POLICY PAPER BY KCSS 03/2014
Kosovar Center for Security Studies
Kosovo’s Membership and Representation in Regional Security Initiatives
September, 2014
Kosovar Center for Security Studies
Kosovo’s Membership and Representation in Regional Security Initiatives
September, 2014 Publisher: Kosovar Center for Security Studies
Author: Donika Emini
Internal review: Florian Qehaja and Mentor Vrajolli Peer review: Shpend Kursani Project Supporter: Tringa Naka Editor: Alastair Cassell
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The views expressed in this study are those of the Kosovar Center for Security Studies and do not necessarily represent the views of its donors and partners. Table of Contents
List of Abbreviations ���������������������������������������������������������������������������������������������������������������������� 6 Executive Summary �������������������������������������������������������������������������������������������������������������������������� 7 Introduction �������������������������������������������������������������������������������������������������������������������������������������� 8 Methodology �������������������������������������������������������������������������������������������������������������������������������������� 9
SECTION 1 ����������������������������������������������������������������������������������������������������������������������������� 10 Post-Independence Kosovo – Challenges of Regional Representation ���������������������10 General aspects - Kosovo vis-à-vis regional security initiatives �������������������������������������11 Kosovo-Serbia Dialogue: What implications for regional security cooperation? ����12
SECTION 2 ����������������������������������������������������������������������������������������������������������������������������� 14 Regional Initiatives and Security Cooperation in South East Europe ��������������������������14 Defense Sector ���������������������������������������������������������������������������������������������������������������������������������15 Adriatic Charter - A5 ���������������������������������������������������������������������������������������������������������������������15 PSOTC Peace Support Operations Training Center ������������������������������������������������������������16 RACVIAC Regional Arms Control Verification Implementation Assistance Center ���������16 SEDM – South Eastern Europe Defense Ministerial ������������������������������������������������������������17 Regional Police and Rule of Law Cooperation �������������������������������������������������������18 SECI South-East Europe Cooperative Initiative ��������������������������������������������������������������������18 SEECP Southeast European Cooperation Process Info �����������������������������������������������������19 ILECU International Law Enforcement Coordination Unit �����������������������������������������������20 PCC SEE - Police Cooperation Convention for Southeast Europe ���������������������������������20 Western Balkans Prosecutors’ Network ����������������������������������������������������������������������������������21 Conclusion �����������������������������������������������������������������������������������������������������������������������������������������23 Recommendations ��������������������������������������������������������������������������������������������������������������������������24 List of Annexes ���������������������������������������������������������������������������������������������������������������������������������25 Kosovo Representation in Regional Security Initiatives ���������������������������������������������������25 Bibliography ��������������������������������������������������������������������������������������������������������������������������������������26 Interviews ��������������������������������������������������������������������������������������������������������������������������������������������29 POLICY PAPER BY KCSS 6 UN USA UNSC UNMIK SSSR SIS SELEC SEECP SEECH SEE SEDM SECI SAA RCC RACVIAC PSOTC PfP PCCSEE OLAF NATO MoU MoJ MoF MKSF MIA MFA MAG KSF KSC INTERPOL ILECUs FRONTEX b FOC EUROPOL EULEX EU BiH SSSR AoK AFBiH List
of
Abbreviations United Nations United States ofAmerica Council United NationsSecurity AdministrationUnited Mission NationsInterim Review Sector Strategic Security System Information Schengen EuropeanSoutheast Law Enforcement Center EuropeanSouth-East Cooperation Process EuropeSouth-East House Clearing EastEuropeSouth EuropeSouth-Eastern Defense Ministerial EuropeanSoutheast Cooperative Initiative Stabilization Association Agreement Regional Cooperation Council ControlRegional Arms VerificationImplementation Assistance Centre and Peace Operations Support Training Centre Partnership for Peace Police Cooperation Convention for Europe Southeast European Anti-Fraud O Atlantic North Treaty Association ofUnderstanding Memorandum ofJustice Ministry ofFinance Ministry Force for Kosovo Security Ministry Affairs ofInternal Ministry ofForeignMinistry Affairs Group Advisory Multinational ForceKosovo Security Council Kosovo Security Police Criminal International Organization Law EnforcementInternational Coordination Units European B External Full OperationalCapability European Union’s Law Enforcement Agency European inKosovo RuleofLaw Mission European Union Review Sector Strategic Security Assembly ofKosovo ForcesArmed ofB osnia andHerzegovina osnia andHerzegovina order Agency ffice - European Commission cept ofintroducing regional cooperationinthe Western are challenged. seriously Balkans, political agreements and the con- reached Kosovo and Serbia in the dialogue between inthefieldofrulelaw,operations andactivities justiceandsecurity. Consequently, the lenges. B this papershow thattheprogress ofchal- islimited andaccompaniedby awidevariety doors for representation and access to other regional initiatives, security the findings in regional initiatives. While Kosovo’s recent membershipintheRCC to isexpected openthe particular,In thechallengesare present withrespect to Kosovo’s accessto defense related few, eitherdirectly through representatives ofstate presence. institutionsor international of onlya ofthe Regional but Kosovo, areCooperation Council already (RCC), is part part sues namelyinpolicecooperation,judicialsector, military, andemergency. ofthese Some There are currently around 40regional initiatives- thatdealwithawiderangeofsectors/is in joiningregional initiatives.constantly shown readiness actions security and hastaken United (USA).After States thedeclarationofitsindependence, ofAmerica Kosovo has by theEuropeanmainly supported Union(EU)institutions, States andthe theEUMember recent years,In anumberofregional initiatives have beenintroduced EastEurope, inSouth Executive y notbeingfully-fledged member,Kosovo isconstrainedinbenefiting from joint Summar y
