orahovac and CSATs in Novobërdë/Novo Brdo, Prizren and Štrpce/ Another good example of interethnic Shtërpcë have provided organisational projects was in 2005, when the Vushtrri/ and fundraising support to camps in their Vučitrn CSAT, in co-operation with the municipalities. Further, the multi-ethnic international NGO ‘Women for Women youth camp initiated by the municipal International’ and the local community, authorities in Fushë Kosovë/Kosovo Polje, implemented a project entitled ‘Walls and organised in co-operation with the around the Houses’. This initiative grew CSAT involved not only children of the from discussions for the return of Ashkali Kosovo Albanian, Kosovo Serb, Ashkali and families who had left the municipality Roma communities, but also a number of following the violence in March 2004, young people from Germany. The value of which saw the burning of 72 Ashkali bringing youth together in such a forum is houses. The displaced Ashkalis had significant: as well as engaging in dialogue, requested that, in keeping with cultural they learn to work together towards tradition, walls be erected around the re- achieving their goals, something that is built houses to which they would return. necessary for the long-term stability of The project benefited 13 families and Kosovo. Separate from, but complementary their houses, and received strong support to, the CSATs’ multi-ethnic youth camps from the Kosovo Albanian community of were the ‘Future Leaders’ youth camps Vushtrri/Vučitrn, the Municipal Assembly, administered by the Kosovo Police Service the local KPS units and the government. School91 in partnership with the CSATs The cooperative nature of the project programme team and ICITAP during 2004 was noted by one participant, who stated and 2005. Attended by young people from that “with the support that we have from the Kosovo Albanian, Kosovo Serb, Kosovo residents, from the Municipality and Bosnian, Roma, Ashkali, Egyptian and from other institutions, we will be always Turkish communities, the camps offered successful”.93 Another participant also participants an opportunity to gain conflict observed the way in which the project management and problem-solving skills 92 Kosovo Serb participant of the ‘Future Leaders Youth Camp’, 2 – 4 July 2004. 91 Now the Kosovo Centre for Public Safety, Education 93 Female, CSAT member, Vushtrri/Vučitrn, 13 September and Development. 2007.
40 has impacted on everyday life in the This project evolved from an initiative municipality: “Now the Ashkali community of the UK Department for International is living in complete freedom in their Development and the OSCE Mission in houses. They have freedom of movement Kosovo to facilitate dialogue between [and can] visit all the places they need Kosovo Albanian and Kosovo Serb to”.94 Another CSAT member involved leaders of Prelluzhe/Preluže in 2004, in this project talked about the way in during which the need for a new bridge which the full integration of the Ashkali between the communities – physically community into Vushtrri/Vučitrn society and psychologically – was raised. The provided his personal motivation for CSAT has collected signatures from 250 becoming involved in the project, and how representatives from the community, his expectations of success were readily municipality, KPC and KFOR, to support exceeded.95 The “key role” that the CSAT the rebuilding of a bridge across the had played in the initiative and the ongoing Sitnica River to connect the Kosovo reintegration efforts were further explored Albanian and Kosovo Serb communities. by a beneficiary of the project, who noted They are now preparing to discuss the that “with [the CSATs] help, all the children issue with Kosovo Serb community in [the Ashkali] community are now going leaders. This is an excellent example of to school…For every request, need or how the CSAT has become involved in problem, we go to the CSAT”.96 The impact an initiative and taken proactive steps that the Vushtrri/Vučitrn CSAT has made towards its development, in order to in this case is significant, and it provides a improve the levels of communication and foundation for sustainable development of interaction/reconciliation between different interethnic relations. communities.
Additionally, the Vushtrri/Vučitrn CSAT Other examples of projects with an worked with partners to build a new road interethnic impact include a project entitled (‘Integration Road’) linking the Ashkali ‘Skilful Hands’, which was initiated by community with the Kosovo Albanian area the CSAT in Lipjan/Lipljane in 2006. in the main town, increasing the levels This project brought together women of of contact and significantly improving the Kosovo Albanian, Kosovo Serb and relations between the two communities.97 Ashkali communities both to learn skills CSAT members are also involved in an conducive to gaining employment, and initiative to build an ‘Integration Bridge’. engage in inter-community dialogue.98 Moves by the Kamenicë/Kamenica CSAT to remove the barriers separating the Kosovo 94 CSAT member, Vushtrri/Vučitrn, 10 August 2007. 95 CSAT member, Vushtrri/ Vučitrn, 10 August 2007. 96 Ashkali citizen and beneficiary of CSAT project, Vush- 98 The CSAT implemented this in co-operation with the trri/Vučitrn, 14 August 2007. KPS, a local secondary school (Adem Gllavica School). 97 Kosovo Albanian male, Municipal representative/CSAT They received financing from a Norwegian NGO ‘Norges member (Vushtrri/Vučitrn), Vushtrri/Vučitrn, 28 May 2008. Vell’.
41 Participants of the multi-ethnic football tournament in Istog/Istok
Albanian and Kosovo Serb communities Istok, during which Kosovo Albanians, in Kamenicë/Kamenica town that had Kosovo Serbs, Kosovo Bosnians, Roma been erected by the US KFOR contingent and Ashkali participated. The CSAT in due to feelings of insecurity amongst the Rahovec/Orahovac implemented a project Kosovo Serb inhabitants also had a positive in partnership with a local swimming pool impact on interethnic relations. In 2006, the owner that brought 100 residents from local CSAT proposed that the barriers be all communities to swim together free of removed as a result of the inconvenience charge for one month. As a result of the that they caused for traffic flow. Though initiative, people from all communities both KFOR and the Kosovo Serb forged friendships and the CSAT, therefore, community initially declined to do so as a wishes to replicate the project annually.102 result of security concerns, an agreement An art competition, with a theme of was reached after extensive discussion ‘interethnic tolerance’, was held in Fushë between municipal representatives, the Kosovë/Kosovo Polje. Students from all CSAT and Kosovo Serb leaders in the town. communities took part to “show their In order to assuage outstanding security vision that [they] can all live together in concerns, the Municipal leadership agreed Kosovo”.103 to install additional street lights, traffic signs and sidewalks in the town,99 and It can also be seen that projects with a with the financial and practical assistance different, more tangible goal, such as the of several dozen residents, and the co- improvement of environmental standards operation of the KPS, the barriers were have had a positive impact on interethnic removed. The barriers remain absent at relations. For example, the regular clean- the present time and CSAT members have up projects in Istog/Istok, which are reported that freedom of movement and implemented in co-operation with several inter-community communications have different stakeholders,104 have resulted in improved as a result.100 increased co-operation between different communities, such as Kosovo Albanians, Art and sport have also commonly Kosovo Serbs and Ashkali.105 As discussed been used by CSATs as vehicles for the more extensively in section 3.2.1, the CSAT improvement of interethnic relations. in Fushë Kosovë/Kosovo Polje has also In Kamenicë/Kamenica, for example, implemented a project aimed at improving the local CSAT and KFOR contingent a neighbourhood inhabited by the Ashkali organised a football competition for all community. This project was undertaken communities.101 There were similar multi- ethnic events in Štrpce/Shterpcë and Istog/ 102 CSAT member, Rahovec/Orahovac, 18 September 2007. 99 Kosovo Serb male, Kamenicë/Kamenica, 5 June 2007. 103 Kosovo Albanian female, KPS officer, Fushë Kosovë/ 100 CSAT member, Kamenicë/Kamenica, 20 May 2008. Kosovo Polje, 17 May 2007. 101 Kosovo Albanian male, CSAT member, Kamenicë/Ka- 104 For more information on this project, see section 3.2.1. menica, 5 June 2007. 105 Kosovo Albanian male, Istog/Istok, 20 September 2007.
