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ENEMOprirucnik 2020
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SHORT-TERM OBSERVER GUIDE
PARLIAMENTARY ELECTION MONTENEGRO 30 August 2020 ENEMO European Network of Election Monitoring Organizations Election Observation Mission Montenegro
Bul. Josipa Broza 23A, 81000 Podgorica e-mail: [email protected] www.enemo.eu Published by: ENEMO- European Network of Election Monitoring Organization Authors: Gianluca Passarelli Ana Mihajlovic Pierre Peytier Oleg Reut Nikolai Grishin Gazmend Agai Kristina Kostelac Editor: Ana Mihajlovic
The EOM of ENEMO for the 2020 Parliamentary Elections is financially supported by: The National Democratic Institute (NDI) and the National Endowment for Democracy (NED) The contents of this publication are the sole responsibility of ENEMO and do not necessarily reflect the views of the donors
Contents SECTION 1. ................................................................................................. 8
1.1. About the mission ............................................................................................................................................................... 1.1.1 Mission timeline ................................................................................................................................................................. 1.1.2. Mission Structure ............................................................................................................................................................ 1.1.3. Core Team Information ................................................................................................................................................. 1.1.4. Core Team Contact Details ........................................................................................................................................... 2. List of previous & current EOMs conducted by ENEMO ......................................................................................... 3. Code of Conduct for International Election Observers ......................................................................................... 3.1. The Code of Conduct ....................................................................................................................................................... 3.2. Pledge to accompany the Code of Conduct for International Election Observers ..................................
10 10 11 12 15 16 19 19 22
SECTION 2. ................................................................................................. 23
2.1. Country at a glance ........................................................................................................................................................... 2.1. ENEMO’s observation of the electoral campaign ahead of the 2020 parliamentary elections............... 2.2. Candidate lists registered in the election ............................................................................................................... 2.3. Public opinion and polling results ................................................................................................................................
25 29 31 34
SECTION 3. ................................................................................................. 35
3.1. Hierarchy of the electoral norms ................................................................................................................................. 3.1.1. Domestic primary legal framework .......................................................................................................................... 3.1.2. Electoral system .............................................................................................................................................................. 3.2 Right to Vote and Be Elected ..........................................................................................................................................
35 35 36 37
SECTION 4. ................................................................................................. 38
4.1 Election Management Bodies ......................................................................................................................................... 4.1.1 The State Election Commission (SEC) ........................................................................................................................ 4.1.2 Municipal Election Commissions (MECs) ................................................................................................................. 4.1.3 Polling Boards (PBs) ........................................................................................................................................................ 4.2. Voters’ list ............................................................................................................................................................................. 4.3. Ballot papers ....................................................................................................................................................................... 4.4. Election Day procedures ................................................................................................................................................. 4.5. Attribution of mandates ..................................................................................................................................................
38 38 39 40 40 41 42 44
SECTION 5. ................................................................................................. 45
5.1. Media ....................................................................................................................................................................................... 5.1.1. Media landscape ............................................................................................................................................................... 5.1.2. Legal framework for media ......................................................................................................................................... 5.1.3. Current context ................................................................................................................................................................ 5.2. Civil society 59 ..................................................................................................................................................................... 5.2.1. Non-partisan election observation ...........................................................................................................................
45 45 47 48 51 52
SECTION 6. ...................................................................................................... 53
6.1. Electoral disputes ........................................................................................................................................................................ 53 6.2. Electoral offenses ...................................................................................................................................................................... 54
SECTION 7. ...................................................................................................... 56
7.1. Campaigning .................................................................................................................................................................................. 7.1.1. Legal framework ....................................................................................................................................................................... 7.1.1.1. Definition of campaigning .................................................................................................................................................. 7.1.1.2. Time frame for campaigning ........................................................................................................................................... 7.1.1.3. Limitations on campaigning of public officials ......................................................................................................... 7.1.1.4. Campaigning on Public Radio and Television ............................................................................................................. 7.1.1.5. Free political advertising .................................................................................................................................................. 7.1.1.6. Exit polls on Election Day ..................................................................................................................................................
56 56 56 57 57 58 58 58
SECTION 8. ...................................................................................................... 59
8.1. Ethnic minority groups .............................................................................................................................................................. 59 8.2. Women representation ............................................................................................................................................................. 60 8.3. Persons living with disabilities ............................................................................................................................................... 61
SECTION 9. ...................................................................................................... 62
9.1 The role of Short Term Observers .......................................................................................................................................... 9.2. Election Day observation procedures 76 ............................................................................................................................ 9.3. Reporting procedure during Election Day ......................................................................................................................... 9.4. Electronic submission of reporting forms ........................................................................................................................ 9.5. Timetable for reporting to Coordinator/ENEMO HQ ...................................................................................................... 9.6 Guidelines for dealing with interview requests by the media .................................................................................... 9.6.1 Frequently asked questions about ENEMO ..................................................................................................................... 9.7. Check-list for Election Day ......................................................................................................................................................
62 63 64 64 95 67 68 69
SECTION 10. .................................................................................................... 10.1. General instructions ................................................................................................................................................................. 10.2. Instructions for travel with vehicle ..................................................................................................................................... 10.3. General incident management guide ................................................................................................................................ 10.4. In the case of a security problem or accident do the following steps: ............................................................... 10.5. In case of a security problem or accident, do the following steps: ....................................................................... 10.6. Evacuation plan .......................................................................................................................................................................... 10.7. Communications ........................................................................................................................................................................ 10.8. Covid-19 Prevention mesaures...............................................................................................................................................
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SECTION 11. ..................................................................................................... 11.1. General Time schedule ............................................................................................................................................................. 11.2. The Basics ..................................................................................................................................................................................... 11.3. Logistics and finances ............................................................................................................................................................. 11.4. Currency and Payments .......................................................................................................................................................... 11.5. Accommodation ............................................................................................................................................................................ 11.6. Communications ......................................................................................................................................................................... 11.7. STO briefing 95 .............................................................................................................................................................................. 11.8. Transportation and Travel .......................................................................................................................................................
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70 70 71 71 71 72 73 73 74 74 75 75 75 76 76 76
11.9. STO teams and deployment ........................................................................................................................................................ 77 11.10. Report forms ................................................................................................................................................................................... 77 11.11. Withdrawal/dismissal from the EOM 96 ................................................................................................................................. 77
SECTION 12. ....................................................................................................... 78
FINANCIAL GUIDELINES FOR SHORT-TERM OBSERVERS ............................................................................................................... 78 12.1. Volunter Agreem .............................................................................................................................................................................. 78 12.2. Per diems ......................................................................................................................................................................................... 79 12.3. STO Interpreter ................................................................................................................................................................................ 79 12.3.1. Agreement ...................................................................................................................................................................................... 79 12.3.2. Fee .................................................................................................................................................................................................... 80 12.4. STO Driver .......................................................................................................................................................................................... 80 12.4.1. Agreement ...................................................................................................................................................................................... 80 12.4.2. Fee ..................................................................................................................................................................................................... 80 12.4.3 Rental of vehicle ........................................................................................................................................................................... 80 12.4.4. Fuel costs ....................................................................................................................................................................................... 81 12.4.5. How to calculate fuel reimbursement ................................................................................................................................ 82 About ENEMO ............................................................................................................................................................................................. 82
SECTION 13. Annexes ....................................................................................... 84
ANNEX 1. LTO biographies ...................................................................................................................................................................... 84 ANNEX 2. Financial forms ...................................................................................................................................................................... 87 ANNEX 3. Glossary .................................................................................................................................................................................... 91
SECTION 1. INTRODUCTION Welcome Letter from the Head of Mission Dear Colleagues, As Head of the Mission, I am very pleased to welcome you in Montenegro, on behalf of the Core Team of the International Election Observation Mission of ENEMO for the 30 August 2020 Parliamentary Elections.AElections matter. The electoral process represents a core element of all democratic countries. The respect of international standards in managing the elections is the base for the strengthening and consolidation of democracy in any country, and is a guarantee for citizens to see their rights respected. For the first time in its history, the European Network of Election Monitoring Organizations (*ENEMO) will deploy a mission in Montenegro. The 2020 elections in Montenegro are being held at a crucial moment for the country. Political and social turmoil, the economic crisis, and the COVID-19 represent a considerable challenge for the whole system. The Mission started its activities in the country seven weeks prior to your arrival, and the Core Team has been preparing the needed logistics and contacted the relevant authorities, in order to ensure a smooth
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deployment and accreditation, for you. Despite tight deadlines under which this mission is going to operate and a very busy schedule, we are certain that the mission will be very successful, in line with previous missions of ENEMO. The mission issued one interim report and will issue a preliminary statement after election day, with the final report to follow approximately 60 days after election day. The engagement, professionalism and dedication of each and every single member of the team will be key to achieve all goals successfully. The findings and assessment of the previous ENEMO missions were highly evaluated by both international and domestic stakeholders, and part of the previous recommendations of ENEMO fulfilled over the years. We are in Montenegro to improve the transparency of the electoral process, assess its integrity and compatibility with international standards and domestic legislation, as well as provide recommendations for potential areas of improvement. The mission will be monitoring and assessing the over-
all political and electoral environment, the respect for the rights to elect and stand for election, conduct of election management bodies, campaigning, gender equity, voting and tabulation processes, electoral dispute resolutions and other crucial aspects of the process, based on international standards for democratic elections and the national legal framework of Montenegro. To reach these goals the ENEMO seeks to support the international community’s interest in promoting democracy in the region. The mission is composed of a Core team of 7 people plus 8 Long-term observers and 38 Short-term observers who will be checking for the respect of the electoral procedures all over the country.
I am grateful for your support, your dedication, and your job in working as a team in order to reach a common goal. Each of you is very important to deliver excellent work as it is ENEMO’s standard. Last, but not least, I am very honored to express my gratitude to the donors of our network, and the network’s supporters.
I am confident that ENEMO’s activities and its personnel will contribute to develop the best practices in the electoral field in order to achieve a full democratic standard. In this sense, I am positive about the citizens’ engagement in the electoral process and their political participation. Head of the Mission Prof. Gianluca Passarelli
1.1. About the mission The full-scale mission of ENEMO is composed by 7 Core Team (CT) members (5 in country experts, 2 remote experts), 8 Long-Term Observers (LTOs), and 38 Short-Term observers (STOs) to observe processes at polling stations on Election Day. The CT and LTOs will observe all key aspects of the pre-election period, electoral campaign and post-election period. Additionally, in total the mission plans that approximately 250 to 300 polling stations will be observed by 19 STO teams and 4 LTO teams acting as STOs during E-day. The mission is composed of 5 core team members based in Podgorica and 2 members abroad, 8 LTOs deployed throughout Montenegro, and 38 STOs to be deployed throughout Montenegro on Election Day. The main goal of this mission is to further contribute to the democratic development of Montenegro, by ensuring a more transparent electoral process in line with the domestic legislation and international standards, thereby contributing to increased public trust towards the election results and their integrity in Montenegro. ENEMO also aims at supporting domestic non-partisan observers and the Montenegrin civil society in their advocacy efforts, by providing recommendations for improving the electoral process in the country and its further democratic development. Furthermore, the mission will ensure constructive cooperation with the political and civil society in the country, Was well as the election administration to provide recommendations for improving the electoral environment in the country.
