Violent Extremist Prisoners and Offenders (VEP/O-s) are individuals whose crimes were shaped not only by personal circumstance but also by radical and dangerous ideologies. Managing and rehabilitating these prisoners presents an extraordinary challenge for authorities in the Western Balkans. In the past, prison systems often lacked the specialised tools, training, or structured programmes needed to address radicalisation but also to offer real hope for change. Solutions had to be found that could both mitigate security risks and provide those influenced by violent extremism a genuine path to resocialisation and ultimate rehabilitation. Over the recent years, the landscape has changed dramatically in the region. Thanks to targeted interventions and collaborative efforts led under the joint EU and  Council of Europe programme “Horizontal Facility for the Western Balkans and Türkiye”, new strategies have taken root in the region. Combining practical instruments, tailored guidelines, and regular capacity-building sessions, these programmes have empowered prison staff and improved treatment protocols. They have also established sustainable frameworks for managing violent extremism in correctional settings across the Western Balkans.

 Kosovo*: New frameworks, new beginnings

For the first time, Kosovo’s correctional system has established a structured, professional and sustainable framework for the assessment, treatment and rehabilitation of violent extremist prisoners.

Prior to this intervention, our institutions lacked standardised methodologies, specialised assessment tools and dedicated programmes to address the specific needs of this category of prisoners.

With the support of the joint EU and Council of Europe programme “Horizontal Facility for the Western Balkans and Türkiye”, specialised risk and needs assessment tools, as well as tailored rehabilitation programmes, have been developed for violent extremist prisoners. In addition to developing these instruments, the project has been invested in strengthening the professional capacities of the staff responsible for their implementation.

Today, these tools and programmes form an integral part of the institutional framework of the Kosovo Correctional Service and are applied in daily practice. They enable more accurate risk assessments, the development of individualised treatment plans, enhanced support for rehabilitation and reintegration, and more effective co-ordination among multidisciplinary teams.

"Initially, managing this category of prisoners was challenging because we lacked standard guidance and specialised tools. With the introduction of the tools and programmes developed with the support of the Council of Europe, correctional institutions began—and continue—to manage violent extremist prisoners in line with international good practices," said Trëndelina Qorraj, Acting Deputy Director General for the Treatment of Prisoners and Juveniles at the Kosovo Correctional Service.

The project's support has also extended beyond the walls of correctional institutions. To strengthen the reintegration process, the Kosovo Correctional Service has formalised its co-operation with the Employment Agency by establishing a mechanism that enables the Agency to engage with prisoners during the pre-release phase. This allows individuals to receive support in accessing vocational training programmes and, subsequently, employment opportunities upon their release. Ultimately, this initiative represents a sustainable model of support, providing solutions that are tailored to the operational realities and specific needs of the beneficiary institution.

Serbia: Personal journeys, real change

A powerful example comes from Serbia. Diana Dimovska, psychologist at KPZ Požarevac Zabela, speaks about the benefits of using these tools. She recalls guiding a young prisoner through a self-reflection session. One of the tasks during the session was to create a drawing that represented his life. When invited to talk, he was asked to draw something in meanwhile. With no intention or thinking — he chose to draw a sailing boat. As he started to talk, later revealed that, it was a symbol representing his father. Since little, growing up, he was told his father was away sailing, but the heartbreaking reality was that his father was in prison. Now, behind bars himself, the young man realised, through this guided therapy, the painful cycle of absence and loss that had shaped his life. As the programme advanced with the assistance of the professional prison staff he began to confront his loneliness, anger, and the hardships of his childhood, including early involvement in a hooligan group and

incarceration by age fourteen. Now twenty-seven, with the support of his family, engaged professionals, and Diana’s individualised approach, he finally saw a possibility for change and a new beginning after his imminent release.

Diana Dimovska emphasises the need for such flexible, tailored rehabilitation programmes for VEP/O-s. Supported by the joint EU and Council of Europe initiative, the Serbian model combines individual and group sessions, allowing prisoners to confront the deeply personal issues driving their radicalisation, and address them in ways that promote lasting transformation. “In our prison system we have 10 programmes for supporting inmates. They are very structured and address various aspects, ranging from the development of social skills and problem-solving to emotion regulation and similar areas. What distinguishes the rehabilitation programme for VEP/O-s from these programs is precisely its individualised approach within a flexible structure, which allows the programme to be adapted to the individual needs of beneficiaries and particularly encourages change through a combination of individual and group work,” said Dimovska. She explains that based on the initial screening, every prisoner is appointed in a specific rehabilitation programme. 

