Anja H. Ebnöther Philipp H. Fluri Predrag Jurekovic (Eds.) Security Sector Governance in the Western Balkans: Self-Assessment Studies on Defence, Intelligence, Police and Border Management Reform Vienna and Geneva, 2007 Title: Security Sector Governance in the Western Balkans: Self-Assessment Studies on Defence, Intelligence, Police and Border Management Reform Impressum: Editors: Anja H. Ebnöther Philipp H. Fluri Predrag Jurekovic Language Editor: Melissa George Managing Editor: Laurence Durig Facilitating Editor: Capt Benedikt Hensellek Introduction 4 Dr Philipp Fluri European and International Approaches to Security Sector Reform/Governance 9 Kostas Panagiotopoulos EU and NATO leverage in Security Sector Reform 28 Lucia Montanaro-Jankovski Security Sector Reform in the Western Balkans – a Self-Assessment 2006/07 40 Predrag Jurekovic Part I - Armed Forces and the Defence Sector in the Western Balkans 46 An overview of Armed Forces and the Defence Sector in the Western Balkans 46 Dr Hari Bucur-Marcu Survey on the Armed Forces in Albania 62 Enis Sulstarova Defence reform in Bosnia and Herzegovina 79 Denis Hadzovic Security Sector Reform in Croatia 101 Mladen Stanicic, Vlatko Cvrtila Republic of Macedonia: Defence sector assessment 137 Islam Yusufi Defence Reform in Serbia and Montenegro: Hampering Exceptionalism 161 Svetlana Djurdjevic-Lukic Part II - Intelligence Reform and Oversight in the Western Balkans 184 An Overview of Intelligence Reform and Oversight in the Western Balkans 184 Alain Faupin Republic of Albania: Survey on Intelligence Services 203 Sotiraq Hroni, Enis Sulstarova Intelligence sector in Bosnia and Herzegovina 218 Denis Hadzovic The Republic of Macedonia: Intelligence Sector assessment 242 Islam Yusufi Intelligence/Security Systems of Serbia and Montenegro 261 Sasa Jankovic Part III – Border Management Reform in the Western Balkans 273 Security Sector Reform in the Western Balkans: Assessing Progress 273 Dr. Otwin Marenin Border Police Reform in the Republic of Albania 291 Sotiraq Hroni, Enis Sulstarova Bosnia’s Security Sector Reform – State Border Service of BH as an efficient Border Management Agency 309 Jasmin Ahic Border Management Reform in Macedonia 325 Lidija Georgieva Part IV – Police Reform in the Western Balkans 340 An Overview of the Police Reform Process in the Western Balkans 340 Branka Bakic Reform of the Albanian State Police 351 Sotiraq Hroni The Reconstruction of the BH Police Force 371 Jasmin Ahic Police Reform in Macedonia 393 Lidija Georgieva Police Reform in the Republic of Montenegro 409 Novak Gajic Police Reform in the Republic of Serbia 446 Branka Bakic, Novak Gajic Annex I: The Role of Security Sector Governance in the EU’s Enlargement Strategy 481 Hervé Bougé Annex II: EU Support to SSR – Concept and Practice 484 Col Christophe Deherre Annex III: Enhancing security sector governance through Security Sector Reform (SSR) in the Western Balkans - the role of the European Union (EU) 489 Kimmo Lahdevirta Security Sector Governance in the Western Balkans: Self-Assessment Studies on Defence, Intelligence, Police and Border Management Reform Introduction Dr. Philipp Fluri, Deputy Director DCAF, Geneva, Switzerland In setting the European Union’s policy framework for engagement in security sector reform (SSR), the European Council called upon the future Presidencies and the European Commission to ‘progressively translate [this framework] into operational actions... ‘1 Activities commenced in this direction under the aegis of the Austrian Presidency of the EU, following the UK Presidency’s efforts towards developing the EU’s SSR strategy. The conference on Security Sector Reform in the Western Balkans, co-organised by the Austrian Presidency, DCAF and the EU Institute for Security Studies in Vienna from 13-14 February 2006, emphasised the need for the EU to mainstream SSR into its activities. It also presented an excellent platform for Western Balkan policy experts to express their views and describe their SSR needs. In this context, several participants from the Western Balkan countries expressed anxieties that SSR was to be imposed as a new precondition, and therefore a new barrier, for their EU integration. However, much of what the EU already demands of candidates and potential candidates is SSR by another name. ‘Repackaging’ a wide variety of activities under their correct SSR label, is not merely a cosmetic exercise, nor is it designed to impose a new burden, but is rather a genuine attempt to facilitate prioritisation and impart focus to the EU’s somewhat dispersed efforts. This will bring benefit to the partners as it will improve the consistency and coherence of the messages that the EU seeks to convey. From 7-8 December 2006, DCAF assisted the Finnish EU Presidency