Disclaimer: All statements and opinions expressed in this article are the author’s own and do not represent the views of WIIS Italy.
As the world marks 25 years since the adoption of the United Nations (UN) Security Council Resolution 1325 on Women, Peace and Security (WPS), the importance of women’s participation in peacebuilding remains as relevant as ever. Yet, across many contexts, the formal processes designed to promote peace and reconciliation remain resistant to inclusion.
The case of the Organization for Security and Co-operation in Europe’s (OSCE) Dialogue Academy for Young Women (DA) from Belgrade and Prishtinë/Priština, and its alumnae network, the Dialogue Academy Network of Alumnae (DANA), offers a compelling example of how informal co-operation can sustain peacebuilding when formal avenues narrow. It demonstrates that, when formal–informal interactions are limited, strengthening informal–informal linkages among young women can generate powerful, long-term processes of individual and collective transformation. It also demonstrates that, as women are not a homogeneous group, their participation in dialogue and peacebuilding can take multiple forms — all of which deserve to be understood, recognized, and supported.
Understanding the Context: The Limits of the Formal
The legacy of the conflict in Kosovo is a complex and multifaceted one, deeply rooted in historical tensions and competing claims. Characterized by a lack of trust and perceived threats to their security and way of life, the conflict has led to displacement, violence, and – up until now – a general atmosphere of mistrust and hostility. Efforts to foster reconciliation have been undermined by divisive political narratives that emphasize ethnic identity and historical grievances, thus challenging social cohesion and peaceful communal coexistence. Although the international community has engaged in mediation efforts, progress remains slow and uneven, posing a significant and protracted obstacle to regional stability and prosperity.
The EU-facilitated Dialogue – launched in 2011 following the adoption of the UN General Assembly Resolution 64/298 (2010)[1] – has constituted the primary process through which relationships between Belgrade and Prishtinë/Priština were aimed to be normalized and improved. Unfortunately, the process, particularly in the last period, has not yielded the expected results when it came to the implementation of commitments from the Basic Agreement of February 2023 and its “Implementation Annex” of March 2023. Diplomatic efforts to re-energize the EU-facilitated Dialogue and motivate the parties to agree on the way forward have also largely stalled.
Furthermore, despite women’s proven contributions to peacebuilding and intra-community dialogue, and the commitments set out in the broader Women, Peace and Security agenda, women remain underrepresented in the EU-facilitated Dialogue process—both in terms of participation and in the inclusion of issues that specifically affect women and girls. On this, the UN Secretary General highlighted in his 2019 report the “the need for greater inclusion and engagement of women in the dialogue between Belgrade and Prishtinë/Priština.” Nonetheless, as of late 2025, the official Dialogue still does not comprise any women official delegates. The Basic Agreement itself aims to establish peaceful and co-operative relations, containing provisions on the mutual recognition of documents and symbols; peaceful dispute resolution; international representation; the Kosovo Serb community; and regarding the establishment of diplomatic missions to facilitate diplomatic relations – all areas where women’s perspectives would be highly relevant and needed. Despite the multitrack model – allowing for the involvement of a broader spectrum in society – has emerged as a preferred model for peacebuilding, making it a legitimate and more effective process, the EU-facilitated Dialogue is considered largely based on Track I, with limited connections to Track II and Track III.
The Dialogue Academy: A Platform for Trust and Transformation
The DA emerged in 2015, building on the success of the earlier “Follow Us” initiative, originally designed to bring together prominent women from Prishtinë/Priština and Belgrade, focusing on shared values such as solidarity, dialogue, and collaboration. Jointly organized by the OSCE Mission in Kosovo (OMiK) and the OSCE Mission to Serbia (OMiS), the DA reflects the Organization’s commitment to acknowledging and fostering the positive role women can play in trust, confidence and peacebuilding. It is designed to empower young women from Prishtinë/Priština and Belgrade[2], and can be considered the result of the willingness of former members of the “Follow Us Initiative” to transfer peacebuilding and inter-community collaboration-related values and principles to the young generations.
The DA is a unique activity under the framework of the overall OSCE Missions’ programming, that specifically addresses Prishtinë/Priština and Belgrade relations in the context of OSCE confidence-building measures, enhancing capacities of young women to become leaders of change in line with the Women and Youth Peace and Security agendas. The programme mainly focuses on establishing a “safe” and conducive atmosphere where participants feel comfortable discussing issues, leading to the creation of “normal non-conflictual relationships” leveraging commonalities to overcome jointly divides. In particular, shared identity traits linked to being a young woman in post-conflict societies are leveraged to foster a sense of unity and common purpose.