Kosovo’s Membership and Representation in Regional Security Initiatives 7 POLICY PAPER BY KCSS 8 operation islimited to thepoint where itisalmostinexistent. post-agreement shows apictureinwhichKosovo’s period accessto regional co security membership in regional organizations is the so-called ‘footnote agreement’. However, the thatwassupposedto allow Kosovo’s Kosovo andSerbia ments between and participation should berepresented inregional initiatives andmechanisms. Oneofthemainagree have reached anagreement Kosovo whichdefinesthespecificsandmodalitieson how initiatives thisdialogue, –didnotchangethe situation.During bothnegotiatingparties to – which was expected removeSerbia for the barriers Kosovo’s access to the regional of this paper, part be argued in the next the EU facilitated Kosovo and dialogue between As will arena. importance. Here, andtheEUisofparticular therelationship withSerbia as Kosovo’s consolidation is as important Institutional positioning in the international and joiningmultilateral organizations includingregional initiatives. security cooperation institutions in establishing the bilateral security security of Kosovar objectives general, anddevelopment ofthedefense inparticular, sector theSSSRalsoproposed the ReviewStrategic (SSSR)’. Sector Security from proposing institutionalreform Apart in years,two March wasfinallyconcluded in 2014withthelaunching ofthe ‘Analyses ofthe ofFinances andotherrespective institutions. (MoF), the Ministry The SSSR,whichlasted for for Ministry Affairsfor (MIA),the Foreign Internal Affairs (MFA),(MoJ), ofJustice Ministry the Force for Kosovo Security (MKSF),theMinistry theMinistry Council (KSC), Kosovo Security a holisticinstitutionalapproach institutionssuchas:the involving awiderangeofsecurity GovernmentinMarch (SSSR),launchedby 2012. theKosovar tor Review The SSSRreflected sector. in the security ularly The highlight of this was the - process Sec of Strategic Security On theotherhand, theprogress- ofinstitutionalreform isviewed alsointhecontext partic ofKosovo’sterminated supervision theinternational independence. – formally – in coordinationthe Assembly with its partners international of Kosovo (AoK) inSeptember 2012,when ashift ofresponsibilities ofthehand-over marked The trajectory anotablesuccessintheincreaseinstitutions marks ofpoliticalandinstitutionalmaturity. handover ofKosovo’s to institutionsfrom Kosovo’s community theinternational national albeit slow, societal, politicalandinstitutionalimprovement. particular, In theprocess of guments for “closed doorpolicy” towards Kosovo are notsufficientdue tothe gradual, political strugglesto strengthen thestate. thear whenviewed incontext, Nevertheless, limited dueto the challengesinconsolidatingthestateinitiatives institutionsand isvery However, as it will be argued throughout this paper, Kosovo’s access to regional security fests andthecitizens theoverarching to Euro-Atlantic integration. visionofthecountry for Government. theKosovar The ambitionfor representation inregional initiatives mani- Kosovo’s integration into theexistingregional initiatives remains alongstandingpriority Intr on oducti - - - ) and United Nations Interim Administration Mission (UNMIK). AdministrationLEX) andUnited Mission NationsInterim ofForeigh Affairs theMinistry (MFA),(MoJ), Kosovo EuropeanMission in (EU- RuleofLaw ofJustice Force ofKosovo Security Kosovo Police (MKSF), theMinistry (KP),theMinistry inKosovo. stakeholders and international with:the The team interviews has conducted national withkey interviews by upto 8face-to-face issupported available datacollection compiled bybothnationalandinternational organizations.ments andofficial reports The ly basedontheextensive analysisoflegalandpoliticaldocuments, conventions, agree This research basedonthequalitative hasbeenconducted research methodandismain- in thisrespect. it toby comparing the situation as it stands and the challenges that lie ahead for Kosovo with atleastasecretariat and/orprogram. KCSS aimsto assesstheprogress madesofar oftheinitiatives; b.) thescopeofinitiatives;the importance andc.) theproactive initiatives oftheinitiativesKCSS onthebasisofsomeindicators hasmadetheselection suchas:a.) tion for Southeast Europe (PCC Prosecutors’ Network of SEE) and the the Western Balkans. Coordination UnitsintheField ofRuleLaw (ILECUs);Police Cooperation Conven- ropean Cooperative European (SEECI),South-East Initiative Cooperation Process (SEECP); and2)Police: Sector EuropeSouth-Eastern Defense Ministerial (SEDM); Operations Training Centre (PSport O A5;Peace: Adriatic initiatives: Charter 1)Defense Sup Sector a mappingof9observed This providesof the regional initiatives. paper also examines the political context security It eration, directly affectsKosovo’s the wellbeing of citizens. addition to –becausetheregional aninstitutionalperspective cooperation,ornon-coop team believes that this matter shouldbe viewed also through people’s –in perspectives inthedefense, andruleoflaw areas.thus increase security theirpartnership The KCSS platform for supplementingtheinstitutionalefforts for joining all regional initiatives and members ofregional indicatives. security Also, KCSS aimsto usethispaperas anadvocacy identify thechallengesthatlieaheadfor Kosovo institutionswishingto befully-fledged ofthispaperistoThe highlighttheprogress mainpurpose madeinthisrespect andto odl Meth ogy TC); Centre andCooperation (RACVIAC); for Security Southeast EuSoutheast - - - -
