The Strategic Framework, action Plans and Effective monitoring

European integration retains the overwhelming support of both Kosovo’s citizens and the entire Kosovan political spectrum, including majorities.

Likewise, the setting of a  strategic framework, action plans and priority objectives in support of Kosovo’s aspirations to join the EU enjoys a  mass of support from all layers of society. In this spirit, the “National Strategy for European Integration–Kosovo 2020—a participatory approach” was prepared and adopted. The fourth objective of the strategy explains the importance of engagement of various stakeholders, state and non-state actors, in advancing institutional life, as well as their importance in terms of improving and monitoring policymaking. However, in order to have genuine, substantial and extensive inclusion of all stakeholders, it needs to be based on the actual needs of the society. For this purpose, the role, contribution, cooperation and monitoring of CSOs is essential to the fulfilment of the main goal, though closely linked with the potential, focus and interest of stakeholders to be an active part of this process.

5 For the full strategy, see: http://www.president-ksgov.net/repository/docs/National_

Strategy_for_European_Integration_Kosovo_2020_ENG_(1).pdf.

65 Kosovo Within EU–Kosovo relations, numerous strategic documents and action plans provide good ground for civil society monitoring: a visa liberalisation roadmap, action plan to implement a feasibility study for an SAA, EC annual progress reports, EC enlargement strategy, SAP dialogue conclusions, etc. On the other side, a set of bodies and administrative structures has recently been established to boost Kosovo’s EU integration prospects. However, neither these documents nor the institutions provide sufficient transparency to enable proper monitoring.

In particular, the negotiations for an SAA operate behind closed doors as it is considered to be exclusively government business. The usual justifications include claims that it is at a  critical stage, that drafts include sensitive information, or even that the EC is suggesting documents be kept away from the public and CSOs. Moreover, the bodies established and responsible for leading this process, such as the National Council for European Integration, Ministry of European Integration, Assembly Committee for EU Affairs, and numerous working groups linked with SAA negotiations or the visa dialogue, are short of resources, side-tracked by political exigencies, managed ineffectively, and opaque in their operations and communications. Often they are not held accountable for their shortcomings and in particular when it comes to assessment reports, action plans and especially draft chapters of the SAA are compiled largely out of the public eye.

These factors have reduced interest and made it impossible for CSOs to effectively monitor the strategic direction, SAA negotiations, performance, and delivery of results in meeting midterm feasibility study requirements.

Negotiating the SAA has been a  completely closed process, whereas the government, without any EC assessment, claims that midterm feasibility requirements, i.e., public administration reforms, rule of law, minority protections, have been fulfilled. Only a  few papers and reports have been issued by CSOs. This reality does not provide the grounds for a civil society contribution, involvement or monitoring of the European integration process in Kosovo.

To effectively address these complex issues, strategic cooperation must be sustained over time. Kosovo’s civil society is almost entirely funded by international donors, and civic groups tend to prioritise grant-seeking rather than pursuing long-term EU agendas. Few organisations in Kosovo persist with the latter since donor priorities and preferences shift quickly, and the

“newest” topic is often the most fashionable. This undermines the effective monitoring of the SAA and future EU negotiations.

Fatmir Curri, Branko Milutinović, Branislav Nesović, Naim Osmani

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recommendations To the government

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− Deliver on agreed strategic directions for Kosovo within the European integration agenda and build a cooperation platform with CSOs. Bring to the discussion strategic documents that will guide Kosovo on its EU path.

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− Strengthen administrative and human resources handling the work with CSOs, in particular, the consultation and inclusion process.

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− Acknowledge that Justice and Home Affairs issues take a long time and involve multilateral screening, including changes in legislation and administrative structures.

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− Focus on implementing strategic documents by informing media and civil society in a timely fashion. Prepare and share relevant reports with CSOs in order to improve the institutions’ output and transparency.

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− Establish a  system for monitoring the work of the Ministry of European Integration, in particular against its own action plans, results, commitments and documents.

To civil society

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− Critically analyse the design, performance, transparency, financial commitments, administrative capacity and political willingness to fulfil the mandate and ensure inclusion in various bodies established to boost EU accession process. Analyse key strategic documents of the EU agenda to become informed players in the process. Consult and gather input from a wide spectrum of CSOs.

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− Demand transparency by seeking access to negotiation meetings and reports and by following up with advocacy—especially that which puts pressure on officials to be accountable for their commitments.

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− Demand that strategic documents be reviewed regularly to take stock of progress and hold accountable those who do not carry out the decisions.

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− Offer contribution and constructive alternatives and propose solutions to key reforms being discussed.

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− Bring public concerns about the European integration process and/or the visa dialogue to the attention of the institutions.

67 Kosovo

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− Use media to keep the public informed of all developments—positive or negative—related to the EU integration process so as to galvanise general support for the upcoming phases of negotiations, also in the north of Kosovo, where public awareness of European integration is even lower.

To the European Union

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− Recognise the role of CSOs in the EU integration agenda and encourage participation in negotiations on the SAA and monitor implementation.

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− Continue funding and support for CSOs contributing within the EU agenda, focusing particularly on stimulating projects that deal with the long-term accession process.

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− Closely monitor the work of CSOs, their contributions and remarks, and give advice on how to enhance their effectiveness.

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− Advocate that meetings, documents, and reports be made public or available to CSOs.