Almanac on Security Sector Oversight in the Western - Bezbednost

305 Pages·2012·2.45 MB·English

Almanac on
Security Sector
Oversight in the
Western Balkans
Serbia Bosnia and Croatia
Herzegovina
2012
Macedonia Kosovo Montenegro Albania
Belgrade Centre for Security Policy
Project Leaders
Belgrade Centre for Security Policy
Research Consortium partners
Project donor

Publishers: the Belgrade Centre for Security Policy and Geneva Centre for the Democratic Con-
trol of Armed Forces
Authors: Besnik Baka, Andreja Bogdanovski, Emsad Dizdarević, Arjan Dyrmishi, Miroslav Hadžić,
Denis Hadžović, Emir Kalač, Sandro Knezović, Zvonimir Mahečić, Gorana Odanović, Predrag
Petrović, Đorđe Popović, Florian Qehaja, Mariola Qesaraku, Rajko Radević, Jelena Radoman,
Marko Savković, Sonja Stojanović, Mentor Vrajolli
Editors: Franziska Klopfer and Douglas Cantwell with Miroslav Hadžić and Sonja Stojanović
Design and Layout: Marko Marinković
Printed by: UNAGRAF d.o.o., Belgrade
Printing: 2000 copies
CIP - Каталогизација у публикацији
Народна библиотека Србије, Београд
351.86(497)
ALMANAC on Security Sector Oversight in
the Western Balkans : 2012 / [urednici
Franziska Klopfer ... [et al.] ; prevela
Zorica Nenadović]. - Beograd : Beogradski
centar za bezbednosnu politiku ; Geneve :
DCAF, 2012 (Beograd : Unagraf). - 219 str. :
tabele ; 30 cm
Tiraž 2.000. - Napomene i bibliografske
reference uz tekst. - Bibliografija: str.
217-218.
ISBN 978-86-83543-99-1
a) Безбедносни сектор - Балканске државе
COBISS.SR-ID 189860876
©Norwegian Royal Ministry of Foreign Affairs, BCSP, DCAF
All rights reserved
Belgrade 2012
4
Table of Contents
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Acknowledgements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 ern
est
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 W
Sonja Stojanović he
n t
ht i
g
Country case studies ersi
v
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1 . Albania . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .15 or
Arjan Dyrmishi, Mariola Qesaraku and Besnik Baka ect
S
y
2 . Bosnia and Herzegovina . . . . . . . . . . . . . . . . . . . . . . . . . . . .47 urit
Denis Hadžović and Emsad Dizdarević ec
S
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o
3 . Croatia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .73 c
a
Sandro Knezović and Zvonimir Mahečić an
m
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4 . Kosovo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 103
Florian Qehaja and Mentor Vrajolli
5 . Macedonia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 129
Andreja Bogdanovski
6 . Montenegro . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 159
Rajko Radević and Emir Kalač
7 . Serbia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 181
Predrag Petrović, Gorana Odanović, Đorđe Popović, Marko Savković
and Jelena Radoman
8 . Accountability of Statutory Security Actors in the Western Balkans . . . 211
Miroslav Hadžić
Project methodology and grades: Mapping and monitoring
security sector reform in the Western Balkans
9 . Security Sector Reform Index: Measuring to Advance Democratisation . 239
Sonja Stojanović
Grades for Parliamentary Control and Oversight, General Transparency and
Financial Transparency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 273
5
Acknowledgements
This almanac on security sector oversight in the Western Balkans was developed by
a consortium of researchers as part of the project Civil Society Capacity Building to
Map and Monitor Security Sector Reform in the Western Balkans. The project was co-
organised by the Geneva Centre for the Democratic Control of Armed Forces (DCAF)
and the Belgrade Centre for Security Policy (BCSP) and ran from February 2009 to April
2012. It brought together seven think tanks from the Western Balkans to map and
monitor security sector reforms in their countries.
DCAF and BCSP therefore wish to express sincere gratitude to:
The civil society organizations that conducted research and made up the member-
ship of this research consortium, besides BCSP: Analytica (Macedonia), the Centre for
Democracy and Human Rights (Montenegro), the Centre for Security Studies (Bosnia
and Herzegovina), the Kosovo Centre for Security Studies (Kosovo), the Institute for
Democracy and Mediation (Albania), and the Institute for International Relations
(Croatia). Each organization participated as a committed member whose hard work,
commitment, local knowledge and insights have made this publication possible.
It would not have been possible to successfully complete this volume without the in-
valuable support of a number of individuals:
Dr Timothy Donais and Dr Cornelius Friesendorf provided incisive comments and in-
puts on early drafts of the country case studies.