Kosovo’s Membership and Representation in Regional Security Initiatives 9 10 POLICY PAPER BY KCSS meant that the Kosovar Government is willing to initiate very important security related security important Government is willing tomeant that the Kosovar initiate very thedecision to launch the SSSR (March 2012 - March 2014). Government undertook This ofthesteps towardsAs part consolidatingitspost-independence institutions, theKosovar forexpectation better regional inclusiveness inthefieldofsecurity. and missions as defined by the NAT Force Security Kosovar (KSF). thetasks This meantthattheKSFisfully capableto perform mediately thatNAT shown by thefact has been made in this regard. For instance, of Kosovo was im- the institutional ripeness inKosovo hasnotbeenfullyreduced, sector inthesecurity progress actors international institutions. Althoughthepresence to security andinfluenceof Kosovar tional supervisors vised independenceimpliedtheoutsetoffinalhandover of responsibilities from- interna regional initiatives andinternational andbodies. For sector, thesecurity theendofsuper ber 2012. forThis perspective decisionopenedanew Kosovo’s engagementwithvarious independenceinSeptem - to endthesupervised the timedecisionhadbeentaken by ashift to mission marked theinternational ofinstitutionaldependency The trajectory or have hadto beexchanged institutions. EULEX,UNMIKandKosovar between inanumberofregionalfor initiatives participation have beensentto thewrong address, Directorate for Specialized Training DivisionattheKP, there were caseswhentheinvitation these three representative bodies. For instance, according to Mr. Rrecaj, theDirector of others itisrepresented by UNMIKorEULEX. There are alsocaseswhere there isamixof tional bodies;insomeregional bodiesKosovo isrepresented asanindependentstate, in a result, Kosovo didnothave aunifiedmethodof representation in regional- andinterna thedeclarationofindependencecouldnotbesuccessorsUNMIKinstitutions.after As Kosovo’s Council (UNSC), United NationsSecurity established institutions created newly reasons. Kosovo’s Given the fact independence was not endorsed by all members of the this regard, thepost-independencewere efforts challengedinmany ways and for several ing bilateral andmultilateral relations withotherstates organizations. andinternational In since then,Kosovo hasbeenengagedasanindependent and sovereign state in establish- Kosovo’s point because, a turning declaration of independence in February 2008 marked Kosovo inregional initiatives andinternational andorganizations. authorized tosole actor sign agreements international onbehalfofKosovo andrepresent Kosovo.to thefinalstatus of to thedeclaration ofindependence,Prior UNMIKwas the to findasolution hasbeenconstantlytrying community Since 1999,theinternational Post-Independence Kosovo –ChallengesofR ON 1 SECTI O standards. O declared Full for the (FOC) OperationalCapability B oth these processes gave a glimpse of egional R epresentation - sibility is to be left inthehandsofnationalinstitutions. isto beleft sibility ment of Kosovo’s however, sector; security according to the document, the main respon- does notleave intheprocess actors ofinternational ofdevelop asidethecontribution reforms andthatKosovo asastate aimsto beregionally represented. Seemingly, theSSSR O obstacles. oftheseinitiatives creates areand Moldova further part Strategy for European Integration, “Kosovo 2020”, 2014:61-62). regional initiatives andto openitspathway towards transatlantic integrations (National tioned threats, Kosovo has shown constant willingness to become a member of the main Precisely inthefight becauseofthewillingnessto prevent to participate theaforemen- which sofarhasnothappened successfully. major threats to Kosovo andtheregion requires opencoordination amongregional states, region anddevelop cooperationataregional level. Fighting cross border andother crime dealt withregionally. for Kosovo to beengagedwiththe important As aresult, itisvery nized crime, cross-border etc., activities,terrorism, corruption, criminal whichneedto be initiatives. Nonetheless, theregion of the threats facesvarious Western from orga- Balkans coercive meansrepresents oneofthemainchallengesinsuccessfullyaccessingregional institutions withKosovo’s thatmany statehood ofsuchinstitutionsretain andthefact still remains oneofthebiggestchallengesfor Kosovo. thesecurity The logic oflinking gional initiatives have shown somesuccess, theintegration initiatives process insecurity receive recognition from 5 EU members. that Serbia, The fact recognition which,despite receiving 108recognitions from states, UNMember hasyet to True accessto regional initiatives isalsorelated to Kosovo’s struggletowards international ing on the power of individual member states who did not recognise Kosovo’s statehood. 2013: 637-638).Consequently, from cooperaiton varies one intiative to another, depend- depends onthememberstates ofeachmechanism,initiative andorganization (Zela, initiatives.rity As aresult to establishmultilateral theability relations islimited andhighly outcome,expected resulting inrather unsuccessfulforeign vis-à-vis regional policy secu- a planfor concrete theMFA actions.Nevertheless, strategy the didnotmanageto bring the relations thatKosovo haswiththenon-recognizing states. The strategy alsoendswith ofthestrategy. andpurpose aspects covers and theoperationalaspect The secondpart eration (MFA, 2011:6-7). This covering strategy thegeneral isdividedinto three main parts aiming to increase thenumberofrecognitions andboostregional coop andinternational from thenon-recognizingsupport countries, Kosovo’s MFA launchedaspecificstrategy in a large number of cases (Lehne,Serbia concern. 