in taking forward the work done under the Austrian Presidency by organising a one day conference to discuss, together with the Western Balkan policy community, the implementation of the finalised EU policy framework on SSR and the development of the pre-accession (democratic and acquis) conditionality in the area of security sector governance. The conference - entitled Enhancing Security Sector Governance through Security Sector 1 Council Conclusions on a Policy Framework for Security Sector Reform, 2736th General Affairs Council meeting - Luxembourg, 12 June 2006 4 Reform in the Western Balkans- the Role of the European Union - examined local needs and achievements in this field. In order to stress the need for increased regional ownership of SSR, the conference took place in the region, in the Croatian capital of Zagreb. At the Zagreb conference, research articles written by regional experts (in the framework of a Swiss Partnership for Peace project) were presented and discussed regarding four aspects of SSR: democratic oversight and reform of defence, intelligence, the police and border management. The reader will find those studies reproduced in this volume, preceded by contributions from EU representatives, with the core aim of assessing progress in SSR in the region. Security Sector Governance in the EU Enlargement Strategy Security Sector Governance (SSG) refers to the structures, processes, values and attitudes that shape decisions about security and their implementation. SSR has as its purpose the enhancement of SSG, through the effective and efficient delivery of security in an environment subject to democratic oversight and control. SSR is a tool for optimising good governance of the security sector. Democratic and capable governance of the security sector is of essential importance for the future of the Western Balkans. Without it, they will not succeed in establishing and maintaining the rule of law, ensuring that social development and economic growth proceed, and securing their fledgling democracies. The countries of the Western Balkans need, moreover, to have functional security sectors if they are to enjoy regional stability, contribute usefully to peace support operations and succeed in integrating into Euro-Atlantic and European institutions. They are the first countries seeking EU membership whose post-communist past has been characterised by grave conflict. This legacy sets special challenges and responsibilities for both the countries of the region and the European Union. How can the EU best go about encouraging a culture of good governance of the security sector in the region? The answer is largely provided in the European Commission's Enlargement Strategy and Main Challenges 2006-2007, which called for the application of ‘fair and rigorous conditionality’ and the introduction of ‘benchmarks’ to support this process. The use of benchmarks in EU enlargement policy can bring several benefits. First, it should facilitate efforts by candidate countries to meet EU requirements. Detailed indications on objectives for reform and standards for measuring performance in implementation will provide a better guide for policymakers and security sector practitioners in candidate countries than the largely un-restructured approach pursued hitherto. 5 Second, once candidate countries are subject to common benchmarks - assuming, of course, that performance results are made public knowledge - progress in meeting conditionality will become comparable. This should reduce the risk of enlargement decisions being subordinated to political considerations that are un-related to reform performance. If candidate countries successfully meet the benchmarks, it then becomes very difficult - if not politically impossible - for EU members to deny membership. Third, benchmarks can be particularly useful in the area of SSG, and this should be therefore one of the areas for which a comprehensive range of performance indicators is elaborated. EU Support to SSR: Concept and Practice In 2005 and 2006, the Council and Commission drafted SSR concepts, and the EU developed an overarching policy framework in 2006. These documents outline the rationale for the involvement of the Council and the Commission in SSR, the areas of their engagement, the principles guiding this engagement as well as the modalities for SSR implementation, including the division of labour and bases for cooperation between the Council and the Commission. The areas where the Council and the Commission envisage their involvement range widely. For the Council, SSR essentially concerns the enhancement of the effectiveness of activities undertaken under the Common Foreign and Security Policy (CFSP) and, specifically, civilian and military crisis management missions