Policing in Kosovo

February 2008 Policing in Kosovo

The Forum for Civic Initiatives (FIQ) is a Kosovar non-governmental organisation promoting the involvement of Kosovar citizens in social and decision-making processes through programmes designed to focus attention on the values and functioning of an open and democratic society.

Saferworld is an independent non-governmental organisation that works with governments and civil society internationally to research, promote and implement new strategies to increase human security and prevent armed violence.

Production: Rrota, www.rrota.com Layout: Arbër Matoshi Korab Etemi Foto: OSCE/Hasan Sopa

© 2007 Forum for Civic Initiatives and Saferworld Policing in Kosovo

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Acknowledgments

This report was written by the SafePlace project team at the Forum for Civic Initiatives and Saferwold. We wish to thank the Governments of United Kingdom and Germany for funding this research through their support for the SafePlace project. Policing in Kosovo Policing in Kosovo

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Executive Summary

This paper is the second part of a series designed to track changing perceptions of safety, security, weapons prevalence and security providers in Kosovo. Its main focus is on perceptions of policing in Ko- sovo. The results are based on data collected in June 2007 in a Kosovo-wide household survey of 1,200 respondents and a series of focus group discussions. The report analyses how perceptions of safety and security have changed in the six months from December 2006 to June 2007, looking at the relationship of different factors including levels of trust in the police, geographical position and ethnicity on percep- tions of policing in Kosovo.

Since December 2006, levels of safety appear to have improved slightly. Overall a high level of crime was the most serious threat to security and safety, followed by poor infrastructure and traffic problems. Kosovo Albanians and Kosovo Serbs continue to prioritise safety and security concerns very differently: Kosovo Albanian respondents most often cited problems relating to lack of quality service provision at the local or municipal levels, while Kosovo Serbs most often cited problems with political dimensions.

The Kosovo Police Service (KPS) is the second most trusted institution in Kosovo according to the survey results (after the Kosovo Protection Corps – KPC). The level of trust is affected by several factors, in par- ticular place of residence, but the relationships between the factors that affect levels of trust in the KPS are complex. While the findings showed a link between level of education and trust in the KPS, the rela- tionship is not simple: for instance, respondents who have completed secondary education were the least likely to trust the KPS, but both those with no formal education and those who have completed university education expressed high levels of trust in the KPS.

Unsurprisingly, there is also a strong relationship between levels of safety and trust in the KPS. Respond- ents who felt “very safe” in their communities, trust the KPS “very much” or “fully”. However, there was no clear link in the survey between the level of safety felt by respondents and how often they see the po- lice patrolling. Discussions in focus groups showed that feeling of safety and trust in the police are often linked to personal experience and the experience of their friends and family with the police.

Although the presence of a police substation did have a slight positive impact on feelings of safety, it does not necessarily improve the levels of safety one feels about their neighbourhood, nor does it necessarily contribute towards higher levels of crime reporting to the police. Kosovo Serbs were much more aware of the presence of a police substation than Kosovo Albanians. From the survey results it appears that the permanent presence of police in the form of a substation contributes to higher levels of safety than police patrolling only. Further research is necessary to determine if the presence of a substation contributes to lower levels of crime, and therefore lower reporting of crime to the police.

Kosovo Albanian respondents felt KPS has improved in the past three years, where as Kosovo Serbs dif- fered on this matter. Even though the KPS was the least cited institution that takes bribes, both groups were uniform in thinking that further improvement is needed in order for the KPS to develop into even more modern and professional police force that would guarantee security to all its residents.

There are clear recommendations from respondents as to how the KPS could improve its performance. Essentially, Kosovo’s public is asking police officers to continue their reforms and work more in the com- munity. More specifically, respondents would like the KPS to patrol more often and respond more quickly to incidents. KPS officers are also asked to behave more professionally, tackling corruption within the service and treating members of the public with more respect. Respondents would also like KPS officers to improve their ability to resolve disputes between people, and to work more with the community to solve community-level safety problems. Policing in Kosovo Policing in Kosovo

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Contents

Introduction and methodology...... 7 Perceptions of safety ...... 8 Fear of crime...... 9 Trust in the Kosovo Police Service...... 11 Professionalism of the KPS...... 16 Crime reporting...... 18 The KPS in the community...... 20 Community safety structures...... 22 Recommendations for the KPS...... 24 Conclusion...... 26

List of figures

Figure 1a: The most serious safety and security issues for Kosovo Albanians, First, Second and Third mentioned...... 8 Figure 1b: The most serious safety and security problems for KosovoSerbs, First, Second and Third mentioned...... 9 Figure 2: Fear of crime, disaggregated by ethnicity June 2007...... 10 Figure 3: Frequency of different types of crime...... 10 Figure 4: Trust in Kosovo’s institutions...... 11 Figure 5: Trust in the KPS by level of education...... 12 Figure 6: Trust of police and feelings of safety...... 13 Figure 7: Community safety and the number of days a year KPS officers are seen in that community...... 14 Figure 8: Neighbourhood safety and the presence of a police substation...... 14 Figure 9: Respondents seeing KPS and UNMIK Police officers at least several times a week...... 15

Figure 10: Institutions asking for bribes within the last 12 months ...... 16 Figure 11: Satisfaction with the KPS’ action disaggregated by education...... 18 Figure 12: Confidence in case being solved, disaggregated by ethnicity...... 20 Figure 13: Awareness of MCSC...... 23 Figure 14: How the KPS could improve its performance...... 24 Policing in Kosovo Policing in Kosovo Introduction and methodology 6