2012: 5) are of particular To ensure full anddilemmas raisedby thenon-recognizinglated. countries, blockades ledby Indeed, The challengesofKosovo’s accessto regional initiatives are security mostlypoliticallyre G verall, related whileintegration organizations international inothernon-security andre eneral aspects -Kosovoeneral aspects vis-à-vis regional initiatives security B osnia and Herzegovina (BiH) - - - - 11 Kosovo’s Membership and Representation in Regional Security Initiatives 12 POLICY PAPER BY KCSS mediated Prishtina politicaltalksbetween andB European Union(EU)integration process, NAT been oneofthecore orelementsinstrengthening criteria thepositionofKosovo inthe O Dialogue: Kosovo-Serbia What implications for regional cooperation? security 1 existent accessto theinitiatives. The agreement thus, failed to meet theinitialexpectations; itresulted inlimited to non- Kosovo hashardly managedto improve itsrepresentation, especially ontheregional level. Kosovo madeonthe agreement, thepost-agreement manifests period apictureinwhich Butdespiteing to thecompromises buildcooperationamongthestates oftheBalkans. initiatives, taskforces andotherstructuresthathave emerged over thepastdecadesaim- regional ofregional cooperationandopenthedoorsfor Kosovo security to become a part Initiative, 2013:10). The ‘footnote agreement’ dynamicof anew to was expected bring position ofthefive EUnon-recognizing members would gradually change. (Foreign Policy gration processes. Kosovo was also hoping that by accepting the ‘footnote agreement’, the These compromises of both parties’ were part to accelerate efforts their EU interespective tated dialogue:Agreement 3and7). Cooperation, onRegional 212:Art: intoown account andthoseoftheEU,taking thestatutes ofrelevant organizations” (EUfacili- “Hosts ofmeetingswillbeencouraged to avoid thedisplayofnational symbolsexcept fortheir dence”. Furthermore, states thattheusageofnationalsymbolsshouldbeavoided: itclearly status, ontheKosovo andisinlinewithUNSC1244theICJOpinion declaration ofindepen- an forasterisk a footnote stating that: that itsofficialnamebechanged from the Kosovo’‘Republic of tosimply‘Kosovo*’ with being present insuchinitiatives onbehalfofKosovo. Kosovo, ontheotherhand, accepted and joinregional organizations asasoleactor, actors withoutUNMIKorotherinternational aim of opening the door for Kosovo. accepted that Kosovo could be represented Serbia in The ‘footnote agreement’ withtheoverarching isaconsensusofbothKosovo and Serbia 2013:21.22). andQosaj-Mustafa, (Deda thatKosovo facedfor thebarriers joiningorbeingrepresentedto lift inregional initiatives have notbeenimplemented yet, especiallythe ‘footnote agreement’ whichwasmeant resulted Kosovo andSerbia between inseveral agreements. Many oftheseagreements aiming to normalize relations Kosovo andSerbia. between ofintenseThis dialogue period the prime ministers of Kosovo and Serbia have ministers ofKosovothe prime andSerbia beenlaunched in O inMarch 2011,whilethepoliticaldialoguebetween started The technical Kosovo andSerbia dialoguebetween verall, regional cooperationandKosovo’s inregional to initiatives, participate ability has “this designationiswithoutprejudice to positionson O membershipandbeyond. Thus, theEU elgrade were launchedinO ctober 2012. ctober ctober 2012 ctober 1 - , of projects and activities in the field of security (Interview withMFA (Interview inthefieldofsecurity of projects andactivities officials). oftheRCC. that are part failedto benefitfrom thewiderange This shows thatthecountry mal acceptance. After oneyear ofthe14initiatives ofmembership, Kosovo isstillnotpart membership,Kosovo’s thebenefitof RCC membershipinthe doesnotgobeyond the for and projects. inclusion in theRCCactive network Thus, oneyear sincegaining withnearly 2013). Karadaku, andregional (Remikovic& EU pre-accession cooperation inthe field ofsecurity Europe (RCC, 2010:12-15),Kosovo institutionssaw thismembershipasapathway to the represents oneofthemainumbrella organizations ofregional East cooperationinSouth al inclusiveness (Commission, 2013:20). Taking thattheRCC into considerationthefact achievementof region within the framework - important been considered to be a very Kosovo’sRCC at the has participation nizations, financialand international institutions. the RCC structure, whichis a regional organization consistingof46states, orga various - O membership intheRegional In Cooperation Council (RCC). On theotherhand, theagreementKosovo, somebenefits to didbring suchasits recent Y et, despite reasonable expectations, themembershipdidnotresult inKosovo’s ctober 2013,Kosovo joined ctober - 13 Kosovo’s Membership and Representation in Regional Security Initiatives 14 POLICY PAPER BY KCSS fense andpolicecooperation/rule oflaw. sector aims to bea member of. that analyze both the de They are divided into mainparts two The following focused are onthemainregional sections strictly initiatives whichKosovo intheregion. by othercountries through taken jointactivities fromobstructed benefiting from training, shared curricula, and lessons that are learned inthefieldsofrulelaw,activities justiceandsecurity. Finally,Kosovo institutionsare also a more technical issue, Kosovo isprevented from benefittingfrom jointoperationsand ofregionalthe criteria ofEuro-Atlantic cooperationinthecontext integration. Third, albeit in theregion, especiallyamongitsneighbors. Second, itmeansthatKosovo cannot fulfill lenges for Kosovo. First, achanceto positionitselfasanequalactor itdeniesthecountry to becomeafullmemberofregionalThe inability initiatives presents several otherchal- initiatives thatfightorganized andcorruption. the very crime states thatblockKosovo’swith theopinionsofskeptical bidto becomeamemberof or perception thatKosovo represents ‘a for organized transitcountry crime’ isinconsistent threats.in combatingcommonsecurity Additionally, theargument andthegeneralidea of themainregional mechanisms, Kosovo ishighlydisabledfrom security contributing Kosovo inbothpoliticalanddiplomatictechnicalis harming dimensions. B The stagnation ofthe membership process andthe non-involvement in suchinitiatives regional processes.ing Kosovo outofthemostimportant other non-recognizing to avoid countries the implementation of the agreement by leav- tion ofKosovo; thesecondonehasto dowiththestrong resistance and madeby Serbia strongtwo issues:thefirstinvolves thelackof recognitions andthe weak diplomaticposi - Kosovo’s membershipprocess inregional initiatives andorganizations ischallengedby leaving Kosovo awaiting aresponse orexplicitlyrejecting it. oftheseinitiativesjust two (SEECPandILECUs),whiletherest continue to stagnate, mostly 2009: 47-49). As of September 2014, Kosovo hasso far managed to become a member of judicial sector, oftheRCC (Kušljugić, –someofwhich beingapart military, andemergency tives thatinvolve andissues, awiderangeofsectors namelyinpolicecooperation,the the