42 in partnership with the local Ashkali people are now working together”. Kosovo community, the Municipal Assembly and Albanian male, Municipal Assembly an international NGO.106 Vice President, Fushë Kosovë/Kosovo The interactive approach that CSATs Polje, 17 May 2007 have taken in response to interethnic relations was highlighted by a municipal representative in Klinë/Klina, who stressed 4.1.2 Community perceptions of that the “read[iness] to hear and help interethnic relations people with their problems” was one of the greatest successes of the programme”.107 Recent and extensive research by different The success that CSATs have had in relation organisations shows that interethnic to interethnic communication and co- relations remain a concern of Kosovo’s operation is thus positive and they should population. Twelve per cent (12%) of continue to focus on this area in order respondents in a 2007 survey listed poor to make a sustained contribution to the interethnic relations as one of their most relations between Kosovo’s many different pressing security and safety problems, ethnic communities. though this rose to 56.9% amongst Kosovo Serb respondents.108 However, • “Thanks to the CSATs programme, many research undertaken in 2007 shows that a issues have improved. For instance, safety large proportion of Kosovo’s population has improved, interethnic relations have considers interethnic relations to be improved and the partnership between improving. Seventy-four per cent (74%) the public and municipality and the of Kosovo Albanians, 35% of Kosovo municipality and other institutions have Serbs and 80% of other communities improved”. Kosovo Bosnian male, reported holding that opinion in October Municipal Assembly Vice President, 2007, though these statistics represent Dragash/Dragaš, 14 June 2007. a slight decrease from June 2007.109 This increasingly positive perception is • “The CSATs impact is big. They are behind supported by official KPS statistics, which many great changes.” Kosovo Albanian show that crimes or incidents recorded as male, Municipal Assembly President, possessing a potential ‘ethnic’ element have Fushë Kosovë/Kosovo Polje, 17 May 2007. steadily decreased during the last three years to just 24 incidents in 2007. • “The CSATs role in improving interethnic relationships and safety in Fushë Kosovë/ 108 FIQ and Saferworld, Human security in Kosovo: A Kosovo Polje is huge…Thanks to CSATs, survey of perceptions (May 2006), p. 20. Available at: http://www.saferworld.org.uk/images/pubdocs/Human_ Security_in_Kosovo_English.pdf 106 Kosovo Albanian male, Municipal Assembly repre- 109 Where 92%, 90% and 95% of each group respectively sentative, Fushë Kosovë/Kosovo Polje, 17 May 2007. held that opinion. See UNDP Kosovo, Early Warning Report 107 Municipal Assembly Vice President, Klinë/Klina, 10 Kosovo No. 18, (October 2007), p. 35. Available at: September 2007. http://www.kosovo.undp.org/repository/docs/EWR_eng.pdf
43 1000 899 800 600 400 210 200 152 62 0 24 2003 2004 2005 2006 2007
Figure 11: Number of criminal incidents reported a similar approach towards classified as containing a potential ethnic meeting with Kosovo Albanians. It should element (Source: Official KPS data) be remembered that the Kosovo Albanian and Kosovo Serb individuals interviewed CSATs municipalities worth noting for their for this research live in communities where absence of such reported incidents in 2007 the CSATs have been active, and this are Dragash/Dragaš, Fushë Kosovë/Kosovo finding therefore suggests that involvement Polje, Gjakovë/Đakovica, Istog/Istok, Klinë/ with the CSATs programme has had a Klina, Kaçanik/Kačanik, Lipjan/Lipljane, positive impact on community members’ Novobërdë/Novo Brdo, Obiliq/Obilić, perceptions of interethnic relations. Prizren, Rahovec/Orahovac and Viti/Vitina. Kosovo’s conflict is, in many interviewees’ Research undertaken by UNDP Kosovo opinions, responsible for the many difficult shows that there has been a decrease in relationships that remain in Kosovo. As the proportion of Kosovo Serbs willing to one Kosovo Bosnian interviewee stated: live or work with members of a different “it is not easy to have a coffee [with a community, with only 30% of this group person from a different community] stating that they would be prepared to live if you have lost someone from your in the same town as Kosovo Albanians in family in the war”.111 Another, Ashkali, October 2007. The corresponding statistic interviewee stated that, in the past, meeting for Kosovo Albanian respondents is with a member of the Kosovo Albanian 40%.110 However, many Kosovo Albanians community would have been “a problem”, participating in this Assessment asserted due to the number of people still missing that they were more likely to visit a from his village and the associated difficult Kosovo Serb at the time of the research relationships.112 Some CSATs members than in 2002. The Kosovo Serb participants also noted that whilst on a personal level
110 UNDP Kosovo, Early Warning Report Kosovo No. 18, 111 Kosovo Bosniak male, Municipal Assembly Vice Presi- (October 2007), p. 36. Available at: dent, Dragash/Dragaš, 14 June 2007. http://www.kosovo.undp.org/repository/docs/EWR_eng. 112 Ashkali male, Municipal Assembly Vice President, pdf Fushë Kosovë/Kosovo Polje, 17 May 2007.
44 interethnic communication, especially that interethnic relations are positive, an between Kosovo Albanians and Kosovo integrated community where “everything Serbs, can be readily achieved, at times can be resolved”.117 Here, the Kosovo the relationship can be “politicised”, Albanian and Kosovo Serb communities making more formal dialogue difficult.113 work in partnership against crime, as well In this regard, there is a concern that as in business,118 and ethnic incidents have political processes and rhetoric may be declined. Though there were five ‘possible inhibiting the level of success that is being ethnic incidents’ reported in 2005, this achieved in this area.114 However, if CSATs decreased to two in 2006 and zero in 2007. continue to work on facilitating interethnic The same can be said for Gjakovë/Đakovica: communication, then they can build the number of such incidents decreased personal relationships that may eventually from 17 in 2005 to 0 in 2006 and 2007. One be able to transcend politics. of the respondents in Gjakovë/Đakovica also noted the increased positivity of However, some municipalities were Kosovo Albanian-Ashkali relations, and highlighted by interviewees for their said of the Kosovo Albanian interaction particularly positive levels of interethnic with the Kosovo Serb community: “I co-operation. For example, the relationship think relationships are better now; we are between Kosovo Albanians and the large working together for a better future”.119 Gorani/Bosnian community in Dragash/ Dragaš is well-known for its high level of 4.1.3 Social involvement in projects with interethnic co-operation. The Municipal an interethnic element Assembly Vice President noted the extent to which the community interacts and Social involvement in projects with an co-operates, and he also highlighted interethnic impact has been excellent. It the relatively high incidence of mixed has already been established that various marriage.115 This view is supported by KPS communities have worked together in statistics that show an absence of ‘ethnic relation to, for example, environmental incidents’ in the municipality during 2007, projects,120 and individuals’ involvement in with just one occurring in 2005 and one in initiatives specifically aimed at increasing 2006.116 communications between various communities has also been good (see Fushë Kosovë/Kosovo Polje was also above). The public willingness to become highlighted as a municipality in which involved, which has accompanied several
113 Kosovo Albanian male, Municipal representative/CSAT 117 Kosovo Albanian male, Municipal Assembly Presi- member (Istog/Istok), Vushtrri/Vučitrn, 28 May 2008. dent, Fushë Kosovë/Kosovo Polje, 17 May 2007. 114 Former CSAT programme staff member, Vushtrri/ 118 Kosovo Albanian male, Municipal Assembly Vice Vučitrn, 28 May 2008. President, Fushë Kosovë/Kosovo Polje, 17 May 2007. 115 Kosovo Bosnian male, Municipal Assembly Vice Presi- 119 Kosovo Albanian male, Gjakovë/Đakovica, 10 Sep- dent, Dragash/Dragaš, 14 June 2007. tember 2007. 116 Official KPS statistics. 120 See section 3.2.
45 Children in Fushë Kosovë/Kosovo Polje taking part in the multi-ethnic ‘Tolerance and Coexistence’ initiative
CSATs initiatives, such as the ‘Integration of the CSATs projects have welcomed Bridge’ project in Vushtrri/Vučitrn and the their increased contact with children of removal of the Kamenicë/Kamenica barriers, other ethnic groups. For example, one shows a real propensity towards interethnic student talked about his involvement in dialogue. As such this involvement should various traffic safety and sports initiatives be nurtured and developed. organised by the CSAT and KPS in Štrpce/ Shterpcë where both Kosovo Albanian 4.1.4 Involvement of, and impact on, and Kosovo Serb children participated. young people He stated that though he did not have any contact with the Kosovo Serb participants, It is particularly important that young this was due only to language barriers; people are engaged in interethnic otherwise he “would not have any problem communication, given that approximately talking with them”.123 half of Kosovo’s population is under the age of 25.121 As one NGO representative Further, multi-ethnic youth football has stated, often it is “children [who] are tournaments have been organised in the first ones to understand that there Dragash/Dragaš. The Fushë Kosovë/Kosovo must be good co-operation with other Polje CSAT worked in co-operation with communities”.122 As the youth of Kosovo the UK Department for International is its future, positive relations between Development, the KPS and the OSCE children of different communities must be Mission in Kosovo to hold a competition developed. Encouragingly, some CSATs for the best poster on ‘Tolerance and activities have been directly targeted at Coexistence’ in a local primary school. facilitating interaction between children of The latter event involved participation of different communities, such as the ‘multi- Kosovo Albanian, Kosovo Serb and Ashkali ethnic youth camps’ discussed in more children, and served to emphasise the detail in section 4.1.1. Other projects with a need for good relations between different possible interethnic impact, such as traffic communities. safety projects, have also been directed at young people. Though the impact that The Kosovo Albanian, Kosovo Serb and may have been made will become more Roma children of one multi-ethnic school obvious in the long-term (for example, in Rahovec/Orahovac have participated in increased co-operation between future exchanges with other schools, as well as adult generations), youth participants participating in mutual programmes and activities such as building fences around the school. The CSATs have an important 121 See UNDP Kosovo, Youth: A new generation for a new Kosovo (Human Development Report 2006) (2006). role to play in this regard, by facilitating Available at: http://www.kosovo.undp.org/repository/ docs/hdr_eng.pdf 122 Kosovo Serb female, NGO representative (Kamenicë/ 123 Kosovo Albanian male, primary school student, Kamenica), Vushtrri/Vučitrn, 28 May 2008. Štrpce/Shterpcë, 12 June 2007.
