public administration in kosovo

7/31/2019 Public Administration in Kosovo

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Draf t Discussion Paper

Pub lic Adm inist ration in Kosovo

Situ ati onal Analysis & Strategy


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K o so vo P ro visio nal Institu tio ns o f S elf - G o vernm ent & U N MIKP u b lic Adm inistratio n S trategy

F irst draf t, J u ly 2003

Table of Con tent

P age

Execut ive Sum mary

1. Introduction 1

2. Publ ic Adm inistrati on System 32.1 Analy tical F ram ew o rk 4

3. Situat ional Analysis 8li i t


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Acronyms

AD Adm inistrative D irectio n

C B C o nso lidated B u dgetC F C o nstitu tio nal F ram ew o rk

C ID A C anadian Internatio nal D evelo pm ent AgencyC O E D M C o u ncil o f E u ro pe D ecentraliz atio n Missio n

C S L C ivil S ervice L aw

D C S A D epartm ent o f C ivil S ervice Adm inistratio nD C S A D epartm ent o f C ivil S ervice Adm inistratio nD F ID D epartm ent f o r Internatio nal D evelo pm entE AR E u ro pean Agency f o r R eco nstru ctio nE D E valu atio n D o cu m entE N E x planato ry N o teE U E u ro pean U nio nF S U F inancial S trategy U nitG G B G eneral G o vernm ent B u dgetIC A Institu te o f C ivil Adm inistratio nJ IAS J o int Interim Adm inistrative S tru ctu reK C B K o so vo C o nso lidated B u dget

K E K K o so vo E lectric C o m panyK IP A K o so vo Institu te o f P u b lic Adm inistratio n

K R A K ey R esu lts AreaK TA K o so vo Tru st Agency

MP S Ministry o f P u b lic S ervices

MT Medi ter pendit re ra e r


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Execut ive Sum mary

. The ivil Adm inistratio n illar f the nited atio ns Interim Missio n in so vo MIK ) and the

P ro visio nal Institu tio ns o f S elf - G o vernm ent ( P IS G ) decided in early 2003 to em b ark o n a pro cess tof o rm u late a pu b lic adm inistratio n strategy f o r K o so vo . This decisio n w as very m u ch inf lu enced b y

the f indings and co nclu sio ns o f a series o f m eetings that to o k place in late 2002. A delegatio n o fP IS G leaders, headed b y Mr. B aj ram R ex hepi, P rim e Minister, had visited the U nited N atio ns

D epartm ent o f E co no m ic and S o cial Af f airs ( U N D E S A) in N ew Y o rk f r o m 1 5 th th O cto b er andparticipated in a r o u ndtab le m eeting o n the strengthening o f the pu b lic adm inistratio n s y stem in

K o so vo ; a do no r co nf erence, o rganiz ed b y U N MIK in co o peratio n w ith the W o rld B ank and the

E u ro pean U nio n in B ru ssels o n 5 th N o vem b er had placed the stre ngthening o f the pu b licadm inistratio n sy stem at the center o f a gro w th - o riented develo pm ent strategy f o r K o so vo ; and a

sem inar o n civil adm inistratio n, o rganiz ed b y U N MIK ( civil adm inistratio n) in K o so vo f ro m 29 th 0thN o vem b er had also highlighted the need to co nso lidate o ngo ing and f u tu re initiatives in this area

w ithin a strategic f ram ew o rk . U N D E S A w as f o rm ally req u ested b y U N MIK ( civil adm inistratio n) inJ anu ary 2003 to assist lo cal partners in the develo pm ent o f the pu b lic adm inistratio n strategy .

2. This D iscu ssio n P aper has een prepared as a ack gro nd do cu ent r a stak eho lders rk sho p

to b e co nvened b y U N MIK ( civil adm inistratio n) and the P IS G in S eptem b er in K o so vo . The prim arypu rpo se o f the paper is to f acilitate a sy stem atic pro cess o f ex plo ratio n, d iscu ssio n and decisio n -

m ak ing o n the nex t set o f pu b lic adm inistratio n - related ref o rm initiatives in K o so vo .

. Mu ch pro gress has b een achieved o ver the past f o u r y ears u nder the leadership o f U N MIK in

pro m o ting po litical, eco no m ic and institu tio nal develo pm ent in po st - co nf lict K o so vo - o f ten u nderthe m o st challenging circu m stances. F o llo w ing the ado ptio n o f the U N S C R 1 24 4 , U N MIK em b ark ed

o n a m aj o r pro gram to develo p a new legal, po licy and regu lato ry f ram ew o rk f o r civil service

m anagem ent. This f r am ew o rk has generally b een designed b ased o n go o d E u ro pean standards f o r

pu b lic secto r m anagem ent. U N MIK has also sy stem atically transf erred m o re than 6 0 per cent o f

p lic ad inistrati n t the I incl ding c ntr l ver the relevant dgets These are n s all


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go verning civil service m anagem ent at b o th central and m u nicipal level in K o so vo , as so o n as

f easib le.

7. The IS G anif esto , ado pted y the so vo Assem ly in May 2002, co its the go vern ent to

u ndertak e a legislative cam paign to pro m o te transparency and acco u ntab ility in go vernance. Theex isting legal and po licy f ram ew o rk in K o so vo is w eak w hen it co m es to the pro m o tio n o f

transparency , acco u ntab ility and integrity in pu b lic secto r m anagem ent. The P IS G , f o r ex am ple, has

no t y et ado pted a co m prehensive K o so vo - w ide integrity sy stem o r anti- co rru ptio n strategy . The

o verall o b j ective o f estab lishing a f irm legal co de against co rru ptio n is to ensu re that co rru ptio n is

no t a lo w risk , high pro f it activity b u t rather the o ppo site a h igh risk , l o w pro f it v entu re. Todeter co rru pt practices in pu b lic adm inistratio n, a co m prehensive set o f law s is generally req u ired,co m prising m o st, if no t all, o f the f o llo w ing: ( a) law that crim inaliz es the o f f ering and so liciting, a nd

the giving and accepting, o f a b rib e; ( b ) law that enab les the tracing, seiz u re, f reez ing and f o rf eitu reo f the illicit earnings f ro m co rru ptio n; ( c) law that req u ires the regu lar declaratio n o f the assets,

inco m e, liab ilities and lif e- sty les o f decisio n- m ak ers and o ther pu b lic o f f icials w ho ho ld po sitio nsw here they transact w ith the pu b lic and are w ell- placed to ex tract b rib es; ( d) law to identif y , and

prevent o r reso lve co nf lict o f interests; ( e) w histleb lo w er legislatio n to pro tect em plo y ees w hono tif y au tho rities o f co rru ptio n f ro m civil, crim inal and disciplinary pro ceedings and retaliato ry

actio n b y their em plo y er; ( f ) law to enab le the citiz en to o b tain inf o rm atio n in the po ssessio n o f the

state, i.e. Access to Inf o rm atio n Act; ( g) co nstitu tio nally entrenched B ill o f R ights that reco gniz es the

rights o f citiz ens to f reedo m o f ex pressio n, assem b ly and asso ciatio n; ( h) stro ng reco very

m echanism u nder the civil law ( as distinct f ro m the crim inal law ) . W hile the K o so vo Assem b ly haspassed a F reedo m o f Inf o rm atio n Act, and a draf t L aw o n F inancial D isclo su re has b een prepared,

no ne o f the o ther ab o ve - cited legal instru m ents have so f ar b een enacted.

. A co m m o n practice aro u n d the w o rld is f o r go vernm ents to issu e green and w hite papers inadvance o f legislative pro po sals. The idea is no t o nly to inf o rm stak eho lders, particu larly m em b ers

o f P arliam ent, ab o u t the m ain principles and co ntent o f f o rthco m ing legislatio n b u t also to so licit

their inp ts and ad ice The I a ish t c nsider ad pting this se l practice in the


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. O ne o f the principal f u nctio ns o f parliam ent is to pro vide o versight o f the ex ecu tive o n b ehalf o f

the pu b lic. In po st- co nf lict K o so vo , the Assem b ly assu m es a particu larly im po rtant ro le in thego vernance sy stem b ecau se it is co m po sed o f all m aj o r ethnic gro u ps in so ciety . The pu b lic scru tiny

to w hich the Assem b ly su b j ects the E x ecu tive, thro u gh deb ate and q u estio n tim e, pro m o tes b o th

transparency and acco u ntab ility in go vernance and m o re ef f ective u se o f pu b lic reso u rces. P o rtf o lioco m m ittees o f the K o so vo Assem b ly have a particu larly im po rtant ro le to play in o versight o f the

E x ecu tive. S trengthening the capacity o f po rtf o lio co m m ittees to pro vide f inancial and

pro gram m atic o ve rsight o f the P IS G can f u rther enhance the q u ality o f the go vernance sy stem in

K o so vo . In additio n, it is su ggested that special co m m ittees b e set u p in the L egislatu re to

participate in the pro cess o f develo ping the vario u s law s pro po sed in the draf t pu b l i cad m inistratio n strategy .

12. As ex ecu tive f u nctio ns are gradu ally handed o ver to lo cal staf f , U N MIK ( civil adm inistratio n) w ill b eex pected to strengthen its o versight and adviso ry ro le o f the pu b lic adm inistratio n. A stru ctu red

o versight f ram ew o rk that enab les U N MIK to regu larly m o nito r and evalu ate the pro gress in creatingsu stainab le institu tio ns and sy stem s, w ill b e req u ired to pro m o te ef f icient transf er o f line f u nctio ns

f ro m internatio nals to lo cal staf f . In additio n to its o versight ro le, U N MIK ( civil adm inistratio n)

sho u ld als o have the capacit y t o pro vide strategic and s u b stantive advice to central and l o cal

institu tio ns to help set u p pro per adm inistrative sy stem s, su ch as directives, ru les, regu latio ns,gu idelines, m anu als etc. f o r the f u nctio nin g o f m inistries and m u nicipal adm inistratio ns.

