By PEN Strategy Consulting Group
The pathway to European Union accession is paved with legal, economic, and institutional reforms. Among these, Public Administration Reform (PAR) is a pillar of Kosovo’s efforts to modernize the state, enhance democratic governance, and create a professional and accountable public sector. The Public Administration Reform Strategy 2022–2027 (SRAP) represents not only a strategic response to internal administrative challenges but also a key element of Kosovo’s EU integration roadmap.
This strategy is grounded in a vision of a citizen-centered, efficient, and EU-compliant public administration, capable of implementing the acquis communautaire, managing public services transparently, and fostering public trust. It aligns closely with national objectives laid out in the Kosovo National Development Plan 2030 (PKZH 2030) and complements broader regional frameworks such as the EU Enlargement Agenda and the Western Balkans Growth Plan.
I. Why Public Administration Reform Matters in the Context of EU Enlargement
Kosovo, like other aspiring EU candidates, is expected to meet the Copenhagen criteria—particularly the requirement for a stable and functioning institutional framework that guarantees democracy, rule of law, human rights, and respect for and protection of minorities. While legal harmonization is essential, implementation capacity is equally critical. This is where public administration plays an indispensable role.
European Commission reports and OECD/SIGMA assessments have consistently emphasized that a well-functioning public administration is both a precondition and an enabler of successful accession. From managing EU funds to executing complex regulatory alignment, Kosovo’s ability to “act as a state” hinges on having professional civil servants, coherent institutions, and clear lines of accountability.
The SRAP 2022–2027 is Kosovo’s formal response to these expectations. It aims to systematically address structural weaknesses, improve institutional performance, and align Kosovo’s public sector with European public administration principles.
II. Four Reform Pillars: Foundations for a Modern European State
The SRAP framework revolves around four strategic pillars, each of which addresses a key element of governance reform. These pillars correspond directly with EU recommendations and SIGMA’s principles of public administration.
1. Policy Planning and Coordination: Toward Results-Oriented Governance
Kosovo has historically struggled with fragmented policymaking, weak implementation monitoring, and limited links between planning and budgeting. SRAP seeks to correct this by:
- Establishing integrated policy and financial planning systems
- Enhancing the role of the Prime Minister’s Office in strategic coordination
- Aligning institutional goals with national development priorities and EU obligations
- Improving regulatory impact assessments and evidence-based decision-making
These reforms are designed to foster policy coherence and better resource utilization—vital preconditions for absorbing EU funds and aligning with the EU acquis.
2. Service Delivery: A Shift from Bureaucracy to Citizen-Centered Administration
One of SRAP’s most transformative elements is its emphasis on high-quality public services that are transparent, efficient, and accessible. Key actions include:
- Simplifying procedures and cutting red tape through the Administrative Burden Reduction Programme (2022–2027)
- Expanding e-services and integrating administrative data through platforms like e-Kosova
- Establishing multifunctional service centers for citizens
- Harmonizing sectoral laws with the Law on General Administrative Procedures
The ambition is clear: to shift the public administration culture from rigid rule-following to responsive service provision, where citizens and businesses are treated with dignity and efficiency.
3. Professional and Merit-Based Civil Service: Building Human Capital for Europe
A modern civil service is essential for implementing reforms and delivering policies. Kosovo’s civil service still faces challenges including politicization, inconsistent performance management, and gaps in mobility and training.
SRAP’s commitments here include:
- Full implementation of the Law on Public Officials (LZP) and merit-based recruitment
- Operationalizing the HRMIS system (SIMBNJ) for workforce planning and performance tracking
- Reforming the public sector wage system to ensure fairness and sustainability
- Strengthening civil servant training programs and establishing a performance-based promotion system
By fostering a professional, impartial, and competent civil service, Kosovo strengthens the core engine that drives reform and EU convergence.
4. Transparency and Accountability: Restoring Public Trust in Institutions
Kosovo’s public administration has often been perceived as opaque and unresponsive. SRAP targets these shortcomings by:
- Enhancing access to information through strengthened oversight by the Agency for Information and Privacy
- Promoting open data and proactive transparency initiatives
- Empowering independent institutions like the Ombudsperson and National Audit Office
- Introducing a comprehensive performance management system across ministries and agencies
These reforms are intended not just to increase formal accountability, but also to build public trust in a government that acts ethically and delivers on its promises.
III. Implementation Mechanism: Strategic, Multi-Level Governance
SRAP’s governance framework is as important as its content. It is managed across three levels:
- Political leadership via the Council of Ministers for Public Administration Reform (KMRAP)
- Administrative coordination by the Department for Public Administration Reform (DRAP) within the Ministry of Internal Affairs
- Thematic working groups to guide technical implementation and inter-ministerial cooperation
The inclusion of structured monitoring, evaluation, and reporting mechanisms ensures that reforms are tracked, bottlenecks identified, and course corrections made. The strategy is complemented by a two-year Action Plan (2022–2024), which will be updated for 2025–2027 based on mid-term reviews.
IV. Interlinkages with EU Instruments and National Agendas
SRAP is not a standalone document. It is tightly interwoven with:
- The Kosovo National Development Plan (PKZH 2030): SRAP’s objectives are directly transposed from the PKZH’s Good Governance pillar
- The EU Reform and Growth Facility (RGF): SRAP contributes to fulfilling governance-related reform benchmarks
- The Economic Reform Programme (ERP): SRAP supports ERP measures on public administration efficiency
- The IPA III Framework: Successful implementation of SRAP improves Kosovo’s eligibility and absorption capacity for EU assistance
This strategic coherence enables Kosovo to mobilize donor funding, align reform trajectories, and track performance across interconnected national strategies.
V. Lessons Learned and Future Challenges
The previous reform cycle (2015–2021) revealed both achievements and systemic weaknesses. Notably:
- Only 54% of planned measures were fully implemented
- Legal reforms lacked adequate follow-up enforcement
- Donor support was fragmented
- Inter-institutional coordination was weak
SRAP 2022–2027 addresses these challenges by streamlining the reform architecture, institutionalizing monitoring, and enhancing communication—both internally and with citizens. However, implementation risks remain, including political turnover, limited administrative capacity, and uneven buy-in from line ministries.
Ensuring long-term reform success will depend on several enabling factors:
- Strong political ownership and leadership across electoral cycles
- Increased staffing and capacity at DRAP and related units
- Functional digital infrastructure for data sharing and service delivery
- Sustained engagement of civil society and the business community
VI. Conclusion: SRAP as a Catalyst for a European-Ready State
Kosovo’s Public Administration Reform Strategy 2022–2027 is more than an internal management tool. It is a blueprint for state-building in the context of European integration. By investing in institutions that are transparent, responsive, and citizen-focused, Kosovo is taking a concrete step toward meeting EU standards, qualifying for further assistance, and increasing public trust in governance.
Ultimately, SRAP is a statement of Kosovo’s readiness—not only to reform but to govern with integrity, professionalism, and purpose. As Kosovo moves toward EU candidacy and eventual membership, the public administration must become a facilitator, not a barrier, to integration. With SRAP, that transformation is not only possible—it is underway.
PEN Strategy Consulting Group
Partnering for policy, performance, and European progress in Kosovo.