46 contact and providing other means of 2000, and though belief in its success was support.124 It is critical that CSATs continue initially scarce,126 the market now functions to work with schools to seek ways to well, with conditions generally conducive develop partnerships between children to trade.127 Further, the Kosovo Protection of different backgrounds, especially in Corps (KPC) established an office in the light of research in 2006 that suggests that Ashkali neighbourhood in Vushtrri/Vučitrn 25% of the Kosovo Serb youth rejects the following the violence of March 2004.128 idea of forming friendships with Kosovo KPS units in Klinë/Klina undertake daily Albanians, and 62% of Kosovo Albanian visits to the villages inhabited by Kosovo young people are opposed to forming Serbs in order to provide any assistance friendships with Kosovo Serbs.125 The full that they may require,129 and the good integration of all communities is necessary level of co-operation between the Fushë for both development and stability, and this Kosovë Municipal leadership and KPS has is something that the CSATs can readily contributed to an increased freedom of continue to work towards achieving, movement for Ashkali residents.130 through its involvement with the youth of Kosovo. As well as being necessary to achieve the short-term objectives of particular projects, 4.1.5 Partnerships and problem-solving it has been seen that this collaborative approach to problem-solving can have a As evidenced throughout this section, positive impact on the levels of interethnic CSATs have worked in partnership not trust and partnership that are necessary for only with local residents, but with various long-term improvements in this issue. institutions, particularly the Municipal Assemblies and KPS, in order to connect communities and increase levels of safety, 4.2 Community-KPS relations security, co-operation and partnership. In addition to these everyday examples of co- The KPS was established in 1999 and has operation to improve interethnic relations since grown to a service of over 7000. As in Kosovo’s municipalities, there have also CSATs are “a mechanism with which to been occasions when stakeholders have implement the philosophy of community sought to improve interethnic relationships through their own initiative. For example, the Kamenicë/Kamenica KPS unit initiated 126 Kosovo Serb male, KPS officer, Kamenicë/Kamenica, the opening of a ‘multiethnic’ market in 5 June 2007. 127 Kosovo Serb male, Kamenicë/Kamenica, 5 June 2007. 128 KPS officer/CSAT member, Vushtrri/Vučitrn, 13 Au- 124 Kosovo Serb, Director of school, Rahovec/Orahovac, gust 2007. 18 September 2007. 129 Kosovo Albanian male, KPS officer, Klinë/Klina, 10 125 UNDP Kosovo, Youth: A New Generation for a New September 2007. Kosovo (2006), p. 25. Available at: 130 Ashkali male, Municipal Assembly Vice President, http://www.kosovo.undp.org/repository/docs/hdr_eng.pdf Fushë Kosovë/Kosovo Polje, 17 May 2007.
47 policing”,131 KPS involvement in the playing an important role in tackling programme is high, with several officers these issues in partnership with the local present on each CSAT, directly increasing authorities. The community policing officer the level of contact between KPS officers thus effectively functions as an outreach and community members. The training officer, providing a link between the received by those KPS officers present community and the public institutions. As on CSATs provides them with the skills a philosophy and organizational strategy, necessary to work cooperatively with the community policing plays a valuable role community and implement community in many different countries. In Kosovo, it policing principles.132 Notwithstanding has enabled the people to regain the trust the challenges associated with accurately of their police as well as empowering assessing changes in relationships between both community members and the police. the KPS and the wider public, it can be seen On a daily basis, CSATs interface with that this focus on integrating communities community policing. and law enforcement officials together in the problem-solving process has resulted When questioned about what community in some positive development. As such, policing meant to them, the KPS officers the relationship between KPS officers and interviewed focused on the creation of the communities in which they serve was trusting and sustainable relationships chosen as a focus of this research. with the community, and working in partnership with all stakeholders in 4.2.1 The concept of community policing Kosovo to identify and address problems facing people on a daily basis. In this The motivation behind community way, community policing functions as “a policing, and indeed the CSATs bridge that links residents with all the programme, is to facilitate cooperative institutions”133; it creates an environment and trusting working relationships in which people can “trust and co-operate between KPS officers, municipal officials, with the police”134 in order to “solve their and community leaders/representatives. problems together”.135 CSATs members Based on the philosophy “the people are viewed community policing through the the police and the police are the people”, same lens, stressing the need for police community policing in Kosovo aims to officers to communicate with residents bring together different stakeholders to regularly, not only in response to a crime. work together to address problems of The benefits of a “close relationship”136 crime, safety, security and livability. As such, the inhabitants are directly involved, 133 Kosovo Albanian male, KPS officer, Viti/Vitina, 10 May 2007. 134 Kosovo Albanian male, KPS officer, Gjakovë/ 131 Former CSAT programme staff member, Vushtrri/ Đakovica, 10 September 2007. Vučitrn, 28 May 2008. 135 Kosovo Serb male, KPS officer, Kamenicë/Kamenica, 132 Former CSAT programme staff member, Vushtrri/ 5 June 2007. Vučitrn, 28 May 2008. 136 Ashkali male, CSAT member (Lipjan/Lipljane), Vu-
48 KPS officers and CSAT members working with children to improve traffic safety in Kaçanik/Kačanik
between the KPS and the community, a (20%) considered the level of commitment kind of “open door to address the needs of to this issue to be ‘poor’. It is critical the residents”,137 were stressed by several to note that the KPS still has more to CSATs members. One CSAT member and do to “refine its ability to implement KPS officer noted the value of taking the community policing”140 and to fully time to speak with community members, realise the practical application of its even when unable to provide practical organisational strategy. Fundamentally, assistance.138 This reflects the excellent the aim is to have a service where, in place progress that has been made since 1999, of community policing ‘units’, “every when the concept of community policing member of the KPS feels like a part of the was introduced to Kosovo.139 community”,141 that is, where the concept of community policing is firmly embedded Though it is a relatively new concept within the culture of the service. in Kosovo, all of the KPS officers that participated in this research possessed 4.2.2 Key concerns and issues addressed a high degree of trust in the ability of by CSATs the community policing approach to improve partnerships between different The KPS has, in its own right, implemented stakeholders. Over three-quarters of numerous public relations campaigns the KPS officers interviewed thought throughout Kosovo.142 However, there that the philosophy has a great deal to have been few projects undertaken by contribute to the reduction of crime, and CSATs that have explicitly sought to improvements in safety, security and improve community-KPS relations. More liveability. If sustainable results are to be often, CSAT initiated projects aimed achieved, a firm, focused and long-term at increasing levels of traffic safety,143 commitment to integrating community improving environmental standards144 policing into the very fabric of the KPS’ and developing interethnic co-operation145 work is therefore crucial. Though half have been developed and/or implemented of the KPS station commanders and in co-operation with the KPS, thereby community police officers questioned subsequently improving community-KPS thought that the KPS’ commitment to relations. the concept of community policing was ‘excellent’, with a further 20% stating 140 Former CSAT programme staff member, Vushtrri/ that it was ‘good’, a significant minority Vučitrn, 28 May 2008. 141 Kosovo Albanian male, KPS Station Commander, shtrri/Vučitrn, 28 May 2008. Fushë Kosovë/Kosovo Polje, 17 May 2007. 137 Kosovo Albanian male, CSAT member (Kamenicë/Ka- 142 Each KPS region has its own office that is responsible menica), Vushtrri/Vučitrn, 28 May 2008. for information campaigns. KPS spokesperson, 20 May 138 Kosovo Serb male, KPS officer/CSAT member (Štrpce/ 2008. Shterpcë), Vushtrri/Vučitrn, 28 May 2008. 143 See section 3.1. 139 Kosovo Albanian male, KPS officer/CSAT member 144 See section 3.2. (Lipjan/Lipljan), Vushtrri/Vučitrn, 28 May 2008. 145 See section 4.1.
49 Further, CSATs and the KPS have against the population. Co-operation worked together to implement projects with the police in Kosovo has therefore aimed at addressing domestic violence, long been viewed as problematic: as one problems faced by the homeless, issues of CSAT member said, “if you contacted the delinquency and drug abuse in schools, police [in the past], the community would and mine awareness, amongst others – all think you were a traitor”.148 However, concerns that require the assistance of, and as the KPS becomes more involved in benefit, the wider community. As a result inhabitants’ day-to-day lives, both through of these projects, which have necessarily their community policing units and involved increased contact between the their involvement in CSATs, a feeling of KPS and Kosovo’s inhabitants, many trust in law enforcement is beginning to interviewees noted an improvement in emerge, with inhabitants developing a the relationship between the KPS and sense that the KPS “is an institution that the public, accompanied by an elevated helps them and keeps them safe”.149 This degree of co-operation and trust. As one is reflected in the perception amongst Municipal Assembly President noted, those taking part in this research that due to the fact that CSATs are working their communities are becoming safer: the proactively in communities, and in so doing majority of respondents (66%) considered are bringing the KPS and communities that levels of crime had decreased in their together, “CSATs have helped to improve neighbourhood from mid-2006 to mid- co-operation between the public and the 2007. Though official KPS statistics show KPS…and the [degree of] trust in the KPS that this was only actually the case in nine has improved”.146 This has often been of the 16 municipalities involved in the furthered by joint CSATs-KPS visits to CSATs programme,150 (levels increased in different villages147 and regular community the remaining seven from 2006 to 2007), meetings, which seek to increase daily it should be remembered that levels of contact with KPS officers and trust in the reported crime do not necessarily mirror work that the KPS undertakes, encouraging reality, with the percentage of committed future co-operation and partnership. crimes being reported varying from year to year. Indeed, the increasing propensity 4.2.3 Community perceptions of the KPS towards KPS-community dialogue may well have the effect of encouraging Prior to 1999, the police in Kosovo had people to report crimes to the police. One a history of using oppressive measures 148 Kosovo Albanian male, KPS officer/CSAT member (Lipjan/Lipljan), Vushtrri/Vučitrn, 28 May 2008. 146 Kosovo Albanian male, Municipal Assembly Presi- 149 Kosovo Albanian male, Municipal Assembly Vice Pre- dent, Viti/Vitina, sident, Dragash/Dragaš, 14 June 2007. 147 For example, in Kaçanik/Kačanik (Kosovo Albanian 150 Gjakovë/Đakovica, Istog/Istok, Kamenicë/Kamenica, male, CSAT member, Kaçanik/Kačanik, 8 May 2007) and Klinë/Klina, Lipjan/Lipljane, Prizren, Rahovec/Orahovac, Dragash/Dragaš (Gorani male, CSAT member, Dragash/ Štrpce/Shterpcë and Viti/Vitina. Official KPS statistics Dragaš, 14 June 2007). obtained March 2008.