Inst i tu t ion Bui ld ing. The co ntinu ed ex istence f parallel adm inistrative str ctu res in po st- co nf lict so vo challenges the

day - to - day o peratio ns o f so m e m inistries and m u nicipalities, particu larly in the areas o f edu catio n,

health and adm inistrative services. Integratio n o f all stru ctu res u nder a j o int U N MIK - P IS G au tho rity

is critical f o r the im plem entatio n o f a strategy to strengthen the pu b lic secto r in K o so vo . O ngo ingef f o rts b y U N MIK to nego tiate an agreem ent w ith the au tho rities in B elgrade o n this im po rtant

issu e need to b e su ppo rted b y all stak eho lders.


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f elt that the perf o rm ance o f m any m u nicipal assem b lies, as w ell as the B o ards o f D irecto rs, has no t

m et ex pectatio ns so f ar. Mu nic ipalities have als o to a very lim ited ex tent engaged lo cal citiz ens inco nsu ltatio ns o n im po rtant po licy and w o rk planning issu es.

7. G enerally , the f u nctio ning o f m u nicipal assem b lies co u ld b e im pro ved b y b etter- prepared andco ndu cted m eetings, inclu ding pro viding do cu m ents o n tim e; greater pu b lic inpu t into po licy

delib eratio ns; m o re ef f icient secretariat services; e nhanced w o rk o f co m m ittees; a nd b etter link s

w ith o u tly ing villages. Mu nicipalities also regu larly su f f er f ro m lack o f pro f essio nalism in pu b lic

adm inistratio n; ab sence o f essential ru les f o r the f u nctio ning o f the assem b ly secretariat; gu idelines

f o r the estab lishm ent o f po rtf o lio co m m ittees; inadeq u ate adm inistrative sy stem s andinf rastru ctu re; w eak m anagem ent; insu f f icient u nderstanding o f assem b ly m em b ers o f their ro lesand respo nsib ilities; and po o r institu tio naliz atio n o f the principles o f transparency and

acco u ntab ility in pu b lic m anagem ent

. There is also lack f ef ective institu tio nal capacity to rm late, co rdinate and evalu ate strategicpo licy o ptio ns in the civil service in K o so vo . To address this capacity co nstraint, a pro po sal has b een

develo ped to set u p an O f f ice o f S trategic P o licy and P lanning ( O S P P ) . The O S P P w o u ld co nsist o fthree divisio ns/ u nits, nam ely , a P ro gram Im plem entatio n Adviso ry U nit ( P IAU ) , a S trategic P lanning

U nit ( S P U ) , and a F inancial S trategy U nit ( F S U ) . The P IS G , as so o n as po ssib le, sho u ld estab lish the

O S P P w ithin the O f f ice o f the P rim e Minister. The prim ary ro le o f this o f f ice w o u ld b e to track the

im plem entatio n o f the P IS G pro gram ; to pro vide the cab inet w ith evidence - b ased po licy analy sis o f

challenges f acing the lo ng- term pro spects o f K o so vo ; and to u ndertak e strategic f inancial analy siso f the o verall po licy planning pro cess.

. C itiz ens charters, service and q u ality standards, perf o rm ance co ntracts, repo rt cards and co m plaint

centers are so m e o f the inno vatio ns recently intro du ced in a nu m b er o f co u ntries to pro m o tegreater acco u ntab ility o f pu b lic o rganiz atio ns and senio r o f f icials to citiz ens. C lient su rvey s,

pu b lished b enchm ark s, valu e - f o r- m o ney stu dies and co des o f co ndu cts are o ther ex am ples o f

t lt th l ti hi t i il t d th li t ti t i


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w ell as m u nicipality presidents and C E O s in their respective ro les in the pu b lic adm inistratio n

sy stem .

22. There is also need to ild p stro ng adm inistrative and inancial anagem ent sy stem s in the

pu b lic service. At the earliest, t he P IS G , w ith technical su ppo rt f ro m U N MIK ( civil adm inistratio n) ,sho u ld develo p handb o o k s f o r adm inistrative and f inancial m anagem ent in the civil service.

U N MIK sho u ld particu larly strengthen the capacity o f tho se central departm ents charged w ith the

develo pm ent o f adm inistrative, h u m an reso u rces and f inancial m anagem ent standards, r u les,

pro cedu res and capacity b u ilding m aterial. P IS G sho u ld also invest in the develo pm ent o f so u nd

sy stem s f o r m o nito ring, acco u nting and au diting. An im po rtant prereq u isite f o r ef f ective transf ero f respo nsib ilities f ro m internatio nal staf f to lo cals is the ex istence o f clear ru les and pro cedu res f o rthe ex ecu tive f u nctio ns o f go vernm ent, inclu ding m echanism s to ensu re co m pliance. Mu ch w o rk

needs t o b e u ndertak en in this area in o rder t o strengthen transparent p u b l ic adm inistratio n inK o so vo .

23 . E f f ective applicatio n o f inf o rm atio n techno lo gy can help to strengthen the ef f iciency and co m m o n

identity o f the K o so vo civil service. The f o rm u latio n o f an e- go vernm ent strategy co u ld b eco m e anintegral part o f a co m prehensive IT transf o rm atio nal pro cess in K o so vo .

Human Resour ces Developm ent24 . The MIK IS G capacity develo pm ent strategy , ado pted in April 2001 , req ires depart ents to

recru it o r appo int citiz ens o f K o so vo to all senio r and m iddle level po sts in the civil service, and tosy stem atically transf er su b stantive respo nsib ilities and au tho rity to them f ro m internatio nal staf f .

The availab ility f alif ied senio r and iddle level anagers, ho ever, is lik ely to rem ain a eyco nstraining f acto r f o r the realiz atio n o f this strategy , particu larly in the sho rt- ter m . This highlights

the im po rtance o f investing in capacity b u ilding o f ex isting staf f . To pro m o te m o re strategicdevelo pm ent o f the hu m an capital in the civil service, it is reco m m ended that the P IS G prepare a

m anpo w er plan f o r the nex t 5 - 1 0 y ears.


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high prio rity in the nex t phase o f the pu b lic adm inistratio n ref o rm pro gram . The co ncepts o f

transparency , acco u ntab ility and ef f iciency in pu b lic m anagem ent, f o r ex am ple, need to b e m u chb etter u ndersto o d b y b o th m anagers and staf f o f m inistries, m u nicipalities and agencies.

Public Adm inistrat ion Strategy29 . This repo rt pro vides appro im ately seventy reco endatio ns to rther strengthen the pu lic

adm inistratio n sy stem in K o so vo . It is pro po sed that the S teering B o ard f o r P u b lic Adm inistratio n( S B P A) w o u ld assu m e the m ain respo nsib ility f o r ex ecu tive directio n and gu idance o f the design

and im plem entatio n o f the pu b lic adm inistratio n strategy . A f u ll- tim e Technical S ecretariat, headed

b y a civil servant at the P erm anent S ecretary level, c o u ld pro vide day - to - day co o rdinatio n o f theref o rm pro cess, inclu ding the develo pm ent o f an o u tpu t- b ased im plem entatio n plan, specif y ingthe sho rt, m ediu m , and lo ng- term prio rities. The S B P A w o u ld b e ex pected to discu ss and appro ve

the im plem entatio n plan. It is also pro po sed that three w o rk ing gro u ps b e estab lished u nder theS B P A to deal w ith ( a) po licies, ( b ) institu tio n b u ilding, and ( c) hu m an reso u rces develo pm ent. E ach

w o rk ing gro u p co u ld f o rm su b - gro u ps, as needed.

B ased o n the situ ati o nal anal y sis and to f acilitate c o nstr u ctive discu ssio ns at the stak eho ldersw o rk sho p, the f o llo w ing components and sub-componentsare su ggested as prio rity areas o f the

pu b lic adm inistratio n strategy :

4 . Civil Service Managem ent F u nctio nal analy sis

S y stem s & pro cedu res P erf o rm ance m anagem ent S ervice charters, client su rvey s & repo rt cards E - go vernm ent strategy R u les f o r ex ecu tive b u siness o f go vernm ent C o des o f c o ndu ct

5 H R D l t

1 . Legal, Policy & Regulat ory Reform C ivil service m anagem ent L o cal go vernm ent Acco u nta b i lity , transparenc y & integrit y V isio n statem ent S alaries & incentives C a reer sy stem C ivil so ciety develo pm ent

2 E ti & C t l M t


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1. IntroductionThe ivil Adm inistrati n illar f the nited atio ns Interim Missio n in so vo MIK ) and the

P ro visio nal Institu tio ns o f S elf - G o vernm ent ( P IS G ) decided in early 2003 to em b ark o n a pro cess to f o rm u late

a pu b lic adm inistratio n strategy f o r K o so vo . This decisio n w as very m u ch inf lu enced b y the f indings and

co nclu sio ns o f a series o f m eetings that to o k place in late 2002. A delegatio n o f P IS G leaders, headed b y Mr.B aj ram R ex hepi, P rim e Minister, had visited the U nited N atio ns D epartm ent o f E co no m ic and S o cial Af f airs

( U N D E S A) in N ew Y o rk f ro m 1 5 th th O cto b er and participated in a ro u ndtab le m eeting o n the

strengthening o f the pu b lic adm inistratio n sy stem in K o so vo ; a do no r co nf erence, o rganiz ed b y U N MIK inco o peratio n w ith the W o rld B ank and the E u ro pean U nio n in B ru ssels o n 5 th N o vem b er had placed thestrengthening o f the pu b lic adm inistratio n sy stem at the center o f a gro w th - o riented develo pm ent strategy

f o r K o so vo ; and a sem inar o n civil adm inistratio n, o rganiz ed b y U N MIK ( civil adm inistratio n) in K o so vo f ro m29 th 0th N o vem b er had als o highlighted the need to co nso lidate o ngo ing and f u tu re initiatives in this area

w ithin a strategic f ram ew o rk . U N D E S A w as f o rm ally req u ested b y U N MIK ( civil adm inistratio n) in J anu ary2003 to assist lo cal partners in the develo pm ent o f the pu b lic adm inistratio n strategy .

