Council Joint Action 2008/124/CFSP of 4 February 2008 on the European Union Rule of Law Mission in Kosovo, EULEX KOSOVO
Date: 2008-02-04
Institutions: Council of the European Union
Subjects: EU financing, EU police mission, Kosovo, job description, public safety, rule of law

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Official Journal of the European Union

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COUNCIL JOINT ACTION 2008/124/CFSP

of 4 February 2008

on the European Union Rule of Law Mission in Kosovo, EULEX KOSOVO

THE COUNCIL OF THE EUROPEAN UNION,

Having regard to the Treaty on European Union, and in
particular Article 14 and the third paragraph of Article 25
thereof,

Whereas:

(1)

On 10 June 1999, the United Nations Security Council
adopted Resolution 1244 (hereinafter Resolution 1244),
and within this framework, the United Nations Security
Council:

— ‘Decides

that

the international civil and security
presences are established for an initial period of 12
months,
to continue thereafter unless the Security
Council decides otherwise’ (Paragraph 19),

civil presence

in Kosovo …’

— ‘Authorises the Secretary-General, with the assistance
of relevant international organisations, to establish an
international
and
‘Decides that the main responsibilities of the interna-
tional civil presence will include … (f) in a final stage,
overseeing the transfer of authority from Kosovo's
provisional
to institutions established
under a political settlement … (i) maintaining civil
including establishing local police
law and order,
forces and meanwhile through the deployment of
to serve in Kosovo’
international police personnel
(Paragraphs 10 and 11),

institutions

— ‘Welcomes the work in hand in the European Union
and other international organisations to develop a
comprehensive approach to the economic deve-
lopment and stabilisation of the region affected by
including the implementation of
the Kosovo crisis,
a Stability Pact
for South Eastern Europe with
broad international participation in order to further
the promotion of democracy, economic prosperity,
stability and regional cooperation’ (Paragraph 17).

(2)

The Kosovo organs, institutions and authorities referred
to in this Joint Action are the institutions (hereinafter the
Kosovo institutions) created on the basis of Resolution
1244. They include, inter alia, the Kosovo Police Service,
the judiciary and the associated Ministries of the Interior
and of Justice.

(3)

(4)

(5)

(6)

(7)

There is a need to prevent, on humanitarian grounds,
possible outbreaks of violence, acts of persecution and
intimidation in Kosovo, taking account, as appropriate,
of the responsibility towards populations as referred to in
Resolution 1674 by the United Nations Security Council
on 28 April 2006.

On 10 April 2006, the Council adopted Joint Action
2006/304/CFSP on the
an EU
Planning Team (EUPT Kosovo) regarding a possible EU
crisis management operation in Kosovo in the field of
rule of law and possible other areas in Kosovo (1).

establishment of

On 11 December 2006, the Council approved the Crisis
Management Concept
EU crisis
for
management operation in the field of rule of law and
possible other areas in Kosovo.

possible

a

Joint Action 2006/304/CFSP lays down that the Head of
EUPT Kosovo is, in particular, to act under the direction
of the Head of the EU crisis management operation in
Kosovo once the latter has been appointed.

European perspective

and in implementing

The Brussels European Council of 14 December 2007
underlined the readiness of the EU to play a leading
role in strengthening stability in the region in line with
its
a
settlement defining Kosovo's future status. It stated the
EU's readiness to assist Kosovo in the path towards
sustainable stability, including by means of a European
Security and Defence Policy (ESDP) mission and a contri-
bution to an international civilian office as part of the
international presences. The General Affairs and External
Relations Council was invited to determine the modalities
for the mission and when to launch it. The Secretary-
General/High Representative (SG/HR) was requested to
prepare the mission in discussion with the responsible
authorities in Kosovo and the United Nations.
In this
regard, the United Nations Secretary-General has stated
that the United Nations, with the support of the relevant
international organisations,
is committed to assisting
Kosovo in the path towards sustainable stability. The
the
Secretary-General
United Nations
readiness of
the EU to play an enhanced role in
Kosovo, as reflected in the conclusions of the Brussels
European Council on 14 December.

noted

also

(1) OJ L 112, 26.4.2006, p. 19.