1.1.1 Mission timeline 07 July – 15 July 2020: Core Team deployment 15 July 2020 Announcement of the Mission 26 July 2020: LTO deployment 27 July 2020: LTO briefing 18 August First LTO mid-briefing 17 August 2020: Interim Report 27 August 2020: STO arrival 28 August 2020: STO briefing 30 August 2020: Election Day 31 August 2020: Statement of Preliminary Findings and Conclusions 1 September 2020: STO departure 6 September 2020: LTO final debriefing 7 September 2020: LTO departure 15 September – 15 October 2020: Departure of Core team End of October: Final Report publication
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1.1.2. Mission Structure
CEMI PROJECT COORDINATOR FINANCIAL MANAGER
ENEMO SECRETARIAT
HEAD OF THE MISSION DEPUTY HEAD OF THE MISSION
LOCAL STAFF
CORE TEAM INTERNATIONAL MISSION
Head of the mission assistant
Election campaign Analyst
Election administration Analyst\CEC&DEC observer assistant
Election administration Analyst\CEC&DEC observer
Deputy Head of the Mission assistant
Legal Analyst (remote)
Election Campaign Analyst assistant
Election Administration Analyst (remote)
LTO COORDINATOR ASSISTANT
LTO COORDINATOR
LTO ASSISTANT AND DRIVERS
8 LTOs
STO ASSISTANT AND DRIVERS
38 STOs
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1.1.3. Core Team Information
Gianluca Passarelli, Head of Mission (Italy) Associate Professor in Political Science at the Department of Political Sciences, Sapienza University, Roma. His main research interests concern: presidents of the Republic, political parties, electoral systems, elections and electoral behaviour. He is the author of Preferential Voting Systems. Influence on Intra-Party Competition and Voting Behavior. (2020); The Presidentialization
of Political Parties in the Western Balkans (2018); The Presidentialization of Political Parties (2015). Among his publications are articles appearing in Party Politics, Politics, Political Geography, Representation, French Politics, and Political Studies Review. He is editor of the Presidential Politics book series (Palgrave), and convenor of the ECPR Standing Group on “Presidential Politics”.
Ana Mihajlovic, Deputy Head of Mission (Serbia) Since 2008, Ana has been performing the role of the Regional coordinator at the Center for the Free Elections and Democracy (CeSID). During this period, she has managed a variety of projects related to democracy, local administrations monitoring and human rights. Moreover, for the past ten years, has coordinated all CeSID’s EOMs- related activities and also been part of international monitoring missions on 16 occasions in different countries, all of which were with the European Network of Election Monitoring Organizations (ENEMO). Throughout her in-
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volvement in the election observation, both domestic and international, she have covered a wide range of positions, from a short-term observer to an acting Head of the Mission. Ana is a Certified Trainer of the Long Term Observers and to date has conducted three LTO trainings. In 2017, she also completed OSCE/ODIHR training for LongTerm Observers and in 2018 Information and Electoral Integrity: Open Data Analysis and Disinformation Monitoring NDI Academy. Prior to her engagement in CeSID, Ana used to work as school psychologist at primary school and psychology teacher at general grammar school.
Oleg Reut, Election Administration Analyst (Russia) Dr Oleg Reut is Head of the Golos Regional Office, Petrozavodsk, Republic of Karelia, Russia. He has also been a visiting fellow at the Nixon Center (Washington, DC, United States), Aleksanteri Institute (Helsinki, Finland), Kennan Institute, Woodrow Wilson International Center for Scholars (Washington, DC, United States), Smolny Collegium, Smolny College of Liberal Arts and Sciences (St.-Petersburg, Russian Federation), Centre for European Security Studies (Groningen, The Netherlands). He has written several books on Russian foreign
and domestic policy and the failure of Russia’s democratic transition. He is a frequent commentator on current Russian events in international, national, and regional electronic and printed media, and blogs about Russian electoral policy and electoral hacking. Previously, he has been a Election Expert / CEC Observer in the ENEMO mission in Moldova (2019), Legal Analyst / CEC Observer in the ENEMO mission in Armenia (2018), Media Expert in the Barents Press International mission in Sweden (2018), STO in EPDE missions in Finland (2018) and Germany (2017).
Kristina Kostelac, Election Administration Analyst / CEC & DEC observer (Croatia) Kristina Kostelac is a Master of Political Science with special interest in public policy and elections, and a University Specialist in Project Management, EU Funds and Programmes. She has been observing elections in Croatia since 2011 and holds international STO and LTO certificates. Since 2014, Kristina has observed elections with OSCE/ODIHR, ENEMO and European Union, most recently in Ghana, Nepal, Zimbabwe, Armenia, Ukraine, Kosovo and Serbia. Besides preparing projects and observing elections, Kris-
tina closely cooperates with Croatian civil society organization Gong, a pioneer of election observation in Croatia, and is engaged in numerous activities such as activism and research. Also, she implements numerous projects and organizes election observation in Croatia. In her free time, Kristina is a football referee and she has been engaged in this hobby for the past 13 years.
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Pierre Peytier, Electoral Campaign Analyst (France) Pierre has been involved in election monitoring, management and administration of multiple USAID, OSCE and EU funded democracy building programs since 2014. His career has focused on Central Asia and Eastern Europe, in particular work with civil society organizations, political transparency and accountability, and electoral reform projects. He has been representing Kyrgyz NGO “Coalition for Democracy and Civil Society” in the Secretariat of ENEMO since 2018, and was Election and Campaign Expert, Political Analyst and Deputy Head of Mission in ENEMO’s
2019 EOMs in Ukraine and Moldova. In 2017, for the first time in Central Asia, in cooperation with NDI, he contributed to the implementation of SMS based reporting methodology of short-term observers with the Coalition. Pierre is the co-creator of the first voter advice application in Central Asia, « Shailoo Suramjeiloo » (implemented for 2015 Kyrgyz parliamentary elections). He has trained international short-term observers for the US Embassy and various European and Central Asian civil society observation groups performing PVT. Pierre holds a degree in Law and two degrees in Political Science. His research has focused on post-soviet states and democratic transitions, and retrospective voting during economic crisis in Europe.
Nikolai Grishin, Legal Analyst (Russia) Nikolai Grishin is a scholar and electoral expert, doctor of Political Science since 2011 and during 15 years he had been working at the Astrakhan State University. In 2009, he graduated from the Master’s program at the Clark University (USA). He is also professor at the Saint Petersburg State University since 2019. He went through research internships Worcester (USA), Berlin, Hamburg, Cologne and member of the Russian Political Science Association since 2004, member of the Research committees “Comparative Studies” and “Political Parties and Elections”. Executive secretary of the scientif-
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ic journal “The Caspian Region: Politics, Economy, Culture” since 2012; Deputy Chief Editor of the scientific e-journal “Electoral Politics” since 2018. During several years he had been in charge for 7 research projects on elections issues supported by Russian, German and EU foundations. In 2017 he was an international observer at the elections to the German Bundestag. In the period of 2018-2020 he was a member of the Scientific Expert Council at the Central Election Commission of the Russian Federation. He is a member of the Russian NGO Expert Forum “Electoral Laws - for the Voters” since 2016.
Gazmend Agaj, LTO Coordinator (Albania) Gazmend Agaj is an elections and local governance expert. From 1997 until 2011, he worked as a professional journalist at Albanian National Radio and Television. In 2000, he joined the Society for Democratic Culture and has been working on different projects focused on elections and local governance. Gazmend graduated from
the University of Tirana in 1997 with a degree in English Language and Literature. Since 2005 he has served as a short term and long term observer with ENEMO, OSCE/ ODIHR and NDI working on election observation missions and electoral assistance projects in Albania, Georgia, Bulgaria, Ukraine, Kosovo, Turkey, Armenia, Poland, Kazakhstan and Kyrgyzstan. He has observed every election in Albania with the Coalition of Domestic Observers, serving as a domestic observer and observer coordinator.
1.1.4. Core Team Contact Details
Name / position
Mobile/Phone
Email
Gianluca Passarelli Head of Mission
+382 67 079 071
[email protected]
Ana Mihajlovic Deputy Head of Mission
+382 67 079 065
[email protected]
Kristina Kostelac Election Administration Analyst/ CEC & DEC observer
+382 67 079 068
[email protected]
Oleg Reut, Election Administration Analyst (remote) Pierre Peytier Electoral Campaign Analyst
[email protected]
+382 67 408 387
Nikolai Grishin Legal Analyst (remote) Gazmend Agaj LTO Coordinator and Security Officer
[email protected] [email protected]
+382 67 079 062
[email protected] 15
2. List of previous & current EOMs conducted by ENEMO
1. Serbia 2020, Parliamentary Elections
Donor: National Endowment for Democracy (NED) Structure: 6 CT members
2. Moldova 2019, Local Elections
Donor: Embassy of Sweden, Embassy of the Kingdom of the Netherlands, European Union Structure: 5 CT members, 8 LTOs
3. Ukraine 2019, Early Parliamentary Elections
Donor: USAID (through the NDI), German Embassy, Embassy of the Kingdom of the Netherlands. Structure: 11 CT members, 40 LTOs, 76 STOs
4. Ukraine 2019, Presidential Elections
Donor: USAID (through the NDI), German Embassy, European Union Structure: 10 CT members, 48 LTOs, 150-160 STOs (in each round)
5. Moldova 2018-19, Parliamentary Elections
Donors: Kingdom of the Netherlands, Ministry of Foreign Affairs of Sweden, National Endowment for Democracy through NDI, Delegation of the European Union to Montenegro. Structure: 8 CT members and 10 LTOs
6. Armenia 2018, Early Parliamentary Elections
Donor: European Union and Kingdom of the Netherlands Structure: 6 CT members, 8 LTOs and 50 STOs
7. Moldova 2016, Presidential Elections
Donor: The Royal Netherlands Embassy to Moldova Structure: 8 CT members – Experts Mission
8. Ukraine 2015, Regular Local Elections Donor: The European Union Structure: 270 STOs, 50 LTOs, 8 CT members17
9. Ukraine 2014, Parliamentary elections
Donor: NDI, USAUD, U.S. Department of State’s Bureau of Democracy, Human Rights and Labor, Embassy of the Federal Republic of Germany in Kyiv, EU European Development Fund Structure: 150 STOs, 50 LTOs, 6 CT members
10. Ukraine 2014, Presidential elections
Donor: NDI, USAID, U.S. Department of State’s Bureau of Democracy, Human Rights and Labor, Embassy of the Federal Republic of Germany in Kyiv, EU European Development Fund Structure: 300 STOs, 48 LTOs, 6 CT members 16
11. Ukraine 2013 – re-run of Parliamentary elections 2012 in 5 DECs Donor: NDI
12. Kosovo 2013, Local elections, first round
Donor: USAID, through NDI, Embassy of Federal Republic Germany and the Embassy of the Grand Duchy of Luxembourg. Structure: 17 STOs, 12 LTOs, 5 CT members
13. Ukraine 2012, Parliamentary elections
Donor: United States government, German Foreign Office, Kingdom of Norway, Black Sea Trust Structure: 40 STOs, 35 LTOs, 4 CT members
14. Kosovo 2011, Re – run of Parliamentary elections
Donor: Ministry of Foreign Affairs of Sweden, and unspent funds Structure: 7 STOs, 4 LTOs and 3 CT members
15. Kosovo 2010, Parliamentary elections
Donor: USAID, Embassy of the United Kingdom of Great Britain and Northern Ireland, Ministry of Foreign Affairs of
16. Norway, Ministry of Foreign Affairs of Sweden
Structure: 116 ENEMO STOs, 38 USA STOs, 17 European countries STOs, 12 LTOs, 9 CT members
17. Kyrgyzstan 2010, Parliamentary elections Donor: NDI Structure: 23 STOs, 3 CT members
18. Ukraine 2010, Presidential elections, second round Donor: USAID Structure: 402 STOs, 50 LTOs, 6 CT members
19. Ukraine 2010, Presidential elections, first round Donor: USAID Structure: 400 STOs, 50 LTOs, 6 CT members
20. Kosovo 2009, Local elections
Donor: USAID through the NDI, Embassy of the Kingdom of the Netherlands, Government of Sweden, Embassy of the Republic of Germany. Structure: 106 STOs, 12 LTOs, 7 CT members
21. Moldova 2009, Parliamentary elections
Structure: 140 STOs, 6 LTOs The conditions that were set by the authorities of the country made it impossible to perform a comprehensive monitoring effort and therefore the EOM was cancelled
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22. Georgia 2008, Presidential elections
Donor: Latvian Ministry of Defense, German Marshall Fund and Black Sea Trust Structure: 50 STOs, 5 CT members, 5 election experts
23. Kyrgyzstan 2007, Parliamentary elections Donor: USAID Structure: 20 STOs
24. Ukraine 2007, Parliamentary elections
Donor: NDI, USAID Structure: 400 STOs, 25 LTOs, 6 Core Team (CT) members
25. Ukraine 2006, Local elections in Poltava, Kirovograd and Chernihiv
Structure: 28 STOs 3 LTOs
26. Ukraine 2006, Parliamentary elections Donor: Freedom House, NDI, USAID Structure: 389 STOs, 42 LTOs
27. Kazakhstan 2005, Presidential elections Donor: NDI Structure: 30 STOs, 10 LTOs
28. Albania 2005, Parliamentary elections Donor: NDI through USAID Structure: 60 STOs
29. Kyrgyzstan 2005, Presidential elections
Donor: NDI through a grant from the USAID and OSCE Structure: 40 STOs, 14 LTOs, 26 mid-term observers for out of country voting observation
30. Kyrgyzstan 2005, Parliamentary elections Donor: NDI Structure: 30 STOs
31. Ukraine 2004, Presidential elections, second round rerun Donor: NDI, Freedom House Structure: 1000 STOs, 50 LTOs
32. Ukraine 2004, Presidential elections
Donor: NDI, Freedom House Structure: 50 LTOs, 1000 Short term observers (STOs)
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3. Code of Conduct for International Election Observers ENEMO belongs to the group of leading international organizations which contributed to the foundation and signed two immensely important documents for nonpartisan electoral observation: the 2005 UN Declaration of Principles for International Election Observation and the 2012 Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organizations. These two documents, relying on The Universal Declaration of Human Rights and International Covenant on Civil and Political Rights, represent huge efforts to establish standards for impartial electoral observation worldwide. As for the Declaration of Principles for International Election Observation, it identifies two major groups of international observers, namely: intergovernmental organizations such as OSCE ODHIR and international NGOs such as ENEMO. Moreover, as an international organization which observes election processes in the OSCE region, ENEMO bases its electoral observation activities on the Copenhagen Document (adopted in June 1990) which represents the cornerstone of the electoral observation sector. This document contains articles (e.g. Article 8) ensuring the right of observers to conduct election-related observation and setting the standards for free and fair elections (e.g. Articles 6 and 7). In addition, ENEMO contributed to the development and stipulation of the Code of Conduct for International Election Observers.