50 CSAT member and KPS officer noted Vice President noted that increased co- that individuals often contact the police operation between the KPS and Municipal before any crime has even occurred and authorities has enabled him to develop a one of the Municipal Assembly Presidents greater sense of trust in the police.152 The thought that the very presence of an results varied according to the ethnicity effective CSAT in a community may be of the respondent, however, with Kosovo able to contribute to the reduction of Albanians more likely to have higher crime.151 Though it is difficult to measure degrees of confidence in the KPS than the how successful CSATs are in their efforts to Kosovo Serb respondents.
100% Don't know/No answer 80% Not at all 60% Not a great deal 40% A fair amount 20% A great deal 0% Overall Kosovo Kosovo Serb Other Albanian prevent crime, the perception of increased Figure 12: What degree of confidence do security that the research seems to indicate you have in the KPS? (Disaggregated by is to be welcomed. ethnicity) (Base No = 64)
The increased sense of security described These findings are supported by other by those interviewed during the course research, which shows that there is a broad of this research is complemented by the degree of public trust in the KPS, though high levels of trust and confidence in the this is much more limited amongst the KPS. The research team questioned a Kosovo Serb population,153 which is less number of people on the degree of trust optimistic when assessing KPS-community and confidence they had in the KPS, both relations.154 generally, to maintain law and order and to protect individual rights. The results 152 Municipal Assembly Vice President, Dragash/Dragaš, 14 June 2007. were encouraging; with the majority of 153 See, for example, Saferworld and FIQ, Kosovo at the respondents stating that they had either ‘a crossroads: Perceptions of conflict, access to justice and great deal’ or ‘a fair amount’ of confidence opportunities for peace in Kosovo (December 2007), p.11- 12. Available at: in the KPS. One Municipal Assembly http://www.saferworld.org.uk/images/pubdocs/SafePlace %20Conflict%20Analysis%202%20Report%2020071202%2 0English.pdf 151 Municipal Assembly President, Fushë Kosovë/Kosovo 154 See UNDP Kosovo, Early Warning Report No. 18 Polje, 17 May 2007. (October 2007), pp. 39-40. Available at: http://www.kosovo.
51 Further, the interviewees were optimistic such, this optimistic viewpoint could be about the capacity of the KPS to maintain considered as indicative of the improved law and order in Kosovo. Fifty-six percent communication, including interethnic, (56%) of the total respondents reported achieved through the CSATs programme ‘a great deal of trust’ in this aspect of the and the participation of the KPS in the KPS’ responsibilities, with just 6% stating projects.156 that they had either a small degree of The positive results established by the trust in the KPS, or none at all. When research are reinforced by the finding questioned about the extent to which they that the majority of people interviewed trusted the KPS to protect their rights, considered the KPS to be providing either the responses given were similar. The an ‘excellent’ (14%) or ‘good’ (64%) level majority of Kosovo Albanians interviewed of service to the inhabitants of Kosovo. said that they had either a ‘great deal’ Just 2% thought that the service was (69%) or ‘fair amount’ (24%) of trust in ‘poor’, with 13% considering it to be ‘fair’. the KPS to perform such a function. Just When questioned specifically about their 4% reported low levels of trust in the neighbourhood, respondents were even service. The Kosovo Serb respondents more positive with 38% and 47% perceiving were also positive, with most of them the KPS to offer ‘excellent’ or ‘good’ levels reporting that they trusted the KPS of service respectively. This is supported either ‘a great deal’ or ‘a fair amount’. by research undertaken by UNDP Kosovo, This is quite surprising because research which finds that levels of satisfaction with undertaken by different organisations the KPS are particularly high amongst consistently show that municipalities the Kosovo Albanian population, though with a majority Kosovo Serb population notably lower amongst Kosovo Serb produce results indicating a low degree respondents.157 of trust in the KPS.155 Though the results for this research show a more Interviewees were also positive regarding favourable picture of Kosovo Serb trust the role that the KPS played in information in the KPS than other studies, research provision, with the majority of respondents for this report involved people directly stating that they considered the KPS to involved in, or beneficiaries of, the CSAT be doing either an ‘excellent’ (14%) or programme, that is, individuals who ‘good’ (64%) job in this area. Just 2% found have increased contact with the KPS. As 156 It is also important to note that the sample for this undp.org/repository/docs/EWR_eng.pdf and UNDP Ko- research was small, and the results cannot, therefore, be sovo, Early Warning Report No. 17 (April-June 2007), pp. considered as representative of Kosovo as a whole. How- 45-46. ever, as discussed in section 1, it was not the intention of Available at: http://www.kosovo.undp.org/repository/ the research to be a representative ‘public survey’. docs/EWR17_eng.pdf 157 UNDP Kosovo, Early Warning Report Kosovo No. 18 155 For example, see Saferworld and FIQ, Policing in (October 2007), p. 39. Available at: Kosovo (February 2008), pp. 11-15. Available at: http:// http://www.kosovo.undp.org/repository/docs/EWR_eng. www.saferworld.org.uk/images/pubdocs/English.pdf pdf
52 this aspect of the KPS’ work to be ‘poor’. that some KPS officers are neither “qualified Respondents also thought that the KPS was nor committed”163 and a KPS officer who successful in this role on a localised level, alleged that some police officers were with 20% and 52% perceiving information connected to the commission of criminal provision to be of an ‘excellent’ or ‘good’ offences, bringing “dishonour” to the standard respectively. The role of CSATs in Service.164 Whether or not this is an accurate information exchange was highlighted,158 reflection of reality, the perception that the and the participation of KPS officers in KPS cannot be trusted, which continues community meetings was noted as a to exist amongst some individuals, must particularly valuable vehicle for information be addressed. The ongoing involvement exchange and partnership on a community of KPS officers in CSATs activities may level.159 However, the need for more regular alleviate this perception, as CSATs activities and extensive information provision increase the possibility for daily interaction regarding the progress and outcome of between KPS officers and the people. criminal cases was voiced.160 A regular radio slot, or special television programme 4.2.4 Social involvement in KPS- focusing on the work of the KPS were community relations suggested as possible mechanisms for this.161 As the CSATs have not implemented any Unfortunately, a small number of those projects directly aimed at improving KPS- interviewed expressed concern regarding community relations, the degree of social the professionalism of some members involvement in this area is difficult to of the KPS, evidencing the persistent assess. However, the large extent to which mistrust with which the KPS is viewed the inhabitants of the 16 municipalities by a percentage of the population. One have worked with KPS officers when respondent expressed the opinion that in participating in the different CSATs projects small communities, where “everyone knows is readily visible and discussed further in each other” and the officers are “scared of section 3. The need for popular support for the criminals”, the KPS was less likely to the KPS and all its activities was noted by function effectively.162 This was echoed by a Municipal Assembly representative in another interviewee who voiced a concern Novobërdë/Novo Brdo, who considered that the ultimate success of the police
158 Kosovo Albanian male, KPS officer, Prizren, 04 Sep- depended on the co-operation and support tember 2007. of the community, as “so many cases have 159 Kosovo Serb male, Štrpce/Shterpcë, 12 June 2007. been solved in co-operation between the 160 Kosovo Albanian male, Municipal Assembly Vice 165 President, Dragash/Dragaš, 14 June 2007. community and the KPS”. 161 Gorani male, CSAT member, Dragash/Dragaš, 14 June 2007 and Municipal Assembly Vice President, Dragash/ 163 Kosovo Albanian male, CSAT member, Kamenicë/Ka- Dragaš, 14 June 2007. menica, 05 June 2007. 162 Kosovo Albanian male, elementary school employee, 164 KPS officer, Leposavić/Leposaviq, 24 May 2007. Dragash/Dragaš, 14 June 2007. 165 Kosovo Serb male, Municipal Assembly representa-
53 A KPS officer and CSATs member assisting children in the creation of their vision for the ‘perfect community’ in Kaçanik/Kačanik
4.2.5 Involvement of, and impact on, Again in Kaçanik/Kačanik, the local young people CSAT undertook an initiative aimed at addressing the problems faced by children Trust between Kosovo’s youth and the KPS living on the street, in co-operation with is necessary for the long-term development the local KPS. Activities held during the of cooperative relationships between law ‘Future Leaders’ youth camps (discussed in enforcement bodies and the public, and section 4.1.1. above), also had the objective thus any impact that CSATs can have in of strengthening relationships between this area is encouraging. The level of youth the KPS and youth. In response to the participation in projects implemented by violent riots of March 2004, they provided CSATs is discussed in detail in sections an environment in which the participants 3.1.4, 3.2.4 and 4.1.4, and it has been could learn more about community shown that the involvement of the KPS policing in order to increase safety in these projects has contributed not only and security in their communities, and to increased awareness of traffic and involved direct interaction with the KPS environmental issues amongst children, it officers, who provided group facilitation. can also lead to an improved understanding of the role and purpose of the KPS amongst Below are some thoughts of a number of the Kosovo’s youth due to the increased access students, school teachers and KPS officers that they have to the KPS.166 involved in projects implemented by the CSATs. For example, KPS officers have, often in co-operation with CSATs, worked in • “CSATS have had a very positive impact schools in most of the CSAT municipalities, on students and their relationship with the providing lectures on traffic safety, drug KPS, that is for sure”. Kosovo Albanian awareness and crime and safety, as well as male, Municipal Assembly President, providing practical support to children and Kaçanik/Kačanik, 8 May 2007. youth who have worked on environmental projects (for example, in Štrpce/Shterpcë). • “The children are not afraid of the KPS at Further, in Kaçanik/Kačanik, secondary all. Right from the beginning we taught school students have been involved in them to respect the KPS and that they extensive training workshops designed should co-operate with KPS, not worry”. to enhance problem-identification Kosovo Serb male, school employee, and problem-solving skills and KPS Štrpce/Shterpcë, 12 June 2007. officers have worked in co-operation with local schools and the Municipal • “When we visited the police station we learned authorities to reduce and prevent crime. more about public safety. Now we respect and trust the police so much”. Kosovo Albanian tive, Novobërdë/Novo Brdo, 7 June 2007. female, elementary school student, Lipjan/ 166 Kosovo Albanian male, Municipal Assembly President, Kaçanik/Kačanik, 8 May 2007. Lipljane, 3 May 2007.