The rm latio n f the pu lic adm inistratio n strateg y is particu larly intended to achieve the

f o llo w ing: t o co nso lidate o ngo ing and planned initiatives w ithin a co herent strategic f ram ew o rk ; to galvaniz eco m m itm ent o f stak eho lders to the agreed f ram ew o rk ; t o f acilitate dialo gu e am o ngst stak eho lders o n

im po rtant pu b lic adm inistratio n- related issu es; t o pro m o te enhanced reso u rce f lo w s f o r the strengthening o fthe pu b lic adm inistratio n sy stem ; and to m o b iliz e su ppo rt o f develo pm ent partners f o r the ef f o rts o f U N MIK

and the P IS G in this area. An im po rtant o b j ective o f this ex ercise is to secu re o w nership o f the strategy

thro u gh active participatio n o f stak eho lde rs. The ro le o f U N D E S A is m ainly to pro vide technical su ppo rt toK o so var stak eho lders and internatio nal develo pm ent partners.

The develo pm ent o f the strategy ill invo lve a tho ro gh sel ex am inatio n and assessm ent b y all the

relevant stak eho lders in the K o so vo . The pro cess w ill inclu de the f o llo w ing steps: preparatio n o f a situ atio nal

l i id li i i h h ll i h li i d i


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P erf o rm ing b asic civilian adm inistrative f u nctio ns w here and as lo ng as req u ired;

c) O rganiz ing and o verseeing the develo pm ent o f pro visio nal institu tio ns f o r dem o cratic andau to no m o u s self - go vernm ent pending a po litical settlem ent;

d) Transf erring, as these institu tio ns are estab lished, its adm inistrative respo nsib ilities hile

o verseeing and su ppo rting the co nso lidatio n o f K o so vo s lo cal pro visio nal institu tio ns ando ther peace- b u i lding activities;

e) F acilitating a po litical pro cess designed to determ ine K o so vo s f u tu re statu s, tak ing into

acco u nt the R am b o u illet acco rds ( S / 1 9 9 9 / 6 4 8 ) ;

In its f inal stage, o verseeing the transf er o f au tho rity f ro m K o so vo s pro visio nal institu tio ns to

institu tio ns estab l ished u nder a po l itical settlem ent ;g) S u ppo rting the reco nstru ctio n o f k ey inf rastru ctu re and o ther eco no m ic reco nstru ctio n;h) S u ppo rting, in co o rdinatio n w ith internatio nal hu m anitarian o rganiz atio ns, hu m anitarian and

disaster relief aid;i) Maintaining civil law and o rder , incl u ding estab l ishing lo cal po lice f o rces , and m eanw hi le

thro u gh the deplo y m ent o f internatio nal po lice perso nnel to serve in K o so vo ; P ro tecting and pro tecting hu m an rights;

Assu ring the saf e and u nim peded retu rn o f all ref u gees and displaced pers o ns to their ho m esin K o so vo .

Mu ch pro gress has b een achieved o ver the past f o u r y ears u nder the leadership o f U N MIK inpro m o ting po litical, eco no m ic and institu tio nal develo pm ent in K o so vo as stipu lated in U N S C R 1 24 4 , o f ten

u nder the m o st challenging circu m stances. As a resu lt, K o so vo has b een gradu ally pro gressing to w ards self -go vernm ent since the end o f the co nf lict in J u ne 1 9 9 9 . A legal, institu tio nal and adm inistrative f ram ew o rk f o r

civil service m anagem ent, f o r ex am ple, has b een b u ilt u p in its entirety at b o th central and m u nicipal levels.This new ram ew rk , hich has een develo ped ased n go d ro pean standards r pu lic secto r

m anagem ent, has gradu ally laid the f o u ndatio n f o r the institu tio naliz atio n o f m o dern go vernance and civilservice m anagem ent arrangem ents in K o so vo .

I MI l i 200 l i i i h li h d


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. C o nso lidating the dem o cratic stru ctu res o f K o so vo ;2. Increasing transparency and e f f iciency o f the adm inistrati o n ;

. Im pro ving edu catio nal standards f o r all inhab itants o f K o so vo ;

. Im pro ving the q u ality o f health f o r all inhab itants o f K o so vo ;

. P ro m o ting eco no m ic develo pm ent and internatio nal eco no m ic co o peratio n;

. Increasing em plo y m ent;

7. E stab lishing pensio n insu rance and so cial assistance f o r vu lnerab le gro u ps; and

. Integrating all ethnic co m m u nities into K o so vars so ciety .

The develo pm ent and su ccessf l im plem entatio n f the pro po sed pu lic adm inistratio n strategyw ill no t o nly enab le the P IS G to realiz e the seco nd po licy prio rity Increasing tran sparency an d eff iciency of th eadminist rat ion b u t also b e an essential prereq u isite f o r the attainm ent o f o ther so cio - eco no m ic po licy go alsas w ell. The estab lishm ent o f ef f ective institu tio nal m achinery capab le o f f o rm u lating so u nd pu b lic po licies,as w ell as m anaging co m plex eco no m ic, f iscal and pu b lic adm inistratio n- related ref o rm s is critical f o r the

realiz atio n o f these im po rtant o b j ectives.

In o rder to enhance the co o rdinatio n and im plem entatio n o f o ngo ing and f u tu re initiatives tostrengthen the pu b lic secto r, t he P IS G and U N MIK have recently set u p a j o int S teering B o ard f o r P u b lic

Adm inistratio n ( S B P A) . The m ain task s o f the S B P A w ill b e to develo p and anno u nce a V isio n S tatem ent o n

P u b lic Adm inistratio n; t o appro ve the sho rt and m ediu m - term strategy f o r pu b lic adm inistratio n; t o set u pw o rk ing gro u ps f o r in- depth analy sis o f pu b lic adm inistratio n issu es, w here req u ired; to pro vide o verall

g u idance t o relevant agencies as it relates to capacity b u ilding m easu res ; and t o g u ide the pr o cess o f transf ero f respo nsib ilities f ro m U N MIK to lo cal au tho rities and related su ccesso r arrangem ents. In this co ntex t, the

preparatio n o f the pu b lic adm inistratio n strategy play s a particu larly im po rtant ro le.

The A appro ved the TO R r the develo pm ent f the pu lic adm inistratio n strategy , and thepreparatio n o f this D iscu ssio n P aper is the f irst step in that pro cess. S B P A is also ex pected to have a m o re

direct ro le in co o rdinating the f o rm u latio n and im plem entatio n o f the pu b lic adm inistratio n strategy and

h ld l l l d d l


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co m b ine to f o rm the G eneral G o vernm ent B u dget ( G G B ) . P u b lic enterprises are ex clu ded f ro m thego vernm ent secto r b u t are inclu ded in the def initio n o f the pu b lic service. P o licy prio rities o f the self -go vernm ent are prescrib ed in the Mediu m - term E x penditu re F ram ew o rk ( MTE F ) .

2.1) Analytical Framework.In a ty pical situ atio n, it is so m etim es estim ated that

o rganiz atio ns can ab so rb ab o u t 3 0 per cent change at any giventim e. In po st- co nf lict K o so vo , o n the o ther hand, o rganiz atio ns are

ex pected to u ndergo 1 00 per cent change m o st o f the tim e. Thepace o f change is lik ely to accelerate f u rther as the P IS G asserts

greater au tho rity o ver the ref o rm pro cess, and citiz ens learn to

dem and b etter services and m o re acco u ntab le go vernm ent. Thispro cess m ay lead to the redef initio n o f the ro le o f the go vernm ent

in pu b lic m anagem ent, restru ctu ring o f the go vernm entm achinery , new law s and regu latio ns, and m aj o r capacity b u ilding

o f staf f .

G o vernance and pu b lic secto r m anagem ent capacity develo pm ent in po st- co nf lict K o so vo m u st b eseen f ro m a b ro ader perspective. F o r ex am ple, training canno t b e iso lated f ro m the perf o rm ance

ex pectatio ns o f a particu lar j o b o r po sitio n. J o b perf o rm ance and hu m an reso u rces develo pm ent plans f o rstaf f canno t b e separated f ro m the go als and service o b j ectives o f the em plo y ing o rganiz atio n, and go als and

o rganiz atio nal stru ctu re canno t b e disco nnected f ro m an u nderstanding o f the po licy f ram ew o rk , i nclu dingdem and f o r services f ro m the respective co m m u nity . At the sam e tim e, the go als, prio rities and perf o rm ance

o b j ectives o f an o rganiz atio n canno t b e determ ined o u tside the b ro ader natio nal and go vernm ent po licyagenda and m acro so cio eco no m ic f ram ew o rk . C apacity b u ilding o f pu b lic adm inistratio n in po st- co nf lict

K o so vo w ill theref o re req u ire actio n at three m ain levels, nam ely , the enab ling enviro nm ent, theo rganiz atio nal level, and hu m an reso u rces . This D iscu ssio n P aper attem pts to analy z e the cu rrent capacity

CHANGE AND CAPACITY - WITHIN AN ENABLING ENVIRONMENT CONTEXT

Level 1

Level 2

Level 3

THE BROADER

ENABLING ENVIRONMENT

THE ENTITY

INDIVIDUAL

and

TEAMS


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Capacity i s def ined as the ab i li ty o f individu als and o rganisatio ns ( departm ents , agencies , o therentities ) to perf o rm f u nctio ns ef f ectively , ef f iciently and su stainab ly . That is a standard def initio n. It im pliesthat capacity in po st- co nf lict K o so vo , a s elsew here, is no t a passive state b u t part o f a co ntinu ing pro cess o f

change. The o verall co ntex t, w ithin w hich o rganisatio ns in K o so vo w ill u ndertak e their f u nctio ns are also k ey

co nsideratio ns in the m anagem ent o f change. C apacity is the po w er to perf o rm o r to pro du ce. Capabi l i ty , aclo sely allied term , can b e sy no ny m o u s w ith capacity , o r else sim ply def ined as u ndevelo ped o r u nu sed

capacit y . C hange def ines the dif f erence in capacity o ver t im e.