3.1. The Code of Conduct International election observation is widely accepted around the world. It is conducted by intergovernmental and international nongovernmental organizations and associations in order to provide an impartial and accurate assessment of the nature of election processes for the benefit of the population of the country where the election is held and for the benefit of the international community. Much therefore depends on ensuring the integrity of international election observation, and all who are part of this international election observation mission, including long-term and short-term observers, members of assessment delegations, specialized observation teams and leaders of the mission, must subscribe to and follow this Code of Conduct.
Respect Sovereignty and International Human Rights Elections are an expression of sovereignty, which belongs to the people of a country, the free expression of whose will provides the basis for the authority and legitimacy of government. The rights of citizens to vote and to be elected at periodic, genuine elections are internationally recognized human rights, and they require the exercise of a number of fundamental rights and freedoms. Election observers must respect the sovereignty of the host country, as well as the human rights and fundamental freedoms of its people.
Respect the Laws of the Country and the Authority of Electoral Bodies Observers must respect the laws of the host country and the authority of the bodies charged with administering the electoral process. Observers must follow any lawful instruction from the country’s governmental, security 19
and electoral authorities. Observers also must maintain a respectful attitude toward electoral officials and other national authorities. Observers must note if laws, regulations or the actions of state and/or electoral officials unduly burden or obstruct the exercise of election-related rights guaranteed by law, constitution or applicable international instruments.
Respect the Integrity of the International Election Observation Mission Observers must respect and protect the integrity of the international election observation mission. This includes following this Code of Conduct, any written instructions (such as a terms of reference, directives and guidelines) and any verbal instructions from the observation mission’s leadership. Observers must: attend all of the observation mission’s required briefings, trainings and debriefings; become familiar with the election law, regulations and other relevant laws as directed by the observation mission; and carefully adhere to the methodologies employed by the observation mission. Observers also must report to the leadership of the observation mission any conflicts of interest they may have and any improper behavior they see conducted by other observers that are part of the mission.
Maintain Strict Political Impartiality at All Times Observers must maintain strict political impartiality at all times, including leisure time in the host country. They must not express or exhibit any bias or preference in relation to national authorities, political parties, candidates, referenda issues or in relation to any contentious issues in the election process. Observers also must not conduct any activity that could be reasonably perceived as favoring or providing partisan gain for any political competitor in the host country, such as wearing or displaying any partisan symbols, colors, banners or accepting anything of value from political competitors.
Do Not Obstruct Election Processes Observers must not obstruct any element of the election process, including pre-election processes, voting, counting and tabulation of results and processes transpiring after Election Day. Observers may bring irregularities, fraud or significant problems to the attention of election officials on the spot, unless this is prohibited by law, and must do so in a non-obstructive manner. Observers may ask questions of election officials, political party representatives and other observers inside polling stations and may answer questions about their own activities, as long as observers do not obstruct the election process. In answering questions observers should not seek to direct the election process. Observers may ask and answer questions of voters but may not ask them to tell for whom or what party or referendum position they voted.
Provide Appropriate Identification Observers must display identification provided by the election observation mission, as well as identification required by national authorities, and must present it to electoral officials and other interested national authorities when requested. Maintain Accuracy of Observations and Professionalism in Drawing Conclusions Observers must ensure that all of their observations are accurate. Observations must be comprehensive, noting
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positive as well as negative factors, distinguishing between significant and insignificant factors and identifying patterns that could have an important impact on the integrity of the election process. Observers’ judgments must be based on the highest standards for accuracy of information and impartiality of analysis, distinguishing subjective factors from objective evidence. Observers must base all conclusions on factual and verifiable evidence and not draw conclusions prematurely. Observers also must keep a well-documented record of where they observed, the observations made and other relevant information as required by the election observation mission and must turn in such documentation to the mission.
Refrain from Making Comments to the Public or the Media before the Mission Speaks Observers must refrain from making any personal comments about their observations or conclusions to the news media or members of the public before the election observation mission makes a statement, unless specifically instructed otherwise by the observation mission’s leadership. Observers may explain the nature of the observation mission; its activities and other matters deemed appropriate by the observation mission and should refer the media or other interested persons to those individuals designated by the observation mission.
Cooperate with Other Election Observers Observers must be aware of other election observation missions, both international and domestic, and cooperate with them as instructed by the leadership of the election observation mission.
Maintain Proper Personal Behavior Observers must maintain proper personal behavior and respect others, including exhibiting sensitivity for host-country cultures and customs, exercise sound judgment in personal interactions and observe the highest level of professional conduct at all times, including leisure time.
Violations of This Code of Conduct In a case of the violation of this Code of Conduct, the election observation mission shall conduct an inquiry into the matter. If a serious violation is found to have occurred, the observer concerned may have their observer accreditation withdrawn or be dismissed from the election observation mission. The authority for such determinations rests solely with the leadership of the election observation mission.
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3.2. Pledge to accompany the Code of Conduct for International Election Observers
I have read and understood the Code of Conduct for International Election Observers that was provided to me by the international election observation mission. I hereby pledge that I will follow the Code of Conduct and that all of my activities as an election observer will be conducted completely in accordance with it. I have no conflicts of interest, political, economic nor other, that will interfere with my ability to be an impartial election observer and to follow the Code of Conduct. I will maintain strict political impartiality at all times. I will make my judgments based on the highest standards for accuracy of information and impartiality of analysis, distinguishing subjective factors from objective evidence, and I will base all of my conclusions on factual and verifiable evidence. I will not obstruct the election process. I will respect the national laws and the authority of election officials and will maintain a respectful attitude toward electoral and other national authorities. I will respect and promote the human rights and fundamental freedoms of the people of the country. I will maintain proper personal behavior and respect others, including exhibiting sensitivity for host-country cultures and customs, exercise sound judgment in personal interactions and observe the highest level of professional conduct at all times, including leisure time. I will protect the integrity of the international election observation mission and will follow the instructions of the observation mission. I will attend all briefings, trainings and debriefings required by the election observation mission and will cooperate in the production of its statements and reports as requested. I will refrain from making personal comments, observations or conclusions to the news media or the public before the election observation mission makes a statement, unless specifically instructed otherwise by the observation mission’s
Signed Print Name Date ____________________ ____________________ _________________
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SECTION 2. POLITICAL BACKGROUND Introduction Situated in the heart of the Western Balkans, Montenegro held an independence referendum in May 2006, ending a nearly 88-year union with Serbia. Following the President’s decision number 01-1212, dated 20 June 2020, the day of the Parliamentary Elections was set for 30 August, 2020. These are the fifth post-independence Parliamentary Elections which will take place since 2006. The overall assessment of the political situation in Montenegro made by Freedom House in its 2020 report was the following: “While numerous political parties compete for power in Montenegro, the opposition is fragmented and its leaders are frequently harassed, and the governing Democratic Party of Socialists (DPS) has been in power since 1991. Corruption is a serious issue. Investigative journalists and journalists critical of the government face pressure, as do many nongovernmental organizations (NGOs).” According to the Economist’s Democracy Index, which proposes a classification by categories of democracy and good governance based on a system of points, Montenegro ranks 81st out of 167 countries. It remains in the “hybrid regime” category. Montenegro scored a 6.1 out of 10 in the electoral process category, which implies that elections are overall free and fair. Democracy Index 2018 by category
Electoral process
Functioning of government
Political participation
Political culture
Civil liberties
6.1
5.4
6.1
4.4
6.8
Source: Date from The Economist, Intelligence Unit, Democracy Index 2018
However, the Economist’s index specifies that several criticisms have arisen regarding the fairness and transparency of elections by the political opposition in the country. The situation is worsened by the fact that the ruling party DPS (Democratic Party of Socialists) is present throughout the country at all levels: as explained in the sections below, DPS has been in power since the fall of communism in the early 1990s, and the lack of a strong 23
opposition to challenge this dominance affects the plurality, inclusiveness, and competitiveness of elections. In 2018, Montenegro’s score on the “political participation” indicator slightly improved (in large part due to women holding more than 20% of seats in Parliament). However, its score decreased on the “civil liberties” indicator in comparison to the previous year (in large part due to concerns about freedom of expression online). Among recent challenges mentioned both by Freedom House and the Economist magazine, but also by the OSCEODIHR international observation missions from previous elections, the lack of a strong opposition which could counterbalance the ruling party’s dominance considerably affects the democratic environment in the country. For the previous 2016 parliamentary elections, the OSCE ODIHR’s mission announced the following in its statement of preliminary findings and conclusions: “The elections were held in a competitive environment and fundamental freedoms were generally respected. The campaign was characterized by a lack of distinct policy alternatives, and was permeated by personalized attacks. While pluralistic, the media did not exercise editorial independence. The election administration met all legal deadlines; however, despite increased operational and human resources, the professional capacity of the election administration remained inadequate”. Montenegro also has a poor ranking in the political participation and political culture categories in the abovementioned studies, in part due to the political dominance of DPS, and partly because opposition parties frequently resort to protests, boycotts and demonstrations instead of through debate and policy propositions in Parliament. The level of trust in political institutions has declined considerably in the past few years, and public discontent has led to several extra-parliamentary protests and demonstrations turning violent, and resulting in attacks on government buildings. A series of recent developments in 2019-2020 have also increased the social divide and tensions within society (section 2.2.4 on recent political developments).