54 • “The [traffic safety] lesson given by the Kosovo Albanian male, School Director, community police officers…was organised “Kuvendi I Lezhës” Secondary School, to last one hour, but the students were so Viti/Vitina, 10 May 2007. interested, and asked so many questions, that the lesson lasted for two hours. The 4.2.6 Partnerships and problem-solving community police officers were amazed with the students”. Kosovo Albanian male, As evidenced throughout this impact school director, Novobërdë/Novo Brdo, assessment, partnerships between the 7 June 2007. CSATs and other stakeholders, particularly the KPS, have been crucial to the success “Thanks to the CSAT, the parent council in • of CSAT-developed projects. The presence school now has great co-operation with the of KPS officers on every CSAT, and the police. Some young people have attended involvement of units in wider projects trainings in [the Kosovo Centre for Public has contributed to an increased sense of Safety Education and Development] partnership and an understanding that and now they work as CSAT members” . people can work “in on group with the Ashkali male, Municipal Assembly Vice same goal”.167 Forty per cent (40%) of the President, Fushë Kosovë/Kosovo Polje, KPS officers interviewed for this research 17 May 2007. considered the CSATs to be doing an ‘excellent’ job in assisting the work of the “At the beginning [of the lectures] [the • Service, with a further third stating that children] were not very open with us, but the contribution was ‘good’. Most KPS later it got better and better. We could see officers stressed the value of the partnership that they had a totally different opinion between the two entities, with one KPS about the KPS…after that we have had very officer noting that “[without] partners, it is good co-operation and relations with them, more difficult to solve a problem”.168 These due to community policing unit”. Kosovo very same partnerships and the results Albanian male, KPS officer, Novobërdë/ that they have produced have also helped Novo Brdo, 5 July 2007. communities to develop a sense of trust in the different stakeholders, including the • “[School visits to the KPS] created a better KPS. As one participant said, “people feel atmosphere between students and the KPS. much freer to co-operate with the KPS if The involvement of the KPS with students they see police officers involved in [CSATs helped to remove the opinion that the projects]”.169 police are not here for the people”. Kosovo Albanian male, Municipal Assembly Vice President, Dragash/Dragaš, 14 June 2007. 167 Kosovo Albanian male, Government Minister and CSAT member, Gjakovë/Đakovica, 7 September 2007. 168 KPS officer, Lipjan/Lipljane, 3 May 2007. • “Co-operation between the KPS, the CSAT, 169 Kosovo Serb male, KPS officer/CSAT member, Štrpce/ the community and us is now much better”. Shterpcë, 12 June 2007.
55 KPS officers and CSATs members working together to develop problem- solving skills, Kaçanik/Kačanik
As well as the participation of KPS This cooperative approach to officers in the CSATs themselves, there problem-solving was noted by several are regular meetings between the CSATs interviewees. Some of their comments are and the KPS, and the CSATs, KPS and noted below. Municipal authorities, in every municipality participating in the programme. As • “As a police officer I think that [the CSAT] well as developing a cohesive approach programme can help us very much. This to problem-solving, this collaborative programme involves the community much approach can help further develop public more in problem solving…[and] really trust in stakeholders170 and contribute to improves communication between the a sense that progress is being made in police and the community. Where good partnership, rather than being imposed by communication is established, we have one body. 171 This is critical for the wider better co-operation”. Kosovo Serb male, impact of the CSATs programme. KPS officer/CSAT member, Leposavić/ As discussed in section 2, the CSAT Leposaviq, 29 May 2007. programme has sought to develop CSATs members’ knowledge and skills in a • “We had cases of hooliganism in schools, and number of areas, including partnership- young people fighting each other. We talked building, communication skills, facilitation, to [the children] in co-operation with the mediation and problem-solving. The KPS and these young people promised that participation of KPS officers in this this would not happen again. Also involved training, and their practical application of in this was the Department of Education, the acquired skills, has positively affected the Director of the school, KFOR and the their capacity to address problems in municipality”. Kosovo Albanian male, the community and, as such, encourage KPS officer, Kamenicë/Kamenica, 5 June trust and confidence in their role. This 2007. approach was summarised by a KPS Station Commander, who stated that “for every • “(Because of the CSATs), relations and problem or concern [the community] has, co-operation with the police are better, they report it to us and we try to find a way not only in Gjakovë/Đakovica but also in to solve it together. We have regular contact the whole of Kosovo”. Kosovo Albanian with the CSAT, and together we have male, Minister of Culture and Sport and succeeded in solving lots of problems in our CSAT member, Gjakovë/Đakovica, 7 community”.172 September 2007.
170 Kosovo Albanian male, Municipal Assembly Vice • “Our co-operation with the KPS is more President, Dragash/Dragaš, 14 June 2007. than good. All the time we have foot and car 171 Gorani male, CSAT member, Dragash/Dragaš, 14 June patrols along the border and in the remote 2007. 172 Kosovo Albanian male, KPS Station Commander, Dra- villages. We help each other to resolve gash/Dragaš, 14 June 2007. different situations such as the smuggling
56 of cigarettes across the border”. KFOR • “CSATs have helped to improve the representative, Kaçanik/Kačanik, 8 May relationship between citizens and the KPS. 2007. If there is a problem or if anything is unclear to the public, the CSAT will organise a • “We have established partnerships with the meeting with the KPS and try to help with community. They give us information and the problem”. Ashkali male, Municipal ideas. Our job is now more efficient…it Assembly Vice President, Fushë Kosovë/ is much easier to prevent and react now”. Kosovo Polje, 17 May 2007. Ashkali male, KPS officer, Kaçanik/ Kačanik, 8 May 2007. However, as is always the case, it is possible for more to be achieved. Though most • “I think all of us had a good experience interviewees discussed the role of the KPS working and cooperating [with each other]. in the community as part of the CSAT We met the demands the citizens made to programme in a positive light, there were the police, and now the citizens can get also criticisms that the KPS could be of even help when they need it.The KPS always greater assistance to project implementers, considered [the CSAT] as a partner, and that as their support and co-operation (both at has had a positive influence on our work”. the Officer and Station Commander level) Gorani male, CSAT member, Dragash/ are often crucial to the successful outcome Dragaš, 14 June 2007. of an initiative.173
• “[It was previously the case that] people did not want to call the police, but would instead come to the municipality. This is changing. We tell people that the municipality is not a place to report and send them to the KPS. CSATs have addressed this issue and are conducting training on how to report”. Kosovo Albanian male, Municipal Assembly President, Kaçanik/Kačanik, 8 May 2007.
• “Thanks to the CSAT program the partnership between the municipality, the KPS and the community has improved. Communication has improved…and the publics’ trust in the KPS has improved… the CSAT has made Dragash/Dragaš a
better place”. Municipal Assembly Vice 173 For example, Kosovo Serb male, NGO employee, President, Dragash/Dragaš, 14 June 2007. Leposavić/Leposaviq, 29 May 2007.
57 4.3 Conclusion traffic safety and other community safety issues, as well as through their commitment Whilst improvements in interethnic to community policing, it can also be relations cannot be the sole responsibility of seen that the KPS has made significant the CSATs, they have a valuable role to play progress in achieving a more positive image in bringing together different communities amongst CSATs participants and project and stakeholders to work together towards beneficiaries. The cooperative approach a common goal. As shown, the CSATs taken by the KPS towards solving problems have therefore undertaken a number of facing the public has enabled an enhanced projects that have directly aimed to improve degree of contact with residents and the interethnic relations in their municipality, creation of partnerships that, if properly and a larger number that have been developed, can be sustainable. However, it instrumental in ensuring the participation remains that the philosophy of community of different communities, thus contributing policing must be more uniformly applied towards improved co-operation and across Kosovo in order to achieve a truly partnership. It is not possible to accurately bottom-up approach to policing and measure the long-term impact that CSATs maximise the benefits associated with have had in this regard, yet it is visible this. Only then can the community be from the statements of participants and fully engaged in its policing and the long- beneficiaries that attitudes are changing as lasting contribution that CSATs make, be a result of the work with which they have fully utilised. It is hoped, therefore, that been involved. Though the March 2004 riots progress will continue being made in order and the Kosovo Assembly’s declaration of to generate even higher levels of trust independence, on 17 February 2008, had an and confidence in the work that the KPS effect on the process, ongoing progress is undertakes. evident: more inclusive partnerships have evolved between communities, authorities and CSATs have been created in many 4.4 Recommendations municipalities, and steps have been taken towards physically connecting different communities. Though there is undoubtedly Interethnic relations space to further develop activities aimed at increasing interethnic dialogue, • CSATs should continue to encourage these measures go a long way towards interaction and facilitate dialogue between achieving a normalisation of cooperative different communities in Kosovo, through and functional relationships between the the development and implementation of various communities of Kosovo. As such, inclusive and cooperative projects. they must be supported and encouraged. As a result of their involvement in CSATs • CSATs should continue to identify projects focusing on the environment, existing barriers to interethnic
58 communication in their municipalities, and youth on the work undertaken by the and formulate mechanisms by which to KPS in order to build trust in its activities. address them, including use of the existing Local Public Safety Committees (LPSCs) • CSATs and the KPS should continue and Municipal Community Safety Councils to undertake joint visits to both majority (MCSCs). and non-majority areas in order to identify residents’ problems and develop • Notwithstanding potential language mechanisms to address them, as well as barriers, CSATs should continue to work to ensure regular communication and co- with the Municipal authorities and local operation with the public. schools in order to develop partnerships between children and youth of different • Local KPS units should aim to provide communities through inclusive practical assistance to CSATs’ projects where projects and school ‘exchange’ projects. appropriate.
