Kosovo’s ambition to join the European Union hinges not only on diplomacy but on its internal ability to build a functioning, coordinated policy-making system.
A detailed review by SIGMA - an OECD-EU initiative - lays bare the challenges and incremental progress of Kosovo’s public governance structure, highlighting both legislative improvements and enduring administrative fragility.
The paper, part of SIGMA’s policy-making review series, is as much a roadmap as it is a mirror: a nation aligning with EU standards while grappling with the very fundamentals of democratic policy development.
"Kosovo has made remarkable progress in the last decade," the report notes, "but many challenges still remain."
🧭 1. Government Coordination: Framework in Place, Execution Under Pressure
Kosovo’s government has established an elaborate legal framework for policy coordination, especially with respect to European Integration (EI). The backbone of this framework includes the Office of the Prime Minister (OPM), Ministry of Finance (MoF), and Ministry of European Integration (MEI).
🧷 Key instruments like the Government Annual Work Plan (GAWP), the Stabilisation and Association Agreement Action Plan (APSAA), and the Medium-Term Expenditure Framework (MTEF) are operational - but often fragmented in practice.
"Planning is technical," the review states bluntly, "often lacking cooperation and burdened by unrealistic political expectations."
🛠️ Recommendations urge coherence between central planning documents, with calls for stronger staffing and training within the Strategic Planning Office (SPO) to reduce legislative backlogs and ensure realism in national priorities.
🏗️ 2. Policy Development in Ministries: Structure Without Substance
While policy development mechanisms exist within ministries, the review finds that much of it remains formalistic - meeting legal obligations without true analytical rigor.
Ministries have introduced concept papers and consultation frameworks. However, many policy proposals lack financial impact assessments and are poorly aligned with medium-term goals.
📉 Staff shortages and unclear responsibilities undermine the process. Only a few ministries - such as Trade and Industry - show signs of leadership and innovation.
"Responsibilities are often diffused," the review finds. "Structures exist, but capacities remain limited."
🔧 The report pushes for clear ministerial mandates, stronger interministerial cooperation, and the institutionalisation of public consultations with NGOs and stakeholders.
🏛️ 3. Parliament’s Role: Legislative Volume vs Oversight Deficit
Kosovo’s Assembly has shown a flurry of legislative activity - passing over 160 new laws in just over two years - but its ability to oversee government action lags behind.
📜 Parliamentary committees, particularly those tied to EU integration, are overtasked and under-resourced. The legal framework guiding cooperation between Parliament and the Executive in EI affairs is also deemed insufficient.
🔄 Notably, strict separation of powers prohibits government members from holding parliamentary seats, limiting coordination.
"There’s a paradox," notes the review. "Strong formal separation, but administrative dependence on the government persists."
💡 Suggested reforms include:
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Enhancing committee functions
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Adjusting personnel status and autonomy
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Introducing new tools for oversight like extended written questions
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Creating a legal cooperation framework on EU-related legislation
🌍 European Integration: Systems in Place, But Not Yet Integrated
Kosovo’s progress toward EU integration has led to the creation of an intricate web of coordinating committees, councils, and negotiation teams.
The MEI plays a central role, yet the actual implementation of EI priorities is scattered between "new" and "old" planning systems (SAA vs EPAP structures), creating parallel silos instead of streamlined efficiency.
📈 As SAA negotiations proceed, there’s a call to unify these frameworks into a single, manageable structure to avoid institutional fatigue and redundancy.
"The EU planning process should merge into Kosovo’s domestic planning," the review advises.
🧮 Budgeting, Monitoring, and the Road Ahead
The SIGMA paper emphasizes that no strategy can work without realistic budgeting and measurable goals.
📊 Performance indicators are rarely used. Budgeting is still annual, with minimal linkage to strategic planning or sectoral priorities.
The paper recommends merging budget frameworks with strategic outcomes - a prerequisite for serious EU candidacy.
📌 Long-term reforms include:
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Introducing program budgeting
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Merging sectoral strategies with development plans
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Institutionalizing outcome-based reporting
🧩 The Bottom Line: A Delicate Architecture
Kosovo’s governance system is structurally ambitious - it mimics the European model closely.
But real power remains concentrated, communication between institutions is still inconsistent, and the administrative capacity to turn rules into results remains underdeveloped.
"Avoid large-scale restructuring," the report cautions. "Focus on strengthening what already exists."
In other words: build less, do more.
