Older people are among the most politically engaged demographic groups in Kosovo. They actively follow election campaigns, engage with party candidates for state positions and evaluate offers and promises. Elderly citizens’ political involvement is also evident in their presence at electoral rallies ahead of the February 9 general elections.
But despite their engagement, they remain one of the most overlooked groups in policy-making. Their specific needs, which range from health care and social protection to housing and community inclusion, are often absent from political agendas.
The need for concrete and long-term solutions is rarely discussed, despite demographic changes in Kosovo and globally. According to the 2024 census, Kosovo has close to 1.6 million inhabitants, 173,875 of whom are aged 65 or older. Compared to 2011, when the last census was conducted, the percentage of people in this age group has increased from 6.7% to 10.97% of the total population.
Projections of an aging population are mirrored on a global scale. According to the U.N., the number of people aged 65 and older is expected to double between 2024 and 2074. This age group is expected to have 2.2 billion people by 2080, outnumbering children under 18. Currently, there are over 2.4 billion children and approximately 830 million people are aged 65 and older worldwide.
This demographic shift requires policy adjustments in key areas such as health care, pensions, housing, transportation and social inclusion. In response, the U.N. has begun drafting the Convention on the Rights of Older Persons with the aim of strengthening the rights of the older demographic while addressing elderly people’s lack of representation in international law. Aging is not only a personal journey but a societal transformation that requires structured policy responses.
Similar responses to an aging population are lacking in Kosovo, where the elderly often feel isolated and left behind. While political discourse acknowledges their presence, policies that integrate and benefit the elderly people remain scarce. Most campaigns and party pledges foresee impacting the elderly primarily through broader policy changes rather than targeted initiatives.
Kosovo’s elderly citizens primarily live on pensions ranging from 120 to 318 euros per month. These pensions are insufficient for a dignified standard of living and reflect a non-inclusive approach for addressing the structural obstacles older people face.
The lack of public health insurance, affordable housing and community support services also leaves elderly citizens more vulnerable. A study by the Kosovo Stability Initiative (IKS), a research institute, found that 88% of pensioners surveyed wanted greater involvement from civil society organizations in programs dedicated to them, such as volunteering and social engagement initiatives. The report also notes how the state shifts responsibility for elder care onto families.
Kosovo’s housing system for the elderly remains inadequate, with only five elderly care homes available and no structure for family care services. Housing for elderly citizens primarily focuses on those without caregivers, offering few opportunities for them to live comfortably in their own homes without institutionalization.
Several countries, particularly in Scandinavia, have developed strong social welfare systems to support their elderly citizens, as a response to an aging population, without relying solely on specialized care homes. Sweden, for example, invests in age-friendly housing and home assistance programs, promoting independent living and reducing the need for institutionalization. It provides a multi-faceted approach, combining pensions, municipal support and access to health care.
In Kosovo, the lack of state-funded housing options for the elderly has left this service in the private sector’s hands. According to the IKS report, the private sector faces numerous challenges, including a lack of standardization, insufficient regulatory oversight and inadequate health and safety controls.
In Kosovo, the only country in the Western Balkans without a public health insurance system, quality health care is accessible through private insurance. This makes quality health care inaccessible for elderly citizens, given the pension amount.
Beyond financial hardship and limited health care access, ageism remains a neglected issue in public discourse and policymaking in Kosovo. Older people are often stereotyped as dependent, weak and incapable of contributing to society, while the systemic barriers that diminish their contribution are rarely addressed.
In the run-up to the February 9 elections, K2.0 analyzed political parties’ promises to the elderly, assessing whether they acknowledge the projections of an aging population, the need for policy adjustments and better social protection, the elimination of discrimination and opportunities for an independent and dignified life.
K2.0 examined the plans of the four largest political entities, Vetëvendosje (VV), Democratic Party of Kosovo (PDK), Democratic League of Kosovo (LDK) and Alliance for the Future of Kosovo (AAK), which is running in coalition with the Social Democratic Initiative (NISMA).
VV
The only direct reference in VV’s election program is a proposed financial assistance policy that supports grandparents who care for their grandchildren aged 13 to 36 months, while both parents are at work. Under this plan, grandparents would receive an extra 100 euros per month to their pension for providing child care.
While this policy initially seems innovative, it shifts greater caregiving responsibilities onto the elderly and could hinder the expansion of institutional early childhood education. It potentially limits grandparents’ abilities to maintain an active and independent social life outside the home, raising concerns about VV’s stance on welfare and elderly care.