mostfragile andchallenging processes. There are around 40existingregional initia- As pointed outpreviously, isoneof cooperationandmembershipinthefieldofsecurity R ON 2 SECTI egional Initiatives and Security C egional Initiatives andSecurity ooperation EastEurope inSouth eing left out eing left - member states (Atlantic Council, 2014). non-recognizing states,on thewillofcertain whichwill have andother to includeSerbia factors, but mainly andexternal internal aprocess thatdependshighly oncertain Charter; ofanobserver.capacity The ultimate goal, however, remains a full membership in the that Kosovo has already been attending in the some of the Charter’s events and activities above, itsmembershipisbeingprolonged (Syla, 2014).However, mentioning itisworth apply for membershipintheA-52012;however given thecircumstances mentioned initiative are notoptimisticatthepresent time. Regardless ofthesechallenges, Kosovo did to itscontested statusby BiH,afullmemberoftheA-5,itsmembershipchancesinthis ittheA-6);however,Kosovo alsoaimsto beamemberoftheA–5(potentially making due ment ofState, 2011). nia, Croatia, becametheA-5withMontenegro andMacedonia) andB iH joining(Depart alsoasA-3(becauseoftheinitialmembers:Alba- Thus in2009theinitiative initiallyknown atthesametime. alsoreceived 2008.Serbia thestatusof anobserver bers inDecember Charter. expanded whenMontenegroThis andBiHbecamemem- initiative wasfurther to debates, beingcalledtheUS-Adriatic often has beensubject leadingto theCharter Agreement,Charter 2003). The role oftheUnited States hascausedsomeconfusionand was signed 2003in inMay The Charter Tirana undertheguidanceofUSA(Adriatic (RCC, RCC and andRegional Initiatives Task Forces EastEurope, inSouth 2014). ofsoutheastEuropeall individualsinAlbania,Croatia, andtheothercountries Macedonia for andcrime, and gaged infightingcorruption rights andcivilliberties to protect human mies, and NAT mitment to strengthen democraticinstitutions, civilsociety, ruleoflaw, econo market became membersofNAT to fullintegration achieving into NAT phasizing thegoalofAlbania,Croatia, (theinitialmembersoftheCharter) andMacedonia November 2002, by reinforcing continued U.S. for the Alliance’s support “Open Door,” em- buildsontheachievements oftheNATThe Adriatic Charter -A5 Adriatic Charter Defense O Sect -compatible militaries. Furthermore the Charter calls for parties to militaries. be en- calls for Furthermore -compatible parties the Charter or O in2009. reaffirms theparties’The Charter shared politicalcom- O andotherEuro-Atlantic institutions. twoThe first O Prague Summit,heldin - - 15 Kosovo’s Membership and Representation in Regional Security Initiatives 16 POLICY PAPER BY KCSS C Spain, Sweden and(3)otherstates, andtheUnited Kingdom; institutionsororganizations, France,public, Denmark, Germany, Hungary, Italy, Netherlands, Norway, Russia,Slovenia, Europe dialogueandcooperation inSoutheast ute suchas:Austria, to Czech security Re and Serbia (2)Associate andcontrib members-allother statesTurkey; willingto support ofeightstates SEECP:comprised Albania,BiH,Croatia, Montenegro, Macedonia, Romania, Currently, RAVIAC counts 29 member states divided into three groups: states (1) Member Cooperation (Agreementfor 1). Security onRACVIAC, 2001:Art. organizationinternational andwasgranted thenameithasnowadays, RACVIAC -Centre Europe Eastern 2001,thecenterSouth obtainedthestatusofaregionally (SEE).In owned training, buildingmeasures promote andbroaden confidenceandsecurity cooperationin Pact oftheStability forCentre Europe, Southeast as apart aimingto provide control arms RAVIAC Control was established as the Arms VerificationImplementation Assistance and to achieve sustainability, Europe. in Southeast was only in 2000 that peace and stability It ing from Pact the Stability for EuropeEastern South signed in Cologne in 1999, and aims agreements wasintroduced (RACVIAC’s start onthebasisofcertain It partners Mission). regional between plish itsgoalsthrough states andtheirinternational thepartnership Europe.Eastern dialogue related in South sector to the security RAVIAC tends to accom- ganization, independent and non-profit, with themainaim of cooperation and fostering ControlRegional Arms Verification and Assistance Center. RACVIAC or isaninternational representsThe Center andCooperation (RACVIAC) for thelegalsuccessorof Security R B operations for theArmed education andtraininginthefieldofpeacesupport Forces of Peace Operations Support Training Center (PS O PSOTC Peace Operations Support cessful (Geci, 2014). and advocate for theestablishment of formal relations but the request was unsuc- turned tives from theMKSFhave to initiate madeefforts cooperationwiththePSO its statusissue, itwasnotinvited to joinnorbenefitfrom any ofitsprograms.Representa - from itstrainingprograms. Kosovo didshow itswillingness to jointhePSO However, inthePSO Kosovo hasnotbeenableto eitherparticipate dards ofNAT as aNAT (A5) (PSO andtheAdriatic Charter House(SEEC), Clearing Peace (PfP) Training andEducation Centre, whichisrecognized byEurope theSouth-East osnia andHerzegovina (AF BIH) (PSO A enter IA CV partner serving mostlyasaregional center trainingcell, serving inlinewiththestan- O partner C R egional C Arms O andtheUN. ontrol TC, 2014:4-5).PSO V erification Implementation erification Assistance T raining C TC) isanorganization thataimsto develop enter TC isanaccredited Partnership for TC, 2014). This initiative alsoacts TC events orbenefit TC, but,dueto TC informally - - - - part of the South-East European of theSouth-East Cooperation Processpart (SEECP) for membershipwasrejected inO down onceduetoturned thelackofconsensusamongmemberstates. Kosovo’s request and should be based on a consensual basis. Hence, the membership request has been the decisionfor Kosovo’s by to committeethe steering membershipisexpected betaken Kosovo hasconstantlyshown itswillingness to becomeamemberofRACVIAC; however, andtheUS(Busek&Kühne, 2010:108-109). Ukraine land, Slovakia, currently includingCanada, Po asobservers, inRACVIAC activities which may participate 2014). bid may bebrought onto thenegotiationtableamongRACVIAC structures (Jakop, cooperation with the RACVIAC - an indicator which shows that the Kosovo membership membership inthisinitiative, untilnowadays