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(8)

(9)

In parallel with this Joint Action, the Council is adopting
a Joint Action appointing an EU Special Representative
for Kosovo.

cooperation with the European
in full
EULEX KOSOVO,
Commission Assistance Programmes, shall
its mandate
through monitoring, mentoring and advising, while retaining
certain executive responsibilities.

fulfil

In accordance with the guidelines of the Nice European
Council of 7-9 December 2000, this Joint Action should
determine the role of the SG/HR in accordance with
Articles 18 and 26 of the Treaty.

Article 3

Tasks

(10) Article 14(1) of the Treaty calls for the indication of
financing for the whole period of
implementation of
the Joint Action. The indication of amounts to be
financed by the general budget of the European Union
illustrates the will of the political authority and is subject
to the availability of commitment appropriations during
the respective budget year.

(11)

(12)

Considering the scale and nature of the mission estab-
lished by this
specific provisions are
required concerning staff recruitment and procurement.

Joint Action,

The command and control structure of
the mission
should be without prejudice to the contractual responsi-
bilities of
the
the mission towards
Commission for implementing the mission's budget.

the Head of

(13)

The watch-keeping capability established within the
Council Secretariat should be activated for this mission.

(14)

The European Union Rule of Law Mission in Kosovo will
be conducted in a situation which may deteriorate and
could harm the objectives of the Common Foreign and
Security Policy as set out in Article 11 of the Treaty,

HAS ADOPTED THIS JOINT ACTION:

Article 1

The mission

1.
The EU hereby establishes an European Union Rule of
Law Mission in Kosovo, EULEX KOSOVO (hereinafter EULEX
KOSOVO).

EULEX KOSOVO shall operate in accordance with the
2.
Mission Statement set out in Article 2 and shall carry out the
tasks as set out in Article 3.

Article 2

Mission Statement

sustainability

and accountability

the Kosovo institutions,

EULEX KOSOVO shall assist
judicial
authorities and law enforcement agencies in their progress
and in further
towards
developing and strengthening an independent multi-ethnic
justice system and multi-ethnic police and customs service,
ensuring that these institutions are free from political
inter-
ference and adhering to internationally recognised standards
and European best practices.

In order to fulfil the Mission Statement set out in Article 2,
EULEX KOSOVO shall:

(a) monitor, mentor and advise the competent Kosovo insti-
law
rule of
retaining certain

tutions on all areas related to the wider
(including a customs
executive responsibilities;

service), whilst

(b) ensure the maintenance and promotion of the rule of law,
public order and security including, as necessary, in consul-
tation with the relevant international civilian authorities in
operational
Kosovo,
decisions taken by the competent Kosovo authorities;

annulling

reversing

through

or

(c) help to ensure that all Kosovo rule of law services, including
a customs service, are free from political interference;

crimes

are properly

inter-ethnic crimes,
serious

(d) ensure that cases of war crimes, terrorism, organised crime,
financial/economic crimes
corruption,
and other
investigated,
prosecuted, adjudicated and enforced, according to the
including, where appropriate, by interna-
applicable law,
tional
investigators, prosecutors and judges jointly with
Kosovo investigators, prosecutors and judges or indepen-
dently, and by measures including, as appropriate,
the
creation of
coordination structures
between police and prosecution authorities;

cooperation and

(e) contribute to strengthening cooperation and coordination
throughout the whole judicial process, particularly in the
area of organised crime;

(f) contribute to the fight against corruption,

fraud and

financial crime;

(g) contribute to the implementation of

the Kosovo Anti-

Corruption Strategy and Anti-Corruption Action Plan;

(h) assume other responsibilities,

independently or in support
of the competent Kosovo authorities, to ensure the main-
tenance and promotion of the rule of law, public order and
security, in consultation with the relevant Council agencies;
and

(i) ensure that all its activities respect international standards
concerning human rights and gender mainstreaming.