Albania: Tools for professional empowerment

In Albania, the tools and instruments supported by the joint EU and Council of Europe initiative have transformed the way prison staff work with violent extremist prisoners (VEP/O-s). Since 2018, the introduction of new instruments developed in co-operation with the Council of Europe has enabled local multidisciplinary teams to adopt a professional approach based on individual rehabilitation plans for each prisoner, addressing previous gaps in targeted case management.

Through this co-operation, a new holistic and structured approach has been established, creating a programmatic framework designed to address the criminogenic needs and risks of prisoners. This framework supports prisoners in embarking on a process of personal restoration and rehabilitation while equipping them with the life skills necessary to facilitate their dignified reintegration into society. This has been achieved through a continuous operational system including assessment, planning, and integrated case management, which supports the rehabilitation and reintegration of prisoners while contributing to the reduction of reoffending. To date, 11 strategic documents have been adopted specifically for the management and rehabilitation of violent extremist prisoners, in addition to 15 rehabilitation programme modules developed for the wider prison population.

According to Sokol Bruci, Head of the Social Affairs Sector at the Burrel Prison Institution, these instruments enable prison staff to conduct evidence-based assessments rather than relying on subjective perceptions. The process begins with early screening upon admission to the institution and continues with an individual risk assessment and a tailored rehabilitation process. This includes the application of therapeutic interventions, psychoeducational sessions, social skills training, and pre-release support, all of which are carefully documented to monitor progress and measure impact.

Thanks to this approach, prison staff work more closely together and are better prepared to respond to violent extremism. This has helped create a safer prison environment and established a new standard for the management, rehabilitation and reintegration of violent extremist prisoners in Albania.

Bosnia and Herzegovina: Multidisciplinary teams for lasting support

In Bosnia and Herzegovina, establishing multidisciplinary teams has been one of the EU and Council of Europe joint programme’s key successes. Aleksandar Majdov, Head of the Treatment Department within the Detention Facility in Bijeljina, describes how important these teams are in the process of integrating VEP/O-s back in the society after their release. Such teams have been composed of various professionals from employment agencies, educational institutions, the Ministry of Interior, health services, and social centers. Working together, they guide and assist former inmates after release.

“This collaborative effort, embedded in the current Standard Operating Procedures for pre-release, ensures comprehensive support for VEP/O-s and prepares specific programmes tailored to their needs, helping prevent recidivism and fostering positive connections with the wide society,” Majdov says. Such experiences and lessons were shared at regional gatherings in the context of the joint EU and Council of Europe initiative on "Enhancing the co-operation in the Western Balkans in managing violent extremism in prisons and preventing further radicalisation after release", initiative. A particular focus during the recent meeting in Durrës with practitioners from across the Western Balkans, was on how these local multidisciplinary teams are essential for strengthening-social integration and reduced relapse risk. Participants underlined that by using the same tools and methods, multidisciplinary teams have developed more harmonised and effective approaches to case management, increasing institutional safety and improving rehabilitation prospects for prisoners in all the Western Balkans. In Bosnia and Herzegovina and more generally in the region these instruments are considered mandatory tools, marking a significant step forward in building sustainable penitentiary systems.

Regional Collaboration: Key to Sustainable Rehabilitation and Preventing Radicalisation

The regional component is a cornerstone of the successful reforms in the prison systems of the Western Balkans. Supported by the joint EU and Council of Europe initiativeregular regional meetings allow practitioners to share challenges, experiences, and best practices. From high representatives from public institutions to prison practitioners, they all can learn from each other’s innovations. These include individualised plans, multidisciplinary teams, and new approaches to community reintegration.

Through years of co-operation, the rehabilitation of violent extremist prisoners in the Western Balkans is now built on solid foundations. Standardised instruments, ongoing capacity building, and well-developed policies have given staff the skills and confidence to ensure rehabilitation and reintegration. “A key principle throughout has been co-ownership, ensuring tools are not only technically sound but also used daily,” underlines Predrag Šofranac, Programme Manager at the Council of Europe. According to him sustainability is pivotal and is supported by ongoing partnerships, regular regional exchanges, and institutionalised best practices. This will ensure that the lessons learned, and structures created will continue to evolve in the Western Balkans and effectively tackle violent extremism, inside and outside prison walls.

*This designation is without prejudice to positions on status, and is in line with UNSCR 1244 and the ICJ Opinion on the Kosovo declaration of Independence.