Assessment on the Employment of Members of Non-Majority Communities with the Kosovo Civil Service and Publicly Owned Enterprises

Republika e Kosovës-Република Косовo-Republic of Kosovo Qeveria Bлада -Government Zyra e Kryeministrit / Канцеларија премијера / Office of Prime Minister Zyra për Çështje te Komuniteteve/ Канцеларија за питања заједница /Office for Community Affairs Assessment on the Employment of Members of Non-Majority Communities with the Kosovo Civil Service and Publicly Owned Enterprises July 2013

Agenda I. Background II. Methodology III. Main Findings IV. Active Measures V. Non-Majority Community Representation VI. Gender Balance VII. Position Level - Hierarchy VIII.Educational Level IX. Professional Experience X. Training XI. Challenges & Policy Recommendations

Background and Objective Background and legal framework Objectives of this assessment Project commissioned by UNDP and OPM/OCA Assessment to be presented to the Working Group on Minorities. ECMI and OSCE Reports provide baseline data for this study: First assessment conducted by ECMI in 2010 and report issued in 2013 by OSCE (based on MPA data). Legal framework for representation of minorities based on: 1) Civil Service Law: Article 11.3 of the Civil Service Law requires a minimum of 10% of civil servants at central level institutions to come from minority communities. 2) MPA Regulation No. 04/2010: Article 4.1.2 of Regulation No. 04/2010 on Procedures for the Fair and Proportional Representation of Communities not in the Majority in the Civil Service of Kosovo (secondary legislation to the Civil Service Law requires that minorities be represented in municipal institutions proportionally to the demographic composition of that municipality. The main objectives of this assessment are: 1) Assess the representation of non-majority communities in Kosovo s civil service and other public institutions, and 2) Assess the number of measures currently implemented by public institutions to actively recruit non-majority ethnic communities.

Agenda I. Background II. Methodology III. Main Findings IV. Non-Majority Community Representation V. Active Measures VI. Gender Balance VII. Position Level VIII.Educational Level IX. Professional Experience X. Training XI. Challenges & Policy Recommendations

Focus and Target of Assessment Focus Target The focus of this study is: 1) Representation of all officially-recognized non-majority communities in the civil service and other public institutions, and 2) Level of compliance of institutions with their positive obligations towards encouraging employment of non-majority communities. Total Institutions: 104 Government Institutions: 22 Representative Institutions: 3 Ministries: 19 Executive Agencies: 22 Independent Agencies : 21 Local Governments: 35 POEs: 4

Questionnaire Had Three Main Components I II III Non-majority community representation (quantitative) Active recruitment measures (quantitative) Satisfaction, challenges, and solutions (qualitative) Collected detailed data on the representation of minorities in public institutions. Representation broken down by: 1. Gender, 2. Position/hierarchy, 3. Education level, 4. Experience, and 5. Training received. Collected data on the number of active recruitment measures implemented and the number of job applications received from non-majority communities during 2012. Asked respondents to grade their level of satisfaction with nonmajority communities representation in public institutions. Collected qualitative data on the challenges that institutions face in recruiting non-majority communities, as well as suggested solutions to problems.

Main Sources of Information I II III IV NOVUS Survey (data collected April 13) MPA Statistics (Dec. 12) Census data (2011) ECMI survey (2010) and OSCE report (2013) 2013 assessment of non-majority communities

Representation Data Compared to Previous Surveys 10% Total percent of non-majority communities in public institutions 9% 8% 7% 6% 1,369 communities out of 17,814 civil serv. 1,572 communities out of 28,210 civil serv. 5% 4% 3% 7.7 % 5.6 % 7.3 % 7.3 % 2% 1% 0% Novus survey 2013 Novus survey 2013 (including POEs) ECMI (2010)

Most Communities Underrepresented in the Civil Service Percentage representation by ethnic group for all civil servants vs. data from MPA and 2011 census 7% 6% Novus survey (2013) MPA data (Dec. 2012) % census 2011 5% 4% 3% 2% 5.5% (973) 4.9% (904) 1% 0% 1.5% (31) (33) 1.4% (33) 1.2% 1.2% 0.2% (261) (16) (15) (21) (18) (37) (248) 0.2% 0.1% 0.1% 0.1% 0.1% 0.2% 0.2% (212) (213) Ashkali Bosniak Egyptian Gorani Roma Serb Turk NOTE: the percentage of representation of the Serb community in the population is estlimated at 5% since this community has boycotted the 2011 census.