C apacity develo pm ent is a pro cess b y w hich individu als, gro u ps, o rganiz atio ns, institu tio ns and

so cieties increase their ab ilities to perf o rm co re f u nctio ns, so lve pro b lem s, def ine and achieve o b j ectives, andto u nderstand and deal w ith their develo pm ent needs in a b r o ad co ntex t and in a s u stainab le m anner. Theco re capacities o f an o rganiz atio n, o r co m m u nity , o r secto r, ( o r enab ling enviro nm ent) are o f ten co nsidered

to co nsist o f ab ility to def ine and analy se the enviro nm ent o r o verall enab ling enviro nm ent; t o identif y needsand/ o r k ey issu es; to f o rm u late strategies to respo nd to o r m eet needs; t o devise o r im plem ent actio ns; to

assem b le and u se reso u rces ef f ectively and su stainab ly ; to m o nito r perf o rm ance, to ensu re f eedb ack , and toadj u st co u rses o f actio n to m eet o b j ectives; t o acq u ire new k no w ledge and sk ills to m eet evo lving

challenges.

F r o m this def initio n, it is f elt that so m e o f the capacity develo pm ent initiatives in po st- co nf lict

K o so vo are f o llo w ing this general appro ach, w hile o thers are no t. It is no t to say that every discrete capacitydevelo pm ent activity ( su ch as a training event) needs to em b race all these f eatu res, b u t it do es say that

individu al initiatives sho u ld b e part o f a b ro ader strategy . This is the m ain pu rpo se o f f o rm u lating a pu b licadm inistratio n strategy ( inclu ding im plem entatio n plan) f o r K o so vo . This D iscu ssio n P aper isn t intended to

pro vide a b lu eprint f o r ref o rm s, b u t rather to pro m o te f rank ex change at a w o rk sho p to b e o rganiz ed b yU N MIK ( civil adm inistratio n) and P IS G in S eptem b er in K o so vo .

It is im po ssib le o r at least im practical to develo p capacities w itho u t k no w ing w hat the needs are.

C apacity assessm ent is a stru ctu red and analy tical pro cess w hereb y the vario u s dim ensio ns o f capacity are


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P o licy f ram ew o rk s. The enabling public adm inistration environm ent will have a purpo se and it w ill exist to meet needs of society.This dimension would include the Kosovo value systems or culture that govern the behaviour and conduct of entities, butapprop riately adapt ed to the needs of a m odern adm inistration. Also included are special constraint s, such as tho se pertainin g tofinancial resources. This would cover the ma cro-econom ic developm ent fram ework for Kosovo, which w ould set certain param etersfor government an d public sector m anagem ent capacity developm ent

L egal/ regu lato ry f r am ew o rk s. This includ es rules, law s, policies, directives, norm s and stand ards th at go vern th e Kosovo system ofpublic administration. Much effort has already been invested by UNMIK in establishing the legal and regulatory framework foreffective civil service manag ement in Kosovo.

Acco u ntab ility stru ctu res. The overall roles, responsibilities, authorities and accountabilities of various organizations andindividuals operating within the public administration system. From a capacity development perspective, this would include

identifying who is responsible for what, how and what authorities are delegated, and what types of controls are put in place.Accountability relationships betw een va rious public organ izations in Kosovo at both central and mu nicipality levels generally needto be m ore clearly articulated.

R eso u rce f l o w s. This dim ension defines the hum an, financial and inform ation based resources that ma y be available to the broad ersystem of pu blic adm inistration (e.g. in the current cont ext, internal resources and external resources from the UN and donorcomm unity). For example, manp ower plann ing and t he developm ent of a hum an resources development strategy is particularlyimportant considering the need to build up the human capital in Kosovo. Also, the current technological constraints limitingInternet connectivity in Kosovo make it more difficult to harness information resources on the worldwide web to modernize thepublic adm inistration system.

B r o ader relatio nships. This covers in ter-relationships, inter-dependencies, and inform ation flows w ithin the Kosovo system ofgovernance (state sector, private sector and civil society); between the major branches of government (executive, legislative,

ju di cia ry ); betw een cen t ra l an d loca l level s of a dm in ist ra ti on ; and bet w een the gov ern m ent an d it s ext ern al p ar tner s such as th e UNand donors. Considering that the new PISG only assum ed office in Ma rch 2002, relationships wit h civil society an d th e private sectorremain at a nascent stage of developm ent.

Level 2: t he Organi zati on or Ent it y

U nlik e traditio nal appro aches to capacity develo pm ent thatf o cu s their attentio n alm o st entirely o n hu m an reso u rces, pro cesses

and o rganiz atio nal stru ctu ring m atters, the m o re su ccessf u lappro aches ex am ine all dim ensio ns o f change and capacity at the

VISION

MISSION and STRATEGY

CULTURE, STRUCTURE

LEVEL 2 - THE ORGANIZATION OR ENTITY

INTERACTION

WITHIN

THE ENABLING

ENVIRONMENT


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inform ation collection and know ledge m anagem ent systems is ham pering the modernization of pu blic administration in Kosovo.At t he earliest, th e PISG could consider formulat ing an e-governm ent strat egy.

Inter - relatio nships. Covers the specific relationships and communications between the particular organizational unit and thecomm unity it serves (e.g. clients, citizens), as well as relationships with oth er organizatio ns in th e adm inistration. (e.g. to support o rbe part of sectoral an d dono r coordinat ion m echanisms). Generally, the involvem ent of civil society and the privat e sector inpolicy-making and service delivery in Kosovo is low.

Inf rastru ctu re. The final dim ension in cludes the ph ysical assets of the o rganization such as property, facilities and m ovable assets,comp uter systems, telecomm unicatio ns infrastructures, and of fice space. The current state of in frastructure in t he public sector is aconsiderable capacity constraint a nd u ndermining the qua lity of service delivery to clients.

Level 3. The Ind ivi du al

C apacity devel o pm ent at the third o r individ u al level isco nsidered to b e the m o st critical in po st - co nf lict K o so vo . This level

addresses the individ u al ' s capacit y to f u ncti o n ef f iciently and

ef f ectively w ithin b o th the o rganiz atio n ( o r team s) and w ithin theb ro ader go vernm ent and so ciety . C apacity assessm ents are

designed acco rding t o the individ u al s e x isting and po tential f u tu ref u nctio n and relatio nship to the o rganiz atio n.

D epending o n the statu s, f u nctio n o r ro le, the individu al

w ill have a dif f ering set o f capacities. F o r ex am ple, ex ecu tive,m anagem ent, su perviso ry , pro f essio nal, and adm inistrative staf f w ill

clearly req u ire dif f erent ty pes o f capacities to b e ef f ective in theirro les. S pecial ro les su ch as tho se o f internatio nal staf f , vo lu nteers, co ntract staf f , part- tim e w o rk ers and o thers

w ill also have their special sets o f capacities. The chart ab o ve is m eant to b e indicative o f the generic ty pes o fcapacities that m ay b e req u ired, altho u gh m any m o re w o u ld need to b e inclu ded f o r this list to b e

co m prehensive, and they w o u ld b e specif ic to the particu lar j o b and individu al.

LEVEL 3 - THE INDIVIDUAL

JOB REQUIREMENTSSKILL LEVELS AND NEEDS

TRAINING / RE-TRAINING

INDIVIDUAL LEARNING

CAREER PROGRESSIONACCOUNTABILITY

ACCESS TO INFORMATIONPERSONAL/PROFESSIONAL NETWORKING

PERFORMANCE / CONDUCT

INCENTIVES / SECURITY

VALUES, ETHICS AND ATTITUDE S WORK RE-DEPLOYMENTMORALE AND MOTIVATION JOB SHARING

INTER-RELATIONSHIPS AND TEAMWORK PROFESSIONAL INTEGRITY

INTER-DEPENDENCIES COMMUNICATIONS SKILLS


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in the near f u tu re. T he ex pectatio ns o n all sides m u st b e clearly u ndersto o d, w ith no presu m ptio ns and as f ew assu m ptio ns aspo ssib le.

Managing risk (not avoiding it) . An im po rtant co nsideratio n in the K o so vo co ntex t is to em phasiz e greater inno vatio n and thetak ing o f risk s, to m ak e and learn f ro m m istak es, to b e m o re entrepreneu rial in f inding and adapting capacity develo pm ent

so lu tio ns to m eet u niq u e needs.

3.