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2.1. Country at a glance
Official name: Montenegro (formerly from 1992 to 2006: Republic of Montenegro) Area: 13,812 sq.km Population (most recent census): total 622,359 (2018) Capital: Podgorica Main cities (population over 10,000 inhabitants): Podgorica, Niksic, Herceg Novi, Pljevlja, Bar, Bijelo Polje, Cetinje, Budva, Kotor, Berane, Ulcinj, Tivat, Rozaje. Language(s): Official language: Montenegrin (variety of Serbo-Croatian). Minority recognized languages by the state include Albanian, Bosnian, and Croatian. Since 2017, Albanian is an official language of the municipalities of Bar, Ulcini, Pljevlja, Tuzi, Rozaje and Podgorica. Montenegrin is written in both Latin and Cyrillic alphabets, although increasingly in Latin alphabet. Religion: Eastern Orthodoxy (72.1 %), Catholic (3.4%) Other Christian (0.4%); Islam (19.1%); Other religions (1.04%); Atheist/Agnostic (1.3%); Undeclared (2.6%) (data: MONSTAT State census 2011) Currency: Euro (unilaterally, since 2002) Time: currently Central European Summer Time (CEST), UTC + 2 Legal system: Civil law (Napoleonic and Germanic). Independence in 2006, Constitution adopted in 2007 National legislature: Parliament, unicameral assembly with 81 members, elected for a 4-year term through closed list proportional representation. The current Speaker of Parliament is Ivan Brajovic (Social Democrats of Montenegro), while the Deputy Speakers are Branimir Gvozdenovic (Democratic Party of Socialists) and Genci Nimanbegu (FORCA). Head of State: Milo Djukanovic is the President of Montenegro. He was elected in the first round of the 2018 Presidential elections with 53.90% of the vote. Additionally, President Dukanovic was previously six times Prime Minister between 1991 and 2016, and President from 1998 to 2002.
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National government: Prime minister: Dusko Markovic (DPS), since November 2016. Deputy prime ministers: Milutin Simovic (DPS); Zoran Pazin (Independent) Currently there are a total of 17 ministries: Ministry of Agriculture and Rural development, Ministry of Culture, Ministry of Defense, Ministry of Economy, Ministry of Education, Ministry of Finance, Ministry of Foreign Affairs, Ministry of Health, Ministry of Human and Minority Rights, Ministry of Interior Affairs, Ministry of Justice, Ministry of Labor and Social Welfare, Ministry of Public Administration, Ministry of Transportation and Maritime Affairs, Ministry of Science, Ministry of Sustainable Development and Tourism, Ministry of Sports and Youth. Parliamentary parties: The parliamentary parties, their number of seats in Parliament and their formal leaders are:
* Government coalition parties * Opposition coalition parties
Source: Author (elaborated on the statistics of the Parliament) 26
Administrative division: Montenegro is divided into 24 municipalities. However, regions are also considered for calculating demographics and other population data, while municipalities are the official first level administrative division. The figure below shows the 21 initial municipalities, to which were more recently added: Petnjica (2013), Gusinje (2014), and Tuzi (2018).
Administrative division of Montenegro (Source: http://www.montenegroinside.com/en/info/administrativnoe-delenie.html)
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Emblem
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Municipality
1.
Andrijevica
2.
Bar
3.
Berane
4.
Bijelo Polje
5.
Budva
6.
Cetinje
7.
Cetinje
8.
Danilovgrad
9.
Gusinje
10.
Herceg Novi
11.
Kolašin
12.
Kotor
13.
Mojkovac
14.
Nikšić
15.
Petnjica
16.
Plav
17.
Pljevlja
18.
Plužine
19.
Podgorica
20.
Rožaje
21.
Šavnik
22.
Tivat
23.
Tuzi
24.
Žabljak
State Election Commission (SEC): 12 permanent members The Chairperson of the SEC is appointed by Parliament, at the proposal of the Parliamentary working body in charge of elections and appointments, after a previously conducted open competition. Four members of the permanent SEC composition are appointed at the proposal of the parliamentary majority, while another four members of the permanent SEC composition, one of which is appointed secretary, are appointed at the proposal of the parliamentary opposition. One representative of a political party or candidate list for representation of members of national minorities or minority ethnic communities which received the highest number of votes in previous elections is also appointed as a permanent member of the SEC (while his/her deputy should be a member of another national minority or minority ethnic community). One member of the permanent SEC composition who is familiar with electoral legislation is appointed by the Parliament from among the representatives of civil society, non-governmental sector and university, at the proposal of the Parliamentary working body competent for appointments and elections, after a previously conducted open competition. Chairperson: Aleksa Ivanovic Secretary: Veljo Cadjenovic
p
2.1. ENEMO’s observation of the electoral campaign ahead of the 2020 parliamentary elections
ENEMO concluded from its interim report that concerns should be raised regarding contradicting provisions within the legal framework in the timeframes for campaigning. In addition to not providing legal certainty, this contradiction in the laws risks having confused electoral contestants regarding when they had the right to start their campaigns. This may have also created conditions for early campaigning affecting equality of opportunity, in addition to challenging the integrity of the process. Overall, the mission observed that political parties and candidates respected the principle of starting their campaigns officially following the registration of their respective electoral lists. However, in some cases, early or indirect campaigning may have affected the fairness of the campaign, such as early publication of billboards before registration of the lists. Restrictions to campaigning which have been brought forth by the National Coordination Body (NCB) include a ban on political rallies gathering over 100 people in open public places and 50 people in closed places. Concerns were raised in ENEMO’s interim report that the Covid-19 pandemic limits the possibility for electoral contestants to campaign through traditional means of campaigning, including outdoor rallies and other field work to gather voters’ support. No explicit measures have been pronounced regarding the possibility to conduct door-to-door 29
canvassing, despite this type of activity increasing the risk of infection. It should be noted that both increased health risks of conducting campaign activities and NCB mandatory regulations limit opportunities for campaigning in these elections, which may affect electoral contestant’s rights to campaign freely. Additionally, as mentioned above, ENEMO raised concerns regarding the fact that, as of the time of publication of the mission’s report, no further specific guidelines or regulation were published by the SEC and other public authorities regarding safety conditions for campaigning. Although drafts of the Technical recommendations for holding elections with the goal of epidemiological protection of voters prepared by the SEC contained more detailed provisions on Covid-19 prevention measures, ENEMO noted that the published version of the document had omitted any guidance regarding Covid-19 prevention measures for campaigning specifically. ENEMO deems this could put the health of all participants in campaign events at risk, and lack of official instructions could lead to breaches in the general prevention principles put forward by the NCB. Campaigning at the start of the reported period was low key overall, mainly due to the Covid-19 pandemic. Interlocutors of the mission unanimously stated that campaigning for these elections is expected mainly to occur on social networks and electronic media. However, the days following the official registration of most electoral lists showed a considerable increase in the amount of paid campaign ads on social media, namely Facebook and YouTube. Additionally, billboards, branded buses containing campaign advertisements, and some rallies and doorto-door activities also became visible mostly after official registration of the candidate lists, as reported from most regions by ENEMO observers. However, despite the possibility for voters to inform themselves online regarding programs submitted by political entities when registering their lists, the overall amount of visible campaign advertising in the public space was assessed as lower than in previous elections by ENEMO interlocutors. ENEMO raised concerns regarding the lower visibility of the campaign, as this affects both the possibility for electoral contestants to properly advertise their campaign platforms, while also limiting the possibility for voters to make an informed decision. Additionally, depending on the regions, interlocutors of the mission claimed that billboard space was not always accessible to all electoral contestants, due to many of them having been purchased in advance by the main political parties. According to campaigning observed so far, main campaign themes have included the economic development of Montenegro over the past four years, effects of the Covid-19 on the economy, unemployment, retirement and social benefits, improving living standards, preserving the integrity of the state, and the abovementioned Law on Religious Freedom. ENEMO observers reported on isolated cases of negative campaigning and allegations of “black PR”, including insults towards opposition MPs, discrediting politicians on physical grounds, mentioning the private life of their families, personal intimidations and professional degradations on social networks, and other inappropriate means of communication. Limitations in the legal framework on campaigning of state officials, potential abuse of office, and avoiding blurring of lines between parties and State were assessed by ENEMO as being overall in line with international standards. However, reports of ENEMO observers indicated considerable allegations of pressure or intimidation towards public-sector employees (and, to a lesser extent, private sector employees), exerted by non-renewal of contracts, blocking professional advancement, pressure on employees’ families, and threats of demotion in cases where employees would refuse to support the ruling coalition. On the other hand, allegations of promises of employment or services as means of indirect vote buying were reported to ENEMO observers in several instances. Although observed rallies seemed to mostly comply with the maximum number of participants according to NCB rules, in some cases, rallies were reported to have taken place in municipal premises during working hours, using
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campaign materials and party paraphernalia (flags, banners). Additionally, several ENEMO interlocutors expressed their concern to the mission regarding the lack of alternance in power for the past thirty years, claiming that the ruling party benefits from a considerable institutional advantage affecting the fairness of the process.
2.2. Candidate lists registered in the election The official registration period by the SEC went from 11 July until 4 August 2020, in line with the provisions set forth in the law. Despite most political entities submitting their registration documents close to the deadline, the SEC registered submitted candidate lists in time, with the exception of one self-declared Yugoslav minority list (The “SNEŽANA JONICA – SOCIALISTS OF MONTENEGRO - TO LIVE AS YUGOSLAVS” list submitted its candidacy as a Yugoslav minority list, but was rejected by the SEC, claiming that the conditions to run as a minority party were not met. On 14 August, the party’s appeal to the Constitutional Court was also rejected). The following 11 lists were registered by the SEC (in order of appearance on the ballot paper): • • • • • • • • • • •
Social Democrats (SD) - Ivan Brajovic, “We decide, consistently” Bosniak Party - “Correctly” - Rafael Husovic Croatian Civic Initiative (HGI) - “With all heart for Montenegro!” Social Democratic Party - “Strong Montenegro!” Croatian Reform Party of Montenegro (HRS) “Black on White” - Civic Movement URA, Justice and Reconciliation Party, CIVIS Voter Group Albanian Coalition - Unanimously - DP, DUA, DSCG Decisively for Montenegro! DPS - Milo Dukanovic “For the Future of Montenegro” - DF, SNP, Popular Movement Albanian List - Genci Nimanbegu, Nik Deljosaj “Peace is our Nation” - Aleksa Becic, Miodrag Lekic
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Social Democrats (SD) - Ivan Brajovic, “We decide, consistently” SD is a centre-left political party in Montenegro formed in 2015 by a split faction of the Social Democratic Party of Montenegro. SD is one of the ruling parties in Montenegro with the President of the Parliament and two ministers. It currently has two representatives in Parliament, elected in 2016. The party was founded in July 2015 after the split between two Social Democratic Party (SDP) vice-presidents Vujica Lazović and Ivan Brajović. Their slogan during this election campaign is “We decide consistently” (Mi odlucujemo).