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Article 4

Planning and preparation phase

Subject to detailed arrangements in the OPLAN, EULEX

3.
KOSOVO shall be structured as follows:

1.
the
During the planning and preparation phase of
mission, EUPT Kosovo shall act as the main planning and
preparation element for EULEX KOSOVO.

The Head of EUPT Kosovo shall act under the authority of the
Head of EULEX KOSOVO (hereinafter the Head of Mission).

The risk assessment carried out as part of the planning

2.
process shall be updated regularly.

EUPT Kosovo shall be responsible for
equipment,
and procuring
intended for EULEX KOSOVO,

3.
deploying
premises
EUPT Kosovo budget.

staff

recruiting and
services
and
financed from the

EUPT Kosovo shall be responsible for drawing up the
4.
Operation Plan (OPLAN) and developing technical instruments
necessary to execute the mandate of EULEX KOSOVO. The
OPLAN shall take into account the risk assessment and shall
include a security plan. The Council shall approve the OPLAN.

Article 5

Launching and transition period

1.
The decision to launch EULEX KOSOVO shall be taken by
the Council upon approval of the OPLAN. The operational
phase of EULEX KOSOVO shall start upon transfer of authority
from the United Nations Mission in Kosovo, UNMIK.

2.
During the transition period, the Head of Mission may
direct EUPT Kosovo to undertake the necessary activities in
order for EULEX KOSOVO to be fully operational on the day
of transfer of authority.

Article 6

Structure of EULEX KOSOVO

EULEX KOSOVO shall be a unified ESDP mission across

1.
Kosovo.

2.

EULEX KOSOVO shall establish:

(a)

its main Headquarters in Pristina;

(b) regional and local offices across Kosovo;

(c) a Brussels support element; and

(d) liaison offices, as required.

(a)

the Head of Mission and staff as defined in the OPLAN;

(b) a police component, co-located where appropriate with the
the border crossing

including at

Kosovo Police Service,
points;

(c) a justice component, co-located where appropriate with the
the Kosovo

relevant Ministries,
Property Agency, the Kosovo Correctional Service; and

the Kosovo judiciary,

(d) a customs component, co-located where appropriate with

the Kosovo Customs Service.

Specialised police may be hosted in camps designed to

4.
cater for their operational needs.

Article 7

Civilian Operation Commander

The Civilian Planning and Conduct Capability (CPCC)
for
shall be the Civilian Operation Commander

1.
Director
EULEX KOSOVO.

The Civilian Operation Commander, under the political
2.
the Political and Security
control and strategic direction of
Committee (PSC) and the overall authority of
the SG/HR,
shall exercise command and control of EULEX KOSOVO at the
strategic level.

The Civilian Operation Commander shall ensure proper
3.
the Council's decisions as
and effective implementation of
well as the PSC's decisions,
including by issuing instructions
at strategic level as required to the Head of Mission and
providing him with advice and technical support.

4.
All seconded staff shall remain under the full command of
the national authorities of the seconding State or EU institution
concerned. National
transfer Operational
Control (OPCON) of their personnel, teams and units to the
Civilian Operation Commander.

authorities

shall

The Civilian Operation Commander shall have overall
the EU's duty of care is

5.
responsibility for ensuring that
properly discharged.

6.
The Civilian Operation Commander and the European
Union Special Representative (EUSR) shall consult each other
as required.

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Article 8

Head of Mission

1.
The Head of Mission shall assume responsibility and
exercise command and control of EULEX KOSOVO at theatre
level.

The Head of Mission shall exercise command and control
2.
over personnel, teams and units from contributing States as
assigned by the Civilian Operation Commander together with
administrative and logistic responsibility including over assets,
resources and information placed at
the disposal of EULEX
KOSOVO. The exercise of such command and control shall be
without prejudice to the principle of the independence of the
judiciary and the autonomy of prosecution when considering
the discharge of judicial duties of EULEX KOSOVO judges and
prosecutors.