Avg. number of Representation Representation of Non-Majority Communities Varies Across Institutions Government Institutions (1) Executive Agencies (2) Independent Agencies (3) POEs Local government 6.6 % 6.2 % 8.9 % 2.0 % 8.8 % 324 communities out of total 4,894 civil servants 230 communities out of total 3,712 civil servants 276 communities out of total 3,101 civil servants 203 communities out of total 10,396 civil servants 539 communities out of total 6,107 civil servants measures (4) 5.5 5.6 4.7 6.2 7.0 (1) Includes the Office of the Prime Minister, Office of the President, the Assembly of Kosovo and all government ministries. (2) Agencies reporting directly to the executive government. (3) Agencies reporting to the Assembly of Kosovo. (4) Out of 14 measures in total.

Only 5 Out of 22 Government Institutions Have Reached the 10% Quota MCR M.Dias. MLSW AoK O.Pres. -1.1% -1.7% -2.1% -2.9% -3.9% MLGA MEST MPA OPM MCYS MoI MESP MAFRD MIA MKSF MFA MH MED MoF MTI MoJ MEI Gap between the representation of non-majority communities in government institutions and the 10% threshold 33% 31.5% 28% 23% 18% 13% 8% 3% 1.4% 1.3% 0.7% 0.0% -2% -7% -4.9% -5.0% -5.0% -5.2% -12% -7.3% -7.4% -7.6% -7.9% -8.1% -8.4% -9.1% -10.0%

Only 4 Out of 20 Executive Agencies Have Reached the 10% Quota Mental Health Correctional Service Telemedicine Kosovo Police Food and Vet. Agency University of Prizren Central Procur. Agency Agency for Medical Prod. Statistical Agency Secret. of the Sec. Council Acad. for Public Safety Tax Administration Forestry Agency National Library Department of Treasury Customs University Clinical Cent. University of Pristina Pedagogic Institute Agency for Gender Eq. Gap between the representation of non-majority communities in executive agencies and the 10% threshold 4% 2% 2.5% 1.4% 1.1% 1.0% 0% -2% -4% -0.1% -0.5% -2.3% -6% -5.7% -6.0% -6.2% -6.4% -8% -10% -12% -6.8% -7.0% -8.0% -8.5% -8.6% -8.8% -10.0% -10.0% -10.0%

Only 6 Out of 21 Independent Agencies Have Reached the 10% Quota Constitutional Court Central Election Comm. Agency for Free Legal Aid Kosovo Judicial Council Chamber of Commerce Ombudsperson Privatisation Agency Property Agency Independent Media Comm. Prosecutorial Council Office of Auditor General Public Procur. Reg. Comm. Ind. Agency Mines & Min. Anti-Corruption Agency Central Bank Energy Regulatory Office Civil Aviation Reg. Office Telecom. Reg. Authority Acad. of Sciences & Arts Judicial Institute Railways Reg. Authority Gap between the representation of non-majority communities in independent agencies and the 10% threshold 8% 8.4% 4.3% 3.6% 3% 1.5% 0.0% 0.0% -2% -0.4% -1.4% -7% -3.3% -4.1% -5.5% -6.3% -6.9% -7.1% -7.3% -12% -10.0% -10.0% -10.0% -10.0% -10.0% -10.0%

Large Gap Between Representation in POEs and % of Communities in the Population Gap between the representation of non-majority communities in POEs and the 10% representation in the Kosovo population 4% 2% 0% -2% -4% -6.80% -8.40% -8.70% -9.20% -6% -8% -10% PTK KEK TrainKos KOSTT