Bosniak Party - “Correctly” - Rafael Husovic The party advocates Bosniak minority interests, social conservatism, and pro-Europeanism. The party was founded in 2006 by Rafet Husovic and was formed by unification of the Slavic Muslim orientated parties in Montenegro. The party currently holds 2 seats in Parliament, and has a Deputy Prime Minister and two Ministers in Government.
Croatian Civic Initiative (HGI) - “With all heart for Montenegro!” HGI is a Croat minority political party in Montenegro. HGI contested the 2012 legislative elections independently, and won 0.4% of votes, gaining one seat in the Parliament, due to the lower electoral threshold envisaged for the Croat minority, which has been set at 0.35%. The party entered a post-election coalition with the ruling coalition. This was also the case in 2016, and the party’s sole current parliamentary representative is Adrijan Vuksanović. The party advocates in favor of Croatian minority interests, conservatism, but also pro-Europeanism.
Social Democratic Party - “Strong Montenegro!” The Social Democratic Party (not to be confused with the Social Democrats) is a centre-left political party in Montenegro. It is the only party in Montenegro to have full membership in the Socialist International. Following the shift of the party towards a more critical and independent political course, in Autumn 2015 the pro-DPS faction of SDP formed a new party named Social Democrats of Montenegro (SD). On 22 January 2016, SDP officially left the ruling coalition with DPS and announced its support for a vote of no confidence against the government of Milo Djukanović on 25 January 2016.
Croatian Reform Party of Montenegro (HRS) Due to a divide within HGI in February 2019, Marija Vucinovic was removed from the post of party president by the board of the party, although she remained a minister in the government. Ahead of the 2020 parliamentary elections, the was one of the founders of a new Croatian national minority interests
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party, the Croatian Reform Party (HRS). She is currently the head of the party, which is competing for the one Croatian parliamentary seat against HGI.
“Black on White”, Civic Movement URA, Justice and Reconciliation Party, CIVIS Voter Group The list is led by the United Reform Action Party, under an alliance “Black and White” which also includes the Justice and Reconciliation Party, the CIVIS Voter Group, and independent intellectuals. URA is a socially liberal, progressive and green political party in Montenegro. In June 2020, the Montenegrin Greens “Civic Movement URA” were elected to become candidate members of the European Green Party in a vote during the bi-annual Council meeting being held for the first time online. The party has one MP seat.
Albanian Coalition - Unanimously - DP, DUA, DSCG The Albanian Coalition list is an alliance between the Democratic Party (DP), the Democratic Union of Albanians (DUA), and the Democratic League in Montenegro (DSCG), which are parties representing Albanian minority groups throughout Montenegro. This is a new coalition formed in July 2020. for these elections.
Decisive for Montenegro! DPS - Milo Djukanovic (Democratic Party of Socialists [DPS]) The Democratic Party of Socialists of Montenegro took shape following the League of Communists of Montenegro as a pro-reform political force following the dissolution of Yugoslavia. In the 1990s, the party was based on democratic socialism, social democracy and unionism between Montenegro and Serbia. In the early 2000s, the party realigned its policy regarding continuing a common state with Serbia, and would eventually become the main proponent of the independence of Montenegro in 2006. The party today is characterized by populist politics with a slight centre-left orientation alongside elements of nationalism, pro-western stance towards European integration, pro-NATO, and can be considered what is often referred to as a “catch-all party”. The party has effectively been in power since 1991. Its leader, Milo Djukanovic, has been the party chief since 1998 and is the incumbent President of Montenegro.
“For the Future of Montenegro” - DF, SNP, Popular Movement For the Future of Montenegro (Za buducnost Crne Gore) is a catch-all alliance, ideologically oriented towards conservatism and populism, formed in the 2020 parliamentary elections. The list is led by Montenegrin University Professor Zdravko Krivokapic. The list gathers two main alliances: the Democratic Front on one side (New Serb Democracy, Movement for Chang-
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es, Democratic People’s Party, and True Montenegro) and the Popular Movement (United Montenegro, Worker’s Party, Independents, as well as some minor right-wing parties such as the Democratic Party of Unity and the Democratic Serb Party. Additionally, the list includes the Socialist People’s Party. They are the main opposition list running in these elections.
Albanian List - Genci Nimanbegu, Nik Deljosaj The Albanian list is a political alliance of conservative Albanian minority interests formed by the New Democratic Force (Forca), Albanian Alternative (AA), Albanian Coalition Perspective (AKP) and the Democratic League of Albanians (DSA) specifically for these elections (although Forca, AA, along with DUA contested the elections together back in 2016).
11) “Peace is our Nation” The Peace is our Nation list (Mir je nasa Nacija) was initially announced as the “Citizens’ Bloc”. It is a catch all alliance, centrist and pro-European opposition coalition, formed for these elections among Democratic Montenegro (Democrats), DEMOS, New Left, Independents and PUPI (Pensioners Interest Social Justice).
2.3. Public opinion and polling results Below are some of the most recent public opinion polls on voter intention in Montenegro.
Voter intention polls (June 2020-August 2020) 34
SECTION 3. LEGAL FRAMEWORK 3.1. Hierarchy of the electoral norms Parliamentary elections are regulated by several legal acts, primarily the Constitution and the Law on Election of Councilors and Members of Parliament. Supplementary legal acts that regulate several other aspects related to the election process are found in: the Law on Financing Political Entities and Election Campaigns, the Law on Register of Electors, the Law on the Implementation of the Agreement on Creating Conditions for Free and Fair Elections, the Political Parties Act, the Law on Registration of Residence and Temporary Residence, the Electronic Media Law, the Law on National Public Broadcaster of Montenegro, the Criminal Code of Montenegro, the Law on the Constitutional Court of Montenegro. Organic laws are absent in Montenegro. Decisions and regulations of the State Election Commission (SEC) play an important role as well.
3.1.1. Domestic primary legal framework Some issues of the electoral process are regulated by the Constitution of Montenegro. Article 45 of the Constitution is dedicated to the citizens’ electoral rights (the voting age, limitation for both passive and active electoral right by residency qualification, electoral standards as general, equal, free and direct electoral right, and secret ballot). Article 83 of the Constitution emphasizes that the Members of the Parliament are elected directly on the basis of the general and equal electoral right and by secret ballot. According to article 95, the elections for the Parliament are called by the President of Montenegro. The Constitution does not establish electoral system norms. Article 91 says that the laws that regulate the electoral system shall be adopted with the two-third majority of the total number of the Members of Parliament. The Law on Election of Councilors and Members of Parliament is the most important document for the legal framework for elections. The law sets the norms on the: voting rights and age (art. 10, 11), calling for elections (art. 13-15), electoral management bodies (art. 17-37), proposing and accepting of candidates’ lists, ballot access (art. 38-49), presentation of candidates and campaign (art. 50-64b), election procedures and polling stations (art. 6572), ballot papers and other materials (art. 73-78), voting and election day (art. 78a-88), ascertaining and publishing election results, allocation of seats (art. 89-100), protection of voting rights, electoral disputes resolution (art. 106111), electoral monitoring and observers (art. 111a-111ž), penal provisions for some electoral offences (art. 115-117). Most recent amendments to the Law on Election of Councilors and Members of Parliament were made on the 16th of February, 2018(№010/18).
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The Law on Financing Political Entities and Election Campaigns regulates the manner of acquisition and provision of financial funds for regular operation and the election campaign of political entities, the prohibitions and restrictions on disposal with state-owned property, funds and public authorities in the course of campaign as well as the control, supervision and auditing of financing and financial operations of political entities. The Law on Register of Electors contains norms on the Register of Electors, rules and system of electors’ registration. The Political Parties Act regulates the conditions and method of establishment, organization, registration, association and termination of political parties. The Electronic Media Law regulates the rights, obligations and responsibilities of legal and natural persons performing the activity of production and provision of audiovisual media services, including norms on ensuring equal representation of political parties, coalitions and candidates during election campaigns. The Law on National Public Broadcaster of Montenegro regulates the activity of public broadcasting services, including norms on equal presentation of political parties, coalitions and individuals during election campaigns. The Criminal Code of Montenegro in Title 16 provides the responsibility for electoral offences. 12 articles are dedicated to violations of the right to stand for election, the right to vote, the freedom of choice in the casting of ballots, ballot secrecy, abuse of the right to vote, preventing the taking of the poll and election observation, falsification of voting results, destroying election papers, and unauthorized use of state assets for election purposes. The Law on the Constitutional Court of Montenegro contains chapter 7 “Proceeding of deciding on electoral disputes and disputes related to referendum” which regulates the procedure for the consideration of appeals against decisions on electoral disputes in the highest instance.
3.1.2. Electoral system Elections to the unicameral parliament take place every four years. The parliamentary elections in Montenegro use a party-list proportional representation system. Closed list system is implemented; voters do not have any influence over the candidates put forward by the list submitting entity. Parliamentary seats are distributed among candidate lists using the d’Hondt method. The elections of members of parliament are conducted as a nationwide single electoral district. Accordingly, district magnitude is equivalent to the assembly size – 81 and is one of the largest in Europe. In Montenegro the single nationwide district was established approximately after 2009, after obtaining independence during a few years there were several electoral districts. Electoral threshold To participate in the allocation of mandates a candidate list should exceed the legal threshold that is three per cent of the valid votes. Besides, there are two special thresholds for the representation of minorities: - The candidate lists of a certain national minority or minority ethnic community received at least 0.7% of valid
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votes to acquire the right to participate in the allocation of seats as a single - general candidate list; - The one candidate list representing the Croatian minority acquires the right to one parliamentary seat if it gains at least 0.35% of valid votes (but lower than 0.7%).
3.2. Right to Vote and Be Elected Article 45 of the Constitution enshrines that the voting age is 18 years. At the same age citizens have the right to stand for elections. The constitution sets limitations for both passive and active electoral right by residency qualification: a citizen should have at least a two-year residence in Montenegro (prior to the polling day). Candidates may be nominated by registered political parties, coalitions of political parties or groups of voters. Article 38 of the Law on Election of Councilors and Representatives provides a way for registered political parties to join together in a coalition for the purposes of submitting a joint candidate list. The same article provides the right to submit candidate lists for groups of voters. Individual candidates cannot stand for elections. Registered political parties, coalitions and groups of citizens can nominate electoral lists, supported by the required number of voter signatures. They shall submit to the SEC the electoral list for election of MPs no earlier than 20 days from the day of calling the elections (July 11) and no later than 25 days before the day set for the election (August 4). Candidate lists must be supported by signatures of at least 0.8% of voters out of the number of registered voters nationwide (according to the Decision of the SEC from 01.07.2020 it is 4,261 signatures of voters for Parliamentary elections in 2020). As an exception, candidate lists which represent a minority nation or a minority ethnic community may be accepted if supported by the signatures of at least 1,000 respective voters. A candidate list for the election of members of parliament which represents a minority nation or a minority ethnic community which constitutes up to 2% of the population of Montenegro according to the last census results should be accepted if supported by the signatures of at least 300 voters. To promote women’s participation, candidate lists are required to include at least 30 percent of candidates of each gender, provided that at least 1 among each 4 candidates is from a less represented gender. Any eligible voter in Montenegro can stand in the election as long as his or her name is included in a submitted electoral list. The submitters of the confirmed electoral list appointed their authorized representative in the expanded composition of the SEC where they can participate and make valid decisions.
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SECTION 4. ELECTION ADMINISTRATION 4.1. Election Management Bodies The elections are administered by three levels of election administration: - the State Election Commission (SEC), - 24 Municipal Electoral Commissions (MECs) among them Administrative Capital’s election commission and Historic Royal Capital’s election commission, - some expected 1,200 Polling Boards (PBs) (approximately). The SEC and MECs are permanent bodies and are appointed after the inauguration of the elected assembly for a four-year term. PBs are appointed for each election. Formally there is an independent model of electoral management in Montenegro: election commissions are separated from the executive branch of government and have the status of a legal entity. However, article 17 of the Law on Election of MPs and deputies’ states that “election management bodies shall be held accountable for their work to the body that has appointed them”.