there issomeform ofcommunicationand tobership andwillcontribute theenhancementofregional stability. Despitethelackof B membership asastepping stone towards potential 2014). membership(Gashi, into anotherbidintheRACVIAC agendausingtheSEECP once againputtingitsefforts totributed thenegative response. Recently, oftheSEECPsoisnow Kosovo becamepart the lack of consensus among MAG con- members combined with other political factors 3 2 tia, Greece, Italy, Slovenia Romania, and thePartnership forTurkey; Peace (PfP)members intheSEDMare: theUnited States,member states participating Croa Albania,Bulgaria, - memberstates. SEDM consistsof14memberstates and2otherobserving The NAT Europe (SEDM,2013). cooperation intheregion inSoutheast inorder andsecurity military to enhancestability ofthiscooperationwas,objective andcontinuesto be, thestrengthening ofthepolitical- As aresult, ajointmeeting held inMarch 1996 in Tirana founded the SEDM. The main ofDefense intheregion. Ministers broughtsector together andDeputy Defense Ministers via. The needto establishasustainable mechanism ofregional cooperationinthedefense a result causedover thedisintegration oftheturmoil thepastdecadesduring of The process ofDefense EastEurope inSouth ofcooperation among theMinisters came as Eastern EuropeSEDM –South D der to justifytherejection. The SEECPwasnoteven includedintheCooper’s list
nally entitled process relations, ofgoodneighborly stability, andcooperationamongSEEcountries”. security “The The South-East EuropeanThe South-East Cooperation Process isaflexiblestructureof regional cooperation. The initiative wasorigi- y becomingaRACVIAC member, Kosovo willbeableto fulfillthecriteria for NAT ‘footnote agreement’. potential initiatives andorganizations signing inwhich Kosovo canbecomeafully-fledgedmemberafter the remains MFA of internal use - as some officials Cooper’s refer Robert list. tothem as Thislist contains a listof Cooper istheformer facilitator ofthePrishtina-Robert B ctober 2013,andtheargumentctober ofKosovo not being efense M elgrade dialoguefrom Baroness Ashton’s team. The list inisterial 2 at the timewasusedinor 3 , therefore Y O mem- ugosla- O - - 17 Kosovo’s Membership and Representation in Regional Security Initiatives 18 POLICY PAPER BY KCSS On the7 gary, Romania, Moldova, members include:Albania,B on relevant fields. andethnic dividewithinthe Evenregion, withthesectarian the SECI nizations otherthanthoseoftheregion wasthrough technical assistanceandexpertise rebuilding andstabilizingtheregion. The onlyassistanceto comefrom nationsandorga- Europeanof Southeast nations. This came in the form of resources that could assist in stability,was to bring not through financial aid, butthrough the regional co-operation to theregion stability was to bring by designing theSECI. The initialintention ofthe SECI ofstate for Europesecretary Southeastern for theClinton Administration, whoseinitiative SECI was formed in1996 under the guidance of Richard Schifter, special adviser to the US EuropeSECI South-East C if there ismore follow-up plannedfor SEDMmeetings(Syla, 2014).. action thenext However, will send another membership request authorities if Kosovar or it not yet known consensus onthis issuewas notreached”Minutes, 2013). (SEDMMeeting ontherequest, stated member states. andRomania theiroppositiononhow to report Serbia has presentedthe Secretariat to the procedure such a decision needs consensus amongst SEDM request asfollows: “We. took asanobserver note ofyour request to participate vo’s request to attend theSEDMasanobserver, responded SEDMSecretariat to Kosovo’s sible to reach aconsensusontheissueamongmemberstates. With respectto Koso of SEDMobserver. However, itimpos- stated andRomania theiroppositionmaking Serbia receivedThe SEDMchairmanship requests from Kosovo institutions to acquire the status Evaluation, 2011). states are Georgia (SEDMProcess andMoldova observing (SEDM);andthetwo Serbia inSEDMare: B participating afterwards anofficialletter wassent totheSEEPAGafterwards chair requestingmembership to which The Kosovo MFA submitted anofficialletter requestinginformation onmembership and charest (SECI&SELEC,1999). inSELECwith itsseatinBu- border Kosovo hasbeenanobserver activity. UnderUNMIK, organized crime, where involves, suchcrime orappearsto involve, anelementoftrans- States and enhancecoordinationMember inpreventing andcombatingcrime, including strategic capabilitiesto SELEC.SELEC’s thenew for isto objective provide its support Regional th ofO ctober 2011, theSECIbecameSELEC;thustransferring itsoperationaland ctober Police Y ugoslavia, Croatia, andSlovenia (Lopandic, 2009:9). osnia and Herzegovina, Macedonia, Ukraine, Montenegro Ukraine, osnia andHerzegovina, Macedonia, ooperative Initiative ulgaria, Macedonia, Greece, Macedonia, osnia andHerzegovina, Bulgaria, Hun- and Rule of Law Cooperation Accordingly,
- membership inRACVIAC ashasbeen mentionedpreviously inthistext. membership intheSEECPhas openedthedoorfor Kosovo to alsobeeligible to request in theSEECP, major progress Kosovo marks inmultilateral regional forum. Kosovo’s full inthisprocess (Elshani). B andequalparticipant permanent rest 2014:5). SummitDeclaration, The declarationadopted Kosovo a by theSEECPmakes nent basisintheSEECPactivitiesandmeetings, atalllevelsandonequalterms” (SEECPBucha- SEECP activities over the last year and we on a perma- decided to invite Kosovo to participate Among others, the SEECPdeclarationstates: “We ofKosovo in welcomed theparticipation SEECP underRomania’s status. having previously chairmanship heldobserver peace anddevelopment (MFA, June2014,Kosovo becameafullmemberofthe 2014).In sion will also benefit the SEECP and would contribute to the full consolidation of regional agreement’, addingthatKosovo’s membership in theSEECPwasinevitable seeking inclu- However,in theBalkans. outoftheCooper’s SEECPwasleft List.Basedonthe ‘footnote Kosovo aimedfor platform fullmembershipinSEECPasaserious ofregional cooperation and Turkey (SEECP, Compromise Proposal oftheSEECP). Croatia,Bulgaria, Greece, Montenegro, Moldova, Macedonia, Slovenia Serbia, Romania, gional countries, SEECPconsistsof12memberstates: Albania,B perity, peaceandeconomicdevelopment, aswell asEuro-Atlantic integration for allre As asoleinitiative established by theregional states aimingto promote democracy, pros- challenges(SEECP,security Objectives). Main create anddevelop jointstrategies for regional aimingto offer stability responses to new one oftheresponsibilities ofthememberstates closely inorder work isto to actually combatting trafficking, organizedcrime, Hence, asarmstrafficking. wellashumanand tainable economicdevelopment, cooperationinthefieldofjustice, organized crime, drug of theSEECPconsistscooperationmainlycovering issuessuchassecurity, stability, sus- launched by theregional states asanexpression oftheirsolidarity. The overall framework aimed to present aunique oftheregion”.