This generates trust and understanding among participants, who after the completion of the DA become members of DANA. Since its establishment, DANA has grown into a vibrant network of over 250 young women who continue to work together on small-scale projects, addressing issues of common interest. So far, DANA involved more than 700 young women and men from both societies in building mutual trust and fostering inter and intra-community dialogue. The alumnae network – supported by the OSCE Field Operations – serves as a young women-led mechanism to sustain inclusive and locally rooted peacebuilding and dialogue-related endeavours.
Formal–Informal Interactions
Track I actors, including high-ranking politicians, appointed mediators, and official representatives, have historically led the formal negotiation process between Prishtinë/Priština and Belgrade. This emphasis on formal actors has frequently led to a lack of – or a limited contributions by informal players and processes, including women’s networks, youth organizations, and civil society groups. In more than a decade, only three women[3] have held notable roles in the process, underscoring the persistent gender imbalance. This idea is also reflected in a 2024 study by the Prishtinë/Priština Research Institute of Development and European Affairs[4], which notes that: “Women actors, previously engaged in peacebuilding initiatives, express disappointment at the rapidly changing attitudes of negotiators and a struggle for recognition. This underscores a resistance against genuine inclusion, revealing the need for continued efforts to dismantle barriers and foster a more equitable and appreciative environment for women’s vital contributions to decision-making.”
In addition, there has been little participation from the grassroots level in the official discourse, which has mostly remained behind closed-doors. This disconnection stems from the government-centric and closed nature of the negotiation framework, where legitimacy concerns, diplomatic protocol, and political control often discourage collaboration with civil society and women’s organizations. Limited or non-existent mechanisms connecting formal and informal actors further widen this gap, hindering inclusive participation.
Against this backdrop, the DANA represents a promising informal actor to bridge this divide thus broadening peacebuilding processes. However, growing political polarization continues to limit the willingness of formal actors to acknowledge and build upon grassroots efforts and engagements. This could present a significant challenge, as a population disengaged from the peacebuilding process will lack the readiness and capacity to contribute to the implementation of a future permanent agreement.
Informal–Informal Interactions
The DANA has played a significant role in building strong relationships amongst informal actors in addition to bridging the gap with more formal actors. Young women from Prishtinë/Priština and Belgrade are working together on inter and intra-community dialogue projects and spread the DA’s ideals and values to a larger audience through the vibrant peer-to-peer engagement and networks that extend well beyond DANA itself.
The rationale for strengthening these informal-informal interactions lies in the conviction that lasting peace is sustained by grassroots-level engagement. Dialogue is not only happening around official tables, but in the everyday life!
Furthermore, the DANA seeks to lay the groundwork for sustainable understanding and reconciliation by bringing the young generations closer to shared values and common goals. By focusing on common identities, such as the desire for safer, more inclusive societies and communities, DANA contributes to build trust and foster collaboration that transcends past divides. Equally important is the process of deconstructing divisive narratives that perpetuate mistrust and stereotypes.
Through dialogue and critical reflections, DANA members challenge biases and historical grievances, replacing them with empathetic and nuanced perspectives. This is especially relevant in contexts affected by prolonged conflicts, where “black-and-white” narratives tend to produce overly simplistic dichotomies that do not reflect the complexities of the realities on the ground. This dual focus on finding common ground and dismantling harmful narratives equips the members of the Network to become changemakers in their communities, driving sustainable reconciliation sustained by grassroot-level engagements.
The informal-informal interactions and linkages facilitated by the DANA are integral to the peacebuilding process between Prishtinë/Priština and Belgrade, as the robust network of informal-informal interactions empower young people to overcome divisions and work collaboratively towards common goals. These efforts underscore the importance of inclusivity and the critical role that women and youth play in peace processes. Addressing the disconnect between formal negotiations and civil society, and fostering collaboration among informal actors, the DANA significantly contributes to trust and relationship-building among divided societies.
The Long Road of Transformation
Outcomes from informal processes demonstrate once again the transformative potential of women’s participation in dialogue and peacebuilding. For instance, Ardita, a DANA member from the Kosovo Albanian community actively working with a Kosovo Serb civil society organization, exemplifies this impact. Reflecting on her journey, she shares, “The DA didn’t just teach me skills; it gave me the confidence to collaborate across divides and create real change in my community.” Her work within the DANA demonstrates the ripple effect of such initiatives, bridging gaps and promoting inclusion at a grassroots level and through practical engagements.