3.
The Head of Mission shall issue instructions to all EULEX
KOSOVO staff,
including in this case the support element in
the effective conduct of EULEX KOSOVO in
Brussels,
theatre, assuming its coordination and day-to-day management,
and following the instructions at strategic level of the Civilian
Operation Commander.

for

4.
Until the expiry of Joint Action 2006/304/CFSP, the Head
of Mission shall be supported by EUPT Kosovo established
thereby.

5.
The Head of Mission shall be responsible for the imple-
mentation of the EULEX KOSOVO's budget. For this purpose, the
Head of Mission shall sign a contract with the Commission.

6.
The Head of Mission shall be responsible for disciplinary
control over the staff. For seconded staff, disciplinary action
shall be exercised by the national or EU authority concerned.

The Head of Mission shall represent EULEX KOSOVO in the
7.
operations area and shall ensure appropriate visibility of EULEX
KOSOVO.

8.
The Head of Mission shall coordinate, as appropriate, with
other EU actors on the ground. The Head of Mission shall,
without prejudice to the chain of command,
receive local
political guidance from the EUSR,
including with regard to
issues related to executive responsi-
the political aspects of
bilities.

The Head of Mission shall ensure that EULEX KOSOVO
9.
works closely and coordinates with the competent Kosovo
international actors, as appro-
authorities and with relevant
priate,
third States
involved in the rule of law in Kosovo and an International
Civilian Office.

including NATO/KFOR, UNMIK, OSCE,

Under the direct responsibility of the Head of Mission,
10.
internal legal and financial control functions shall be performed
by personnel
the
administration of EULEX KOSOVO.

independent of

responsible for

the staff

Article 9

Staff

The numbers and competence of the EULEX KOSOVO staff
1.
shall be consistent with its Mission Statement set out in Article
2, the tasks set out in Article 3 and the structure of EULEX
KOSOVO set out in Article 6.

EULEX KOSOVO shall consist primarily of staff seconded by
2.
Member States or EU institutions. Each Member State or EU
institution shall bear the costs related to any of
the staff
including travel expenses to and from the
seconded by it,
place of deployment, salaries, medical coverage and allowances
other than daily allowances and applicable risks and hardship
allowances.

EULEX KOSOVO may also recruit, as required, international

3.
staff and local staff on a contractual basis.

to
4.
Third States may also, as appropriate, second staff
the
EULEX KOSOVO. Each seconding third State shall bear
costs related to any of
including
travel expenses to and from the place of deployment, salaries,
medical coverage and allowances. Exceptionally, in duly justified
cases, where no qualified applications from Member States are
available, nationals from participating third States may be
recruited on a contractual basis, as appropriate.

the staff seconded by it,

5.
All staff shall abide by the mission-specific minimum
security operating standards and the mission security plan
the
supporting the EU field security policy. As
protection of EU classified information with which they are
entrusted in the course of their duties, they shall respect the
security principles and minimum standards established by
Decision 2001/264/EC (1).

regards

Article 10

Status of EULEX KOSOVO and of its staff

The status of EULEX KOSOVO and its staff, including the
1.
privileges, immunities and further guarantees necessary for the
completion and smooth functioning of EULEX KOSOVO, shall be
agreed as appropriate.

2.
The State or EU institution having seconded a member of
staff shall be responsible for answering any claims linked to the
secondment, from or concerning the member of staff. The State
or EU institution in question shall be responsible for bringing
any action against the seconded person.

(1) OJ L 101, 11.4.2001, p. 1. Decision as last amended by Decision

2007/438/EC (OJ L 164, 26.6.2007, p. 24).

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The conditions of employment and the rights and obli-
3.
gations of
international and local civilian staff shall be laid
down in the contracts between the Head of Mission and the
members of staff.

Article 11

Chain of command

EULEX KOSOVO shall have a unified chain of command, as

1.
a crisis management operation.

