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Law No. 04/L-216
ON COOPERATION BETWEEN AUTHORITIES INVOLVED ON INTEGRATED BORDER MANAGEMENT
Assembly of Republic of Kosovo,
Based on Article 65 (1) of Constitution of the Republic of Kosovo, Approves
LAW ON COOPERATION BETWEEN AUTHORITIES INVOLVED ON INTEGRATED BORDER MANAGEMENT
The purpose of this Law is to regulate cooperation between all authorities involved in the Integrated Border Management and to implement the joint strategies of such authorities so that the tasks laid down for these authorities and individual measures that are connected with the prevention, detection and investigation of criminal illegal activities, control and monitoring and related international cooperation are carried out in an appropriate, efficient and effective manner.
Provisions of this Law are applicable for all authorities involved in the Integrated Border Management, as long as the tasks, responsibilities and their status is not regulated with other legal provisions.
1. Terms used in this Law shall have the following meaning:
1.1. Integrated Border Management (IBM) - the national and international coordination and cooperation between all authorities involved in border security and facilitation of trade, with an intention to establish effective and efficient border management system, coordinated with an aim to have open, but controlled and secure borders.
1.1.1. IBM consists of the following dimensions:
18.104.22.168. Border control (checks and surveillance) as defined in the Schengen Borders Code, including relevant risk analysis and crime intelligence;
22.214.171.124. Detection and investigation of cross border crime in coordination with all authorities involved in the IBM;
126.96.36.199. The four-tier access control model (measures in third countries, cooperation with neighboring countries, border control, control measures within the area of free movement, including return);
188.8.131.52. Inter-agency cooperation for IBM and international cooperation;
184.108.40.206. Coordination and coherence of the activities of Member States and Institutions and other bodies of the European Union.
1.1.2. National cooperation shall be:
220.127.116.11. Intra-agency cooperation at national and local levels among different authorities or units within one ministry;
18.104.22.168. Inter-agency cooperation between all authorities involved in the IBM and control of the state border.
1.1.3. International cooperation includes the cooperation with neighboring and third countries as well as other international organizations and mechanisms at multilateral and bilateral level.
1.2. Public authorities involved in the IBM (hereinafter: authorities involved in IBM) include the following authorities: Kosovo Police, Kosovo Customs and Food and Veterinary Agency. The other authorities involved in the IBM shall be specified in Article 8 of this Law;
1.2.3. Office of the National Coordinator for IBM - the office responsible for coordination and monitoring of cooperation between the authorities involved in IBM;
1.2.4. IBM Executive Board – coordinating and monitoring authority of the authorities involved in IBM;
1.1.5. National Centre for Border Management - the Centre established pursuant to the Law for State Border Control, with the intention to achieve effective coordination, facilitation of exchange of information and data and greater efficiency of the system for IBM;
1.1.6. Risk analysis – systematic use of information available to determine how often risk could appear and what are the dimensions and consequences;
1.1.7. Risk assessment – systematic setting of risk management priorities, by assessing and comparing risk levels after setting standards, leveling the risks and other criteria;
1.1.8. Risk profile - a determined combination of risk indicators, based on collected, analyzed and categorized information;
1.1.9. Risk management - systematic identification of the risk and implementation of all measures to restrict exposal to risk. This includes activities such as: collecting of data and information, risk analysis and assessment, determining, undertaking and regular monitoring of actions and reviewing the process based on sources and International Strategy;
1.1.10. State Border – the line which separates the territory by land, water, underground, the airspace of the Republic of Kosovo with neighboring countries, as well as the state border in the area of the border crossing points at airports, through which interstate and International traffic is carried, as specified in the Law on State Border Control;
1.1.11. Border crossing points - places designated by the competent state authorities for state border crossing, on the road traffic, rail, air, as specified in the Law on State Border Control;
1.1.12. Border Control – the activity carried out at a border, in accordance with and for the purposes of this Law, in response exclusively to an intention to cross or the act of crossing that border, regardless of any other consideration, consisting of border checks and border surveillance, as specified in the Law on State Border Control;
1.1.13. Border Surveillance – surveillance of border between crossing points and surveillance of border crossing points outside the specified working hours in order to prevent avoidance, respectively avoidance of the border check, as specified in the Law on State Border Control;
1.14. Border check - the check performed at border crossing points to ensure that persons, goods and means of transportation are authorized to enter the territory of the Republic Kosovo or leave the Republic of Kosovo, as specified in the Law on State Border Control.