When it comes to the formal EU-led Dialogue between Prishtinë/Priština and Belgrade, the outcomes of DA and DANA formal and informal interactions are unfortunately still limited. The very structure of the official EU-led Dialogue process as elaborated above limits the possibility for civil society actors to contribute to the process. Knowledge transfer and collaboration are impeded by confidential negotiations, limited government co-operation with Track II/III actors. Furthermore, the socio-political instability in the region continues to have a profound impact on the work of civic actors, including DANA members. Against this background, there are efforts by both CSOs and international organizations to ensure that multitrack approaches and contacts are in place, with the ultimate aim of increasing the prospects for a fairer and more representative outcome of the Track I negotiations.
In this content, the experience of the DA and DANA demonstrates how structured, informal and continuous engagement can contribute to filling the gaps left by official processes. By sustaining communication and co-operation even during periods of political stagnation, these initiatives help preserve trust and create the conditions for future progress.
Through intergenerational support programmes, joint advocacy campaigns, and locally rooted dialogues, the DA and DANA’s initiatives demonstrate that even when links between formal and informal actors are weak, collaboration among informal actors can sustain peacebuilding efforts. In short, they prove that dialogue is not only possible — it is already happening.
Nevertheless, persistent barriers remain. Negative public perceptions of the dialogue process and public contestation discourage women from associating with it, as they are often judged more harshly and face greater consequences than their male counterparts. This reluctance is compounded by the elitism observed in the process, where governments and key actors of the Dialogue process have not made a concerted effort to meaningfully include women and non-majority communities from decision-making and negotiations.
The imperative necessity for sustained engagements, inclusive policymaking, and stronger complementarities to ensure that women’s contributions to peacebuilding are recognized and integrated into formal processes is underscored by these systemic and persisting barriers. The DA and DANA remain committed to addressing these barriers by equipping young women with the tools and platforms to challenge these norms, paving the way for a more inclusive participation to dialogue and peacebuilding. These efforts not only amplify the voices of young women but also normalize their involvement, challenging the stereotype that “there are no capable young women” who can sit at the table.
The DA and DANA are already making a difference, as women are connecting and building networks that will serve as reservoirs of potential when the right moment arises for a more inclusive dialogue between Belgrade and Prishtinë/Priština. These initiatives will be ready to contribute meaningfully to both formal and informal dialogue processes, ensuring women are part of the solution when the momentum for change occurs. Positive examples of downward transfer—where Track II/III initiatives influence Track I processes—demonstrate how civic actors could bridge gaps between political official actors and the broader public, creating ripple effects for lasting and inclusive positive change.
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The contents of this publication are exclusively the opinions, findings, interpretations and conclusions of the author, and do not necessarily reflect the views or any official position of the Organization for Security and Co-operation in Europe (OSCE), its participating States and/or its donors. The OSCE does not accept any liability for the accuracy or completeness of any information, instructions and advice contained herein, or for misprints. The designations employed and the presentation of material in this publication do not constitute or imply the expression of any opinion on the part of the OSCE, its participating States and/or its donors concerning the legal status of any country, territory, city or area, of any authority therein, or concerning the delineation of any frontiers and/or boundaries.
Author Bio: Martina Garbuglia is the Deputy Director of the Democratization Department at the OSCE Mission in Kosovo, where she has worked since 2019, previously serving as Chief of the Public Participation Section and Senior Democratization Officer. Since 2011, she has been engaged in international cooperation at both European and global levels, with a focus on electoral and democratic support. She has worked with International IDEA, specializing in UN jurisprudence on electoral processes, inclusivity, and conflict prevention. During her tenure with the European Center for Electoral Support, she gained extensive experience in EU-funded electoral assistance projects. She has also participated in election observation missions and collaborated with key international organizations, including the EU, Carter Center, Democracy International, ODIHR, and ACE Electoral Knowledge Network. She holds a Master’s degree in Development Studies from the Université Libre de Bruxelles and a Bachelor’s degree in Political Science from the University of Macerata. In 2024, she completed the “Women, Peace, and Security” course at Sapienza University in Rome.
[1] “[The General Assembly] welcomes the readiness of the European Union to facilitate a process of dialogue between the parties; the process of dialogue in itself would be a factor for peace, security and stability in the region, and that dialogue would be to promote cooperation,
achieve progress on the path to the European Union and improve the lives of the people”.
[2] On annual basis, the DA brings together 24 young women aged between 20 and 27.
[3] Edita Tahiri, Meliza Haradinaj-Stublla, and Kaltrina Zeka
[4] Shaping Peace: Women’sInclusion in the Kosovo-Serbia Peace Process https://www.ridea-ks.org/uploads/ShapingPeace.pdf
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