Acronyms and abbreviations

EU European Union FIQ Forum for Civic Initiatives IDP Internally Displaced Person ISSR Internal Security Sector Review KFOR Kosovo Force (NATO) KLA Kosovo Liberation Army KPC Kosovo Protection Corps KPS Kosovo Police Service LPSC Local Public Safety Committee MCSC Municipal Community Safety Council NATO North Atlantic Treaty Organisation NGO Non-Governmental Organisation PISG Provisional Institutions of Self-Government SALW Small Arms and Light Weapons UNDP United Nations Development Programme UNMIK United Nations Interim Administration Mission in Kosovo Policing in Kosovo Policing in Kosovo Introduction and methodology 7

his survey is in two parts, one of which forms part percent of respondents were male and 46.8 percent Tof a series designed to track changing percep- were female. All were over 18 years old. tions of safety, security, weapons prevalence and se- curity providers in Kosovo and the other which looks Six focus groups on security provision were used to at particular security issues on an ad hoc basis. The validate the data from the household survey and to survey undertaken in June 2007 focused on percep- investigate more deeply the sensitive issues around tions of policing in Kosovo, and this report is based security provision. These groups were as follows: on these data. The complete questionnaire and raw ●● South Mitrovicë/Mitrovica, male and fe- data can be found at www.safeplaceproject.org. male, Kosovo Albanian, age 18-25 years Each of these tracker surveys comprises a household ●● North Mitrovicë/Mitrovica, male and fe- survey and a series of focus groups. The household male, Kosovo Serb, age 18-25 years survey in June 2007 was conducted throughout Kos- ●● Gjakovë/Djakovica, male, Kosovo Albanian, ovo and a representative sample of 1,200 respondents age 18-25 years was selected to gather the data. The standard margin of error is 2.89 percent at a confidence level of 95 per- ●● Gjakovë/Djakovica, female, Kosovo Alba- cent. The data for this study was gathered principally nian, age 18-25 years from interviews with heads of households and where ●● Suharekë/Suva Reka, male and female, Ko- appropriate, women (regardless of their position in sovo Albanian, age 18-25 years a household). Because a large majority of heads of ●● Lipjan/Lipljan, male, Kosovo Serb, age 18- household in Kosovo are men, in order to provide an 25 years adequate gender balance, women were interviewed in every second and fourth household. In total, 53.2 Policing in Kosovo Policing in Kosovo Perceptions of safety 8

Figure 1a: The most serious safety and security issues for Kosovo Albanians First, Second and Third mentioned (Baseline number: 954)

Poor infrastructure

Traffic problems

Pollution

High levels of crime

Unresolved status of Kosovo Unfavourable solution of Kosovo status

0% 5% 10%15% 20%25%

verall, respondents felt that levels of safety had cent in December 2006 and 25.7 percent in March Oimproved slightly in the six months between De- 2006. This reluctance needs closer investigation and cember 2006 and June 2007, with 17.0 percent agree- likely points to underlying mistrust of authorities ing that “levels of safety have improved”, 77.4 percent that is not necessarily reflected in questions dealing feeling that “levels of safety have stayed the same” explicitly with trust. and only 4.4 percent feeling that “levels of safety have got worse”. Kosovo Serb respondents were on aver- Kosovo Albanians and Kosovo Serbs prioritise safety age slightly more pessimistic, with only 4.5 percent and security concerns very differently, as Figures feeling that “levels of safety have improved” and 13.6 1a and 1b below demonstrate. When asked what percent feeling that they had got worse. their three most serious safety and security concerns were, the most frequent responses of Kosovo Alba- High levels of crime were the most serious safety nian respondents were “poor infrastructure” (21.1 and security issue faced by communities, according percent), “traffic problems” (15.1 percent) and to 10.7 percent of respondents, followed by poor “pollution” (13.0 percent), all related to the lack infrastructure and traffic problems (both at 8.9 per- of quality service provision at the local or municipal cent). However, as has been noted before,1 a high level . In contrast, the most serious concerns for Ko- sovo Serbs were “unfavourable solution of Kosovo’s “The situation is already improving as far as it con- status” (55.1 percent), “high levels of crime” (53.5 cerns safety. Policemen are becoming more capable percent) and “poor inter-ethnic relations” (40.9 per- and competent.” cent) – all political concerns with both local and in- ternational dimensions. - 21-year-old Kosovo Albanian male student in a focus group in Gjakovë/ Djakovica It is interesting that the number of Kosovo Serb respondents placing Kosovo’s status as the most percentage of Kosovo Albanian respondents – 29.9 serious safety or security problem was not higher, percent – are unwilling or unable to answer ques- particularly given that 80.3 percent of Kosovo Serbs tions concerning their community’s security. Moreo- felt that their security will “get a lot worse” if the ver, many more respondents are refusing to answer “resolution of Kosovo status is independence”, a the question about types of crime, or answering “I feeling shared by only 0.6 percent of Kosovo Alba- don’t know”. In June 2007, this had risen to 38.1 nian respondents. (70.4 percent of Kosovo Albanian percent of respondents, compared with 34.3 per- respondents felt that “it will improve a lot” in the same situation compared with Kosovo Serbs.)

______1 See for example, Human Security in Kosovo: A survey of Perceptions (Forum for Civic Initiatives and Saferworld, June 2007) p10, Sokolová, J. et. al., SALW Survey of Kosovo, (SEESAC, 2006), p36 and Light Blue: Public Perceptions of Security and Police Performance in Kosovo (UNDP Kosovo, June 2004), p19. Policing in Kosovo Policing in Kosovo Fear of crime 9

Figure 1b: The most serious safety and security problems for Kosovo Serbs First, Second and Third mentioned (Baseline number: 198)

Unfavourable solution of Kosovo status High levels of crime

Poor inter-ethnic relations Lack of freedom of movement in Kosovo Pollution

Traffic problems

0% 10% 20% 30% 40% 50% 60%

lthough people’s perceptions of safety may be creased between December 2006 and June 2007: Abecoming marginally more positive, according In December, 69.8 percent of Kosovo Serb re- to the survey fear of crime in general seems to have spondents were “very afraid” that either they or increased between December 2006 and June 2007. a family member may become a victim of crime, In the survey conducted in December, 34.1 percent and a further 26.7 percent were “quite afraid”. In stated that they were “not afraid at all” that they June, the percentage of Kosovo Serbs who were or their family may become a victim of crime and “very concerned” of becoming a victim of crime 15.9 percent that they were “very afraid”.2 In June, decreased to 43.9 percent; a further 34.3 percent however, the figures were reversed: 28.6 percent were “quite concerned”. of people were “not concerned at all” that they or their family may become a victim of crime, while While Kosovo Serbs remain fearful of crime, it 33.3 percent were “very concerned.” seems their fear is becoming less intense. One pos- sible explanation for this is exemplified by a com- ment from a 23-year-old male student in a focus “Now even the number of drug abuse has increased. group in Mitrovicë / Mitrovica: “People accept that So, the percentage of crime is increasing.” criminals are around us and that criminality is the - A 20-year-old male from Suharekë / Suva Reka most developed business in our society. It became a part of our reality, a part of our everyday life.” If crime is perceived to be ubiquitous, it is possible Kosovo Serbs may feel their neighbourhoods are that people no longer consider it unusual and so less safe than Kosovo Albanians do, but according it is not revealed as the serious problem as it is by to the survey, Kosovo Serbs are becoming less fear- quantitative surveys. Alternatively, it may be that ful of crime, while Kosovo Albanians’ fear of crime the crime in question is between criminal gangs, is increasing. This trend is also backed up by the fo- having little direct effect on the day-to-day lives cus group discussions. Many Kosovo Albanian focus of ordinary citizens. Certainly, the statistics dem- group participants felt that crime in their community onstrating the decrease in fear of crime among was very serious, some citing an increase of drug Kosovo Serbs should be treated with caution. abuse as an example. The types of crime respondents perceive to be most The number of Kosovo Serbs concerned that they frequently occurring in their area are changing over or their family might become a victim of crime de- the months as Figure 3 below shows.4 Robbery/theft

