Pristina, May 1, 2025 – The Kosovo Law Institute (KLI), in its ongoing monitoring of the implementation of legislation in the field of social rights, has followed the actions of the Government, the Assembly, and executive agencies in fulfilling their obligations within their respective mandates. On the occasion of International Workers’ Day, KLI finds that both the Government and the Assembly have failed to take appropriate measures in the social sphere, including the adoption and enforcement of relevant legislation.
KLI finds that the Government of Kosovo, from the eighth legislature, has failed not only to adopt the majority of laws in the social sector but also to implement existing legislation. Moreover, it has not ensured collective protection for workers. Meanwhile, the Assembly of Kosovo has failed to appoint a representative of trade unions to the Board of the Pension Savings Fund and has not effectively exercised its oversight function over the Government. Over the past twelve years, according to official statistics and trade union data, 263 workers have died at their workplaces—12 of them in 2024 alone, and in the first five months of this year, there have already been 10 workplace fatalities.
Failure to Adopt Social Legislation
The Government has failed to adopt most draft laws in the social sector, demonstrating ongoing negligence and a lack of political will between 2021 and 2024. Key legislation such as the Labor Law, the Law on Occupational Health and Safety, and the Law on the Labor Inspectorate has either been removed from the agenda or left unaddressed, reflecting a lack of progress and commitment to urgent social issues.
The Law on Compulsory Health Insurance and the Law on Social and Affordable Housing were adopted through an accelerated procedure on December 5, 2024, without the involvement of the opposition. This has led to their referral to the Constitutional Court for assessment of the constitutionality of the procedure followed.
Failure to timely update and adopt social legislation has serious consequences for citizens, economic development, and the resolution of long-standing systemic problems. Delays in law adoption and alignment with European Union directives undermine social protection, citizens’ legal security, and the country’s European integration.
KLI recommends that the ninth legislature and the new government prioritize the adoption of relevant laws and strengthen oversight mechanisms to ensure proper implementation, with particular attention to workplace safety and workers’ rights. Due to negligence and inadequate oversight, 22 workers lost their lives at work during 2024 and early 2025. These deaths should serve as a critical reflection point for the incoming Government and Assembly.
Failure to Provide Social Dialogue
The Government of Kosovo, as a social partner and under current legislation responsible for developing social dialogue, has consistently failed to fulfill this duty. As of International Workers’ Day, May 1, 2025, it has systematically failed to provide a structured and functional environment for social dialogue—a key feature of a functional democracy and a state aspiring to EU standards. Despite political declarations supporting workers’ rights and promoting dialogue with unions, very few concrete steps have been taken, and those that were taken appeared more focused on image than substantive action.
Arbitrary Increase of the Minimum Wage
The Government’s decision to raise the minimum wage to €350 was made arbitrarily, without following the legally prescribed procedures. Existing law requires the minimum wage to be set at the end of each calendar year, based on a proposal from the Economic and Social Council (ESC). In the absence of a proposal from the ESC, the Minister of Finance may submit an alternative proposal after consultations. However, the ESC has been non-functional since April 2023 due to the failure of the Ministries of Finance, Labor, and Transfers to constitute it, making adherence to this essential procedure impossible.
Consequently, the Government’s decision was illegal, as it did not comply with the law that the Government itself had proposed and the Assembly had approved. Furthermore, the proposed €350 figure was not subjected to public consultation through the Online Public Consultation Platform, a legal obligation under the Government’s Rules of Procedure.
KLI emphasizes that any changes to minimum wage policy directly affect the welfare of hundreds of thousands of workers and the country’s economic stability. The end-of-year decision-making process in 2025 must therefore be comprehensive, based on detailed analysis, and involve broad consultations with all relevant stakeholders.
Lack of Worker Protection through Collective Agreements
Regarding collective worker protection, KLI finds that the Government of Kosovo has failed to fulfill its obligation to sign the General Collective Agreement with the Union of Independent Trade Unions of Kosovo (UITUK), despite repeated requests. The Government has also failed to reach sectoral agreements with several other unions, despite their ongoing efforts and willingness to engage.
Failure of MESTI to Sign Agreements with SBASHK
The Ministry of Education, Science, Technology, and Innovation (MESTI) unilaterally terminated the collective agreement with the Union of Education, Science, and Culture (UESC). Instead of engaging in dialogue and negotiations to improve or adapt the agreement, the Ministry justified the decision with claims of legal non-compliance. UESC submitted a draft collective contract for the education sector to MESTI in October 2024, but neither MESTI nor the Ministry of Finance held meetings with UESC representatives to discuss the draft.
Failure of the Ministry of Health to Sign Agreements with Health Sector Unions
Following the unilateral withdrawal from implementing the Sectoral Collective Agreement with the Health Sector Union, the Ministry of Health promised to sign a collective agreement with the Federation but has not taken any action. This approach undermines trust and demonstrates a lack of institutional commitment to healthcare workers. The failure to sign the agreement comes at a time when healthcare workers face difficult conditions, insufficient equipment and funding, and the ongoing risk of migration to EU countries.
Dysfunction of the Economic and Social Council (ESC)
The non-functioning of the ESC, under the responsibility of the Ministry of Finance, Labor, and Transfers, has hindered the establishment of a general collective agreement in Kosovo. Despite being aware that the ESC mandate ended in April 2023, the Ministry did not take any steps to make it functional. As a result, workers in both public and private sectors remain without a representative body to negotiate their rights and working conditions.
This situation represents not only institutional failure but also a breach of legal obligations. The consequences go beyond lack of representation—they affect public service quality due to increased worker attrition. Furthermore, the supervisory role of the Prime Minister and Assembly has been absent, as the issue has not been addressed in any parliamentary forum, reflecting concerning negligence.
At a broader level, the lack of a functional ESC undermines the principles of the European social model, which considers social dialogue and collective bargaining essential for social justice, improved living and working conditions, and productivity. Without such mechanisms, workplace democracy is absent, and worker participation in decision-making—a core EU commitment—is excluded in Kosovo.
Dysfunction of the National Council for Occupational Safety and Health
Over the past twelve years, Kosovo has faced an alarming number of workplace fatalities—263 workers have died on the job, including 12 in 2024 and 10 in the first five months of 2025. These figures highlight institutional failure to ensure safe and healthy working conditions across sectors.
Kosovo has a law on occupational safety and health that sets out fundamental principles for preventing occupational risks, eliminating hazards, training and informing workers, and involving them in improving working conditions. Its goal is clear: to guarantee a high level of protection for employees. However, the law has not been updated or harmonized with EU and international standards, and its implementation is not guaranteed.
A key component of this law is the establishment of the National Council for Occupational Safety and Health, an inter-institutional body tasked with developing policies, monitoring standards, and offering recommendations to improve working conditions. The Council’s composition is inclusive, involving representatives of the government, employers, workers, and experts, reflecting a balanced and professional decision-making model.
Despite legal provisions, the Council has not been established and is therefore non-functional. This reflects a lack of political will to address worker welfare seriously and undermines efforts to build a culture of workplace safety.