Guiding Principles while performing IBM Activities
1. While performing IBM activities, the authorities involved in IBM shall base their activities on the principles mentioned below:
1.1. The principle of constitutionality and legality - activities carried out to prevent and fight all forms of crime and illegal acts at the border, trans-border and beyond shall be based on provisions prescribed in the Constitution of the Republic of Kosovo, legislation in power, international agreements and EU standards.
1.2. The principle of human rights and freedoms - this principle provides guaranteeing freedoms and rights to all individuals, during all stages of institutional engagement in preventing and fighting all forms of crime and illegal acts at the border, trans-border and beyond.
1.3. The principle of security – this principle indicates guaranteeing the right for security and protection for all citizens by preventing and reducing all forms of crime and illegal acts at the border, trans-border and beyond.
1.4. The principle of priority – prevention and fighting crime and illegal acts at the border, trans-border and beyond is a priority for institutions and agencies of Republic of Kosovo. Overall commitment to seriously deal with these problems is a crucial element.
1.5. The principle of professionalism – prevention and fighting crime and illegal acts at the border, trans-border and beyond, requires good experts, exchange of experiences, appropriate tools, best practices. This means combination of training, education and professional development for institutions and agencies of Republic of Kosovo and ensuring recruitment of best quality specialists only.
1.6. The principle of continuity - all foreseen activities must be considered as part of an ongoing strategy. This is particularly important due to the existence of administrative procedural time limitations and due to the various initiatives/activities, it is necessary to link actions which will endure for many years.
1.7. The principle of reliability - institutions and agencies responsible to prevent and fight crime and illegal acts should make sure to build trust and preserve integrity and prevent misuse of investigations, data and information from those who have access to them.
1.8. The principle of proportionality – means exercise of the authority of institutions and agencies involved in preventing and fighting crime and illegal acts, only to the extend required to attain legitimate objectives, by appropriate means and methods and in the shortest time possible.
AUTHORITIES INVOLVED IN IBM
Kosovo Police – Border Police, Kosovo Customs and Food and Veterinary Agency
1. Border Police, as a part of Police of Republic of Kosovo (hereinafter: Border Police) is responsible for state border checks and surveillance pursuant to duties and responsibilities assigned by Law on Police, Law on State Border Control and other legal acts of Republic of Kosovo.
2. The Republic of Kosovo Customs (hereinafter Customs), is responsible for the implementation of the Customs and Excise Code, sub legal acts for its implementation and other legal acts of the Republic of Kosovo. Customs provides protection of the interests of the Republic of Kosovo, related to imports, exports and transits of goods, regardless the mode of transport, concerning the international shipments, border crossing and the free movement of goods, people and their luggage. The Customs shall perform other matters assigned to the Customs by the Government of the Republic of Kosovo.
3. Food and Veterinary Agency (hereafter: FVA) is responsible for controls related to food safety, including animal feed, animal health, animal care and quality of food products of plant and animal origin. FVA performs other duties and responsibilities as foreseen in the Law on Food, Veterinary Law, Law on Plant Protection and other legal acts of Republic of Kosovo.
4. While performing their duties, authorities involved in IBM shall cooperate and coordinate their activities related to IBM. Cooperation set out in this paragraph is achieved through IBM Executive Board and other bodies established by this Board.
5. Cooperation and coordination set out in paragraph 4 of this Article expands to all organizational levels of authorities involved in IBM, including central and local levels.
6. Authorities involved in IBM, shall assign officers responsible for all levels of cooperation and coordination set out in paragraph 4 of this Article.
7. While performing their duties, authorities involved in IBM shall cooperate with foreign agencies, including authorities responsible for border checks and surveillance in neighboring states of the Republic of Kosovo, other states and other international mechanisms that within their scope cover issues related to IBM.
8. Coordination set out in paragraph 7 of this Article shall be conducted pursuant to legislation if force which regulates fields and responsibilities of authorities involved in IBM.