______2 Human Security in Kosovo: A survey of perceptions at: http://www.saferworld.co.uk/images/pubdocs/Human_Security_in_Kosovo_English.pdf, pp 14-15. Policing in Kosovo Policing in Kosovo Fear of crime 10

Figure 2: Fear of crime, disaggregated by ethnicity June 2007 3 50% Kosovo Albanian 45% 43.9% 41.7% Kosovo Serb 40% Other

35% 34.3% 33.4% 32.1% 30%

25% 22.9% 20% 19.8%

15% 14.6% 12.5% 10% 10.1% 9.1% 6.4% 4.2% 4.2% 5% 3.9% 3.1% 2.0% 1.3%0.5% 0% 0 0 Very Quite Neither Not very Not concerned Don't know No answer concerned concerned concerned nor concerned at all unconcerned remains the most common type of crime according to radios but also of vehicles. Many participants also com- respondents, with 49.4 percent in March 2006, 36.3 mented on an increase in both drug abuse and drug- percent in December 2006 and 43.3 percent of re- related crimes, potentially linked to the relatively high spondents in June 2007 citing this as their first answer. level of petty theft mentioned by participants.5 The focus groups discussions confirm this, with several of the participants stating that they or someone they s Figure 4 demonstrates, the Kosovo Police Serv- ice is the second most trusted institution in Ko- knewFigur ehad 3: Frequencbeen robbed,y of di ffoftenerent of type mobiles of crim phonese or car A

50

45 Jun-07 Dec-06 s 40 Mar-06 nt 35 30 sponde 25 of re 20

tage 15

enrc 10 Pe 5 0 t g s e g t g t r ce d ul us in g he thef atin reat ht thef ppin sa Ot er y/ ab y/ lin t know be Th disputes fig guns na Murder d threat g sw er t/ violen s/ d al as n' ty th ce relate an ul Drug r ng bber Ki Do o sa ti wi Arme Robb pe olen Sexu /n As o oo d ro to smug Pr Vi DomesticSh ______Arme 3 Baselines for each category: Kosovo Albanian: 954; Kosovo Serb: 198; Other: 48. 4 Data for March 2006 is from Small Arms and Light Weapons Survey of Kosovo (SEESAC), p 41. Some of the fields in the table have been approximat- ed: the field “drug-related crime” has been included here under “drug abuse”; “fighting” has been included under “shootings/fighting with guns” and “rape” has been included under “sexual assault”. The field “domestic violence” was not included in the March 2006 survey. The data for December 2006 is from Human Security in Kosovo: a Survey of Perceptions, p 19, which also used an identical sampling methodology. The field of “sexual assault” was not included in the December 2006 survey. 5 There is a marked decrease in the number of crimes people perceive occurring that involve or are likely to involve weapons, i.e., “shootings/fighting with guns”, “armed robbery/theft”, “murder” and “armed threat”. In March 2006 25.6 percent of respondents cited those as a crime, compared to 7.2 percent in December 2006 and 6.1 percent in June 2007. However, stories of weapons-related crime were raised on several occasions in focus group discussions in June 2007, where individual participants had witnessed crime scenes involving firearms. Policing in Kosovo Policing in Kosovo

Trust in the Kosovo Police Service 11

Figure 4: Trust in Kosovo’s institutions

90% Fully 80% Very much

70%

60%

50% 52.8 50.6 16.7 68.8 13.5 21.4 19.6 18.4 40% 19.5 Percentage 30%

20% 37.8 38.8 32.7 31.9 33.1 34.1 24.4 25.4 10% 11 0% UNMIK KPSKFORKPC Municipal JudiciaryMedia Kosovo EU Police authorities government

sovo, with 77.2 percent of respondents trusting it or had a majority of Kosovo Serb residents, as noted either “very much” or “fully”, second only to the in Human Security in Kosovo.7 Trust in the KPS was Kosovo Protection Corps (79.8 percent of respond- particularly low in the four municipalities with major- ity Kosovo-Serb populations, reflecting the percep- “Collaboration between population and police is im- tion among many Kosovo Serbs that the KPS is an in- proving day after day.” stitution of Kosovo Albanians for Kosovo Albanians. In Zubin Potok/Zubin Potok, Leposaviq/Leposavić - A 21-year-old male student from Gjakovë / Djakovica and Zveçan/Zvečan, only 20.0 percent, 10.0 percent and 4.0 percent of respondents respectively trusted ents). While UNMIK Police, KFOR, Kosovo govern- the KPS “fully” or “very much”, and in Shtërpcë/ ment, media and judiciary are not trusted as much, Štrpce in the south of Kosovo – and therefore with- still over 50 percent of respondents trust these insti- out a boundary with Serbia proper – no respondents tutions either “very much” or “fully”.6 trusted the KPS “fully” or “very much”.

Several variables affect how much trust people have in the KPS, including ethnicity, location and educa- “I know a lot of young police officers who do not take tion. For instance, 91.5 percent of Kosovo Albanian their job as seriously as they should, who drive fast respondents trusted the KPS “fully” or “very much”, their police cars and who are very aggressive.” - A 85.4 percent of non-Serb and non-Albanian respond- 22-year old male student from Mitrovicë / Mitrovica ents trusted the KPS “fully” or “very much”, but only 5.1 percent of Kosovo Serb respondents did.

