What is the role of external donor assistance in Serbian security sector reform (SSR)? How can such assistance be improved? This paper examines defence and police reform in Serbia and finds that the country is still stuck in the ‘first phase’ of the SSR process. A lack of direction and lack of capacity have affected both domestic Serbian and international reform efforts. Donors should adopt a more focused and strategic approach that considers local ownership.
The challenge for Serbia is immense as it is simultaneously undergoing four major transitions: post-communist/authoritarian reform, economic transition, post-conflict recovery and EU integration efforts. In addition, the unresolved debate over the independence of Kosovo has complicated relations within the region and the ‘West’.
The coordination and harmonisation of reform programmes in Serbia has proved difficult for two main reasons: the negative attitude held by various levels of the Serbian SSR field towards foreign assistance; and the reduced international focus on Serbia as new security priorities emerge elsewhere.
In terms of SSR, donor interest was greatest in the areas of defence and police reform. However, reforms in Serbia from 2000 to 2010 were mainly cosmetic and implemented in a non-systematic way.
- The non-intervention of the army and police in the fall of Milosevic was bought with the promise of a ‘soft’ approach to SSR by the new regime.
- There was no substantial parliamentary or democratic oversight once the new President, Kostunica, adopted Milosevic’s approach to the loosely defined laws regulating the command of the Yugoslav army.
- The international assistance provided in police reform – such as the Council of Europe recommendations – were project based and not focused on sustainability or local ownership.
- Following Kosovan independence, Serbia’s relations with NATO became strained.
- Many organisational units within Serbian ministries were set up, but they lacked the capacity and political backing to address the real issues.
- Most coordination efforts have been externally driven – such as the Serbia-NATO Defence Reform Group – and have often been stopped or have become less ambitious in scope.
Renewed effort will be required to help Serbia move into the second stage of SSR reform. Enhanced service delivery, governance and accountability should guide donor strategies.
- Donors must ensure a strategic approach that emphasises programme-based rather than project-based approaches and be more consistent in their policy objectives.
- Donors should invest in adequate personnel, with governance experience, to enable a cross-governmental SSR effort in Serbia.
- Formal coordination led by Serbia will ultimately enforce higher levels of harmonisation, contributing to better implementation and value for money. This should not preclude the donor community from initiating its own coordination effort.
- Restarting Serbia’s NATO integration efforts would be the most visible and concrete way to kick-start reforms. This requires a more coordinated and strategic approach by
- Donors need to put more effort into assisting in building the capacity of Serbian parliamentarians.