Situational AnalysisThe three- level capacity assess ent ram ew rk tlined here ab ve ill e sed to analy e the

strengths and w eak nesses o f the cu rrent pu b lic adm inistratio n sy stem in po st- co nf lict K o so vo , i nclu ding the

perceived capacity challenges . Mo re specif ically , the pu rpo se o f the review is to ex am ine the pr o gress in

setting u p an ef f ective civil service sy stem , as w ell as to identif y prio rities f o r capacity develo pm ent du ringthe nex t phase o f the pu b lic adm inistratio n ref o rm pro gram . Integral to the review pro cess w ill b e

assessm ent o f capacities o f b o th central and lo cal au tho rities to f o rm u late and im plem ent pu b lic po liciesef f ectively . The situ atio nal analy sis is no t intended to b e ex hau stive, b u t rather to f acilitate co nstr u ctive

ex change at a stak eho lders w o rk sho p to b e o rganiz ed b y U N MIK and the P IS G in S eptem b er in K o so vo .C o nsidering that m issio n m em b ers o nly spent o ne w eek in K o so vo to co nsu lt w ith stak eho lders, the analy sis

relies heavily o n desk review o f do cu m ents pro vided b y U N MIK , P IS G , develo pm ent partners and o thersta k eho lders. It is e x pected that the situ ati o nal anal y sis b e u pdated t o ref lect the f indings and

reco m m endatio ns o f the ab o ve - cited w o rk sho p.

3.1 Enabl ing Env ironm ent

Legal , Poli cy & Regula to ry Fram eworks.


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the central go vernm ent. B o th issu es sho u ld b e addressed in a review o f the legal f ram ew o rk go verning civilservice m anagem ent.

Many co u ntries , in co m pariso n, have decided to ado pt a relatively co m prehensive pu b lic service act,

spelling o u t in so m e detail the respo nsib ilities and relatio nships o f k ey acto rs in the m anagem ent o f the civilservice, s u ch as the Ministry o f P u b lic S ervices, M inistry o f F inance and E co no m y , O f f ice o f the P rim e Minister,

m inisters, perm anent secretaries, civil service co m m issio ns, directo rates o f pu b lic service, as w ell as caref u lly

def ining o ther i m p o rtant aspects relating t o civil service m anagem ent , incl u ding the rights and

respo nsib ilities o f civil servants, career develo pm ent, co des o f co ndu ct, o b ligatio n o f civil servants to inf o rm

ab o u t irregu larities ( w histle - b lo w ing ) , po tential co nf lict o f interest, repo rting req u irem ents o f b o th the MP Sand the MF E to the cab inet etc.

The IS G is cu rrently in the inal stages f ado pting ten erso nnel ro cedu res, develo ped ith the

assistance o f D F ID . These pro cedu res w ill co nstit u te a co m prehensive and co herent o peratio nal f ram ew o rk

f o r the selectio n, recru itm ent and m anagem ent o f staf f in the co re civil service. The P erso nnel P ro cedu resdeal w ith the f o llo w ing aspects o f the C ivil S ervice L aw and the Adm inistrative D irectio n: recru itm ent and

selectio n, e m plo y m ent co ntracts, pro b atio n, j o b descriptio n, perf o rm ance assessm ent, em plo y ee perso nnelf iles, w o rk ing ho u rs, a ttendance and leave, c o ndu ct and discipline, a ppeals, a nd term inatio n o f em plo y m ent.

Three pro cedu res have een appro ved y the Minister f lic ervices as f April 2003 ) and issu ed in the

f o rm o f an Adm inistrative Instru ctio n. The P erso nnel P ro cedu res, h o w ever, h ave no t y et b een applied too ther catego ries o f staf f in the pu b lic service, su ch as tho se w o rk ing in the edu catio n, health and o ther

secto rs. The P IS G , as a m atter o f prio rity , sho u ld m ak e it m andato ry f o r all secto rs o f the pu b lic service toapply the P erso nnel P ro cedu res in recru itm ent pro cesses.

The C nstitu tio nal F ram ew rk ) created a tw tier self go vernm ent in po st- co nf lict so vo at the

central and m u nicipal levels. U N MIK R egu latio n 2000/ 4 5 devo lved a nu m b er o f po w ers and respo nsib ilities to

the 3 0 m u nicipalities in K o so vo , w hich are divided into three m ain catego ries, n am ely , s u b j ects w here: ( a) the

m u nicipality is respo nsib le w ithin the law s regu lating each activity ; ( b ) the m u nicipalities m ay tak e actio nw ithin their territo ries; and ( c) the m u nicipalities shall b e respo nsib le f o r im plem enting regu latio ns


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respo nsib ility to the P IS G to direct f ire and rescu e services in clo se co o peratio n w ith m u nicipalities, altho u ghthese respo nsib il ities are n o t adeq u ately def ined in the reg u latio n .

Mu nicipalities have also co m plained that they are no t receiving adeq u ate su ppo rt f ro m the central

po lice service in enf o rcing decisio ns m o re ef f ectively , inclu ding tho se relating to the m anagem ent o f pu b licpro perty and illegal co nstru ctio n. The delineatio n o f respo nsib ilities b etw een m u nicipali ties and the K o so vo

Tru st Agency TA) co ld sim ilarly enef it ro m re co herent interpretatio n f the applicab le law . reater

co m plex ity in relatio ns b etw een the tw o tiers o f self - go vernm ent has also heightened the need to clarif y the

m eaning o f the term central au tho rity , ref erred to in U N MIK R egu latio n 2000/ 4 5 . It is, theref o re,

reco m m ended that a review b e u ndertak en o f the legal f ram ew o rk go verning m u nicipal adm inistratio n,u po n the co m pletio n o f the C O E D M stu dy .

W hile pu b lic u tilities play a k e y ro le in service delivery in K o so vo , their o peratio n is ham pered b y lack

o f the necessary law s and regu latio ns go verning the develo pm ent o f each secto r. It is reco m m ended that

P IS G acco rd so m e co nsiderab le prio rity to ref o rm s o f the legal and po licy f ram ew o rk go verning pu b licu t il ities.

The IS G anif esto , ado pted y the so vo Assem ly in May 2002, co its the go vernm ent to

u ndertak e a legislative cam paign to pro m o te transparency and acco u ntab ility in go vernance. The ex isting

legal and po licy f ram ew o rk in K o so vo is w eak w hen it co m es to the pro m o tio n o f transparency ,acco u ntab ility and integrity in pu b lic secto r m anagem ent. The P IS G , f o r ex am ple, has no t y et ado pted a

co m prehensive K o so vo - w ide integrity sy stem o r anti- co rru ptio n strategy ( a draf t has b een prepared) .

To deter co rru pt practices in pu lic adm inistratio n, a co prehensive set f law s is generallyreq u ired, co m prising m o st, i f no t all, o f the f o llo w ing:

L aw that crim inal iz es the o f f ering and so l iciting , and the giving and accepting , o f a b r ib e ;

L aw that enab les the tracing, seiz u re, f reez ing and f o rf eitu re o f the illicit earnings f ro m

co rru ptio n;


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A co m m o n practice aro u nd the w o rld is f o r go vernm ents to issu e green and w hite papers inadvance o f legislative pro po sals. The idea is no t o nly to inf o rm stak eho lders, particu larly m em b ers o fP arliam ent, ab o u t the m ain principles and co ntent o f f o rthco m ing legislatio n b u t also to so licit their inpu ts

and advice. This very u sef u l practice has no t b een ado pted in the f o rm u latio n o f new po licies in K o so vo . The

P IS G m ay w ish to co nsider intro du cing this instru m ent into the po licy f o rm u latio n pro cess as part o f its nex tseries o f ref o rm initiatives.

Accountability Structures.

A Transf er C o u ncil ( TC ) c o m po sed o f an eq u al nu m b er o f representatives f ro m U N MIK and K o so vo

institu tio ns, h as b een estab lished to decide o n the specif ic m o dalities o f ho w ex ecu tive f u nctio ns w ill b ehanded o ver f ro m internatio nal staf f to lo cals in an ef f ective and su stainab le m anner. The co u ncil, w hich m etf o r the f irst tim e o n 8 th April 2003 , w ill pro vide o verall co o rdinatio n o f the transf er pro cess and can appo int

su b - gro u ps to co nsider specif ic aspects o f its w o rk . In line w ith the m andate f o r su b stantial self - go vernm ent,the TC w ill initially f o cu s o n the f o llo w ing: co m plete the transf er pro cess o u tlined in C hapter F ive o f the

C o nstitu tio nal F ram ew o rk ( C F ) ; increase the invo lvem ent o f K o so vars in areas co vered b y C hapter E ight o f

the C F ; and i m pro ve the check s and b alances - K o so vars and internatio nal - that enf o rce U N S C R 1 24 4 ( 1 9 9 9 )

and the C F thro u gh m o nito ring and rem edial interventio n. The TC w ill also co nsider ho w K o so vo institu tio nscan b e invo lved in m o nito ring, evalu atio n and rem edial pro cesses, as req u ired.

In additio n, the TC w ill discu ss appro priate strategies to realiz e U N S C R 1 24 4 and the C F w ith respectto specif ic co ncerns, particu larly the rights o f co m m u nities and their m em b ers, and the ru le o f law . The TC

w ill sim ilarly co nsi der issu es related to m u nicipal go vernance, particu larly w hether the cu rrent distrib u tio n o fp o w er and respo nsi b i lit ies b etw een internatio nal sta f f and l o cal app o intees is appr o priate. T o f aci litate its

w o rk , the TC has set u p three w o rk ing gro u ps dealing w ith ( a) f inance, recru itm ent and lo gistics, ( b ) technicalassistance, and ( c) rem edial interventio n respectively . The TC sho u ld theref o re b e w ell po sitio ned to o versee

the transf er pro cess.