Mostly, trust in the KPS varied according to whether a municipality was dominated by Kosovo Albanians

______6 For more data on trust in institutions, see UNDP Early Warning Report, January-March 2007, No.16 , accessed at: http://www.kosovo.undp. org/repository/docs/EWR16_eng%5Bfinal%5D.pdf and Human Security in Kosovo: a Survey of Perceptions, pp 28-30. 7 Human Security in Kosovo: a Survey of Perceptions, p 27. Policing in Kosovo Policing in Kosovo

Trust in the Kosovo Police Service 12

Figure 5: Trust in the KPS by level of education

100% Fully 90% Very much

80%

70%

60% 43.2%

79.4% 66.1% 59.0% 47.9% 50% 55.7% 41.8% Percentag e 40%

30% 41.1% 20% 28.9% 24.5% 20.0% 23.0% 23.2% 10% 13.2%

0% No formal Uncompleted Completed Uncompleted Completed Higher/ Completed education primary primary secondary secondary uncompleted universty university

There is some relationship between the level of edu- felt their community was “very safe” trusted the cation of respondents and how much they trust the KPS “very much” or “fully”, while 4.4 percent of KPS, as Figure 5 below shows. The less education a respondents who felt their community was “very respondent has received, the more likely he or she safe” trusted the KPS either “a little” or “not at is to trust the KPS “fully”, while the more education all”. In contrast, 54.1 percent of respondents who a respondent has received, the more likely he or she felt their community to be “very unsafe” trusted is to be slightly sceptical and to trust the KPS “very the KPS either “a little” or “not at all”. However, much” rather than “fully”. Respondents who have the relationship between safety and trust is not completed secondary education but gone no further without complexities, with 40.5 percent of re- are the least likely to trust the KPS, with 65.0 per- spondents who felt their community to be “very cent trusting the KPS either “very much” or “fully”, unsafe” trusting the KPS either “fully” or “very compared with 92.6 percent of respondents with no much”. Therefore, other variables also affect per- formal education and 84.3 percent who have com- ceptions of safety, and while the KPS can do much pleted university.8 to improve people’s perception of safety through its own actions, there will be some factors outside Unsurprisingly, as Figure 6 below shows, there is a of its control which will continue to contribute to strong relationship between trust of the KPS and feelings of insecurity. (See the section on Percep- the levels of safety that respondents feel in their tions of Safety for discussion of some of these oth- neighbourhood. 90.2 percent of respondents who er factors.)

______8 The age of respondents up to their 60s did not have an effect on how much they trust the KPS, with the exception of respondents over 60 years old, 62.8 percent of whom trusted the KPS “fully” compared with an average of 52.8 percent. Policing in Kosovo Policing in Kosovo Trust in the Kosovo Police Service 13

Figure 6: Trust of police and feelings of safety

S 100% Distrust 90% Very safe Trust Linear (Trust) 80% Linear (Distrust) Somewhat safe 70%

60% Very unsafe 50% Somewhat unsafe 40% Very unsafe Neither safe nor unsafe 30% Somewhat unsafe

20% Somewhat safe 10% Very safe Percentage of respondents trusting or distrusting the KP 0% Feelings of safety

Interestingly, the level of safety felt by respondents months between December 2006 and June 2007: was not affected by how often they saw KPS officers 8.3 percent of the people who said there is a police in the street. The extremely close correlation between substation in their neighbourhood and 88.2 percent the two curves on Figure 7 below shows those re- who said there is not a police substation in their spondents’ feelings of safety increased or decreased neighbourhood also said that the levels of safety had regardless of how often they saw police officers. improved over the last six months. It is possible that six months is too short a time period for the pres- “I’ve dealt with them and as far as I remember they’ve ence of a substation to affect safety demonstrably, behaved nicely. My neighbours have also had good but it is more likely that safety levels are dependent experience with police officers.” on several different factors, many of which will be outside the control of the local KPS officers. – A 18- year old female student from Suharekë / Suva Reka Moreover, on the surface, it seems that the presence of a police substation makes it less likely for a victim Therefore, how often one sees the police is not nec- to report a crime: 80.8 percent of respondents who essarily a measure of safety. Instead, the relation- said there was a substation in their neighbourhood ship between feelings of safety and trust in the KPS would “definitely” report a crime to the police if it is10 complex,0 with these two factors influencing each was committed against them or their family, com- other as well as other factors being important. In pared with 94.3 percent of people living Distrust in areas Very safe S particular,90 personal experience seems important in without a substation. However, rather than being a how the police are trusted, a finding stemming from result of fear of the police, it is likely that Trbecauseust many80 of the focus group discussions, and place of substations are established according to need – and Linear (Trust) residence and the presence of a police substation af- therefore areas where people feel less safe – they Somewhat safe fect70 feelings of safety to a greater or lesser degree. are already unlikely to report crimes becauseLinear of gen (Distrust)- eral distrust of authorities. Figure 8 suggests the According to this survey, the presence of a police presence of the police locally – and what they are 60 substation in a community did have a slight positive doing – rather than the number of times they are impact on feelings of safety, as shown in Figure 8 seen by the public impacts more on people’sVery feel unsaf- e below.50 At the same time, the presence of a police ings of safety. Further researchSomewhat needs unsaf toe be done in substation did not seem to affect improvements order to establish if the presence of a substation has in40 the level of neighbourhood safety over the six a positive impact on reducing levels of crime.Very unsafe Neither safe nor unsafe Somewhat unsafe 30

20 Somewhat safe

Percentage of respondents trusting or distrusting the KP 10 Very safe 0 Feelings of safety Policing in Kosovo Policing in Kosovo Trust in the Kosovo Police Service 14

Figure 7: Community safety and the number of days a year KPS officers are seen in that community

100% 90% 80% 70% 60% 50% 40%

"safe" or "unsafe" 30% 20% Expon. (Safe)

Percentage of respondents feeling 10% Expon. (Unsafe) 0% 050100 150200 250300 350400 Number of days a year

The relationship between trust in the police, feelings Moreover, the KPS’ patrolling is not geographi- of community safety, co-operation with the police cally uniform (neither is that of UNMIK Police), as in reporting crimes and presence of the police in Figure 9 below shows. The KPS necessarily need the community is complex, but in order to have the to devote different levels of resources to differ- greatest positive impact on community safety, police ent types of crime and safety problems, and tai- reform needs to encompass all these related aspects lor approaches to communities’ different needs. simultaneously. While a key recommendation of re- However, such a marked disparity between mu- spondents to this survey was that KPS officers patrol nicipalities where all respondents see KPS at least more often (see on Top Six Recommendations), in several times a week (in Shtërpcë/Štrpce) and order to make a significant difference, it will be the those where only 40.0 percent of respondents do way KPS officers act and interact with the public, as so (in Novobërdë/Novo Brdo) is concerning and well as how efficient they are perceived to be, that suggests some municipalities are not receiving will be more important in the long run. sufficient resources.