Additionally, VV overlooks the deeply patriarchal context in Kosovo, where child care primarily falls on women. Under this policy, it is uncertain if existing gender inequalities would be eradicated as grandmothers are more likely than grandfathers to take on the role of caregivers.
The elderly are indirectly targeted by VV’s pledge for health insurance — a long-standing pledge of political parties in Kosovo. VV has promised that once the law on health insurance is approved and the health information system becomes operational, the public health insurance scheme will be implemented.
According to VV, health insurance for elderly citizens will be financed through the state budget. However, without a concrete implementation plan, it remains unclear when, or if, this commitment will be fulfilled. The draft law on health insurance, part of the government’s legislative program since 2022, took two years to approve.
This approval is merely the first step in a long and uncertain process, as evidenced by the repeated delays in this legislation over the years. One key measure, however, that did take place under VV’s current government was the pension increases implemented in October 2023.
The government raised pensions by 20%, applying this increase to both the basic pension and the contributory pension received from having had employment. As a result, the basic pension rose from 100 to 120 euros, while contributory pensions now range between 218 and 318 euros.
Although this increase marks an improvement compared to previous years, it remains to be seen whether it could cover elderly people’s essential living expenses — let alone any medical bills. For comparison, the minimum wage in Kosovo is 350 euros gross monthly, which is itself a questionable amount for providing an adequate standard of living. VV has not outlined how it plans to ensure that this raise in pension would mean the elderly have a stable income, enabling them to live with well-being and dignity.
It remains unclear whether VV will follow through on its 2021 election promise to build five nursing homes for the elderly, part of its 2021-2025 government program. Although this plan was included in budget projections from 2021 to 2025, no concrete steps were taken beyond the repeated transfer of funds from one year to the next.
LDK
In its program, LDK emphasizes values like dignity, respect for life in all its phases and solidarity with vulnerable groups and elderly citizens. However, it remains unclear how this solidarity will translate into concrete public policies for elderly citizens.
Social and pension policy is included in LDK’s program, but its approach may be limited in scope. LDK believes in a sustainable and equitable pension system that guarantees stable and sufficient pensions for future generations, while also addressing existing pensioners’ needs.
Although a necessary reform for Kosovo, this initiative is part of a broader policy approach that applies to all beneficiaries of social assistance in general. Elderly citizens are indirectly affected through a broad pension scheme, making it difficult to clearly identify LDK’s specific commitments to the projection of an aging population.
Generalized language in LDK’s program suggests a lack of attention to the fact that pension scheme beneficiaries are not a homogeneous group. As a result, a one-size-fits-all approach to addressing their needs is unlikely to produce equal outcomes.
LDK highlights the need for a new pension system architecture, arguing that Kosovo should adopt an additional fourth pillar. This would replace the current three-pillar system that determines how pensions are distributed.
The proposed pillars are: Pillar A, existing social assistance schemes; Pillar B, all social security funding including pensions for elderly citizens; Pillar C, mandatory pension contributions, determined by law; Pillar D, voluntary pension and health insurance, regulated by the Central Bank of Kosovo.
Under its plan, LDK has proposed transferring the basic pension applicable for the elderly to Pillar B, meaning it would be funded through additional contributions from employers and employees rather than being entirely covered by the state budget.
However, simply making further adjustments to the existing pension system is unlikely to yield satisfactory results. The system has undergone continuous modifications — new categories have been added and pension amounts have increased — yet it is unclear if this will serve anything more than a means for survival rather than a comprehensive social safety net.
LDK’s campaign rallies also served as a platform for making pledges. Lumir Abdixhiku, LDK’s candidate for prime minister, along with other party candidates, pledged to increase all pensions within the first week of government. LDK’s program also stated that no basic pension would be lower than 150 euros and went further to say that all pensions would increase by 36.2%, with essential medicines for the elderly being free.
In the absence of health insurance, this measure could provide some relief from the financial burden on elderly citizens. Regarding health insurance, LDK has promised to make the health insurance scheme fully functional within the first year of government.
Given the steps required for this promise to be fulfilled, it is uncertain if LDK can achieve its health insurance scheme in one mandate. With the development of administrative systems, funding and operationalization of the health fund, approving the health insurance benefits package and finalizing contracts with health institutions and pharmacies, it appears the project would require at least a four-year mandate for completion, even if it were treated as the government’s main priority.
LDK has also stated that one of its priorities will be the full reimbursement of prescription medication for the most common chronic diseases among pensioners, while expanding the list of covered medications each year.