• Relationships between different • The KPS should dedicate adequate communities should be ‘de-politicised’ in support and resources to the full and political rhetoric, and concentration should effective implementation of its community be placed on increasing contact between policing organisational strategy. everyday individuals. • The KPS should seek to engage in • Municipal authorities and the more systematic and regular information government must make a greater effort exchange with residents. to provide financial and other practical support to CSATs projects aimed at improving relationships, communication and activities between different communities.
Community-KPS relations
• CSATs should continue to build and consolidate partnerships with the KPS in their respective communities, both through KPS representation on their teams, sustained dialogue and the cooperative implementation of projects.
• CSATs should continue to work with the KPS in schools in order to educate children
59 the achievements of the community safety 5. initiative in the United States on which it was STRENGTHS, modelled,174 this programme has also had a CHALLENGES AND number of other impacts that are sustainable LESSONS LEARNED and far-reaching. 5.1.1 Linking the community and public The preceding chapters have analysed institutions the projects and activities undertaken by CSATs in order to assess the impact that the As demonstrated through their inclusive and programme has had on safety, security and grass-roots approach, the CSATs have been liveability in the communities in which they able to bring together various stakeholders operate. It has been shown that there have and residents in order to jointly overcome been a number of successes, some greater safety concerns. In so doing, they have acted than others, yet in a wide range of areas. as a ‘bridge’, assisting in the creation of an However, CSATs have also faced a number environment in which community members of challenges, both in relation to the projects feel comfortable placing more trust in, for they have sought to implement, but also in example, the police. As part of the CSATs’ more institutional or organisational aspects. activities, inhabitants are also working with This section thus seeks to assess these other, Municipal representatives and international non-project based issues, as well as the institutions and security providers, successes and challenges associated with along with local civil society groups and them. community leaders. Communication and co-operation has naturally improved, and foundations for further development have 5.1 Strengths of the CSATs programme been laid. As demonstrated throughout the report, the Those involved in CSATs, either as CSATs programme has resulted in significant participants or beneficiaries, have progress in participating communities consistently highlighted the success with in a number of areas. Tangible gains which this ‘link’ has been made. As one have been made in relation to traffic and CSAT member and government minister environmental safety, and there have been stated, “though I did not have any particular improvements in the relationships between expectations, a good chain [has been different communities, as well as between created]…we hope that it will continue like residents and the KPS. As a result, safety this”.175 The communication between the and liveability have increased in CSATs communities and, in some cases, the freedom 174 Former international trainer and current CSATs pro- of movement enjoyed by non-Albanian gramme staff member, Vushtrri/Vučitrn, 16 June 2008. communities has increased. Surpassing 175 Kosovo Albanian male, CSAT member/Government minister, Gjakovë/Đakovica, 7 September 2007.
60 residents and stakeholders, particularly have presented themselves have usually the police, has also led to improved co- been readily overcome, with individuals operation.176 The presence of this connection proving “receptive to trying new things, has thus operated to provide a locally-based working together and building new and body through which individuals can voice strengthening old partnerships”.179 This was their concerns, become more aware of also highlighted by CSATs members, one security and safety issues, and play a role in of whom noted the initial “gap between the the problem-solving process. municipality and the community, but now we are all sitting around the table. Our work 5.1.2 Building cooperative working has structure [and] we all communicate”.180 relationships CSATs representatives also take part During their training and through their in regular meetings of the Municipal project implementation, CSATs members Community Safety Councils (MCSCs) in are taught how to build partnerships and their respective municipalities,181 during work together in teams. This provides them which crime and safety issues in the with the tools that they need to work with community are discussed by the municipal different stakeholders in their communities authorities, KPS and other local and and throughout Kosovo, as well as with international stakeholders. Through this each other. As discussed throughout this forum, issues are identified and solutions report, it can be seen that all CSATs have are implemented. CSATs have a valuable successfully created cooperative partnerships input into general partnership processes with a number of stakeholders in order through their participation in this forum to implement their projects and deliver and an increased degree of co-operation their objectives, reflecting the idea that a has been facilitated by a recent decision community problem belongs to everyone, by the Programme Team to ensure that and thus people must co-operate to find a the CSATs have at least one member solution.177 This is a great achievement, and who is also a permanent member and one that has “far exceeded” the expectations CSATS representative on the MCSC in of the programme and its participants.178 their municipality. Furthermore, CSATs There were initial concerns that bringing representatives participate in the meetings together the Municipal authorities, KPS and and activities of the Kosovo Community community in a forum like CSATs may be problematic; however, the challenges that 179 Former CSATs programme staff member, Vushtrri/ Vučitrn, 28 May 2008. 180 Municipal Assembly Vice President, Klinë/Klina, 10 176 Kosovo Serb male, KPS officer/CSAT member, September 2007. Leposavić/Leposaviq, 9 August 2007. 181 See UNMIK Regulation 2005/54 On the Framework 177 Kosovo Albanian male, CSAT member/Government and Guiding Principles of the Kosovo Police Service, 20 minister, Gjakovë/Đakovica, 7 September 2007. December 2005. Available at: 178 Former international trainer and current CSATs pro- http://www.unmikonline.org/regulations/unmikgazette/ gramme staff member, Vushtrri/Vučitrn, 16 June 2008. 02english/E2005regs/RE2005_54.pdf
61 CSAT members, Municipal officials, KPS officers, KFOR and OSCE representatives working together in Kamenicë/Kamenica
Policing Steering Group along with those who have participated in the CSATs members of the Programme Team, offering Training of Trainers course have noted how them an opportunity to influence policies the additional skills they have acquired and decision-making processes at the have been useful not only in relation to their highest level. CSATs, especially when soliciting project support from Municipal leaderships, but Finally, some CSATs are not only co- also in everyday communication with their operating with other CSATs, but are also families, colleagues, and fellow residents. engaging in regional initiatives. For example, the Dragash/Dragaš CSAT has helped to One particular aspect of the programme facilitate meetings with communities in that has proved especially successful is the Albania, in order to try and address the problem-solving training. CSATs participants transnational criminal activity that was have highlighted the value of this, indicating occurring in the area. The meetings directly that it equips them with the skills not only to enabled the Municipal Assembly to take identify solutions to the practical crime and positive steps towards reducing the level security concerns of their communities, but of crime undertaken by those crossing into also to recognise potential crisis situations Kosovo for this purpose.182 and raise public awareness about important issues.184 CSATs members have also reported the success with which they have applied their 5.1.3 The CSATs’ training and facilitation problem-solving skills during their everyday programme lives and work, representing a successful transfer of skills gained from the programme. As discussed in section 2.1, every CSAT This is indicative of a wider trend: the member participates in an extensive training tendency for CSATs participants to share their programme, which seeks to equip them with experiences with their friends and families, the skills necessary for performing their role. extending the benefits and impacts of the The training has been positively received by programme beyond those directly involved. participants, with a consensus that it achieves its objectives and successfully prepares them For the ongoing success of the training for their role with “enthusiasm and faith that programme, it is important that local [they] can change something”.183 Lessons capacity continues to be developed. As learned from each training cycle are also such, the Programme Team is actively continuously implemented in order to ensure seeking to implement this principle. Since that each new CSATs training benefits from 2007, the CSATs training is now fully the experience of previous ones. Further, administered by existing CSATs members who have graduated from the CSATs 182 Kosovo Bosnian male, Municipal Assembly Vice Presi- dent, Dragash//Dragaš, 14 June 2007. 183 Kosovo Serb male, CSAT member, Leposavić/ 184 Kosovo Albanian male, Municipal Assembly President, Leposaviq, 9 August 2007. Viti/Vitina, 10 May 2007.