C o nsidering the heavy po liticisatio n o f go vernm ent institu tio ns, a no tab le w eak ness o f the ex istinggo vernance and pu b lic secto r m anagem ent sy stem in K o so vo is the po o r state o f o versight b o dies, w hich


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O m b u dsm an w ho receives and investigates allegatio ns o f m al- adm inistratio n.

Mo s t o f these im po rtant o versight institu tio ns have no t y et b een estab lished in K o so vo . The

creatio n o f an ef f ective institu tio nal o versight f ram ew o rk sho u ld b e acco rded high prio rity in the plannedpu b lic adm inistratio n strategy . E f f ective o versight institu ti o ns can play a k ey ro le in im pro ving the q u ality o f

service deliver y and f inancial res o u rces m anagem ent in the p u b l ic secto r. It is als o essential that the

O versight B o ard o f K o so vo ( O B K ) b e estab lished as so o n as po ssib le. In additio n, an independent O f f ice o f theC o ntracto r G eneral and an anti- co rru ptio n co m m issio n have no t b een set u p in K o so vo to date. It is

reco m m ended that the P IS G co nsider estab lishing su ch b o dies as part o f an ef f o rt to strengthen the

o versight m achinery in K o so vo .

O versight b o dies and the Assem b ly o f K o so vo play a k ey ro le in ensu ring acco u ntab ility o f the

ex ec u tive w hen it c o m es to agreed standards in the area o f service deliver y . The Au dito r G eneral, theO m b u dsm an, and the respective po rtf o lio co m m ittees o f the Assem b ly are ex pe cted to pro b e the co st-

ef f ectiveness o f the u se o f pu b lic reso u rces. R egu lar u se o f valu e - f o r- m o ney stu dies b y the O f f ice o f theAu dito r G eneral can also pro vide incentives f o r m anagers in the pu b lic service to co ntinu o u sly review the

perf o rm ance o f their respective agencies. The O f f ice o f the Au dito r G eneral and the O f f ice o f theO m b u dsm an need signif icant institu tio nal strengthening in o rder to pro m o te greater acco u ntab ility o f the

ex ecu tive to w ards the pu b lic. B u ilding the capacities o f these b o dies is an im po rtant preco nditio n f o r m o re

ef f ective service delivery in K o so vo , as w ell as co ntinu ed strengthening o f f inancial reso u rces m anagem ent inthe pu b lic secto r.

O ne o f the principal f u nctio ns o f parliam ent is to pro vide o versight o f the ex ecu tive o n b ehalf o f the

pu b lic. In K o so vo , the Assem b ly assu m es a particu larly im po rtant ro le in the go vernance sy stem b ecau se theH o u se is co m po sed o f all m aj o r gro u ps in so ciety . The pu b lic scru tiny to w hich the Assem b ly su b j ects the

ex ecu tive, thro u gh deb ate and q u estio n tim e, pro m o tes b o th transparency and acco u ntab ility in go vernanceand m o re ef f ective u se o f pu b lic reso u rces. P o rtf o lio co m m ittees o f the K o so vo Assem b ly have a particu larly

im po rtant ro le to play in o versight o f the ex ecu tive. S trengthening the cap acity o f po rtf o lio co m m ittees topro vide f inancial and pro gram m atic o versight o f the P IS G can f u rther enhance the q u ality o f go vernance


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co nsidered to have a b earing o n ( a) go o d go vernance issu es, as w ell as m atters m andated b y the U N S C R1 24 4 and the C o nstitu tio nal F ram ew o rk ( C F ) , ( b ) p o licy develo pm ent, ( c) planning, b u dgeting andex penditu re activities, and ( d) o versight o f pu b lic o f f icials.

U N MIK ( civil adm inistratio n) sho u ld no t o nly have an im po rtant o versight ro le b u t also have thecapacity to pro vide strategic and su b stantive advice to lo cal institu tio ns to help set u p pr o per ad m inistrative

sy stem s, su ch as directives, ru les, regu latio ns, gu idelines, m anu als etc. f o r the f u nctio ning o f m inistries; andthe ab ility to pro vide ex pert advice o n specif ic issu es critical f o r su stainab le institu tio n b u ilding in K o so vo ,

inclu ding the develo pm ent o f the civil service sy stem , f inance and acco u nting, and pro cu rem entm etho do lo gies. As U N MIK strengthens its adviso ry and o versight ro le, it m ay have to revisit its staf f ing

pro f ile. F o r ex am ple, as lo cals tak e o ver m any o f the ex ecu tive line f u nctio ns, U N MIK m ay b e called u po n t opro vide m o re specializ ed technical services to the P IS G . Instead o f b eing respo nsib le f o r day - to - day

m anagem ent o f the ex ecu tive, U N MIK co u ld de f acto b eco m e m o re o f a technical reso u rce f acility f o r theP IS G , w hile sim u ltaneo u sly ensu ring q u ality co nt ro l and o versight o f adm inistrative sy stem s and institu tio ns.

Resource Flows.W hile inf lo w s o f do no r assistance rem ained the sam e in 2002 as in 2001 , o r appro x im ately U S D 5 00

m i ll io n, a declining trend is ex pected in 2003 . The pr o j ected dr o p in f inancial reso u rces is lik el y t o test the

su stainab ility o f K o so vo s eco no m ic reco very , and to heighten the need f o r po litical leaders to f o rm u late a

clear visio n and strategy f o r the pu b lic adm inistratio n ref o rm pro cess, a s m o re - and- m o re reso u rces w ill haveto b e generated do m estically . U N MIK , O S C E , E AR , D F ID , U N D P and o ther develo pm ent partners have so f ar

invested co nsiderab le am o u nt o f reso u rces in strengthening the capacity o f the pu b lic service in K o so vo .C o nsidering the high vo lu m e o f technical assistance, there is m u ch need f o r enhanced co o rdinatio n am o ng

develo pm ent partners, a s w ell as w ithin the m achinery o f P IS G itself .

The creatio n f the int teering ard r lic Adm inistratio n and the pro po sed estab lishm ento f a Technical S ecretariat to pro vide day - to - day co o rdinatio n o f the ref o rm pro gram sho u ld strengthen b o th

internal and ex ternal co o rdinatio n, a s w ell as reso u rce m o b iliz atio n. The B o ard is ex pected to play a k ey ro lein regu larly assessing the pro gress o f P IS G institu tio ns in m eeting the b enchm ark s, s et o u t b y the S R S G o n


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In m any su ccessf u l co u ntries, p o licy - m ak ing is em b edded in co nsu ltative pro cesses, w hich pro videcivil s o c iety , lab o r u nio ns and the private sect o r o pp o rtu nities f o r participati o n and o versight. The private -pu b lic delib eratio ns co u ncils in E ast Asia are go o d ex am ples o f m echanism s that have p ro vided ef f ective

f eedb ack , inf o rm atio n sharing and co o rdinatio n o n im po rtant po licy issu es. P IS G sho u ld b egin to develo p

and/ o r strengthen s u ch c o nsu l tative pr o cesses, as part o f its o verall develo pm ent strategy .

3.2 Instit ution Building

Vision, Mission & Strat egy.The P IS G irm ly elieves that K so vo s f tu re lies in ro pe, and, theref re, intends to ak e su re that

all legislatio n, especially tho se relating to the eco no m y , edu catio n and health, are in acco rdance w ithE u ro pean U nio n ( E U ) standards. The f act that law s w ill b e aligned to E u ro pean standards sho u ld ensu re that

eco no m ic gro w th and institu tio nal develo pm ent w o u ld no t b e ham pered b y a w eak po licy regim e. Thechallenge instead w o u ld b e to strengthen the capacity o f pu b lic institu tio ns to im plem ent po licies in a

tho ro u ghly ef f icient and transparent m anner. This pro cess o f raising the capacity o f pu b lic institu tio ns toE u ro pean standards is lik ely to req u ire im m ense po litical co m m itm ent, p atience, caref u l planning and lo ng-

term visio n b ecau se co nsistent and ef f ective applicatio n o f the ado pted E U ru les is critical f o r so u nd so cio -

eco no m ic develo pm ent in K o so vo , inclu ding the ab ility o f P IS G to attract f o reign and do m estic privateinvest m ent.

If the P IS G w ants to ef f ectively im plem ent its f as t- gro w ing ex ecu tive respo nsib ilities and su cceed in

b u ilding u p a vib rant m ark et eco no m y , i t has to f u rther strengthen its institu tio nal capacity to co o rdinateand sy nchro niz e eco no m ic, f iscal and pu b lic adm inistratio n- related ref o rm s, inclu ding the strate gic

m anagem ent o f f inancial reso u rces. In this regard, the f o rm u latio n o f a V isio n S tatem ent and the preparatio no f a pu b lic adm inistratio n strategy w o u ld b e an im po rtant step in asserting lo cal au tho rity o ver the

institu tio nal develo pm ent pro cess in K o so v o . At the earliest, the S teering B o ard f o r P u b lic Adm inistratio n( S B P A) sho u ld initiate the pro cess o f f o rm u lating the V isio n S tatem ent, as w ell as the pu b lic adm inistratio n


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nego tiate an agreem ent w ith the au tho rities in B elgrade o n this im po rtant issu e need to b e su ppo rted b y allstak eho lders.

The representatio n o f ino rities rem ains also highly inadeq ate at all levels, r appro im ately 8 per

cent in central go vernm ent and signi f icantly lo w er at the lo cal level . Acc o rding t o the E x ecu tive B ranchR egu latio n ( 2001 / 1 9 ) , the civil service sho u ld co m prise ab o u t 1 5 per cent K o so vars- S erb s and 1 0 per cent

f ro m o ther m ino rity co m m u nities. It s , theref o re, an im po rtant challenge f o r U N MIK and P IS G to ensu re thatthe go als o f eq u itab le representatio n o f all co m m u nities in go verning institu tio ns are f u lly achieved.