4.1.1. The State Election Commission (SEC) The SEC is a permanent body that serves a four-year term. Electoral commission includes two groups of members: appointed members (permanent composition) and empowered members (extended composition). The number of permanent members of the SEC is 10 and a chairperson; each entity (political party, coalition of political parties, group of voters) submitting a validated and published candidate list appoints one empowered member. The main competences of the SEC include legal oversight of the elections and uniformed implementation of the provisions of the Election law coordinating the work of MECs, setting down unified standards for election materials, rendering a decision on proclamation of the lists of candidates for the election, establishing the results of the election and the number of seats belonging to each of the lists of candidates, publicly announcing the overall results of the election, as well as the results by each polling station. During the pre-election period, the SEC held sessions regularly. Sessions were generally conducted in a collegial manner with the presence of accredited local and international observers, but without live broadcasting on the official website. The SEC published the agenda of the upcoming sessions in advance and provided draft decisions by email or hard copies to all participants. Minutes and decisions were published in a timely manner, respecting the prescribed deadlines. The commissioners had the opportunity to openly discuss each issue, often along the line of their party’s agenda, since the Election law does not contain provisions on impartiality of the election administration. While most political actors expressed confidence in the professionalism of the election administration and their ability to manage the electoral process, some questioned whether the SEC is fully impartial. Moreover, different
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interlocutors raise concerns over the lack of proactiveness when it comes to problem solving and decision making. As the COVID-19 pandemic has forced EMBs to change and adapt their operations, national election authorities have also witnessed the need to create and implement new mechanisms as a way to respond to the new circumstances. Technical recommendations for holding elections with the goal of epidemiological protection of voters were published on 6 August, after several weeks of active discussion which resulted in numerous substantial alternations of the document, including the rules for campaigning and, most importantly, potential limitations of voters’ rights. The document was heavily criticized by local civil society organizations immediately after it was published, especially when it comes to the impossibility of voting for hospitalized and institutionally quarantined voters who are placed outside of their place of residency. Only two days later, the first addendum enabled voting for institutionally quarantined voters, while CSOs were finally invited to bring their own proposals in this late phase of the pre-electoral process. Moreover, MEC members stated that they will not be able to fully implement given recommendations during the election day in all polling stations due to lack of space, while some expressed the need for more detailed instructions on preventive health measures.
4.1.2. Municipal Election Commissions (MECs) An MEC is composed of: the chairman, the secretary, five permanent members and one authorised representative of each of the submitters of electoral lists. MEC chairperson is appointed from among the nominees of the political party that won the highest number of seats in the relevant local council at previous elections. Two members are appointed at the proposal of the opposition parties, with priority given to those who have won the highest number of seats in the previous municipal elections. Twenty days prior to E-day the permanent MEC members are joined by authorized representatives of each submitter of a candidate list. A decision which political parties have the right to nominate representatives to the permanent composition of MECs/PBs is obliged to be adopted no later than 14 August. By 19 August MECs announced which PSs have been determined for voting. ENEMO observers in the field generally assessed the work of MECs as positive during the initial phase of their work, as they overall respect the legal deadlines defined by the election calendar. Their sessions are open to the public and the decision-making process is assessed as transparent and collegial, while decisions are mostly made unanimously. ENEMO also assessed that, when it comes to the general understanding of their tasks, procedures, and the law, not all MEC members seem to be familiar with the rules under which they operate, therefore their professionalism, skills and knowledge seem to vary. Political actors are generally satisfied with the performance of MECs, claiming that they respect the law and do not go beyond their mandate. ENEMO observers generally assessed the attended MEC sessions positively despite common difference of opinion.
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4.1.3 Polling Boards (PBs) While the SEC and MECs are permanent bodies that serve a four-year term, the PBs are appointed for each election. PBs are composed of a chairperson and four members, as well as their deputies, based on the nominations of political parties and coalitions represented in the local councils and are established 10 days before E-day, by 19 August. According to Article 35 of the Election law, each political party represented in the relevant assembly shall be entitled to the number of polling board presiding officers proportionate to the proportional representation of councilor seats in assembly, while the PSs at which individual political parties would propose representatives for polling board presiding officers shall be determined by the MEC by drawing lots. Polling board chairperson and members, as well as empowered representatives of candidate list submitting entities, in the case of their absence or inability to work, shall be replaced by their deputies who shall perform polling board activities and tasks. PBs organize voting, including homebound, counting and transfer of results to MECs, and consider E-Day complaints. So far, there seem to be no particular concerns regarding the future work of polling boards, although it remains unclear in which way polling board members will be trained. The SEC organizes trainings on E-Day procedures for trainers and educators who should then train the PBs’ members. Due to Covid-19, trainings for PB staff have turned to new technologies, meaning that video material was prepared and distributed to PBs, leaving in question its quality and the actual engagement of PB staff in the training. Isolated cases of groups of voters concerned about potential premises for future polling stations were expressed to the SEC, such as the case of a polling station in Pljevlje which is allegedly not appropriate for conducting the voting. Moreover, different interlocutors raised concerns that some polling stations are too close to party HQs and that private houses of party officials are often used as polling stations, mainly in northern and central municipalities. It remains to be seen whether the concerns are justified and how EMBs will deal with the issue. It is worth noting that a significant number of polling stations in the northern municipalities of Montenegro are placed in private houses due to lack of suitable public buildings, as well as the fact that some municipalities do not have designated street names nor numbers.
4.2. Voters’ list To be eligible to vote, one must be at least 18 years old on E-Day and a Montenegrin citizen. Only citizens residing in the country for at least the last 24 months prior to elections are eligible to vote. The length of the residency requirement in national elections is provided by the Constitution, although not in line with international standards, namely at odds with the 2002 Code of Good Practice in Electoral Matters of the Venice Commission 1.1 c. iii. “a length of residence requirement may be imposed on nationals solely for local or regional elections”, 1.1 c. iv. “the requisite period of residence should not exceed six months; a longer period may be required only to protect national minorities”, and additionally “The freedom of movement of citizens within the country, together with their right to return at any time is one of the fundamental rights necessary for truly democratic elections.” 40
Additionally, there is no out-of-country voting. Only citizens who are currently in Montenegro at the time of the elections may vote under the condition that they maintained their residence officially in Montenegro. Concerns should be raised that excessive provisions in the law regarding the right to vote could lead to the disenfranchisement of a considerable number of voters, in cases where they resided abroad and have only recently (less than two years) returned to Montenegro to renew their residency in the country. Voter registration is passive. Montenegro’s voter register is maintained by the Ministry of Interior (MoI) and is updated continuously based on municipalities’ records, state institutions’ input and requests from voters. As first applied in 2016 the centralized and permanent electoral register is based on the information extracted from three different civil registries. Within three days from the day of calling the elections, the MoI published the voter list through the means of public informing and on its website. The voters can inform themselves on their place of voting and other data included in the registry, as well as request the change of data in the voter list. Eligible voters had the possibility to modify their entry on the electoral register until 19 August by personally submitting requests for corrections, or through their authorized representative. The SEC has a supervisory role over the process of voter registration. MoI is required to send a notification to all citizens whose data in the electoral register or polling station has changed. The voter list was closed 10 days before E-Day and the SEC then announced the figures for the final voter lists. Voters in custody or serving a prison sentence on the E-Day can vote at a PS inside the correctional facility where they are located. Voters serving in the military or temporary military duty can vote at PSs nearest to the unit where they are stationed.
4.3. Ballot papers The order of lists of candidates in the ballot paper and in the General list of candidates was determined by the Chair of the SEC by drawing lots, in the presence of authorised submitters of confirmed lists of candidates. The ballot paper contains the ordinal number placed before each individual list of candidates; the titles of list of candidates according to the order determined on the general list of candidates, a remark stating that the electors shall cast their votes for only one list, etc. The ballot paper was printed in a manner that it shall have two parts: a control coupon in the form of a separate section containing the unique serial number, and a ballot paper. Ballot papers were printed on the specially protected 90-grams paper with the watermark. The SEC has determined the form and layout of the ballot papers, manner, place and control of printing and distribution of ballot papers.