Mamusa Ranilug Kamenica Obiliq/c Strpce O/Rahovec Gjilan/Gnjilane Partes Vushtrri/Vucit. Skenderaj/Srbica Pristina Viti/Vitina Mitrovica Lipjan/Lipljane Ferizaj/Uros. Fushe Kos./ Polje Hani i Elezit Istog/k Decan(e) Klina Podujeva(o) Suhareka Drenas/Gllogovac Junik Kacanik Malisheva Shtime/Stimlje Prizren Dragash Peja/Pec Gjakova/Djakov. Gracanica Novo Brdo Kllokot/Vrbovac Majority of Municipalities Comply with Local Threshold for Representation of Minorities Gap between the representation of non-majority communities in municipalities and the local threshold 18% 13% 8% 3% 15.8% 13.7% 13.1% 11.1% 8.3% 8.0% 7.2% 6.4% 5.7% 4.9% 3.8% 3.7% 3.0% 2.6% 2.5% 2.4% 2.1% 2.1% 1.1% 0.5% 0.2% 0.1% % of Serb community in census distorts data -2% -0.1% -0.1% -0.1% -0.1% -0.1% -0.9% -1.3% -7% -12% -3.6% -5.1% -6.8% -9.2% -17% -22% -19.1%

Most Communities are Underrepresented in Government Institutions 6% 5% Percentage of representation by ethnic group in government institutions vs. ethnic representation in total population % civil servants (2013) % population (1) Turk community slightly overrepresented 4% 3% 5.0% 2% 1% 0% 3.7% (182) 1.6% 1.2% 1.3% (3) 0.9% (2) (6) (5) 1.1% (57) 0.7% 0.1% 0.0% 0.1% 0.6% (65) (4) 0.1% 0.5% 0.1% 0.1% Ashkali Bosniak Egyptian Gorani Roma Serb Turk Others (1) Data from Kosovo Census (2011). NOTE: the percentage of representation of the Serb community in the population is estlimated at 5% since this community has boycotted the 2011 census. NOTE: Government institutions include: the Office of the Prime Minister, Office of the President, the Assembly of Kosovo and all government ministries.

Representation by Ethnic Group in Executive Agencies Percentage of representation by ethnic group in executive agencies vs. ethnic representation in total population 6% % civil servants (2013) % population (1) 5% 4% 3% 5.0% 2% 4.0% (150) 1% 0% 1.6% (0) 0.9% 0.9% (0) (6) (4) 0.9% 1.1% (3) 0.0% (34) 0.0% 0.7% 0.2% 0.6% 0.1% 0.5% (33) 0.1% 0.1% Ashkali Bosniak Egyptian Gorani Roma Serb Turk Others (1) Data from Kosovo Census (2011). (2) NOTE: the percentage of representation of the Serb community in the population is estlimated at 5% since this community has boycotted the 2011 census.

Representation by Ethnic Group in Independent Agencies Percentage of representation by ethnic group in independent agencies vs. ethnic representation in total population 6% 5% % civil servants (2013) % population (1) 4% 3% 2% 5.5% (171) 5.0% 1% 0% 1.5% 1.6% 0.9% 1.1% 1.1% (6) (1) (47) (3) (4) (10) 0.7% 0.2% 0.0% 0.1% 0.1% 0.6% 0.3% 0.5% (34) 0.1% Ashkali Bosniak Egyptian Gorani Roma Serb Turk Others (1) Data from Kosovo Census (2011). (2) NOTE: the percentage of representation of the Serb community in the population is estlimated at 5% because this community has boycotted the 2011 census.

All Non-Majority Communities Underrepresented in POEs Percentage of representation by ethnic group in POEs vs. ethnic representation in total population 6% 5% % employees (2013) % population (1) 4% 3% 2% 5.0% 1% 0% 1.6% (7) 0.9% (44) (0) (47) 1.1% (17) 0.7% (0) 0.8% 0.2% 0.1% 0.4% 0.0% 0.6% (3) 0.5% 0.5% 0.0% 0.1% 0.0% (85) Ashkali Bosniak Egyptian Gorani Roma Serb Turk Others (1) Data from Kosovo Census (2011). (2) NOTE: the percentage of representation of the Serb community in the population is estlimated at 5% because this community has boycotted the 2011 census.