9. In cases of cooperation set out in paragraph 7 of this Article, authorities involved in IBM shall inform other authorities involved in IBM about the nature and scope of cooperation. Authorities involved in IBM shall also inform IBM Executive Board.
Other Authorities Involved in IBM
1. Besides authorities mentioned in article 5 of this Law, the following authorities are included in IBM:
1.1.1. Ministry of Internal Affairs;
1.1.2. Ministry of Finance;
1.1.3. Ministry of Infrastructure;
1.1.4. Ministry of Health;
1.1.5. Ministry of Environment and Spatial Planning;
1.1.6. Ministry of Public Administration;
1.1.7. Ministry of Agriculture, Forestry and Rural Development;
1.8. Ministry of Foreign Affairs;
1.1.9. Ministry of Kosovo Security Forces.
2. Authorities from paragraph 1 of this Article shall mainly offer support services to the authorities involved in the IBM mentioned in Article 5 of this Law, however in specific cases they may be involved in primary and operational functions related to the IBM issues. Authorities from paragraph 1 of this article shall perform their duties and responsibilities in accordance with the Law on State Border Control and other legal acts of the Republic of Kosovo.
3. Duties and involvement of authorities in primary and operational functions in IBM issues, for certain cases, shall be set through a request to the IBM National Coordinator, addressed to authorities involved in the IBM and also with request of the authorities involved in the IBM addressed to the IBM National Coordinator and approval by the latter.
4. Beside authorities set out in paragraph 1 of this Article, other ministries and bodies of Republic of Kosovo shall be involved when their involvement is necessary to manage specific situations and in other cases when this is considered necessary by the IBM National Coordinator.
1. Intra-authorities cooperation for each of the authorities involved in the IBM, if required, shall be performed at all levels, at the central and local level.
2. Cooperation set out in paragraph 1 of this Article, if needed, shall also be performed between different departments and, units within each authority involved in IBM in different regional units and different local units.
3. Authorities involved in IBM, within their competency, shall approve necessary regulations and instructions, with the aim to perform IBM activities as envisaged in this law.
COOPERATION BETWEEN AGENCIES
Coordination and Monitoring of Cooperation between authorities involved in IBM
1. The Office of the National Coordinator for IBM (hereinafter: the IBM National Coordinator) shall be responsible for coordination and monitoring of cooperation between authorities involved in IBM.
2. IBM National Coordinator shall be appointed by the Prime Minister, with a proposal by the Minister of Internal Affairs.
3. IBM National Coordinator, inter alia, is responsible to:
3.1. identify advantages in the field of IBM;
3.2. provide sufficient financial resources – from the Kosovo Budget and foreign funds – for implementation of the reforms within IBM;
3.3. approve official documents in regard to IBM;
3.4. monitor the implementation of the IBM Strategy and the Action Plan;
3.5. coordinate IBM Strategy actions with neighboring countries and monitor the implementation of activities linked to international cooperation in the field of IBM coordination and cooperation with other high level coordinating bodies in the region;
3.6. monitor the work of the IBM Executive Board.
4. In fulfilling his duties and responsibilities, the IBM National Coordinator is supported by the IBM Secretariat, which is responsible for observing activities of the authorities involved in IBM and informing the IBM National Coordinator on such activities.
5. Authority involved in IBM delivers reports to the IBM Secretariat regarding their activities in the field of IBM and implementation of the IBM Strategy and Action Plan. The IBM National Coordinator establishes reporting periods and methods through a special decision. In accordance to reports and information regarding IBM, the IBM Secretariat shall draft analytical reports and make proposals to the IBM National Coordinator on certain issues.
6. The IBM National Coordinator approves Standard Operating Procedures governing cooperation and coordination of inter-agency activities and authorities involved in IBM.
IBM Executive Board
1. Integrated Border Management Executive Board (hereinafter: the IBM Executive Board) functions for the purpose of coordination and cooperation between authorities involved in IBM.
2. The IBM Executive Board consists of the IBM National Coordinator, Border Police Department Director, Kosovo Customs Director General and the Executive Chief of Kosovo Food and Veterinary Agency. Upon invitation of the IBM National Coordinator, other representatives of agencies and other bodies of Republic of Kosovo, international organizations or representatives from neighboring countries and other countries may attend the IBM Executive Board meetings.