Figure 8: Neighbourhood safety and the presence of a police substation (Baseline number: 184)

90% Very safe

a 85% r ng fe 80%

ki Neither safe nor unsafe sa

in 75% th em e

th 70% Somewhat safe Very unsafe de 65% peopl

ma Somewhat unsafe

of 60% on ge ti 55% ta ta

en 50% rc subs

Pe 45% 40% Level of safety Policing in Kosovo Policing in Kosovo Trust in the Kosovo Police Service 15

Figure 9: Respondents se eing KPS and UNMIK Police officers at least se veral times a week

Shtërpcë/Štrpce

Dragash/Dragaš Leposaviq/Leposavić

Suharekë/Suva Reka Zubin Potok/Zubin Potok Shtime/Štimlje

Rahovec/ Orahovac Zveçan/Zvečan

Deçan/Dečani Kamenicë/Kamenica

Istog/Istok

Obiliq/ Obilić Vushtrri/Vučitrn

Gllogovc/Glogovac Klinë/Klina

Mitrovicë/Mitrovica Pejë/Peć

Podujevë/Podujevo Viti/Vitina Lipjan/Lipljan

Skenderaj/Srbica Fushë Kosovë/ Kosovo Polje

Gjilan/Gnjilane Ferizaj/Uroševac Gjakovë/Đakovica KPS UNMIK Prishtinë/Priština Prizren/Prizren

Kaçanik/Kačanik Malishevë/Mališevo

Novobërdë/ Novo Brdo

0% 10% 20% 30%40% 50%60% 70%80% 90%100% Policing in Kosovo Policing in Kosovo Professionalism of the KPS 16

Figure 10: Institutions asking for bribes within the last being asked for a bribe in the last 12 months were 12 months (Baseline number: 39) asked by the KPS to do so. International administration, Quantitative surveys on such sensitive issues as cor- 2.6% ruption and bribery should be treated with the ut- Central government, most caution, given people’s tendency to be reluc- 2.6% tant to disclose potentially embarrassing informa- UNMIK Police, tion. At most, the results in Figure 10 (from a very 2.6% low baseline number of 39) show the relative posi- Schools, tions of different institutions regarding the tenden- 5.1% cy to ask for bribes. More usefully, qualitative data KPS from the focus groups show that corruption is con- 5.1% sidered a problem for the KPS, or at least for some Municipal authorities, of its officers, a finding backed up by 28.7 percent No answer 38.5% of respondents who said that the performance of 7.7% the KPS would improve “if they were less corrupt” Other, 7.7% (see section Top Six Recommendations). Some par- ticipants perceived KPS officers as having inappro- priate links, most often by behaving more leniently

The Courts, 23.1% Health services, “There is only one option: corruption. Law in Kosovo 25.6% can be “paid.”

- A 18- year old female student from Gjakovë/ Djakovica

he results from the quantitative part of this survey with people they knew, but occasionally the allega- Tshow that members of the KPS are much less likely tions are more serious: “I have seen several times to receive bribes than people working in some other their [KPS officers’] relationship with well-known institutions. Only 3.3 percent of all respondents have criminals. It is not strange to see here a police of- 10 either been asked, or have a family member who was ficer sitting and communicating with criminals.” asked, to pay a bribe to any institution in the last 12 Such extreme examples should be treated with cau- months. The group most likely to have been asked to tion, particularly because “criminals” could refer to pay a bribe were those who had completed univer- people who have not in fact been found guilty of a sity education, with 7.4 percent of these respondents crime but instead are perceived to have committed saying they or a member of their family had been wrongs. Nevertheless, there remains much for the asked to pay a bribe in the last 12 months.9 Prizren/ KPS to do in improving its reputation, particularly Prizren was the region where most bribes had been among Kosovo Serbs. requested, with 5.9 percent of respondents in this re- Focus group participants were nuanced in their opin- gion stating that they or a member of their family had ions of KPS officers, with the majority judging offic- been asked for a bribe. In contrast, in Gjilan/Gnjilane ers on their individual merits and faults rather than region was the least corrupt by this measure, where making broad generalisations about the whole KPS. only 0.8 percent of respondents had been asked for a For instance, some participants considered some bribe. As Figure 10 below shows, people were most members of the KPS to “behave like hooligans” and likely to be asked to pay a bribe by municipal authori- others to “have a proper attitude”.11 However, the ties (38.5 percent), health services (25.6 percent) or general consensus in a focus group comprising Ko- the courts (23.1 percent); only 5.1 percent of those sovo Serbs was that KPS officers are “arrogant”12,

______9 The reasons behind this apparent link between level of education and paying bribes merit further investigation, perhaps in focus groups compris- ing people of similar education levels. 10 Young male in a focus group in Mitrovicë/Mitrovica. 11 21-year-old male student in a focus group in Gjakovë/Djakovica. 12 Young male in a focus group in Mitrovicë/Mitrovica. Policing in Kosovo Policing in Kosovo Professionalism of the KPS 17

“aggressive13” and “impolite”14. One participant ticipant put it, “the police have to speak with people said that a typical KPS officer was “a personality more often. Even they have to do the things more who suddenly got power. One day he is nothing transparently.”16 However, some changes could be and the next day he has all the power. And then relatively simple, such as insisting KPS officers ad- he abuses that power.”15 It will clearly be a chal- dress citizens respectfully when carrying out routine lenge to address such entrenched opinions, both work such as checks on identity cards, and ensuring in changing police officers’ behaviour, in particular officers’ behaviour is consistent regardless of with avoiding any hint of partiality, and in communicat- whom they are working or whom they are address- ing policing priorities better to citizens. As one par- ing.