Representation in Local Government Institutions by Ethnic Group Percentage of representation of non-majority communities by ethnic group in municipalities 6% 5% 4% 3% 2% 1% 0% 3.7% (470) 2.0% (80) 1.4% (27) (123) (11) (5) (18) 0.4% 0.2% 0.8% (85) 0.1% 0.3% Ashkali Bosniak Egyptian Gorani Roma Serb Turk Others (1) Data from Kosovo Census (2011). NOTE: Data presented above are not comparable with with the percentage representation of ethnic groups in the total population because data at the municipal level are collected only for non-majority communities at the local context, e.g. Serbs are not considered a non-majority community in Sterpce, Gracanica, etc.

Agenda I. Background II. Methodology III. Main Findings IV. Non-Majority Community Representation V. Active measures VI. Gender Balance VII. Position Level VIII.Educational Level IX. Professional Experience X. Training XI. Challenges & Policy Recommendations

Lower Level of Implementation for Select Active Recruitment Measures Average level of implementation of active recruitment measure by all institutions 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 89% 74% 60% 57% 56% 53% 47% 42% 34% 24% 21% 19% (1) (5) (4) (3) (2) (9) (8) (6) (12) (11) (13) (10) (7) (14) Vacancies published in all official languages If two equally strong candidates - select underrep. Efforts to id. & solicit application s from underrep. groups Training scheme for minority applicants Target comm. directly by distrib. vacancies Training for nonmajority employee s to adv. career Vocational training, incl. language courses Internship scheme for underrep. groups Workshops on nondiscrim. In-house training for nonmaj. empl. Joint recruit. strategies Mentoring for existing non-maj. employees 8% Sholarship program for underrep. groups 3% Applicant pool of qualified underrep. groups

Majority of Government Institutions Implement > 6 Measures Number of active measures implemented by government institution 14 # of measure implemented % non-maj. civil servants 45% 12 10 8 40% 35% 30% 25% 6 20% 4 2 10 9 9 7 7 7 7 6 6 6 6 6 5 5 5 5 3 3 3 3 2 15% 10% 5% 0 0%

Majority of Executive Agencies Implement > 6 Measures Number of active measures implemented by executive agencies 14 # of measure implemented % non-maj. civil servants 14% 12 12% 10 10% 8 8% 6 6% 4 2 0 10 10 9 9 8 8 7 6 6 6 6 5 4 4 3 3 3 2 2 0 4% 2% 0%

On Average Independent Agencies Implement Fewer Active Recruitment Measures Number of active measures implemented by independent agencies 14 12 10 # of measure implemented % non-maj. civil servants 20% 18% 16% 14% 8 6 12% 10% 8% 4 2 0 9 8 8 7 7 6 6 6 5 4 4 4 4 3 3 3 3 3 2 2 2 6% 4% 2% 0%

Majority of POEs Implement > 6 Active Recruitment Measures Number of active measures implemented by PEOs 14 # of measure implemented % non-maj. employees 10% 12 9% 8% 10 7% 8 6% 5% 6 4% 4 9 3% 2 6 6 4 2% 1% 0 KEK PTK KOSTT TrainKos 0%

Majority of Municipalities Implement > 6 Active Recruitment Measures Number of active measures implemented by municipalities 14 # of measure implemented % non-maj. civil servants 50% 12 12 11 11 11 40% 10 8 6 4 10 10 10 9 9 9 9 8 8 8 8 8 7 7 7 7 7 7 6 6 5 5 5 5 4 4 4 3 30% 20% 10% 2 2 1 1 0% 0-10%

% of female nonmajority civil servants % of all female civil servants Female Non-Majority Members Adequately Represented in the Civil Service and POEs Government Institutions (1) Executive Agencies (2) Independent Agencies (3) POEs Local government 54 % 57 % 51 % 23 % 28 % 174 women out of total 324 minority civil servants 130 women out of total 230 minority civil servants 142 women out of total 276 minority civil servants 46 women out of total 203 minority civil servants 149 women out of total 539 minority civil servants 39 % n/a n/a 40 % (4) 25 % (1) Includes the Office of the Prime Minister, Office of the President, the Assembly of Kosovo and all government ministries. (2) Agencies reporting directly to the executive government. (3) Agencies reporting to the Assembly of Kosovo. (4) Legal required quota.