“voice The SEECPisaflexible regional structure cooperation among SEE countries”. This structure was presented byand the SEE countries tive wasinitiallycalled: process relations, ofgoodneighbourly stability, and “The security EuropeanThe Southeast Cooperation Process (SEECP)wasintroduced in1996. The initia- EuropeanSEECP Southeast C theexplicitrejection tomember ofSELECafter themembershiprequest. cedural requests ofSELEC(Elshani, 2014).Kosovo isstillfacingobstaclesinbecominga no reply wasreceived. Apparently, didnotmeettheappropriate authorities pro Kosovar ooperation Process Info y gainingthefullmembership osnia andHerzegovina, - - 19 Kosovo’s Membership and Representation in Regional Security Initiatives 20 POLICY PAPER BY KCSS PCC SEE-Police C regionaland cooradinationbetween countries. ILECU has proved successful way of direct,albeit informal, to be a very communication tration andEUR hub whichfacilitates INTERPOLrepresented communicationbetween by UNMIKadminis- thatitisnotamemberofINTERPOL,Kosovo’sand coupledwiththefact asa ILECUserves However given thatKosovo didnotsign thestrategic thefact agreement withEUR nisms, INTERPOL,EUR the KP. This theofficeofILECUwithin unitwillincorporate InternationalKP, Mecha- Police Government to by Kosovar establishtheILECUwithin June 2011,thedecisionwastaken Cooperation forInternational Law Enforcement withintheKosovo Police (KP)(Elshani). In oftheILECU based onthedecision for establishment of theUnitfor Kosovo became part lawand international enforcement agenciesinthe (ILECU, countries Western 2012). Balkan and exchange ofthenational ofinformation amongnumerous unitsandinstitutionspart foreign). the ILECUs offer Henceforth, a platform of central coordination, communication OLAF,LEC), System(SIS) Information andSIRENE,liaisonofficers(national Schengen organizationsinternational Europol, suchasInterpol, Eurojust, Frontex, SECICenter (SE- andcooperationamongthemwiththe thatenablesdirectcontact regional country The aimoftheILECUsinregion isto have asolecentre, i.e. aninstitution/unitineach as Albania,BiH,Croatia, Montenegro, andMoldova. Macedonia Serbia, such ofunitsinseven whichcurrently countries comprises Service, Intelligence Criminal ILECUs and DET-ILECUsects was set upunder the leadership of the Austrian II, anetwork cooperation inthe EUfundedproj of thetwo states.Western theframework - In Balkan ILECU is an EUregional project aiming to establish national coordination units and enforce for thestates Europe oftheSoutheast Law Enforcementeration, theEUhassetupInternational Coordination Units(ILECUs) aim to strengthen nationalplatforms for policeandlaw international enforcement coop field oftherulelaw, andprograms. theEUhaslaunchedanumberofactions With the Following theconsecutiveto strengthen efforts the regional cooperationespeciallyinthe ILECU International Law Enforcement C Macedonia, Moldova, Montenegro, policecooperation Moldova, Macedonia, International andSerbia. Romania, states, such as Albania, of participating signed of the Interior in 2006 by the Ministers cooperation into being. The Police Cooperation Convention for Europe Southeast was ofregionalthe principle ownership. took years thejointpolice of negotiationsto bring It The ideato establishthePCC SEEproject wasinitiated by Austria basedon andGermany OPL represented by theEULEXmissioninKosovo. (Elshani). Nevertheless, ooperation C OPL, andFR (MoU, 2011: Art. 1). ONTEX (MoU, 2011:Art. onvention for Europe Southeast oordination Unit OPL, BiH, - projects. (Interview withPCC SEEO projects. (Interview organizational mechanism,Kosovo stillcannotbenefit from some ofitsprograms and hampersKosovo’sseriously positioninrelation to thePCC SEE.B bysign expressing thecontract willingness to adopttheconvention, thepoliticalstatus thatby defaultKosovo canask toamong membercountries. Despite thefact joinand ofthePCC SEEbecauseofpoliticalreasonsKosovo isnotpart andlackofconsensus lice collaborationintheregion (PCCSEE, 2014). through the conclusion of a multilateral convention for the improvement of strategic po essence, theinitiative Europe73). In Southeast aimsto bring standards adoptSchengen ‘to requires an appropriate in order legal framework to be fully effective. (Banutai, 2013: 72- has signed numerous bilateral agreements withotherregional states. Kosovo concluded and laterwhich hasbeendrafted on approved by farKosovo theassemblyinJuly2013.So Currently JudicialCooperation (Law Kosovo hasaLaw no. onInternational 04/L-031), the region thatdonot recognize Kosovo. have recognized as a mediator Kosovo.Kosovo and the states between of EULEX serves materialized judicialcooperationonlyonbilateral basiswiththestates oftheregion that Legal04/L onInternational Matters, Cooperation inCriminal 2011).As aresult, Kosovo any oftheEuropean Conventions thatrelate to justicecooperation(Law international No. oftheCouncil ofEurope,Given thatKosovo isnotpart itimpliesthatKosovo cannotsign by theEUandCouncil ofEurope. of the judicial focalthe function points for the ILECUs. is stronglyThe network supported points,basis ofcommunicationandcollaborationamongsixnational contact alsowith onthe such asAlbania,BiH,Croatia, Montenegro and itfunctions Macedonia, andSerbia, Chief Prosecutors country. ofeachparticipating ofsixcountries iscomprised The network wassigned by the broadened ofUnderstanding (MoU) theMemorandum in2010after public prosecutors wasreinforced establishedin2005.Later onthisnetwork anditsscope The Prosecutors’ of the Network representsWestern a professional Balkans of network 2014: 56-57). cations, groups allotherforms crime, criminal