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13 Another young male in a focus group in Mitrovicë/Mitrovica. 14 Another young male in a focus group in Mitrovicë/Mitrovica. 15 Young male in a focus group in Mitrovicë/Mitrovica. 16 A third young male in a focus group in Mitrovicë/Mitrovica. Policing in Kosovo Policing in Kosovo Crime reporting 18

Figure 11: Satisfaction with the KPS’ action disaggregated by education (Baseline number: 133)

Very or somewhat satisfied 90% Very or somewhat dissatisfied 85.7% Linear (Very or somewhat dissatisfied) 80% Linear (Very or somewhat satisfied) 75.0% 70% 70.0%

60% 62.5% 59.1%

50% 46.8% 40% 40.4% 42.1%

30% 31.8% 33.3%

20% 20.0%

10% 14.3%

0% 0.0% No formal Uncompleted Completed Uncompleted Completed Higher/ Completed education primary primary secondary secondary uncompleted universty university

little over a tenth of respondents – 11.1 percent spondents’ attitude towards reporting a crime, but A– had reported a crime to the KPS at some point 71.7 percent of Kosovo Serbs – some way below in their lives. 55.6 percent of these respondents were the average – would “definitely” report a crime. In- either “somewhat satisfied” or “very satisfied” with terestingly, only 80.0 percent of respondents in the the KPS’ action in response to the crime report. Sat- region of Gjilan/Gnjilane would “definitely” report isfaction varied with education: the more educated a crime, the lowest of the seven regions, but this is the respondent, the less likely they were to be satis- also the region with the fewest instances of “per- fied with the KPS’ action as Figure 11 below shows. ceived bribery”. (See the section on Professionalism of the KPS). The KPS is by far the most likely institution that re- spondents would call if they or their family were Male respondents were more sceptical than female threatened with violence. 88.2 percent (in a ques- respondents that the KPS would “catch the perpe- tion with multiple answers possible) said that they trator/ solve the crime”, with 62.8 percent giving would call the KPS, followed by 19.3 percent who this reason for not “definitely” calling the police, would call their relatives or family. The majority of against 55.6 percent of female respondents. Rural Serb respondents (58.6 percent) would also call the respondents were also more sceptical, with 66.1 KPS if threatened with violence but 46.0 percent percent saying that they did not believe “the police would call their relatives or family.17 Validating these will catch the perpetrator/ solve the crime” and a results, 91.6 percent of respondents would “defi- further 14.3 percent saying “I don’t think the police nitely” report a crime to the KPS if it was commit- are impartial”. This compares with urban respond- ted against “you or your family”. Variables such as ents, where 46.9 percent and 6.3 percent respec- age, education and gender did not radically alter re- tively shared these beliefs. ______

17 7.3 percent of respondents said they would “definitely not report a crime”. When asked for their reasons, 59.1 percent answered “I don’t believe the police will catch the perpetrator / solve the crime”, 11.4 percent said “I don’t think the police are impartial, and 5.7 percent said “I am afraid for another reason”. . Policing in Kosovo Policing in Kosovo Crime reporting 19

However, this urban-rural divide is not present in the there remains some concern about perceived links responses to the question, “If you or your family be- to criminals or lack of impartiality, the KPS’ main came a victim of crime, how confident are you that problem is one of capacity. the case would be solved and the perpetrator brought to justice?” This time, 59.8 percent of respondents Participants in focus group discussions noted on sev- living in rural areas, and 57.3 percent in urban ar- eral occasions that they believed the KPS to have eas, were either “very confident” or “somewhat improved in the past three years: “They are stricter confident”. Again, Gjilan/Gnjilane region displays the and they perform their duties better. They’re better 19 lowest confidence in the case being solved, with only trained.” While participants in the focus group 46.2 percent of respondents were “very confident” comprising Kosovo Serbs in Mitrovicë/Mitrovica or “somewhat confident”, followed closely by Mitro- were divided over whether there had been any im- vicë/Mitrovica region, on 47.0 percent. Respondents provement, there was general agreement in the fo- were most confident in Prizren/Prizren region, with cus group comprising Kosovo Serbs in Çagllavicë/ 20 77.0 percent of respondents being “very confident” Čaglavica that the KPS were “a little bit better”, 21 or “somewhat confident”. who “do patrols more often”. Overall, “there is progress but it is not enough.”22 It is therefore im- Confidence is closely related to the ethnicity of the portant for the KPS to continue with the reforms respondent, with Kosovo Albanian respondents be- ing much more confident than their Kosovo Serb “There is progress, but it’s not enough.” counterparts that a case would be solved and the perpetrator brought to justice, as shown in Figure - Male from a focus group in Çagllavicë/Ćaglavica 12.18 As noted above, the scepticism regarding the ability of the KPS to solve crimes is the primary mo- they have been instituting, such as more frequent tivation for people’s reluctance to report them. The patrolling and in their training schedules in order to implication for the KPS is broadly positive: while build on and entrench these improvements.

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18 Baselines for each category: Kosovo Albanian: 954; Kosovo Serb: 198; Other: 48. 19 24-year-old male student in focus group in Suharekë/Suva Reka. 20 Young male in a focus group in Çagllavicë/Čaglavica. 21 Another young male in a focus group in Çagllavicë/Čaglavica. 22 A third young male in a focus group in Çagllavicë/Čaglavica. Policing in Kosovo Policing in Kosovo The KPS in the community 20

Figure 12: Confidence in case being solved, disaggregated by ethnicity

60%

Kosovo Albanian 50% Kosovo Serb 47.9% Other

40% 36.0%

30.8% 31.8% 30%

22.2% 20.7% 20% 16.0% 14.6% 14.6% 10.6% 10% 8.1% 8.3% 8.3% 7.0% 6.6% 6.3% 5.0% 5.1%