62 A graduate of the CSATs Training of Trainers course facilitating group work during the CSATs course
Training of Trainers course. The first four level of financial and logistical support that ‘cycles’ of CSATs, in 2003, 2004 and 2005 they receive. Though each CSAT receives relied primarily on international trainers extensive and fully funded training, as well to share their experience and expertise as some IT, office and training equipment from the United States. Now however, the through a small grants programme, neither most valuable expertise comes from the the OSCE Mission in Kosovo nor USDoJ/ CSATs members and trainers themselves. ICITAP provide them with ongoing financial Graduates of the Training of Trainers assistance. The intention is rather that they course have noted their satisfaction, saying are self-sustaining bodies equipped with that “I don’t believe anything else could the skills required to obtain the necessary have helped me more than this course, not support from third parties. even a University degree”,185 and in this respect, it ensures a sustainable transfer of The Programme Team continues to work skills and knowledge. CSATs Programme closely with Municipal Mayors, KPS Station Team members have thus indicated that, if Commanders, the Ministry of Internal things were to be repeated, more dedicated Affairs and the Kosovo Community training of local staff and participants from Policing Steering Group to ensure their full the very beginning would be advisable. This understanding of their need to support would then increase local capacity from the work of the CSATs in order to improve the start, place more responsibility on local the chances of success throughout Kosovo. programme staff and CSATs members, and Nevertheless, when questioned, CSATs limit the need for international trainers.186 members consistently name limited financial assistance as the biggest challenge facing the programme and the work that they 5.2 Challenges of the CSATs programme undertake. For example, though Municipal authorities have provided support to many CSATs have faced a number of challenges CSATs projects, a lack of funds has been throughout the life of the programme. These blamed for CSATs’ inability to implement have usually related to structural or logistical certain initiatives, such as projects to install issues and have, on occasion, affected their traffic safety features in Dragash/Dragaš, ability to fulfil their potential. Fushë Kosovë/Kosovo Polje and Lipjan/ Lipljane.187 Other CSATs participants have 5.2.1 Financial and logistical support expressed the concern that their Municipal leadership has failed to take their work One of the most significant challenges seriously and thus offer limited support,188 highlighted by CSATs participants is the 187 Municipal Assembly Vice President, Dragash/Dragaš, 185 Kosovo Albanian male, CSAT member and trained 14 June 2007; KPS officer/CSAT member, Fushë Kosovë/ Trainer, Vushtrri/Vučitrn, 16 June 2008. Kosovo Polje; 20 May 2008KPS officer/CSAT member, 186 Former CSATs programme staff member, Vushtrri/ Lipjan/Lipljane, 20 May 2008. Vučitrn, 28 May 2008. 188 Kosovo Bosniak female, CSAT member, Obiliq/Obilić,
63 failing to meet initial expectations189. This impacting upon the communities in which is problematic. As one CSAT member has they operate, it is also obvious that a lack stated: “getting volunteers [is not a problem]. of institutional support can potentially The only problem [is] resources”.190 Though lead to de-motivation in any team, as well it is evident that CSATs have successfully as limiting their effectiveness. CSATs are implemented several projects that require underpinned by the values of volunteerism little or no financial input, and there are and thus participants should not expect to many examples of when they have solicited receive payment; however members cannot financial engagement from different and should not be expected to use their municipal, central and international own money to fund their participation. The stakeholders (as well as the communities everyday costs associated with their work, themselves), there is an obvious need for including those accumulated by travelling to Municipal leaderships to provide CSATs meetings,193 should be reimbursed – ideally with more sustained and tangible assistance by the relevant Municipal leadership. from their budgetary funds. However, CSATs also need to increase their This extends not only to project own capacity to attract funding. Rather than implementation, but also day-to-day relying on international support, they need practicalities. For example, an NGO to identify ways in which to proactively employee in Obiliq/Obilić noted that secure donations or partnerships from “[CSATs] do not have the proper conditions other sources. The CSATs Executive Council for work. [The CSAT] does not even have could also consider becoming a body an office…no one motivates the members to capable of attracting and securing funds for work”.191 This is a recurring complaint from CSATs activities and events. The inclusion CSATs members, and was also observed by of a comprehensive training session on a Municipal Assembly Vice President, who fundraising would, therefore, be a valuable noted the need for CSATs to be provided addition to the CSATs training programme, with telephones and transport in order to as would training on project proposal effectively undertake their responsibilities.192 development and project management, skills Though it is clear, from this Assessment that are also necessary for gaining external and from the regular contact between the financial support. This could then replace CSATs and Programme Team, that the CSATs and exceed the ad hoc support CSATs are motivated to work and are regularly currently receive and equip them with the skills to secure the necessary financial 15 May 2007. support and ensure sustainability of their 189 CSAT member, Prizren, 4 August 2007. 190 Kosovo Serb male, CSAT member, Leposavić/Leposav- teams and work. iq, 24 May 2007. 191 Kosovo Albanian female, NGO employee, Obiliq/ Obilić, 15 May 2007. 193 In some CSATs, members are often unable to attend 192 Kosovo Bosniak male, Municipal Assembly Vice Presi- meetings due to the fact they do not have sufficient funds dent, Dragash/Dragaš, 14 June 2007. for their transportation.
64 5.2.2 Intra-CSATs communication up discussions ensured that any such ‘gaps’ in communication or materials were filled, Some CSATs members raised the point this demonstrates that regular and effective that, when many individuals are brought communication and meetings are critical, as together, like in CSATs, there can be is the full commitment and participation of challenges of communication. Though their every CSAT member. This latter issue has training teaches them team-building and been raised several times, with a number of co-operation skills, personal differences participants complaining that some CSATs have, at times, affected the contribution that members were not actively involved in the CSATs are able to make. For example, CSATs work of the team and suggesting, therefore, participants have highlighted occasions that a more stringent ‘selection’ process for where there have been misunderstandings those individuals who form a CSAT may and disagreements about the best way in be required. Though individuals’ work which to proceed in relation to a particular commitments often means that they may not problem or concern. However, these be able to attend all meetings, those seeking to participants have also stated that with join the team should ensure beforehand that extended dialogue and communication, they they are able to dedicate the time necessary to have usually been able to reach agreement effectively fulfil their functions. Learning from and resolve any outstanding issues without these experiences, the Programme Team now jeopardising the sustainability of their seeks to clarify the roles and responsibilities of team.194 The Programme Team also continues each CSAT member during their training, and to work closely with CSATs in this regard, have also developed a one-week ‘CSATs New providing assistance and, when needed, Members’ course. This is intended to provide facilitating the team’s discussion to find all CSATs with an opportunity to recruit common ground and achieve consensus. new members of their team at a later stage in order to replace those individuals who More seriously, some CSATs members have are either not fulfilling their responsibilities reported a failure of more senior members or are not able to contribute. To date, several of the team to communicate effectively with CSATs have used this method to supplement the rest of the participants. A lack of internal their teams with new members showing organisation can readily inhibit the effective motivation and commitment to the team and functioning of the team and a consequence its work. of this was felt during this Assessment, when a small number of interviewees were unprepared due to the fact that they had 5.3 Lessons learned and the way forward not been informed of the research by their Executive Council member. Though follow- The issues highlighted by this Assessment have raised a number of lessons learned,
194 Kosovo Albanian female, CSAT programme staff, 7 which have already been applied, and August 2007. continue to be applied, in order to avoid or
65 reduce challenges and optimise successes. The In order for CSATs achievements to be fully positive impact that the CSATs programme and widely recognised, and challenges has had on safety and liveability in Kosovo successfully addressed, a proper system should not be underestimated, and though of monitoring and evaluation must be they need to continue to develop, grow, and implemented. Though the Programme Team overcome existing obstacles, their extension maintains information on CSATs activities, throughout Kosovo should occur. In addition the only proactive monitoring mechanism to the obvious impact that CSATs have in place at present is the reporting that had on concrete goals, such as traffic and CSATs make to the Executive Council at the environmental safety, and the less tangible quarterly meetings. All other monitoring issues such as interethnic relations and occurs on an ad hoc basis and this remains community-KPS relations, the programme one of the main challenges facing the has also operated to develop the skills that programme. It has resulted in difficulty each CSAT member possesses, providing an gaining comprehensive information and opportunity for each individual to transfer updates on CSATs’ projects and activities, as their knowledge to others and extending the well as accurately analysing any outstanding impacts of the programme. issues or challenges. It is therefore recommended that CSATs submit regular As highlighted throughout this Assessment, and detailed updates on their projects and the CSATs Programme Team has continually activities, which can then be reviewed, sought to identify ways in which to improve assessed and archived. This provides a the programme and has implemented new more effective platform for ongoing and elements and activities in order to facilitate future evaluation of the programme and this. By continually developing the training its impact, as well as ensuring a more programme to suit the needs of individual comprehensive basis for information communities, the Team has been able to exchange. It is suggested that such a tracking tailor the skills and knowledge delivered and monitoring mechanism be administered to optimise the opportunities for success. by the Executive Council, with oversight Further, the Team has developed new by the CSATs Programme Team, as this mechanisms to promote intra- and inter- would provide an opportunity for local CSATs co-operation and communication sustainability, rather than tying monitoring and ensure sustainable training and skills to the existence of external (international) capacity. However, more frequent and/or bodies. Though this has been discussed by a structured follow-up meetings between working group within the Executive Council, CSATs and the Programme Team would it is recommended that a firm commitment prove a useful tool in resolving outstanding is made to following this through to fruition. challenges in a timely manner, and Only then can CSATs properly publicise maximising success, as well as ensuring that their efforts and successes: whilst progress the motivation and commitment of all team is being made in this regard through media members are at their optimum. training and public awareness initiatives,
66 much more remains to be done. Safety Councils and Local Public Safety There also needs to be more extensive Committees are, i.e., through some sort of engagement of youth and women in the government regulation. They feel that this CSATs. Though all CSATs have youth would provide them a level of ‘legitimacy’ representatives and female participants, it is or ‘authorisation’ to address community important that more are involved, both in the problems, something that they consider CSATs themselves and the projects that they they are currently lacking. However, this undertake. As one CSATs member stated, approach operates to subvert the grassroots young people bring “energy and dynamics” and participatory philosophy of the to the team,195 and the contribution they can programme. CSATs already have legitimacy, make is huge. Programme Team members created through the skills they have gained, also highlighted this issue: though youth the relationships they have created, and the engagement was intended from the very impacts they have achieved as community beginning, there is a need to increase the members. Rather than assisting them in their level of their involvement, either through roles, the regulation of CSATs activities, their participation in regular CSATs or which would accompany any ‘formalisation’ through the creation of youth-only CSATs.196 of their functions, would only serve to The participation of women also needs “confine or politicize” them, a ‘top-down’ greater development, though their inclusion approach that is purposefully being avoided may be more readily facilitated once strong in favour of a ‘bottom-up’ or grassroots relationships have been formed with male approach.198 The Programme Team has community leaders.197 The development of therefore consistently sought to ensure that the CSATs New Members course has also CSATs are free of such boundaries and it is provided an excellent opportunity for youth recommended that those participants who and women to be involved at a later stage of seek this formalisation concentrate on the a CSATs development, and has been utilised substantive nature of their roles and what as such on several occasions. they sought to achieve when they joined the programme. CSATs are volunteers, and Finally, an issue that needs to be addressed, the programme is based on the notion of due to the consistent nature with which it wanting to assist the community in which arises, is that of the CSATs ‘status’. A number one lives by finding ways to address its of CSATs representatives consistently request concerns. Though it is important that the that their roles and functions be formalised government is fully aware and supportive in the way that Municipal Community of the work that the teams undertake, the greatest opportunities for CSATs’ success can
195 Kosovo Albanian male, CSAT member/Government only be fully realised without the restrictions minister, Gjakovë/Đakovica, 7 September 2007. that could accompany their regulation. 196 Former CSATs programme staff member, Vushtrri/ Vučitrn, 28 May 2008. 197 Former CSATs programme staff member, Vushtrri/ 198 Former CSATs programme staff member, Vushtrri/ Vučitrn, 28 May 2008. Vučitrn, 28 May 2008.