Article 13

Participation of third States

1. Without prejudice to the decision-making autonomy of
the EU and its single institutional framework, third States may
be invited to contribute to EULEX KOSOVO provided that they
bear the cost of the staff seconded by them, including salaries,
allowances and travel expenses to and from the theatre of
operation, and to contribute to the running costs of EULEX
KOSOVO, as appropriate.

2.
Under the responsibility of the Council, the PSC shall
exercise political control and strategic direction of EULEX
KOSOVO.

Third States making contributions to EULEX KOSOVO shall
2.
have the same rights and obligations in terms of day-to-day
management of EULEX KOSOVO as Member States taking part
in it.

3.
As also laid down in Article 7, the Civilian Operation
Commander, under the political control and strategic direction
of the PSC and the overall authority of the SG/HR, shall be the
commander of EULEX KOSOVO at strategic level and, as such,
shall issue the Head of Mission with instructions and provide
him with advice and technical support.

The Civilian Operation Commander shall report to the

4.
Council through the SG/HR.

The Head of Mission shall exercise command and control
theatre level and shall be directly

5.
of EULEX KOSOVO at
responsible to the Civilian Operation Commander.

3.
The Council hereby authorises the PSC to take the relevant
decisions on acceptance or otherwise of the proposed contri-
butions and to establish a Committee of Contributors.

4.
Detailed arrangements regarding the participation of third
States shall be laid down in an agreement to be concluded in
accordance with Article 24 of the Treaty. The SG/HR, assisting
the Presidency, may negotiate such arrangements on its behalf.
Where the EU and a third State conclude an agreement estab-
lishing a framework for the participation of such third State in
the EU crisis management operations, the provisions of such
agreement shall apply in the context of EULEX KOSOVO.

Article 14

Security

Article 12

Political control and strategic direction

The PSC shall exercise, under the responsibility of the
1.
Council, political control and strategic direction of EULEX
KOSOVO.

1.
The Civilian Operation Commander shall direct the Head
of Mission's planning of security measures and ensure their
proper and effective implementation for EULEX KOSOVO in
accordance with Articles 7 and 11 and in coordination with
the Security Office of the General Secretariat of the Council.

for

this purpose,

The Council hereby authorises the PSC to take the relevant
2.
decisions
in accordance with the third
paragraph of Article 25 of the Treaty. This authorisation shall
include the powers to amend the OPLAN and the chain of
It shall also include powers to take subsequent
command.
decisions regarding the appointment of the Head of Mission.
The Council, on the recommendation of the SG/HR, shall decide
on the objectives and termination of EULEX KOSOVO.

3.

The PSC shall report to the Council at regular intervals.

The Head of Mission shall be responsible for the security
2.
of the operation and for ensuring compliance with minimum
security requirements applicable to the operation, in line with
the policy of the EU on the security of personnel deployed
outside the EU in an operational capacity under Title V of the
Treaty and its supporting instruments.

3.
The Head of Mission shall be assisted by a Senior Mission
Security Officer (SMSO), who will report to the Head of Mission
and also maintain a close functional relationship with the
Security Office mentioned in paragraph 1.

4.
The PSC shall receive, on a regular basis and as required,
reports by the Civilian Operation Commander and the Head of
Mission on issues within their areas of responsibility. Planning
for specific areas may be reviewed by the PSC on a regular
basis.

4.
The Head of Mission shall appoint Area Security Officers
in the regional and local EULEX KOSOVO locations, who, under
the authority of the SMSO shall be responsible for the day-to-
day management of all security aspects of the respective EULEX
KOSOVO elements.

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EULEX KOSOVO staff shall undergo mandatory security
5.
training before or upon taking up their duties, in accordance
with the OPLAN. They also receive regular in-theatre refresher
training organised by the SMSO and the Area Security Officers.

The financial arrangements shall respect the operational
5.
requirements of EULEX KOSOVO,
including compatibility of
equipment and interoperability of
take
its teams, and shall
into consideration the deployment of staff in regional offices.

6.
The Head of Mission shall ensure that the numbers of
EULEX KOSOVO staff present and of authorised visitors never
exceed EULEX KOSOVO's capabilities to ensure their safety and
security or
to manage their evacuation in an emergency
situation.