As it is very dif f icu lt to dislo dge b ad sy stem s w hen they have b een pu t in place, it is im po rtant to

create f ro m the o u tset an ef f ective civil service in K o so vo . A w ell - designed civil service sy stem w o u ldgenerally b e characteriz ed b y the f o llo w ing: ( a) u nif o rm ity in o rganiz atio nal stru ctu res, j o b designatio ns and

pay grades, and ( b ) and stro ng sy stem s f o r adm inistrative, f inancial and perso nnel m anagem ent o f m inistries

and agencies, inclu ding cro ss - secto r po licy co o rdinatio n. N o tab le pro gress has b een m ade since the

estab lishm ent o f P IS G in March 2002 in setting u p the civil service sy stem in K o so vo . Mo st m inistries, f o rex am ple, have review ed their o rganiz atio nal stru ctu re, m issio n statem ent and strategy . O verall

strengthening o f these s y ste m s , inclu ding ens u r ing their c o herence w i th go o d civil service design principlesis an im po rtant nex t step in co nso lidating the pro gress m ade so f ar in b u ilding the capacity o f the pu b lic

secto r in K o so vo . The m anagem ent o f m inistries co u ld also b e f u rther strengthened b y the estab lishm ent o f

Managem ent B o ards, appo inted b y the respective Minister and co m po sed o f the P erm anent S ecretary andall D irecto rs o f the m inistry .

B ased o n co nsu ltatio ns b etw een U N MIK ( civil adm inistratio n) and relevant stak e ho lders in O cto b er

2001 , i t w as decided that the o rganiz atio nal stru ctu res o f m inistries w o u ld co nsist o f the f o llo w ingadm inistrative u nits: departm ents, divisio ns, sectio ns and u nits. The im plem entatio n o f this standardiz ed

str u ctu re, h o w ever , has no t b een as c o nsistent as earlier envisaged. The res u l t has b een the creati o n o f

stru ctu res, w hich, in so m e cases, are no t even co m patib le w ith the co nventio nal o rganiz atio n o f go vernm ent.

There are inistries, r ex am ple, that are rganiz ed into ten departm ents, hich y any standard , ldcreate an ino rdinately lo ng span o f co ntro l f o r m inisters and perm anent secretaries. The lack o f u nif o rm


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The transf er f civil adm inistratio n nctio ns ro m MIK to the new IS G is gu ided y the standards b ef o re statu s po licy , articu lated b y the S R S G o n b ehalf o f the internatio nal co m m u nity . Thehanding o ver pro cess has tw o distinct dim ensio ns: ( a) the transf er o f po litical au tho rity to m ak e certain

decisio ns, and ( b ) the passing o f ex ecu tive f u nctio ns f ro m internatio nal staf f to K o so vo civil servants. W ith the

estab lishm ent o f the P IS G , the transf er o f po litical au tho rity in agreed areas ( C hapter F ive) has tak en place.The seco nd part o r the handing ver f ex ecu tive nctio ns f ro m internatio nals to the K so vo civil service is

an o ngo ing pro cess. This transf er o f m anagerial and decisio n- m ak ing au tho rity in the civil service is no s m all

u ndertak ing, co nsidering the ex tensive invo lvem ent o f internatio nal staf f in the ru nning o f go vernm ent.

W hile lo cal staf f play ed an im po rtant su ppo rting ro le, d ecisio n- m ak ing and m anagem ent, u ntil very recently ,w as largely vested w i th internati o nal staf f .

To pro vide strategic directio n to the transf er pro cess, the , n ehalf f the internatio nal

co m m u nity has develo ped b enchm ark s, w hich pro vide the standards f o r m easu ring pro gress o f the P IS G inb u ilding su stainab le institu tio nal capacity . The b enchm ark s are intended to f acilitate clo ser integratio n o f

K o so vo into the E u ro pean C o m m u nity . Mo re specif ically , U N MIK has develo ped the f o llo w ing criteria f o r thetransf er o f ex ecu tive respo nsib ilities f r o m internatio nal staf f to lo cal civil servants : ( a) there sho u ld b e

stab ility du ring the transitio n, ( b ) the handing o ver sho u ld b e su stainab le, and ( c) the pro cess sho u ldinco rpo rate pro visio ns f o r adeq u ate saf egu ards f o r ensu ring that the respo nsib ilities o f the U N , thro u gh the

S R S G , f o r co m pliance w ith the req u irem ents o f the S C R 1 24 4 and its im po rtant elem ents can b e carried o u t.

P IS G institu tio ns are ex pected to develo p co ncrete plans o n ho w to realiz e the targets set o u t in theb enchm ark s.

Mo st o f the co m petencies listed in C hapter F ive o f the C F have already b een transf erred to the P IS G .

K o so vo institu tio ns no w co ntro l w ell o ver tw o - thirds o f the C o nso lidated B u dget ( C B ) , and enj o y w ide -ranging po w ers in m any f ields o f go vernm ent, su ch as health, edu catio n, so cial w elf are, and m u nicipal

go vernm ent. In F eb ru ary 2003 , the S R S G f o rm ally transf erred the tax adm inistratio n f u nctio n f ro m theC entral F iscal Au tho rity to the Ministry o f F inance and E co no m y . F ro m no w o n, the Minister o f F inance and

E co no m y w ill issu e adm inistrative instru ctio ns necessary f o r the ef f ective o peratio n o f the tax adm inistratio nsy stem . S o m e m inistries, su ch as the Ministry o f Trade and Indu stry and Ministry o f Transpo rt and


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b asic legal, po licy and institu tio nal inf rastru ctu re has b een place, the perf o rm ance o f m u nicipalities has sof ar b een q u ite u neven f o r vario u s reaso ns. In so m e m u nicipalities, f o r ex am ple, assem b ly and/ o r co m m itteepro ceedings are characteri z ed b y intense po l itical and perso nal rivalr y , o f ten irrelevant to the actu al

b u siness o f lo cal go vernm ent. It is f elt that the perf o rm ance o f m any m u nicipal assem b lies, as w ell as the

B o ards o f D irecto rs, have so f ar no t m et ex pectatio ns. Mu nicipalities have also to a very lim ited ex tentengaged lo cal citiz ens in co nsu ltatio ns o n im po rtant po licy and w o rk planning issu es.

G enerally , the f u nctio ning o f m u nicipal assem b lies co u ld b e im pro ved b y b etter- prepared and

co ndu cted m eetings, i nclu ding pro viding do cu m ents o n tim e; g reater pu b lic inpu t into po licy delib eratio ns;m o re ef f icient secretariat services; enhanced w o rk o f co m m ittees; and b etter link s w ith o u tly ing villages.

Many m u nicipalities also su f f er f ro m lack o f pro f essio nalism in pu b lic adm inistratio n; a b sence o f essentialru les f o r the f u nctio ning o f the assem b ly secretariat; gu idelines f o r the estab lishm ent o f po rtf o lio

co m m ittees; inadeq u ate adm inistrative sy stem s and inf rastru ctu re; w eak m anagem ent; insu f f icientu nderstanding o f assem b ly m em b ers o f their ro les and respo nsib ilities; and po o r institu tio naliz atio n o f the

principles o f transparency and acco u ntab ility in pu b lic m anagem ent. As part o f regu lar o versight, U N MIK andMP S sho u ld u ndertak e perio dic o rganiz atio nal review s o f m u nicipal adm inistratio ns to pro m o te enhanced

ef f iciency and resu lts- o rientatio n in their w o rk .

The delive ry f pu lic services in any nicipalities also su ers du e to eak pro du ctivity f staf

and a highly inef f icient ad m inistrative cu ltu re. As m u nicipalities pu t in place the b as ic inf rastr u ctu re f o rpu b lic adm inistratio n, the f o cu s o f institu tio nal strengthening has to m o ve to w ards the creatio n o f a

perf o rm ance - b ased o rganiz atio nal cu ltu re. This w o u ld u ndo u b tedly req u ire strengthening o f pay andincentives and perf o rm ance m anagem ent sy stem s, inclu ding perf o rm ance appraisal, as w ell as the

develo pm ent o f clear co des o f co ndu ct f o r m u nicipal em plo y ees.

As stipu lated in the C o nstitu tio nal F ram ew o rk , the P rim e Minister is respo nsib le f o r a co o rdinated

and co herent go vernm ent po licy . The O f f ice o f the P rim e Minister ( O P M) also m o nito rs the pro gress o f the

P IS G in f o rm u lating and enacting its legislative agenda in the K o so vo Assem b ly . D raf t G u idelines o nE x ecu tive B u siness have b een develo ped to regu late the co o rdinatio n o f go vernm ental po licy at the highest


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im plem entatio n o f the b enchm ark s. This repo rting stru ctu re w o u ld also b e f u lly aligned w ith the U N MIKb enchm ark s repo rting f o rm ats.

G u idelines have recently b een issu ed b y the O f f ice o f the P rim e Minister f o r draf ting and su b m itting

law s to the P IS G and the K o so vo Assem b ly . The law - m ak ing pro cess w o u ld b egin w ith the respective m inistrydevelo ping an E x planato ry N o te ( E N ) and f o rw arding to the Ministry o f F inance and E co no m y , the Ministry o f

P u b lic S ervices, U N MIK O f f ice o f the L egal Adviser, and O f f ice o f P o litical Af f airs f o r review and co m m ents. F o r

the develo pm ent o f each law , a draf ting team is set u p. U po n co m pletio n o f the draf t law , t he O f f ice o f L egal

S u ppo rt S ervices ( O L S S ) and the draf ting team are req u ired to develo p an E valu atio n D o cu m ent ( E D ) f o r theP rim e Minister and the respective secto r m inister. The E valu atio n D o cu m ent is intended to dem o nstrate that

the draf t law is su f f iciently in co m pliance w ith ( a) the previo u sly agreed principles articu lated in the E N , ( b )E U standards, ( c) pro tectio n o f co m m u nity rights and interests, and ( d) the o verall legal f ram ew o rk in K o so vo .