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4.4. Election Day procedures Since 2016, PSs are equipped with a system for electronic voter identification (EVID), which is synchronized with the voter register and aims to prevent possible multiple voting. These are the second parliamentary elections where the EVID system will be used in order to provide safeguards against potential fraudulent attempts. Registered voters will need to bring valid identification to the PS to vote. The election material from the MEC is taken over by the PB chairperson no later than 48 hours before the day of the election. Ballot boxes shall be non-transparent. The PB (permanent and authorized representatives of the submitters of electoral lists) is obliged to arrive at the polling station at 5:00 (two hours before the PS opens) on the day of the election. All unauthorized persons should be removed from the polling station. Before opening the polling station, the PB shall check whether the conditions for conducting the voting are provided. At 7:00, the PB chairperson connects the eToken to one of the two provided connections on the left side of the device. After activating the eToken, by an authorized person, the following information is displayed on the screen of the device: in the upper left corner “polling station name”, in the right “date and time”, below the polling station name the number of voters at that polling station for certain elections and turnout statistics for that polling station. Voters may not vote without presenting evidence of their identity. In the presence of the first voter when the ID card or passport is found to be on the voter list, a PB member checks the ballot box and when it determines that it is empty, the result of the control is entered in the checklist signed by the chairperson and other members of the PB. The checklist is inserted into the ballot box, which, in the presence of the first voter, is sealed with a guarantor and sealing wax. In accordance with the law, when voters come to the PS, they should hand over their ID card or passport to the polling board presiding officer. The polling board presiding officer should find the voter, through EVID, and then the voter should place her/his signature on the place designated for that purpose in the extract from the electoral register, after which the polling board should allow the voter to vote. The EVID device displays a photo of the voter on the monitor and print out a paper stub (confirmation) which should contain name and surname, voter’s PIN and ordinal number which is identical to that in the printed electoral register. The printed stub (voting pass) shall be signed personally and in clear script by the polling board presiding officer and polling board member from the opposite political party (adherence to the government-opposition parity), which shall then be kept together with the counterfoil. Where electronic voter identification becomes disabled during voting due to justifiable objective circumstances such as a power cut lasting several hours or a system failure, the PB shall take a decision to continue voting following the visual identification system which implies that the board presiding officer shall examine the ID card or the passport to confirm voter’s identity, find him on the printed electoral register and enable him to place his signature and send him to the polling area. When the voter has cast her/his vote, a PB member shall personally sign the overleaf of the counterfoil in clear script. Each voter shall cast his vote personally. And the casting of votes shall be secret. Voters shall fill in ballot papers exclusively in the area designated for that purpose (polling booth with privacy panels), so that no one can see how they voted. 42
Voters shall confirm receipt of ballot papers by placing their signature on the extract from the electoral register. A voter who cannot cast her/his vote in person because of inaccessibility (PwD) or due to illiteracy (illiterate person) shall be entitled to do so with the assistance of an aid designated by her/him, who shall mark the ballot, that is, cast the vote as instructed by the voter. The competent election commission shall provide all polling stations with the appropriate template allowing visually impaired voters to cast their votes personally. The casting of vote on behalf of the voter may not be performed by PB members, nor by authorised representatives of candidate list submitting entities. Voters who are unable, due to old age, disability, inpatient or outpatient medical treatment, to vote at the PS where their names are on the extract from the electoral register and who wish to vote, shall submit an application for homebound voting to the PB, using the prescribed form. Voters who wish to vote at home shall personally sign the application form. The application for homebound voting shall be submitted to the polling board at the PS at the latest until 13:00 on E-day. This application may be submitted to the polling board at the PS only by the person authorised by the signature of the voting applicant to do so. No one may come to the polling station armed or carrying a dangerous tool. It shall be prohibited to display political party symbols and other advertising material which might impact the choice of voters at the polling station and at a 100m distance from the PS. PSs shall be closed at 20:00. During this period of time, the polling station shall be constantly open. If voting was discontinued for more than one hour, it shall be prolonged for the length of its interruption. Voters who find themselves at the PS at the moment of its close shall be allowed to vote, provided that the polling board shall previously ascertain their number and identities. PB members shall be prohibited from keeping at the PS, during the voting, any records of voters who have voted, and a copy of the electoral register or of any accessory records of voters. Use of electronic communication devices (telephone, mobile phone, laptop, tablet, etc.) shall be prohibited in the polling room. All persons who have no rights and duties regarding election administration shall not be allowed to stay at the PS longer than needed to vote. Police officers may not cast their votes nor enter PS wearing a uniform, except when requested to do so by the PB chairperson, in order to prevent immediate threat to public order and security at the PS. After the voting, the polling board shall begin ascertaining voting results at the PS. The PB shall ascertain the number of unused ballot papers and place them in a special envelope which shall then be sealed. Subsequently, the polling board shall ascertain the number of counterfoils detached from ballot papers and place them in a special cover which shall then be sealed. The polling board shall ascertain the total number of voters who have cast their votes on the basis of extracts from the electoral register. When the ballot box is opened, after the control sheet has been checked, valid ballot papers shall be separated from invalid ones. The polling board shall enter relevant data into a record before the ballot box is opened. The polling board shall ascertain the number of invalid ballot papers, then the number of valid papers, as well as the number of votes for each candidate list, and enter those into a record. Invalid ballot papers shall be unfilled ballot papers, papers marked in a manner which prevents to ascertain which candidate list received the vote and
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papers in which more than one candidate list were circled. If ascertained that the number of ballot papers in the ballot box exceeds the number of voters identified in the extract from the electoral register as the voters who have cast their votes or if ascertained that the number of ballot papers in the ballot box exceeds the number of counterfoils or if ascertained that the number of ballot papers in the box exceeds the number of signed stubs and signed counterfoils or if ascertained that there are two or more counterfoils with the same serial numbers or with a serial number which does not pertain to the polling station, the polling board shall be dissolved and a new one shall be appointed, and voting shall be repeated at that polling station. Voting results at that polling station shall be ascertained after repeated voting. When the polling board ascertains voting results, the following shall be entered into the record of polling board work: number of received ballot papers; number of unused ballot papers; number of used ballot papers; number of invalid ballot papers; number of valid ballot papers; number of votes received by each candidate list; number of voters according to the extract from the electoral register; number of voters who have cast their votes following the register and number of voters who have cast their votes by post. Objections and opinions of polling board members shall also be entered into the record of polling board work, as well as all other facts of importance to the voting. The record of polling board work shall be signed by all polling board members. Every polling board member shall receive a copy of the record of polling board work. Unused, invalid and valid ballot papers shall be placed by the polling board into special envelopes whose contents are indicated on them and which shall be sealed, and thereafter, the entire election materials (record of work, extract from the electoral register, ballot papers, counterfoils detached from ballot papers, applications to vote by post, seal of the polling board, as well as other election materials) shall be placed into a single envelope which shall then be sealed. After the voting results have been ascertained, the polling board shall immediately submit to the MEC the election materials and it shall do so at the latest within six hours as of the close of the PS.
4.5. Attribution of mandates Parliamentary seats are distributed among candidate lists using the d’Hondt method. To participate in the allocation of mandates a candidate list should exceed the legal threshold that is three per cent of the valid votes. Besides, there are two special thresholds for the representation of minorities: - The candidate lists of a certain national minority or minority ethnic community received at least 0.7% of valid votes to acquire the right to participate in the allocation of seats as a single - general candidate list; - The one candidate list representing the Croatian minority acquires the right to one parliamentary seat if it gains at least 0.35% of valid votes (but lower than 0.7%).
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SECTION 5. MEDIA AND THE CIVIL SOCIETY 5.1. Media 5.1.1. Media landscape The country has a diverse media environment with media outlets divided along political lines. The legal framework provides for general requirements of the election campaign coverage in media, mainly focusing on the requirements related to the allocation of free air time by the public broadcasters. The Constitution guarantees freedom of expression, freedom of the press, and explicitly prohibits censorship. The Criminal Code forbids hate speech that causes national, racial and religious hatred, divisions and intolerance. The Electronic Media Law mandates broadcasters to indicate the sponsors of political advertisements and tasks the Agency for Electronic Media (AEM) to cease broadcasting of prohibited advertisements. The law also tasks the media with implementing the principle of equality for all contestants. The public broadcaster is obliged to offer free airtime to candidates on an equal basis and organize debates. The public broadcaster (RTCG) is funded from the state budget and runs three TV channels, two radio stations and an online news portal. As the regulatory body that oversees the compliance of the broadcast media with the legal framework, the AEM and an ad hoc parliamentary committee are mandated to monitor compliance of the media with legal provisions. While the media landscape of Montenegro is diverse, with a relatively high number of broadcasters and high Internet penetration, print media is in decline. Television remains the primary source of political information; however online media, including social media, provide an increasingly prominent source of news and their use for purposes of electoral campaigns seems to be on the rise, whether as a way of communicating directly with voters or as a platform for targeted political advertising. This trend has increased recently, partly due to the Covid-19 epidemic and the limitations on campaign events. The AEM issues several rulebooks that regulate general programme standards for the media and requirements for commercial advertisements. Within 15 days before the E-Day in the programs of broadcasting services and other media it is not allowed to publish the results of public opinion polls, others research and analysis regarding voter commitment to evaluate results elections.
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The legal requirements for media coverage of election campaigns are set out in the electoral law, mainly the Law on Public Broadcasting Services and the Electronic Media Law, and include the obligation to provide fair, balanced and impartial coverage and equal conditions for paid advertising. Online media outlets remain largely unregulated. According to the IREX Media Sustainability Index, as of 2019, Montenegro had an overall 2.45 out 5.00 sustainability score with the following general conclusion:
“The Montenegrin media landscape continues to be riddled with low ethical and professional standards and manipulated by political and commercial influences. Private media, especially, are struggling to survive as they cannot adequately compete with state broadcasters for advertising revenue. Plurality of news is Montenegro’s highest scoring category at 2.67 due to the ever-increasing number of media outlets and sources, however much skepticism remains as not all of these media outlets are producing high quality content. Montenegro sits in the middle of the near sustainable category with an overall score of 2.45.”
IREX Media Sustainability Index for 2019 IREX Media Sustainability Index for 2019
According to the IREX report, private media in Montenegro are assessed as having a considerable financial disadvantage overall in comparison to public outlets, and face serious structural barriers to further development. This is in large part due to the fact that national and local public broadcasters receive public funding as well as most of the advertising, which increased the difficulty for private media to compete. Montenegro counts approximately 150 media outlets competing for an advertising market estimated to be worth around 11 million euro. In addition to funding inequalities, one of the key issues is that Montenegro’s media lack effective advocacy organizations. There are no strong business media associations, professional journalist associations, or visible media trade unions. Although Montenegro does enjoy media pluralism to some extent, this has not translated into quality programming and content. As a consequence, this has stalled the country’s democratic development on the media component, which could additionally slow its accession to European Union membership. 46
In terms of freedom of speech, media regulations and the legal framework for freedom of press and speech are overall in line with international standards. Montenegrin media legislation contains international legal instruments, and the domestic legal framework complies with the ECHR. However, journalists’ professional standards, quality of reporting, or reliability of their sources are considered as lacking. Additionally, media reflect the polarized political environment, and are used to further the financial or political interests of their owners. Montenegro does count on considerable media variety, and the number of media outlets grows each year. Out of over 100 outlets registered with the Agency for Electronic Media, 40 are websites, 35 are commercial radio stations, 12 are commercial television stations, 14 are local public radio stations, and 4 are local public television stations. Media monitoring results of the OSCE-ODIHR in previous parliamentary elections in 2016 indicated that both public and private media provided the contestants with a platform to present their views through talk-shows, interviews and debates. However, ODIHR’s assessment was that news mainly focused on the overall coverage of campaign-related statements and activities of the political parties but offered little in-depth coverage or analysis about their platforms. In 2018, for presidential elections, OSCE-ODIHR’s report stated that: “the media sector is pluralistic and offers content diversity, but the lack of financial autonomy fosters political dependence and results in polarization of media reporting. Due to the small advertising market, most media rely on state funds, corporate owners, or international aid. Selective and non-transparent distribution of advertisements from public institutions which is allocated to some media was raised as a concern by several ODIHR EOM interlocutors.”
5.1.1.1. Main media outlets In terms of print media, Montenegro counts 4 dailies, 1 weekly, and approximately 30 monthly newspapers. Regarding radio stations, some 53 radios broadcast in the country, while it counts 19 television stations, 7 cable operators, and some 10-15 news websites according to the Agency for Electronic Media of Montenegro. In terms of newspaper circulation, statistics are as follows: Vijesti (2,900, private), Dan (6,000, private), Dnevne Novine (1,900, private), Pobjeda (2,600, state-owned). Television is still the primary source of news. Although internet usage is growing and online media have much broader outreach than print media.
5.1.2. Legal framework for media The public broadcaster (RTCG), funded from the state budget, runs three television channels and two radio stations in total in addition to one online news portal. Despite legal provisions aimed at guaranteeing independence, international organizations and domestic NGOs have claimed that the public broadcaster is not exempt from political influence. At the end of 2017 for instance, the parliament adopted a controversial decision to replace two members of the RTCG Council and one member of the media regulator, the Agency for Electronic Media (AEM), invoking alleged conflicts of interest. Early dismissals shortly before the election was seen as directly challenging the autonomy and independence of the RTCG and of the AEM. The sanctions against these members appeared disproportionate to the accusations of conflicts of interest, putting into question the autonomy and independence of these oversight bodies. The National Public Broadcaster (RTCG-1) is legally obliged to ensure free air time for 47
electoral contestants and organize debates. The Electronic Media Law amended in 2016 and beginning of application in September 2017 provides the conditions for electronic publication services through electronic communications networks, as well as the “competencies, status and sources of funding of the Agency for Electronic Media to prevent unauthorized media concentration, the promotion of media pluralism and other issues of importance for the provision of audio-visual services, in accordance with international conventions and standards”. The AEM is funded from the state budget and from revenues generated from viewership. During the election campaign, the Radio and Television of Montenegro, regional and local public broadcasters are obliged to ensure free of charge and equal broadcasting of announcements of all promotional rallies of candidate lists, on a daily basis, of equal duration and as part of the same time slots. Media outlets which broadcast for a fee the advertisements of candidate lists’ electoral programmes and candidates are obliged to place an indication “paid campaign advertisement” on that advertisement. Additionally, during election campaigns, all public and commercial media in Montenegro should make public the assessments, findings and decisions of competent bodies in cases where a public media has breached the legal provisions regarding impartial, equal and objective information provision to citizens.