3. Board meetings shall be convened and chaired by the IBM National Coordinator or his designated person.
4. IBM Executive Board shall be responsible and take decisions on issues dealing with:
4.1. initiation and coordination of necessary reforms to ensure those administrative, institutional and legislative terms are in place for the implementation of IBM;
4.2. implementation of IBM Strategy and Action Plan, according to the IBM pillars;
4.3. recommendations on improvement of cooperation and coordination between authorities;
4.4. regular update of the IBM Strategy and Action Plan;
4.5. cooperation with all state administration bodies and other local and international regional bodies in matters related to IBM;
4.6. providing assistance for state administration bodies on IBM issues, including coordination of activities or special projects;
4.7. review of the IBM Strategy and Action Plan;
4.8. establishing and coordinating of work sub-groups for the implementation of the Action Plan;
4.9. provision of suggestions for resolution of matters of dispute between the authorities involved in IBM and legal persons involved in border traffic.
5. The IBM executive board during its work shall be supported by the secretariat for IBM as it is set forth in Article 8 paragraphs 4 and 5 of this Law. The secretariat for IBM provides technical support and compiles reports for implementation of the IBM policies.
National Centre for Border Management
1. The purpose of the National Centre for Border Management is to achieve effective coordination, facilitation of exchange of information and data and greater efficiency of the system for IBM, pursuant to the Law for State Border Control.
2. The Centre shall be located at the Ministry of Internal Affairs and it shall be composed of Border Police, Kosovo Customs and Food and Veterinary Agency officers and representatives from other authorities of the Republic of Kosovo when necessary.
3. Border Police, Kosovo Customs and Food and Veterinary Agency officers shall be present in the Centre twenty-four (24) hours a day, seven (7) days a week. Representatives of other authorities shall be present when necessary and on regular basis (full time schedule) based on the preliminary approval of the IBM Executive Board.
4. Joint Intelligence and risk analysis unit, inter alia, operates within the centre.
5. Centre duties and responsibilities shall be regulated through a special sublegal act adopted by the Government of the Republic of Kosovo, as provided for with the Law on State Border Control and Standard Operating Procedures adopted by the IBM National Coordinator
Cooperation between authorities involved in IBM in local level
1. With the purpose of efficient cooperation a coordination of the authorities, authorities involved in IBM, particularly Kosovo Police, Kosovo Customs and Food and Veterinary Agency will establish mechanisms for cooperation in local level.
2 Cooperation from paragraph 1 of this Article will be conducted via regular meetings of the higher officials of the authorities involved in IBM, responsible for Border Crossing Points.
3. Except officials from paragraph 2 of this Article, the regular meetings will also be attended by other officials responsible for specific areas at the border crossing points, including shift leaders, officials for risk analysis and other officials depending on daily requirements.
4. Meetings from paragraph 1 of this Article will at the same time function as local boards for cooperation between authorities involved in IBM and they will take decisions that are related to the effective and efficient functioning of the border crossing point.
5. In addition, the cooperation from paragraph 1 of this Article will be focused on:
5.1. exchange of operational information that are related to border security issues;
5.2. planning of joint operations and joint checks;5.3. identification of joint requirements for equipment, trainings, improvement in infrastructure, etc;
5.4. other issues related to improving and facilitating border check when this is necessary.
Agreements between authorities1. Agreements between authorities shall be signed by the representatives of two or more authorities involved in the IBM at every level, defining in details the ways of cooperation to be performed. Agreements between authorities shall refer in particular to the following fields, but are not limited only to them:
1.1.1. information and data exchange obligations, collection and processing of data, use in the prescribed manner of different databases, access to data sharing and data transfer procedures.
1.2. joint risk analysis
1.3. exchange of risk analysis and intelligence reports at every level and harmonization of risk analysis systems;
1.1.4. daily cooperation procedures at border crossing points, along the borderline and inland;
1.1.5. joint training activities;
1.1.6. joint sharing and use of equipment;
1.1.7. joint criminal intelligence and investigation.
2. Agreements between authorities mentioned in paragraph 1 of this Article shall be, when required, complemented with precise instructions to the staff of the authorities involved in IBM on their implementation.