The Head of Mission shall ensure the protection of
information in accordance with Decision

7.
EU classified
2001/264/EC.

Article 15

Watch-keeping

The watch-keeping capability shall be activated for EULEX
KOSOVO.

Article 16

Financial arrangements

The financial reference amount

1.
intended to cover the
expenditure related to a period of 16 months starting from
the approval of the OPLAN shall be EUR 205 000 000.

2.
All expenditure shall be managed in accordance with the
Community rules and procedures applicable to the general
budget of the EU, with the exception that any pre-financing
shall not remain the property of the Community.

Subject

conclude

the Head of
to the Commission's approval,
3.
Mission may
arrangements with EU
technical
Member States, participating third States and other international
the provision of
actors deployed in Kosovo regarding
equipment, services and premises to EULEX KOSOVO. Nationals
of the countries of the Western Balkans region or of contri-
buting third States shall be allowed to tender for contracts. The
position of contract holder of contracts or under arrangements
concluded by EUPT Kosovo for EULEX KOSOVO during the
planning and preparation phase shall be transferred to EULEX
KOSOVO, as appropriate. Assets owned by EUPT Kosovo shall
be transferred to EULEX KOSOVO.

The Head of Mission shall

4.
fully to, and be
supervised by, the Commission on the activities undertaken in
the framework of his contract.

report

Expenditure shall be eligible as from the date of approval

6.
of the OPLAN.

Article 17

Coordination with Community actions

The Council

and the Commission shall,

each in
1.
accordance with its
respective powers, ensure consistency
between the implementation of this Joint Action and external
activities of the Community in accordance with Article 3 of the
Treaty. The Council and the Commission shall cooperate to this
end.

2.
The necessary coordination arrangements shall be put in
place in the EULEX KOSOVO area, as appropriate, as well as in
Brussels.

Article 18

Release of classified information

The SG/HR shall be authorised to release to the United
1.
Nations, NATO/KFOR and to other third parties, associated with
this Joint Action, EU classified information and documents
generated for the purposes of EULEX KOSOVO up to the level
of the relevant classification respectively for each of them, in
accordance with Decision 2001/264/EC.
technical
arrangements shall be drawn up to facilitate this.

Local

2.
In the event of a specific and immediate operational need,
the SG/HR shall also be authorised to release to the competent
local authorities EU classified information and documents up to
the level ‘RESTREINT UE’ generated for the purposes of EULEX
In all
KOSOVO,
other cases, such information and documents shall be released
to the competent
local authorities in accordance with the
procedures appropriate to those authorities' level of cooperation
with the EU.

in accordance with Decision 2001/264/EC.

3.
The SG/HR shall be authorised to release to the United
Nations, NATO/KFOR, to other third parties associated with this
Joint Action and to the relevant local authorities, EU non-clas-
sified documents related to the deliberations of the Council with
regard to EULEX KOSOVO covered by the obligation of profes-
sional secrecy pursuant to Article 6(1) of the Council's Rules of
Procedure (1).

(1) Decision 2006/683/EC, Euratom of 15 September 2006 adopting
the Council's Rules of Procedure (OJ L 285, 16.10.2006, p. 47).
Decision as amended by Decision 2007/881/EC (OJ L 346,
29.12.2007, p. 17).

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Article 19

Review

Article 21

Publication

The Council shall evaluate, not later than six months after the
start of the operational phase, whether EULEX KOSOVO should
be extended.

This Joint Action shall be published in the Official Journal

1.
of the European Union.

Article 20

Entry into force and duration

The decisions of

2.
to Article 12(1)
regarding the appointment of the Head of Mission shall also
be published in the Official Journal of the European Union.

the PSC pursuant

This Joint Action shall enter into force on the date of
adoption.

its

Done at Brussels, 4 February 2008.

It shall expire 28 months from the date of approval of the
OPLAN. The budget
for the last 12 months before expiry
shall be decided upon separately by the Council.

For the Council
The President

D. RUPEL