From BCSP, Ms Sonja Stojanović and Dr Miroslav Hadžić co-managed the project im-
plementation over three years. They contributed as authors while providing feedback
to the various research teams both for their Almanac chapters and separate studies
that each organization produced on each of eight different reform criteria. Sonja also
provided guidance on the methodology for measuring SSR used throughout the proc-
ess and designed the training curricula for the capacity building component of this
project. Ms Gorana Odanović provided extensive support throughout the process to
all participating organizations; her availablilty to handle frequent administrative and
substantive inquires regarding the content of the different publications was essential
to the project. Mr Marko Milosević provided useful assistance throughout the publica-
tion process.
From DCAF, Ms Franziska Klopfer managed the culmination of the project and over-
saw the editing process. Mr Douglas Cantwell edited, provided comments and proof
read the publication. Mr Ruchir Sharma and Ms Martha Baillargeon provided addition-
al proofreading support. Ms Helena Ziherl, Ms Suzana Anghel and Ms Kristina Huszti-
Orban managed the early stages of the project and provided extensive feedback on
criteria studies. Mr Darko Stančić provided general guidance throughout the three
years of the project and also commented on several of the publication’s chapters.
6
Mr Marko Marinković provided lay-out and design services for both the cover and
interior of the publication. ns
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UNAGRAF printing ensured quality standards in the printing process. n B
er
Thanks go in particular to the group of motivated researchers who demonstrated est
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considerable enthusiasm and professionalism in contributing to this volume and who e
h
agreed to write under significant time pressure. They include: Besnik Baka (Albania), n t
Andreja Bogdanovski (Macedonia), Emsad Dizdarević (Bosnia and Herzegovina), Ar- ht i
g
jan Dyrmishi (Albania), Denis Hadžović (Bosnia and Herzegovina), Emir Kalač (Mon- ersi
tenegro), Sandro Knezović (Croatia), Zvonimir Mahečić (Croatia), Gorana Odanović v
O
(Serbia), Predrag Petrović (Serbia), Djordje Popović (Serbia), Florian Qehaja (Kosovo), or
Mariola Qesaraku (Albania), Rajko Radević (Montenegro), Jelena Radoman (Serbia), ect
S
Marko Savković (Serbia), and Mentor Vrajolli (Kosovo). y
urit
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Finally, thanks must be given to the Norwegian Ministry of Foreign Affairs, whose gen- Se
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erous contribution funded the work of the consortium for the duration of the project. o
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Without their long-term support, this publication would not exist. na
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7
Introduction
While official cooperation and exchange between Western Balkan states have signifi-
cantly improved in the last few years, the transparency of security governance across the
region is still weak. Information about which security actor is in charge of which domain,
what their competencies are, who controls different actors and what their budgets are
is not consistently available in all countries. This lack of transparency impedes national
oversight of the security sector and also hinders the confidence building necessary for
regional security cooperation. In a post-conflict environment where security issues are
still predominantly discussed from collectivist and ethno-nationalist perspectives, greater
availability of information and analysis based on thorough research could help prevent
the emergence of new security dilemmas.
The second assumption behind this publication is that the civil society has to be empow-
ered to become an active participant of democratic civilian control and oversight, along-
side politicians, if security sector reforms are to be sustainable and citizen-oriented. It is
expected that participation of citizens and civil society organisations in oversight of se-
curity policies contributes considerably to the social legitimisation of security institutions
in society. The key question in this phase is not whether the security sector should be
reformed or why, but how to accomplish reform in the most efficient and effective way
with a participation of all relevant actors, including statutory and on-statutory actors.
This publication aims to provide an independent research-supported overview on the key
achievements and weaknesses in the accountability of security sectors of Albania, Bosnia
and Herzegovina, Croatia, Kosovo, Macedonia, Montenegro and Serbia and to and what
effect this has on the countries’ democratic transition. The Almanac on Security Sector
Reform in the Western Balkans is a key output of a three-year long collaborative research
project of seven Western Balkan think-tanks and the Geneva Centre for the Democratic
Control of Armed Forces (DCAF), focused on improving the capacity of civil society organ-
isations to map and monitor security sector governance and encourage security sector
reform. The partners of this project, which was entitled “Civil Society Capacity Building
to Map and Monitor SSR in the Western Balkans” and which ran from early 2009 to early
2012 included: Analytica, Skopje; Belgrade Centre for Security Policy – (BCSP), Belgrade;
the Centre for Security Studies (CSS), Sarajevo; the Center for Democracy and Human
Rights (CEDEM), Podgorica; the Kosovar Centre for Security Studies (KCSS), Pristina; the
Institute for International Relations (IMO), Zagreb; and the Institute for Democracy and
Mediation (IDM), Tirana. Additionally, the project was supported by DCAF and funded by
the Norwegian Ministry of Foreign Affairs. In addition to in-country research, the main
activities of the project were capacity building workshops used for peer education and
training of participating civil society organisations (CSOs) in the key issues for oversight
over the security sector. The unique component of this project has been an attempt to
advance the methodology for mapping and monitoring security sector reform which was
originally developed by the Belgrade Centre for Security Policy.1
1 For more details see the chapter nine Stojanović, S. ‘Security Sector Reform Index: Measuring to
Advance Democratisation’.