ofserious associations (RCC, andcriminal of information to combatorganized caseswithcross-border andcorruption crime impli- to create outjointinvestigations, aprofessional exchange andcapacitiesto carry network ecute organized groups crime operatinginthe region.Western Balkans The projectaims in the aiming to services countries effectivelyWesternrial investigate Balkan and pros- field oftherulelaw. This initiative amongtheprosecuto aims to create direct linkages Prosecutors’ ofthe Network representsWestern anotherregional Balkans initiative inthe Western Prosecutors’ Balkans Network fficials, 2014) eing left outofthisbig eing left - - 21 Kosovo’s Membership and Representation in Regional Security Initiatives 22 POLICY PAPER BY KCSS help inKosovo proceeding cross border judicialcases more efficiently(Gegaj, 2014). procedural challenges. So, fullengagementinsuchmultilateral initiatives cancertainly mediated by eitherEULEXofUNMIKhave beentheslowest andthosethatposedseveral time consuming and not efficient. Also, the cases of judicial cooperation that have been not easilycooperate withothercountries, andoverall cooperationinbilateral istoo terms not ableto benefitfrom jointtrainingsandseminars for judgesandprosecutors, itcan- However, ofthemain regional ruleoflaw notbeingableto initiatives, bepart Kosovo is either directly orviaEULEX.UNMIKremains withInterpol. theformal pointofcontact on requeststice acts for mutual legal assistance received from non-recognizing countries, bilateral agreements onmutuallegalassistancewithAlbaniaandItaly. ofJus- The Ministry states intheregion as such. of cooperation deficient,anditdoesnotcontribute to thenormalization relations among and inclusion. The absenceofKosovo inregional theprocess initiatives makes ofregional ofrepresentationothers ithasnotmanagedtoofparticipation getany kind orany sort andEuropol,UNMIK administrationandEULEXwhendealingwithInterpol andinsome cooperation inregional level. Despite afew successes, Kosovo isstill being represented by a memberofthe RCC, to a membership that was seemingly expected open the doorof in regional initiatives more security difficult.B Kosovo’s institutionswithstatehood hasmade The identificationofsecurity integration haveSerbia madethis process harder andprolonged for institutions. Kosovar al arena, the obstacles in the implementation process unfortunately and the opposition of agreement foresaw a better and futurebrighter for Kosovo in the regional - and internation become amemberofitsdozens ofbodies. However, thatthe despite thefact ‘footnote’ aboutthemodelsonhow itcan Serbia “equally” inregional initiatives participate and ofitsregionalamong them.Giveninclusion,Kosovo hasnegotiated with theimportance to gainanequalstandingamongthestates oftheregion aswell asboostcooperation countries. For Kosovo, full membership in regional organizations is seen as an instrument boost regional cooperationinthefieldof, inthe amongstothers, security Balkans Western of the region, countries aspiring has introduced many projects and programs aiming to adopting democraticandeconomicreforms. Accordingly, theEU, incooperationwiththe intheregion, by introducing andsecurity countries andto aspiring and ing stability The EUandNAT Conclusion O enlargement are seenasbeneficial to boththeEUandNAT y now, Kosovo hasmanagedto become - O by bring 23 Kosovo’s Membership and Representation in Regional Security Initiatives 24 POLICY PAPER BY KCSS Europe. bership in order to declare, at least formally, East full and holistic cooperation in South initiatives aregional security encouragedto proactively justifytheneedfor Kosovo’s mem- overarching goalofregional cooperationbeyond thepositionofmemberstates. The regional initiatives security that the –arewould bring efforts to expected make ropol. national institutions, specificallyin and Interpol Eu- relation to thecommunicationwith UNMIK andEULEX-shouldputmore to handover efforts the Kosovoresponsibilities to inregional bodiesandinitiatives.to part which,Kosovo to shouldnotberestricted take to andimplementthe respect the GovernmentofSerbia “footnote” agreement according inthe regional initiatives.Kosovo security Also, fullyparticipates The EUshouldpressure differenttiatives optionsbetween new by exploring statusesinorder sure to make that The European Union–shouldseek the possibilities to involve Kosovo in relevant ini- in itself, butameansto achieve thegoalto strengthen thestatehood anditsinstitutions. Kosovo.est isidentified to include in regional initiativesParticipation shouldnotbeagoal should address theissueofKosovo within oneormore regional frameworks, where inter needed to enhance the positions of Kosovo regionally. institutions Appropriate working strategies, abetter cooperationandcoordination amongtheMFA, theKSFandKPis unified inorder in initiatives. to ensureregional security B better participation a better platform for implementation. The government shouldbe more consistent and Kosovar Government –the Rec ommendations signing ofthe ‘footnote’ agreement shouldbefollowed by esides the The re - - Kosovo R List Network Prosecutors’Western Balkans Europe Convention for Southeast PCC SEEPolice Cooperation Unit Enforcement Coordination Law ILECU International Cooperation Process Info EuropeanSEECP Southeast Cooperative Initiative EuropeSECI South-East Defense Ministerial Europe -Eastern SEDM South Center Assistance Implementation Control Verification RACVIAC Regional Arms CenterOperations Training PSO Charter Adriatic Initiatives/ Mechanisms TC Peace Support of epresentation inR Annexes POLICE ANDRULE OFLAW SECTOR Guest Observer/ egional Security Initiatives egional Security DEFENSE SECTOR Membership Requested Participant Member/ No relations 25 Kosovo’s Membership and Representation in Regional Security Initiatives 26 POLICY PAPER BY KCSS fronteriza/lit/fw/ilecus-short.pdf>. ILECU. oftheILECUs Project Description 2014 Katalogimi në botim – (CIP) Biblioteka Kombëtare e Kosovës “Pjetër Bogdani” 355.45(496.51)(047) Emini, Donika Kosovo’s Membership and Representation in Regional Security Initiatives / Donika Emini. – Prishtinë: Kosovar Center for Security Initiatives, 2014. - 32 f. : ilustr. Colored; 17 cm. x 23.5 cm. Bibliography : f. 26-28 ISBN 978-9951-679-06-0 www.qkss.org