PDK
PDK has outlined its policies for the elderly under the slogan “More dignity and appreciation for the elderly,” focusing on pension increases, improving elderly care centers and providing free medicines. While its program appears more comprehensive than those of other parties, the implementation, finance and feasibility of these pledges remain unclear.
Pledging significant pension increases aimed at improving the quality of life for pensioners, the proposed changes include raising the basic pension to 200 euros and increasing contributory pensions by 30%. PDK also pledges the establishment of specialized centers for elderly citizens. These centers, in each region of Kosovo, would provide specialized medical care, physical therapy, social and cultural activities and independent life skills training.
PDK proposes specialized centers to reduce the disproportionate burden on women in caring for the elderly, arguing that these centers would alleviate this responsibility. This would give women greater opportunities for employment and participation in social, cultural and political life.
However, the plan lacks details on how these centers will be integrated into the existing health care system, how they will ensure inclusive accessibility for elderly citizens, whether they will be available to all seniors regardless of financial status, how they will be funded or when they will be completed.
PDK also pledges to provide training and resources to help manage the needs of the elderly, within the context of supporting families caring for elderly citizens at home. To ensure the quality and effectiveness of these services, PDK has proposed establishing a monitoring system, though it does not specify how this system would be organized or how it would function in cases in which families provide elderly care.
Similar to LDK, PDK also seeks to reform the health care system and include free prescriptions for those suffering from chronic diseases. These citizens suffering from chronic diseases would also have access to necessary medical treatments without financial burden.
The party has committed to operationalizing the public health insurance system, which, as a targeted initiative, could have a direct impact on elderly citizens. However, it remains unclear when this system will be implemented.
AAK-NISMA
The AAK-NISMA coalition takes a vague and generalized approach to policies for the elderly, incorporating them into a broader framework of social welfare and family support. One of the proposals in the AAK-NISMA program appears in the food and agriculture sector, which the coalition identifies as a strategic priority for Kosovo.
The program promises “the creation of funds as an incentive for the purchase of land by elderly [and non-agricultural families]” but it fails to clarify what this means for elderly citizens, how the land is expected to be used, whether the support will come in the form of subsidies, grants or loans and how this measure will directly improve the quality of life for elderly citizens.
AAK-NISMA incorporates all social policies, including those for elderly citizens, within its plan to establish a ministry dedicated to the family. However, given the lack of structured policies for elderly citizens, it remains unclear whether the elderly would have appropriate support since the ministry would have a broad scope of responsibilities.
Other AAK-NISMA commitments to elderly citizens include promoting their participation in society, creating opportunities for them to continue contributing in retirement and encouraging programs for active inclusion such as volunteer work. However, the program does not explain how these goals will be achieved. It also lacks details on financing, implementation or legal initiatives, making it difficult to assess the feasibility of these policies.
Another aspect of AAK-NISMA’s policies for the elderly is the family welfare package. The package includes financial assistance for the elderly, home care through social enterprises and the local and central levels of organization of these services. While financial assistance and home care are crucial for improving the lives of the elderly, the program does not specify sources of financing, extent of coverage, method of organization or time frame for implementation.
AAK-NISMA has also made a generous economic promise, including a commitment that no pension will be below 500 euros. However, the program does not explain how this pension increase will be structured, how it will impact different categories of pensioners or whether it is fiscally sustainable.
What can we learn from these programs?
While political parties in Kosovo acknowledge that older people need support, their programs often target elderly citizens through other schemes like financial assistance and health care. These programs overlook the right to independence, social inclusion and mental well-being for elderly citizens.
While pledges on financial assistance focus on measures like pension increases or access to health care, these measures fail to recognize the elderly as active members of society who need opportunities for social engagement, employment and a sense of purpose beyond financial aid. Even the financial assistance is limited, as they rely on an outdated pension system that has proven to be inadequate and has failed to address social inequalities over the years.
When it comes to health care, these pledges focus on basic health care services while neglecting critical concerns like stigmatization of the elderly and mental health. There is almost no discussion about combating social isolation or providing psychological support.
Even when more progressive policies are proposed, like programs for social inclusion, they remain underdeveloped and lack clear implementation strategies. Until policies move beyond financial assistance and basic health services address the broader social, mental and emotional needs of the elderly, Kosovo’s elderly will continue to be treated as passive recipients of social assistance rather than individuals with full rights and agency.
Feature Image: Dina Hajrullahu / K2.0
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