The draf t gu idelines r legislative draf ting also req ire inistries to perf rm a co st- enef it analy sis

o f the respective law , inclu ding discu ssing the adm inistrative co nseq u ences f o r the P IS G and m u nicipalities.D raf t law in three langu ages and an E x planato ry Mem o randu m , o u tlining the pu rpo se o f the law and o ther

relevant inf o rm atio n, w ill acco m pany the E D . U po n appro val o f the P IS G , the P erm anent S ecretary in theO P M w ill f o rw ard the draf t law to the S ecretary o f the Assem b ly . If w ell im plem ented this new f ram ew o rk has

the po tential to greatly im pro ve the q u ality and co st- ef f ectiveness o f the legislative draf ting pro cess in

K o so vo .

Altho u gh the P IS G has pu t in place im po rtant ru les and regu latio ns to f acilitate po licy - m ak ingpro cesses at the go vernm ental level, there is lack o f cr itical m ass o f ef f ective institu tio nal capacity to

f o rm u late, co o rdinate and evalu ate strategic po licy o ptio ns in K o so vo . To address this capacity co nstraint, apro po sal has b een develo ped to set u p an O f f ice o f S trategic P o licy and P lanning ( O S P P ) , w hich w o u ld b e

lo cated w ithin the O f f ice o f the P rim e Minister. The O S P P w o u ld co nsist o f three divisio ns/ u nits, nam ely , aP ro gram Im plem entatio n Adviso ry U nit ( P IAU ) , a S trategic P lanning U nit ( S P U ) , and a F inancial S trategy U nit

( F S U ) . The P IAU w o u ld track the im plem entatio n o f the P IS G s pro gram ; identif y sho rt- term challenges;pro vide tactical reco m m endatio ns; and pro vide b u ilding b lo ck s f o r an u pdate o r a new pro gram . The ro le o f


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go vernm ent entities. To pro m o te greater discipline in the po licy - m ak ing pro cess, so m e co u ntries have evenb egu n to req u ire m inistries and departm ents to pu b liciz e the m ediu m - term co st o f co m peting o ptio ns.S tro ng institu tio ns also pro vide saf egu ards against po litical instab ility . It is reco m m ended that P IS G m ak e

special ef f o rts to strengthen the technical and co ns u ltative capacity o f po licy u nits in m inistries and

m u nicipal adm inistratio ns as part o f the institu tio n b u ilding pro cess in K o so vo .

In K o so vo , it seem s that clear lines o f acco u ntab ility b etw een m inistries and ex ecu tive agencies have

no t y et b een estab lished in the area o f service delivery , m ainly du e to the very recent f o rm atio n o f the P IS G .

The asic tenet f this appro ach is that inistries develo p service delivery standards and nito r theim plem entatio n o f specif ic o u tpu ts and o u tco m es, w hile agency heads are given greater m anagerial

au to no m y and f lex ib ility to achieve the agreed targets. The so - called inf o rm atio n asy m m etry b etw eenm inistries ( pu rchaser) and ex ecu tive agencies ( su ppliers) w hen it co m es to service delivery is prim arily dealt

w ith thro u gh co ntract- b ased arrangem ents. S ervice agreem ents specif y the ex pectati o ns o f b o th sides,inclu ding the co sts, the q u antity and q u ality o f services pu rchased, as w ell as the tim ing o f delivery . In o rder

to pro m o te greater clarity in the ro les and respo nsib ilities o f the P IS G and the m u nicipalities in servicedelivery , the P I S G co u ld co nsider pilo ting the u se o f service agreem ents b etw een m inistries and ex ecu tive

agencies.

C o ntracting o u t service delivery to private f irm s o r civil so ciety o rganiz atio ns are also o ptio ns that

go vernm ents have u sed to im pro ve co st- ef f ectiveness o f the pro visio n o f pu b lic go o ds. In co u ntries w hereb o th m ark ets and state capacities are w eak , o ptio ns f o r co ntracting o u t are f ew er. B u t, w here o u tpu ts are

easily specif ied and direct co m petitio n is im po ssib le, co m petitio n m anaged thro u gh su ch arrangem ents asservice co ntracts, m anagem ent co ntracts, leases, and lo ng- term co ncessio ns can y ield ef f iciency gains. B etter

m anagem ent o f the principal - agent relatio nship is particu larly im po rtant w hen it co m es to service delivery .This eans greater clarity in the ro les and respo nsib ilities f the nding rganiz atio n, ty pically a inistry

and the su pplier o f the service, generally an ex ecu tive agency , a pu b licly o w ned enterprise, civil so ciety o rprivate secto r o rganiz atio n. H o w ever, co ntracting o u t is no pana cea, and o f ten su b j ect to co rru ptio n w ithin

the pu b lic secto r. S tro ng o versight is theref o re req u ired to lim it su ch o ppo rtu nities ( see sectio n o n enab lingenviro nm ent) . In K o so vo , the P IS G m ay w ish to stu dy w hether there are certain areas o f service delive ry ,


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m o ve in a signif icant w ay in that directio n. S u ch acco u ntab ility arrangem ents f o ster clarity o f pu rpo se andtask w hen it co m es to the ex pectatio ns o f senio r civil servants. Any increase in the salaries o f senio r o f f icialsas the resu lt o f the intro du ctio n o f an inno vatio n o f this ty pe, w o u ld m o st lik ely have to b e co m pensated

w ith a redu ctio n in the o verall staf f estab lishm ent in the civil service. I t is su ggested that the P I S G stu d y the

co sts and b enef its o f estab lishing a sy stem o f perf o rm ance co ntracts f o r senio r civil servants.

C lient su rvey s, pu b lished b enchm ark s, valu e - f o r- m o ney stu dies and co des o f co ndu cts are o ther

ex am ples o f inno vatio ns intr o du ced in recent y ears to change the relatio nship b etw een civil servants and

citi z ens. These m echanis m s also pr o vide increased e x ternal pressu re o n m anagers to deliver servicesef f iciently and ef f ectively . In m any co u ntries, there are increased pressu res o n pu b lic agencies to repo rt

annu ally o n their perf o rm ance, as w ell as o n the m ain inpu ts invested in the pro du ctio n o f o u tpu ts. To createenhanced dem and f o r b etter services, the P IS G co u ld im pro ve edu catio n to citiz ens in term s o f w hat services

they sho u ld ex pect f ro m pu b lic o rganiz atio ns. The P IS G co u ld also enhance the u se o f client su rvey s,pu b lished b enchm ark s, valu e - f o r- m o ney stu dies and co des o f co ndu ct in the pu b lic service, as to o ls to

pro m o te greater co st- ef f ectiveness and resp o nsiveness in the deliver y o f services.

The no tio n f civil servants eing acco ntab le to citiz ens is still new to any IS G em plo ees, asw ell as the general pu b lic. R espect f o r im po rtant go vernance principles, su ch as transparency , ru le o f law ,

ef f iciency , resu lts- b ased m anagem ent, eq u ity , and integrity , is also at an incipient stage o f develo pm ent in

the K o so vo so ciety , i nclu ding the pu b lic secto r. Institu tio ns invo lved in the delivery o f pu b lic services,theref o re, are o f ten no t j u dged b y their perf o r m ance in m eeting the needs o f clients, b u t rather b y strict

adherence to ru les, regu latio ns and pro cedu res. C ivil servants so m etim es do no t treat services as the right o fcitiz ens, b u t rather as reso u rces to b e co ntro lled. The net resu lt is that perf o rm ance and service- o r ientatio n is

lack ing in the o rganiz atio nal cu ltu re o f m o st pu b lic institu tio ns in K o so vo .

Processes.P articipato ry po licy - m ak ing is slo w ly b eginning to tak e ho ld in K o so vo . F o r ex am ple, the new G reen

B o o k S trategy f o r S u stainab le Agricu ltu re, F o restry and R u ral D evelo pm ent, w as develo ped w ith ex tensiveparticipatio n o f the staf f o f the Ministry o f Agricu ltu re, F o restry and R u ral D evelo pm ent, and ex ternal


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The challenges ex perienced in institu tio nalising a dern hu an reso rces anagem ent

f ram ew o rk in K o so vo clearly u nderline the inherent dif f icu lties in creating f ro m scratch a transparent and

ru le - b ased sy stem in an enviro nm ent w here pu b lic adm inistratio n had f o r a lo ng tim e b een b ased o n a very

dif f erent traditio n. It is theref o re o f great im po rtance to strengthen b o th o versight and co m pliancem echanism s ( e.g. O B K ) in the pu b lic service in o rder to change deep- ro o ted b ehavio u ral patterns o f civil

servants. It sho u ld also b e a prio rity to strengthen the f u nctio ning o f hu m an reso u rces m anagem ent u nits in

m inistries and m u n icipalities, as the y play a k e y r o le in ens u ring that pers o nnel standards are adhered to .

An im p o rtant reaso n f o r the c u rrent lac k o f m anagerial and leadership capacit y in the civil service is

the f act that f o r m o re than a decade K o so vars- Alb anians w ere largely ex clu ded f ro m senio r po sts u nder theprevio u s regim e. This lack o f q u alif ied hu m an capital co nstitu tes a m aj o r co nstraining f acto r f o r civil service

m anagem ent in K o so vo . It also highlights the need f o r the f o r

public administration in kosovo

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