0% Very confident Somewhat Neither confident Not very Not confident No answer confident nor unconfident confident at all

fifth (19.9 percent) of respondents were aware spondents were more likely to see KPS officers “every Aof a KPS substation in their neighbourhood, but day” or “several times a week” than Kosovo Albanian there was a large disparity between Kosovo Albani- respondents, with 85.4 percent giving one of these an and Kosovo Serb responses. Only 9.1 percent of responses compared with 67.7 percent of Kosovo Al- Kosovo Albanian respondents said that there was a banian respondents. Men were also much more likely police substation in their neighbourhood, compared to see KPS officers than women: 49.5 percent of male with 70.7 percent of Kosovo Serb respondents, a and 39.7 percent of female respondents saw KPS of- finding backed up by the results disaggregated by ficers “every day”. However, comments from women municipality, and likely a result of intensive efforts by the KPS to patrol these areas visibly. 77.0 per- “You would not feel safe if you lived in a neighbour- cent of respondents (the figures showed little differ- hood where theft was present. In such case you ence when disaggregated by ethnicity) who knew would not feel safe to leave the house alone.” of a police substation in their neighbourhood felt - An 18-year old male student from Suharekë / Suva Reka that the presence of the substation made them feel “much safer” or “a little bit safer”. in an all-female focus group suggest a great deal of From the survey results it appears that it is this per- contact between women and KPS officers, many of manent presence of the KPS – in the form of a sub- whom had “often talked”23 to police officers or “of- station – rather than more frequent patrolling – that ten meet them”.24 52.9 percent of respondents with has the greatest positive impact on perceptions of no formal education saw KPS officers “every day” or safety. A substation provides the community with a “several times a week” compared with 73.3 percent fixed point of contact for raising community mem- who had completed university. This could be a reflec- bers’ concerns and finding out information about tion of more educated people being more mobile and policing and community safety initiatives. therefore more likely to encounter KPS officers, or of being more conscious of seeing police officers. More Respondents see police in their neighbourhoods reg- research would be needed to establish whether this ularly, with 44.9 percent seeing KPS every day and finding was anomalous or significant. 25.8 percent “several times a week”. Kosovo Serb re- ______

23 23-year-old female student in a focus group in Gjakovë/Djakovica. 24 18-year-old female student in a focus group in Gjakovë/Djakovica. Policing in Kosovo Policing in Kosovo The KPS in the community 21

The KPS are mostly seen by respondents “in their cent of respondents said that the KPS’ performance cars” (46.1 percent), “patrolling the streets on foot” would be improved “if they responded more quickly (23.4 percent) or “on traffic duties” (18.2 percent). to incidents”. Professionalism of the KPS was also In Pejë/Peć region however, respondents saw po- important, with 28.7 percent saying KPS would be lice “patrolling the streets on foot” (28.0 percent) improved if it was less corrupt, and 27.3 percent if more often than “in their cars” (24.8 percent) and KPS officers “treated people with more respect”. in Mitrovicë/Mitrovica region, the results were 29.1 [See the section on Professionalism and Corruption percent and 33.9 percent respectively. in the KPS above.]

Seeing police patrolling on foot is popular with While a large majority of respondents (79.7 percent) respondents, 60.7 percent of whom said that the said they were not aware of any initiatives in their performance of the KPS in their area would be im- community to improve co-operation between the proved “if they patrolled more often”. Focus group police and citizens, the results were varied accord- participants noticed that this was already begin- ing to municipality. In Kaçanik/Kačanik, Novobërdë/ ning to happen. One said, “I think they [KPS offic- Novo Brdo and Rahovec/Orahovac, 33.3 percent, 40 ers] walk more often now. In the past they used to percent and 23.3 percent of respondents respective- use bicycles more often but they also used their cars ly knew of such initiatives in their communities oc- more than they do now.”25 Another noted with ap- curring currently, while 28.0 percent of respondents proval, “Nowadays I see them [KPS officers] walk- in Skenderaj/Srbica were aware of initiatives that ing around schools and downtown.”26 47.3 per- had finished.

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25 24-year-old male student in a focus group in Suharekë/Suva Reka. 26 24-year-old male student in a focus group in Suharekë/Suva Reka. Policing in Kosovo Policing in Kosovo Community safety structures 22

nly small minorities of respondents had heard Deçan/Dečani (44.0 percent), Rahovec/Orahovac Oof Local Public Safety Committees (LPSCs) and (40.0 percent) and Obiliq/Obilić (26.7 percent). Municipal Community Safety Councils (MCSCs), al- However, there is an MCSC operating in every mu- though awareness has grown since the last survey, nicipality, and while in the June 2007 survey more conducted in December 2006.27 In December, only respondents had heard of MCSCs than of LPSCs (in 6.9 percent had heard of LPSCs and 2.9 percent of contrast to the December 2006 survey), the level of MCSCs,28 which had grown to 12.3 percent and awareness is still extremely low. Only in Malishevë/ 15.8 percent respectively by June 2007.29 Of those Mališevo and Deçan/Dečani were close to half of who had heard of LPSCs, half (50.3 percent) said respondents aware of MCSCs, as Figure 13 below there was an LPSC operating in their area. Aware- shows. ness of LPSCs was highest in the municipalities of

______27 Human Security in Kosovo: A Survey of Perceptions, pp 34-36. The question asked on both occasions was “Have you heard of Municipal Com- munity Safety Councils?” and “Have you heard of Local Public Safety Committees?” 28 Human Security in Kosovo: A Survey of Perceptions, p 34. 29 The number of LPSC in Kosovo was 17 in 2006, with 12 to be approved for 2007, and 8 planned for 2008. For more information see: Kosovo Ministry of Internal Affairs: Strategic plan 2007-2010, p 43. Policing in Kosovo Policing in Kosovo Community safety structures 23

Figure 13: Awareness of MCSC

Malishevë/Mališevo 48.0% Deçan/Deč ani 44.0% Shtime/Štimlje 33.3% Skenderaj/Srbica 32.0%

Ferizaj/Uroševac 28.3% Rahovec/ Orahovac 26.7% Shtërpcë/Štrpce 20.0%

Obiliq/Obilić 20.0%

Suharekë/Suva Reka 20.0%

Klinë/Klina 20.0%

Gjilan/Gnjilane 20.0%

Gjakovë/Djakovica 15.0% Podujevë/Podujevo 14.5% Prishtinë/Priština 14.1% Lipjan/Lipljan 14.0% Leposaviq/Leposavić 13.3% Istog/Istok 12.0%