8
Introduction
Western Balkan societies do not have a long tradition of citizen participation in the
oversight of security sector governance. As a consequence, traditional security actors ns
a
have more expertise and credibility than most civil society organisations. We hope to alk
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use our collaborative research to contribute to the increased visibility of civil society n
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help create an environment for debate based on rational arguments and replicable he
research. Evidence for this publication was collected by the authors in a systematic n t
manner using clear benchmarks for the success or failure of security sector reform ht i
g
(SSR), which contributes to the credibility of the recommendations made at the end ersi
of each chapter. Ov
or
The goals of this collaborative research project were to: ect
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1. Create a methodological instrument for measuring SSR from the perspective of urit
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civil society in transition countries; S
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2. Generate and share useful knowledge on the state of democratic governance in na
a
the security sector; m
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3. Account for a whole-of-sector approach and the interplay between individual
components of the security sector;
4. Enhance civil society’s advocacy potential, based on systematized evidence;
5. Increase the capacity and commitment of civil society stakeholders to strengthen
democratic oversight over the security sector.
What can you expect from this Almanac?
The Almanac consists of seven case studies, one review chapter and the chapter ex-
plaining the methodology developed during this project. It is however important to
note that the research carried out by the project partners on different aspects of SSR
and based on the methodology for measuring security sector reform is not presented
fully in this publication due to a limited number of pages. It was instead decided
to introduce the methodology (chapter nine) and illustrate it with grades given for
the quality of parliamentary oversight and control, general and financial transpar-
ency of security sectors (chapter ten). The country case studies (chapters one to seven)
were written using the main findings from the mapping and monitoring phase of this
project by trying to respond to the following research question: what are key achieve-
ments and weaknesses in the accountability of security sectors of Albania, Bosnia and
Herzegovina, Croatia, Kosovo, Macedonia, Montenegro and Serbia and what are the
repercussions for the country’s democratic transition?
The country case studies also provide critical and streamlined analyses of the practice
of key legal and institutional mechanisms related to security sector accountability. For
9
the purpose of this study, accountability of the security sector should be understood
as:
• A constituting principle for how democratic states should function, together with
other key principles like democratic elections, respect for human rights, the rule of
law, division of power between the branches of government, checks and balances,
and democratic control and oversight of the security sector.
• A fundamental aspect of accountability is a well-defined and functioning chain of
command.
• Another fundamental aspect of accountability is that rules and regulations are
there to be respected and that breaches will be sanctioned.
• A third fundamental aspect of accountability is civilian control and oversight over
all state security actors, including the armed forces and other “power agencies”.
• Accountability presupposes sets of rules, procedures, methods and resources estab-
lished by law to ensure that control and oversight of the security sector will func-
tion in an efficient and effective way while, at the same time, the security sector is
fully able to carry out its assigned tasks .
This study distinguishes between vertical and horizontal accountability. Vertical ac-
countability is the accountability of a state security institution or agency to the gov-
ernment or a ministry, under whose authority it is placed. Horizontal accountability
is the accountability to another branch of government or to institutions set up or
appointed by another branch of government. In the discussion of the patterns of ac-
countability, special attention was paid to the interaction between different mecha-
nisms for control and oversight, as the interplay between vertical and horizontal ac-
countability has a direct bearing on constitutional checks and balances.
Although state security actors could be accountable for a wide range of issues (see
Textbox ‘Accountability For’), this study will build on three years of empirical research
carried out by authors in the framework of this project which aimed to shed a light on
the accountability for the two following components:
1. accountability for legality of work and respect of human rights;
2. accountability for the transparency of resource allocation (budget planning) and
its spending (financial transparency, including public procurement)
ACCOUNTABILITY
Accountability TO Accountability FOR
• The relevant control mechanisms within the • Coherent and effective implementation of
executive national security policy and functioning of
• Parliament national security system
• Judiciary • Legality of work and alignment with
• Independent state bodies constitution
• Public and civil society • Cost-effective and transparent spending/
implementation of state budget
• Respect of human rights of citizens and
security sector employees
10