A provisional date for local elections has been set for September, but preparations are months behind schedule.
There is still no electoral roll and many Kosovo Albanians have no proof of identity because the Serbs confiscated their papers.
Officials also want Kosovo Serbs who have fled the province to participate.
At the moment, the UN is envisaging municipal elections but this has angered Albanians who want parliamentary elections, which they see as a step towards eventual independence.
The registration process is scheduled to begin in earnest on 1 April and will include those who fled during or after the conflict.