Pejë/Peć 12.0%

Vushtrri/Vučitrn 11.4% Mitrovicë/Mitrovica 11.4%

Prizren/Prizren 11.1%

Dragash/Dragaš 10.0%

Zveçan/Zvečan 8.0%

Fushë Kosovë/ Kosovo Polje 8.0%

Viti/Vitina 8.0% Gllogovc/Glogovac 6.7%

Zubin Potok/Zubin Potok 0.0%

Novobërdë/ Novo Brdo 0.0%

Kaçanik/Kačanik 0.0%

Kamenicë/Kamenica 0.0%

0% 10% 20% 30%40% 50% 60% Policing in Kosovo Policing in Kosovo Figura 13: Dijenia mbi KKSK-të Recommendations for the KPS 24 Malishevë/Mališevo 48.0% Deçan/Deč ani 44.0% Shtime/Štimlje 33.3% Figure 14: How could KPS improve its work? Skenderaj/Srbica 32.0%

Ferizaj/Uroševac 28.3% If they patrolled more ofte n 60.7% Rahovec/ Orahovac 26.7% Shtërpcë/Štrpce 20.0% If they responded more quickly to incidents 47.3% Obiliq/Obilić 20.0%

If they were less corrupt 28.7% Suharekë/Suva Reka 20.0%

If they treated people with respect 27.3% Klinë/Klina 20.0% If they were better able to solve disputes Gjilan/Gnjilane 20.0% 25.1% between peopl e Gjakovë/Djakovica 15.0% If they worked more with our community 23.1% Podujevë/Podujevo 14.5% to solve our safety problems Prishtinë/Priština 14.1% If the officers came from this area 15.4% Lipjan/Lipljan 14.0%

If they received more training 12.8% Leposaviq/Leposavić 13.3%

If political parties had less influence on them 9.2% Istog/Istok 12.0% Pejë/Peć 12.0% If the officers came from a different area 6.7% Vushtrri/Vučitrn 11.4% If there were more officers who share my ethnic background 5.5% Mitrovicë/Kosovska Mitrovica 11.4% Prizren/Prizren 11.1% If there were more female officer s 4.3% Dragash/Dragaš 10.0% If they did not carry weapons 0.6% Zveçan/Zvečan 8.0%

No answer 21.3% Fushë Kosovë/ Kosovo Polje 8.0% Viti/Vitina 8.0% Don't know 11.8% Gllogovc/Glogovac 6.7%

Othe r 0.6% Zubin Potok/Zubin Potok 0.0%

Novobërdë/ Novo Brdo 0.0%

rawing on interviews with KPS management of Pejë/Peć, 72.0 percent of respondents felt that the Kaçanik/Kačanik 0.0% and comments from focus group participants in KPS should patrol more often, and 39.2 percent said D Kamenicë/Kosovska Kamenica 0.0% earlier surveys,30 the research team for this survey the KPS should treat people with more respect – both drew up a series of suggestions for how the KPS figures much higher than the average for Kosovo. 0% 10% 20% 30%40% 50% 60% could improve its performance. These suggestions Patrolling more often was slightly more important to were put to the 1,200 respondents to the question- male (63.8 percent) than female (57.1 percent) of re- naire undertaken in June 2007, and six recommen- spondents, as was treating people with more respect dations were particularly popular with respondents, (29.8 percent and 24.4 percent respectively). as Figure 14 below shows (for which up to three answers were possible). A large majority of respondents felt that the KPS could improve its performance if its officers “pa- Interestingly, when the results were disaggregated by trolled more often” (60.7 percent), a clear endorse- gender, education and region, the same six recommen- ment of moves by the KPS to undertake more fre- dations came top, although the order and degree of quent and visible patrols in communities. 47.3 per- importance varied slightly. For instance, in the region cent of respondents felt the KPS should “respond ______

30 In particular, focus groups for the reports Human security in Kosovo: A survey of perceptions and Human security in Kosovo: Participatory conflict analysis report (unpublished: May 2007). Policing in Kosovo Policing in Kosovo Recommendations for the KPS 25

The top six recommendations

●● The KPS should patrol more often ●● The KPS should respond more quickly to incidents ●● The KPS should be less corrupt ●● The KPS should treat people with more respect ●● The KPS should be better able to solve disputes between people ●● The KPS should work more with our community to solve our safety problems

more quickly to incidents”, more of a comment KPS to be better at solving disputes between peo- on the current capacity of the KPS and something ple, and 23.1 percent wanted the KPS to work more which can be addressed as the KPS becomes more with the community to solve safety problems. These efficient and better resourced and should be a prior- both refer to aspects of policing work associated ity for the KPS’ development. with the twin concepts of community-based polic- ing and community safety.31 Another two recommendations refer to the tasks of the KPS. 25.1 percent of respondents wanted the

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31 For more detailed aspects on policing in Kosovo see: Kosovo Police Service, Community Oriented Policing & Problem Solving: Operational Hand- book, Pristina: 2005. Policing in Kosovo

26

Conclusion

Kosovo’s population may feel that levels of safety improved between December 2006 and June 2007, but high crime is still the most serious safety and security issue communities face. At the same time, trust in the KPS remains high, and while people may be divided on the issue of the professionalism of the KPS, they continue to turn to the KPS to provide for their security needs. Moreover, many of the improvements that the KPS has begun to institute, such as more frequent patrolling and training programmes, are noticed and appreciated by public. The KPS now has a prime opportunity to consolidate its achievements to date, continuing to develop its community- based policing and engaging more closely with the communities its officers serve.

Some changes the KPS could undertake to improve its standing among Kosovo’s population, and thereby indirectly contribute to increasing crime reporting levels, are relatively simple. Important- ly, behaving impartially, professionally and politely at all times to members of the public would help dispel the notion that police officers are corrupt or favour certain people. Other changes could be more costly and complicated, but are no less essential for that. For instance, in order to improve the trust of Kosovo Serbs in the KPS, multi-ethnic police patrols could underline that the KPS is designed to serve all of Kosovo’s population. Similarly, some municipalities receive fewer KPS resources than others, a situation that should be regularly assessed to ensure that KPS cover- age of Kosovo is appropriate to needs of communities and not of central bureaucracies.

However, the KPS finds itself in a difficult position in Kosovo’s wider security and justice sector. No matter how professionally its officers behave, how many crimes they solve and how com- fortable communities are in reporting crime and safety concerns, without co-ordinated support for prosecutors, courts, judges, penal institutions, rehabilitation programmes, victim support networks and witness protection – as well as the KPS – access to justice for Kosovo’s people will remain inadequate. Policing in Kosovo Forum for Civic Initiatives