Majority of Non-Majority Civil Servants Hold Administrative Positions Managerial Professional Administrative Government institutions No representation of RAE communities at managerial level (37) 12% 46% (149) 42% (135) Executive Agencies No representation of RAE communities at managerial level (7) 7% 61% (60) (31) 32% Independent agencies No representation of RAE communities at managerial level (15) (73) 6% 27% 68% (186) POEs Low representation of non-majority communities in managerial level (2) 1% 63% (128) (74) 36% Municipalities RAE present in managerial positions in municipalities (53) 10% 43% 48% (227) (253)

Education Reflects the (low) Hierarchical Level of Non- Majority Civil Servants Government institutions 25% 54% 9% (1) Superior Associate Secondary Primary 4% 64% 40% 6% 2% Executive Agencies 17% 10% 65% 8% Independent agencies 27% 41% 2% 3% 64% 49% 5% 8% 78% POEs 8% 6% 7% n/a n/a n/a n/a 64% Municipalities 18% 41% 36% 8% 16% 6% 7% (1) Associate level is equivalent to two years of specialized professional education following the secondary school. NOTE: data for executie agencies are aggregated with ministries for education level.

Experience of Non-Majority Civil Servants 1-3 months 6 mo. 1 yr. 2-4 years > 5 years Government institutions (0) (10) (37) 0% 3% 11% 86% (278) Executive agencies (0) (3) (24) 0% 4% 30% 67% (54) Independent agencies (3) (7) (16) 1% 3% 6% 91% (250) POEs (1) (5) 1% 3% (36) 18% 79% (161) Municipalities (3) (14) (127) 1% 3% 22% 75% (423)

Number of week of training per civil servant Number of institutions that provided 0 weeks Average Number of Weeks of Training Provided to Non-Majority Civil Servants Government Institutions (1) Executive Agencies (2) Independent Agencies (3) POEs Local government 1.5 weeks 3.5 weeks 2.7 weeks 5.2 weeks 6.7 weeks 6 out of 22 institutions 6 out of 22 institutions 8 out of 21 institutions 1 out of 5 4 out of 35 institutions institutions (1) Includes the Office of the Prime Minister, Office of the President, the Assembly of Kosovo and all government ministries. (2) Agencies reporting directly to the executive government. (3) Agencies reporting to the Assembly of Kosovo.

None of the Institutions Have Specific Training Programs for Minority Civ. Servants Does your institution have any specific training program for minority civil servants/employees? On average, most non-majority civil servants received training on job-specific topics and administration and finance In what of the following areas have minority civil servants/employees received training in the past 3 years? No, only same trainings as for all civil serv. 93% Job-specific training 56% No, institution has no training programs at all 7% Admin and finance Official languages 26% 40% Yes 0% Management skills 22%

Institutions Perceive Inadequate Applicants Capacities and Lack of Interest as Main Challenges What are the main challenges in meeting the legal representation quota for non-majority communities for your institution (select three key challenges)? 50% 45% 40% 35% 30% 25% 20% 39% 38% 15% 10% 5% 0% Inadequate min. comm. education, experience etc. Lack of interest by min. comm. for employment 9% Obstacles/pressures from parallel institutions 5% Obstacles in communication 3% Lack of opportunities to reach out to min. comm.

Policy Recommendations 1) Develop mechanisms to enforce the implementation of ARMs 2) Develop tailored ARMs 3) Reach-out to minorities more systematically, create roster 4) Establish non-majority community targeted internship and training programs, and general non-discrimination training 5) Target specifically Roma, Ashkali, Egyptian, Gorani communities

Policy Recommendations 6) Focus on improving representation in institutions with direct contact with citizens 7) Improve central- and local-level collaboration 8) Distinguish under-represented from non-majority communities 9) Address gender balance generally, and especially for Roma, Ashkali, and Egyptian communities 10) Devise punitive measures for institutions that perform poorly in hiring non-majority communities