67 Through their inclusive and participatory 6. structure, the partnerships that they CONCLUSION AND have created, and the projects that they RECOMMENDATIONS have undertaken, CSATs have also had a positive impact on interethnic relations in This report has presented an assessment many communities. By bringing different of the impacts that CSATs have had communities together to pursue a common on four major issues in Kosovo: traffic goal, co-operation has improved between safety, environmental safety, interethnic individuals and in some cases, daily relations and community-KPS relations. interaction and freedom of movement The findings represent positive progress have increased. A number of CSATs have since each CSATs’ inception, with all also been instrumental in improving the teams making a visible impact in their quality of life experienced by non-Albanian communities. communities in their municipalities, thus improving levels of trust and co-operation. CSATs have made excellent progress in relation to traffic safety projects. Their As a result of their involvement in youth education projects have helped to CSATs projects and their commitment to raise traffic awareness amongst young community policing, the KPS is progressing people, and their efforts to install traffic towards a more positive public image. signs and pedestrian crossings have The role that CSATs have played, through impacted on the preconditions necessary facilitating increased contact between KPS for improving actual levels of traffic safety. officers and the residents (both as a result However, further attempts need to be made of the KPS presence on CSATs themselves to consolidate and build on the progress and the joint endeavours between CSATs that has already been achieved. and KPS units), is significant. However, there must be an increased commitment to CSATs have also made significant strides the practical implementation of community toward improving environmental policing and continued engagement with conditions and standards in the CSATs, in order to inspire full public trust communities in which they operate. and confidence in the police. Regular clean-up operations have helped to improve Kosovo’s visual environment, as CSATs have succeeded in creating well as discouraging the presence of stray cooperative and sustainable partnerships dogs – a major health and safety risk. CSATs between the various security and safety have also helped to increase awareness of providers and the communities in which environmental issues amongst youth and they work, as well as between different inhabitants, as well as motivating local groups within communities. There is an communities to protect their immediate increased awareness of common activities, surroundings. and improved communications between
68 the community, municipalities and police. Recommendations The training programme that each and every CSAT member undergoes has also equipped them with the skills necessary Traffic safety to successfully identify and analyse grass- roots safety concerns, and though there • The strong leaning towards social have been some challenges, develop and action in the field of traffic safety is implement measures to address them. clearly indicated by the work thus far Though CSATs are staffed by volunteers, completed by the CSATs, and the impact it is important that the teams receive the that they have had. As such, sustained necessary financial and logistical support implementation of traffic-related projects to implement their projects; whilst there should be considered by the Municipal have been many success stories, this authorities and relevant the government represents an ongoing challenge for the ministries in order to capitalise on and teams. further recent success.
Finally, a number of lessons learned have • The Municipal authorities should already been identified and implemented, provide sufficient support, both logistical especially in relation to the design and and financial, for the traffic safety projects development of the programme itself. undertaken by the CSATs and their Improvements to the selection and training partners in order to avoid future failure of programme have been implemented as projects. a result of previous experiences, and mechanisms to address problems of internal • The KPS should, in partnership with co-operation and communication are CSATs and local schools, continue to being continuously created. An ongoing implement regular traffic awareness commitment to improving these aspects education programmes. and a concerted effort by all involved to address other, more problematic challenges, • The KPS should seek to implement a will ensure that the CSATs continue to ‘bottom-up’ approach to addressing traffic grow, develop and achieve success in their safety issues, with a change in attitudes communities. Kosovo’s CSATs have shown being the ultimate and sustainable goal. themselves to be capable of increasing safety and the quality of life, and as such Environmental safety must continue to work together to be sustainable leaders in their communities • CSATs should continue to work towards and Kosovo-wide.199 engaging local residents in environmental projects, and raising awareness of the benefits associated with them and the 199 Former international trainer and current CSATs pro- gramme staff member, Vushtrri/Vučitrn, 16 June 2008. dangers caused by environmental damage.
69 Particular focus should be placed on Relations engaging Kosovo’s youth in order to ensure sustainable progress. • CSATs should continue to encourage interaction and facilitate dialogue • Municipal authorities should allocate between different communities in adequate resources to longer-term Kosovo, through the development environmental projects, such as tree- and implementation of inclusive and planting, sustainable river cleaning, and cooperative projects. initiatives to lower levels of pollution in order for the positive impacts of clean- • CSATs should continue to identify up and awareness-raising activities to be existing barriers to interethnic strengthened. communication in their municipalities, and formulate mechanisms by which to • Municipal authorities and the address them, including the use of the government should seek to develop existing Local Public Safety Committees mechanisms to effectively address the issue (LPSCs) and Municipal Community Safety of illegal wood-cutting in co-operation Councils (MCSCs). with the KPS. • Notwithstanding potential language • Municipal authorities should ensure barriers, CSATs should continue to that all villages and towns have proper work with the Municipal authorities garbage disposal facilities. They should and local schools in order to develop also implement a comprehensive system partnerships between children and of ‘checks’ throughout municipalities youth of different communities through to ensure that household waste is inclusive practical activities and school being disposed of in accordance with ‘exchange’ projects. acceptable standards. The imposition of penalties on those who fail to comply • Relationships between different with such regulations should be strongly communities should be ‘de-politicised’ in considered. political rhetoric, and concentration should be placed on increasing contact between • Municipal authorities should ensure everyday residents. that adequate support, both financial and practical, is given to environmental • Municipal authorities and the projects undertaken by the CSATs and government must make a greater effort their partners. to provide financial and other practical • Municipal authorities should ensure that support to CSATs projects aimed at timely decisions are made on proposed improving relationships, communication actions towards stray dogs, and proper and activities between different support be given to those involved. communities.
70 Community-KPS relations with other CSATs. They should also seek to increase the level of information exchange • CSATs should continue to build and in order to learn from each others’ consolidate partnerships with the KPS experiences. in their respective communities, both through KPS representation on their teams, • CSATs should seek to increase public sustained dialogue and the cooperative awareness of their activities and better implementation of projects. publicise their successes. The Executive Council should also consider becoming a • CSATs should continue to work with the centralised resource for those interested in KPS in schools in order to educate children community safety in Kosovo. and youth on the work undertaken by the KPS in order to build trust in its activities. • All CSATs members must take responsibility for their participation in the • CSATs and the KPS should continue programme and ensure that they are fully to undertake joint visits to both Kosovo committed to the work they undertake. Albanian and non-Albanian areas in order to identify inhabitants’ problems and to • CSATs should seek to engage a higher develop mechanisms to address them, as proportion of youth and women on well as to ensure regular communication their teams, as well as in their project and co-operation with the public. implementation.
• Local KPS units should aim to provide • CSATs programme administrators assistance to CSATs’ projects where needed should continue to develop local capacity and appropriate. by training local trainers who can then assume greater responsibility for • The KPS should dedicate adequate developing future CSATs members’ skills. support and resources to the full and effective implementation of its community • Municipal authorities should seek policing organisational strategy. to allocate greater budgetary funds to CSATs in order to provide the support • The KPS should seek to engage in necessary for their daily functioning and more systematic and regular information specific projects. CSATs’ sustainability is exchange with residents dependent on the proper levels of support.
Capacity-building • CSATs and the Executive Council must develop their capacity to independently • CSATs should continue to work on their secure financial support from different communication skills and relationship local and international sources. Inclusion building, both within their own teams and of a project proposal and fundraising
71 session on the CSATs training programme would be beneficial.
• CSATs, the Executive Council and the Programme Team must seek to implement a comprehensive and regular system of monitoring in order to keep current on CSATs’ projects and activities and evaluate progress, as well as to assess outstanding issues and challenges. This should be coordinated by the Executive Council, in order to ensure local sustainability and prevent reliance on external (international) bodies for ongoing monitoring.
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