COORDINATION AND COOPERATION BETWEEN THE AUTHORITIES INVOLVED IN IBM IN THE FIELDS OF SPECIAL INTEREST
Cooperation in combating cross border crime
1. Authority involved in the IBM may, on request, carry out a measure relating to the combating of crime on behalf of another such authority in the area of responsibility of the authority in question, using the powers that it may use in its own crime-combating tasks in its area of responsibility.
2. Authority involved in the IBM mentioned in paragraph 1 of this Article, may carry out an urgent measure relating to a crime-combating task referred to in paragraph 1 of this Article, using the powers referred to in paragraph 1 of this Article even without a request if the measure cannot be postponed. This authority in whose area of responsibility the measure in question is to be carried out shall be notified of the measure without undue delay. The measure shall be withdrawn if the authority on whose behalf the measure is to be carried out so requests or assumes the task.
3. If the authority involved in the IBM mentioned in paragraph 1 of this Article does not take the measure referred to in paragraph 2 of this Article, it shall, without undue delay, notify the authority within whose area of responsibility the measure falls of the matter that has come to its attention, if the notification is important to prevent a criminal activity or initiate an investigation for such criminal activity or if it is necessary for other specific reasons of similar nature.
4. Authority involved in the IBM mentioned in paragraph 1 of this Article shall, without undue delay, make a notification for that criminal activity that has come to its attention and the measures undertaken relating to the authority within whose area of responsibility the matter also falls, by making an entry of the crime into a data file that shall be sent to the relevant authority.
5. The measures relating to the criminal activity referred to in paragraph 4 of this Article are allowed on a case by-case basis so that cooperation will, from the point of view of criminal liability, produce the most appropriate outcome and is carried out in a manner that takes into account the main tasks and operational preparedness of each authority. Provisions on the decision-making procedure shall be issued by a sub-legal act issued by the Government of Kosovo.
Exchange of Data and Information between the Authorities Involved in IBM
1. Authorities involved in IBM, in discharging their tasks and joint activities shall exchange data and information for which official records are kept.
2. Exchange of data and information can also be done by interfacing information systems, direct or indirect access to databases.
3. Authorities involved in IBM shall ensure effective protection of exchanged data and information, especially personal data, with the purpose of preventing unauthorized access, change, or publication of personal data, pursuant to laws in force, provisions and specific rules regulating the field of data protection. Personal data protection shall be done pursuant to the Law on Personal Data Protection and the Law on State Border Control.
4. The IBM National Coordinator shall adopt the Standard Operating Procedure for data and information exchange pursuant to paragraph 1 of this Article.
Joint Risk and Threats Analysis
1. Authorities involved in IBM shall, in prescribed period, prepare a Joint Risk and Threats Analysis that shall be the basis for IBM and better planning for conducting joint activities.
2. Officials of the authorities involved in IBM, responsible for Risk and Threats Analysis, as set forth under paragraph 4 of Article 10 of this Law, will utilize capacities of the Center in order to draft Joint Risk and Threats Analysis. The tasks of these officials, inter alia, are to collect, evaluate, analyze, compare and harmonize data and information between all authorities involved in IBM.
3. Risk and Threats Analysis, mentioned in paragraph 1 of this Article, shall be made based on analytical and statistical indicators for a set period of time, and on the data and information, referred to in paragraph 2 of this Article, for the purpose of border control, border security, protection of human life and health, prevention and detection of crimes and violations, and measures undertaken and results achieved in their implementation.
4. The IBM National Coordinator shall adopt the Standard Operating Procedure for Joint Risk and Threats Analysis, pursuant to paragraph 1 of this Article.
Joint Operations and Actions
Authorities involved in the IBM, based on the Risk and Threats Analysis, as well as operational needs, with the purpose of joint activities and rational use of existing human and technical resources, plan and conduct joint operations, actions, for the purpose of preventing and detecting activities through which state border is endangered, customs monitoring, and human, plants and animal health.
Joint intelligence and investigation teams
1. Authorities involved in IBM may establish a joint intelligence and investigation team for the purposes of preventing, detecting or investigating criminal activities. A joint intelligence and investigation team may be established by the authorities that are wholly or partially responsible for dealing with the criminal case in question.
2. The decision on the establishment of and participation in the joint intelligence and investigation team shall be made by the authorities taking part in the work of the team. The decisions on the team leader, and acts on which intelligence is to be gathered and which are to be investigated shall be made during the establishing of the team.
3. In the joint intelligence and investigation team, a representative of an authority has the right to participate in the carrying out of intelligence and investigation measures that he is authorized to carry out within his own area of responsibility in combating illegal activities coming under the responsibility of the authority in question and which are required as part of joint intelligence gathering or the prevention, detection and investigation of the activities concerned and on which the team leader has made a decision under his powers. The representative of the authority participates in the carrying out of the measures under the command and necessary supervision of the team leader.
Technical and Professional Assistance
1. With the purpose to enhance efficiency, operationalize and rationalize performing of their duties and activities of joint interest, as well as joint actions in other fields of cooperation, authorities involved in the IBM, mutually offer their specific expertise and technical assistance.
2. Unless it is not foreseen differently within this Law and other legislation in force, the authority involved in the IBM is obliged to temporarily make available to another authority equipment, facilities, personnel resources or special expert services in its possession that are not available to the other authority for use in measures that are necessary for cooperation in crime combating, control and monitoring or for international cooperation. The assistance may only be provided on the condition that it does not jeopardize the carrying out of the tasks laid down for the authority providing the assistance.
3. The agencies and other authorities in the IBM may provide technical equipment for joint use.
Education and Training
1. Authorities involved in IBM, with the purpose of capacity building of their personnel and exchange of experience, shall organize joint trainings in the fields of interest for IBM.
2. Representatives from other official agencies and bodies of the Republic of Kosovo and neighboring countries may also participate in trainings set out in paragraph 1 of this Article.
3. The IBM National Coordinator shall be informed on the trainings defined in this Article.
Coordination and Cooperation with Authorities of Countries Neighboring to Republic of Kosovo and other Countries
1. Authorities involved in IBM, in performing their duties and responsibilities related to IBM, shall cooperate with other foreign agencies and bodies which within their scope of work cover duties and tasks related to IBM.
2. Besides others the cooperation set out in paragraph 1 of this Article is conducted with the aim to:
2.1. enable faster movement of persons, goods and transport vehicles at Border Crossing Points;
2.2. prevent and detect trans-border crime;
2.3. collect, analyze and exchange data and information related to IBM;
2.4. exchange experience and trainings;
2.5. coordinate activities and actions.
3. In conducting cooperation set out in this article, authorities involved in IBM send their officers to respective countries and may accept foreign officers in their agencies, and may undertake joint operations with respective foreign officers.
4. Cooperation set out in this Article shall be arranged through bilateral or multilateral agreements and in fulfilling these agreements and forms of cooperation, authorities involved in IBM shall inform the IBM National Coordinator.
5. Authorities involved in IBM may arrange cooperation set out in this Article through joint or special agreements.
6. The form and manner of cooperation in the territory of the Republic of Kosovo through bilateral and multilateral agreements with neighboring countries, at the local level, shall be regulated by a sub-legal act.
Coordination and Cooperation with International Organizations
1. Authorities involved in IBM, in performing their duties and responsibilities related to IBM shall also cooperate with international organizations.
2. Authorities involved in IBM shall undertake all incentives with the purpose of membership in respective international organizations.
3. Authorities involved in IBM shall inform the IBM National Coordinator on the membership and membership conditions, as set out in paragraph 2 of this Article.
National Strategy for IBM
1. Authorities involved in IBM shall realize their actual cooperation through the National Strategy for IBM without prejudice to provisions of this Law.
2. National Strategy for IBM shall be drafted for a set period of time and the drafting shall be coordinated by the IBM National Coordinator.3. Following the drafting, National Strategy for IBM shall be adopted by the Government of Republic of Kosovo.
Respective sub-legal acts
The Government of the Republic of Kosovo, if necessary shall adopt respective sub-legal acts for the implementation of this law.
Entry into Force
This Law shall enter into force fifteen (15) days after publication in the Official Gazette of the Republic of Kosovo.
Law No. 04/L-216
31 July 2013
President of the Assembly of the Republic of Kosovo