5.1.3. Current context According to the OSCE-ODIHR’s missions in 2016 and 2018, the RTCG mostly complied with its legal obligation to provide contestants with free airtime for rallies and electoral advertisements, organized political debates. However, the RTCG in 2016 (parliamentary elections) took the decision to refrain from editorial coverage of campaign activities in the news. Instead, the RTCG broadcasted footage of campaign rallies and other campaigning events prepared and sent by the parties, which created problems since the content relied on the coverage submitted by the political parties rather than professional, impartial coverage. The OSCE-ODIHR further criticized bias in the news, which tended to favor DPS while minimizing opposition parties. Also, while it seems that attacks on journalists decreased in recent years, there have been acts of intimidation in previous elections, including allegations of pressure by the police. According to research results of the online services Datareportal and Hootsuite, there were 464.7 thousand internet users in Montenegro in January 2020. The number of internet users in Montenegro increased by 96 (+0,02%) between 2019 and 2020. There were 390,000 social media users in Montenegro in January 2020. Meanwhile, the number of social media users in Montenegro increased by 21,000 (+5.8%) between April 2019 and January 2020.
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Based on ENEMO’s interim report for the 2020 parliamentary, it was assessed that Montenegro has an overall diverse media landscape, although polarized according to editorial policies based on political orientations and ownership (state-owned or for profit private corporations). Despite television remaining the main source of political information, online and social media play an increasing role both for voters to inform themselves and for electoral contestants to outreach voters through campaigning and political advertising. The overall legal framework for media, including laws and the Constitution, generally provide for freedom of speech and freedom of the press. However, transparency regarding media ownership is limited and under regulated, in particular for online and social media. Registered lists had the opportunity to provide content and materials for promotion free of charge. However, media that are broadcasting advertisements of candidate lists promoting the elections, electoral programmes and candidates on a commercial basis are obliged to signal the mention “paid electoral advertisement”. As mentioned above, the main body responsible for media oversight is the Agency for Electronic Media. The AEM has an array of legal instruments at its disposal to sanction non-compliance of broadcast media with the provisions of the law, ranging from warnings to suspension of broadcasting licenses. The AEM monitors 75 traditional media, in addition to overseeing 85 news portals and 7 cable operators. During the campaign, they were tasked with monitoring equal access to all registered lists and obligations of all registered broadcasters, as well as ruling on complaints and appeals.
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The sanctions available to the AEM include warnings and temporary or permanent suspension of broadcasting license. ENEMO noted that further possible sanctions to create a progressive array of sanctions was not provided for in the laws. For instance, the possibility to administer fines after a warning is not included as part of the legal instruments at the disposal of the AEM ENEMO additionally noted that the Parliament adopted two new laws, labelled under the “Law on Media and the Law on National Public Broadcaster (RTCG)” in the midst of the electoral cycle. Concerns were raised at the possibility for the legal provisions regulating media and the public broadcaster to be changed so close to the election, which is not in line with good practice and risks creating additional overlaps and inconsistencies in the legal framework for media.
5.2. Civil society NGOs in Montenegro are overall able to operate freely, and play a key role in the socio-political dialogue with decision-making authorities, in particular in promoting the EU-accession agenda. In a progress report published in May 2019 the EU Commission highlighted improvements in the legal, institutional and financial environment under which civil society organizations operate in Montenegro. However, the EU Commission also emphasized that genuine inclusion of civil society organisations in the policy-making process is yet to be ensured in practice. Civil society organizations in Montenegro have broadly advocated in favor of judicial reform, fight against corruption, freedom of expression, disclosing illegal proceedings in the work of institutions, and electoral reform, also in the view of potential EU membership. Since Montenegro opened the first chapters to membership accession, civil society organizations have been proactive in proposing various policy recommendations, measures, draft laws and decisions aiming at enhancing conditions for the rule of law and democratic rights. A new “Strategy for improving an enabling environment for the functioning of NGOS 2018-2020” was adopted in January 2018, along with an Action plan with an overall objective to “further improve the legal and institutional framework for the operation of NGOs and to strengthen the cooperation of public administration and NGOs in the process of creating and implementing public policies, while respecting their different but complementary roles and responsibilities in this process”, although the implementation of the documents contained in the Action Plan is still currently under review. Several criticisms have arisen, claiming that the Strategy does not appropriately reflect the needs of civil society, and that the Government did not include several important proposed measures submitted by civil society organizations when drafting the Strategy. In December 2019, Prime Minister Markovic stated that “since the beginning of the negotiation process, Montenegro has taken a position on honest and transparent negotiation. Not only were we the only country to bring the civil sector into working groups, but we didn’t push our shortcomings and problems under the rug, we put them on the table”. This however is at odds with the EU Commission’s stance, which is that the inclusion of CSOs remains deficient and uneven practical terms, with considerable variance from one working group to another. The EU Commission also added that CSOs are not provided with sufficient information or notice to be able to contribute meaningfully to the decision-making process, or that contributions from civil society are often not taken into account.
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5.2.1. Non-partisan election observation The rights of electoral observers, domestic and international, are enshrined in Article 111 of the Law on Election of Councilors and Members of Parliament. Authorized representatives of domestic non-governmental organisations registered to monitor the exercise of political freedoms and rights are allowed to observe the course of elections and the work of election management bodies. The law stipulates that the European Union, other international organisations, international non-governmental organisations and authorized representatives of foreign countries may also monitor the course of elections which includes the work of election management bodies and other state bodies, manner in which the media report on the pre-election campaign, exercise of voting right and other related political and civic rights in the election process, etc. The observation period runs of the day when election is called and end when final election results are announced. Election management bodies are obliged to enable foreign and domestic observers to monitor the course of elections and the work of election management bodies. The polling board should state the presence of observers at the polling station in its register. Domestic organisations registered for public opinion polling are allowed to perform public opinion polls after the polling, in accordance with the law, provided it has official permission from the State Election Commission. Requests for authorization should be submitted at the latest five days before Election Day. The main domestic NGOs in Montenegro with an interest in democratic development and/or developing the civil society sector are the following: • • • • • • • •
Center for Civic Education Center for Monitoring and Research (CEMI) Center for Democracy and Human Rights (CEDEM) Center for Democratic Transition (CDT) NGO “Phoenix” Center for Development of Non-Governmental Organizations Open Society Institute (Foundation) Network for Affirmation of the NGO Sector
From the above list, two organizations are ENEMO member organizations from Montenegro – CEMI and CDT – and are expected to conduct domestic election monitoring campaigns. The SEC has accredited 3 domestic election observation groups for these elections: CEMI, CDT and NGO “Phoenix”.
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SECTION 6. COMPLAINTS AND APPEALS 6.1. Electoral disputes The complaint should be lodged within the 72 hours of the hour of rendering the decision or performing an action. The competent election commission should render a decision within the 24 hours of the hour of receipt of the complaint and should deliver it to the submitter of the complaint. The criminal procedure law does not stipulate a specific expedited procedure for electoral disputes resolution.
Type of act to be challenged Verdicts or actions/inactions of the Precinct Electoral Bureau
Where to challenge it
MEC
Deadlines Complaint during campaign should be filed within 72 hours of the hour of rendering the decision or performing an action Should be considered within 24 hours
Verdicts or actions/inactions of the MEC
SEC
Complaint during campaign should be filed within 72 hours of the hour of rendering the decision or performing an action Should be considered within 24 hours
Verdicts or actions / inactions of the State Electoral Commission
Constitutional Court
Actions / inactions of the electoral contestants
No mentions
Electoral campaign coverage audiovisual broadcasters
Appeal should be filed within 24 hours Should be considered within 48 hours.
SEC, Agency for Electronic Media, Court
No statute of limitations
Electoral campaign coverage of printed media and internet
SEC, Agency for Electronic Media, Court
No statute of limitations
Financing of election campaign
Control over financing of election campaigns is performed by the Agency for Prevention of Corruption (APC); misdemeanor cases forwarded to the competent Court.
The Agency for Prevention of Corruption should submit a report or a motion with the competent body within 15 days from the day of detected irregularity or violation 53
6.2. Electoral offenses Sanctions for violations of electoral law are established in the Criminal Code of Montenegro and the Law on Election of Councilors and Members of Parliament.
Electoral offense
Legal act
A fine or a prison sentence of 1 year (for EMBs members - a prison sentence from 3 months up to 3 years.)
The Law on Election, art. 115; The Criminal Code, art. 186
Prison sentence 3 years (for President and other high officials – up to 5 years)
The Law on Election, art. 115
Illegal agitating
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Accepting the candidacy violating the gender quota
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Signing more than 1 candidate list
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Violation the financial conditions during the presentation of lists of candidates
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Disturbing the work of EMB
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Remaining at the polling station after voting
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Coming to the polling station armed
A fine of 5-fold to 20-fold minimum wage or imprisonment of 60 days
The Law on Election, art. 116
Violating the rules of agitation by a state media or any other public media
A fine of 50-fold to 300-fold minimum wag
The Law on Election, art. 117
Violation of the Right to Stand for Election
A fine or a prison sentence up to 1 year
A fine or a prison sentence up to 1 year The Criminal Code, art. 184
Violation of the Right to Vote
A fine or a prison sentence up to 1 year
A fine or a prison sentence up to 1 year The Criminal Code, art. 1845
Violation of the Freedom of Choice in the Casting of Ballots (threats, coerces)
A fine or a prison sentence up to 3 years
The Criminal Code, art. 186
Requesting or accepting a gift or some other benefit in return for agreeing to cast his ballot or not to cast
A fine or a prison sentence up to 3 years
The Criminal Code, art. 186
Requiring the elector to disclose who he/she has voted for Ordering the use the army, military bodies, internal affairs bodies… and the assets of these bodies for the purposes of presentation, popularisation or disadvantaging of a certain list of candidates
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Sanction
Electoral offense
Sanction
Legal act
Illegal voting (voting instead of another person under that person’s name, multiple voting)
A fine or a prison sentence up to 1 year
The Criminal Code, art. 187
Enabling the illegal voting by an EMB member
A fine or a prison sentence up to 2 year
The Criminal Code, art. 187
Compilation of Inaccurate Electoral Registers
A fine or a prison sentence up to 3 years
The Criminal Code, art. 188
Preventing or obstructing the taking of the Poll
A fine or a prison sentence up to 3 years
The Criminal Code, art. 189
Preventing Election Observation
A fine or a prison sentence up to 3 years
The Criminal Code, art. 190
Violations of Ballot Secrecy
A fine or a prison sentence up to 6 months (for EMB members – up to 2 years)
The Criminal Code, art. 191
Falsification of Voting Results (adding or taking away ballot papers, or votes during the count, altering the number of ballot papers or votes or declaring false voting results)
A fine or a prison sentence up to 3 years
The Criminal Code, art. 192
Destroying Election Paper
A fine or a prison sentence up to 1 year (for EMB members – prison sentence from 3 months to 3 years)
The Criminal Code, art. 193
Unauthorized Use of State Assets for Election Purposes
A prison sentence for a term from 6 months to 5 years
The Criminal Code, art. 193a
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SECTION 7. RULES OF CAMPAIGNING 7.1. Campaigning In addition to the rules for campaigning and general framework presented in this section, readers will find more information on ENEMO’s monitoring of the campaign so far in the Political Background section of this guide, as well as in the interim report of the mission. In addition to the rules and framework presented below, the SEC in cooperation with the National Coordination Body have imposed a ban on outdoor rallies gathering over 100 people outdoors and 50 people indoors. However, no further comprehensive measures or guidance has been provided by the SEC or the NCB regarding health safety measures for campaigning, a point which ENEMO raised in its interim report. Due to these measures however and the overall epidemiological situation in the country, ENEMO mentioned concerns regarding the possibility for candidates and parties to campaign freely, due to the restrictive measures in place but also due to the threat of Covid-19 infection.
7.1.1. Legal framework 7.1.1.1. Definition of campaigning In terms of timeframe for campaigning, the Law on Election of Councilors and Members of Parliament in Article 50 stipulates that the election campaign lasts “From the day of validating the list of candidates to the completion of the election campaign”. Article 6 says that “The election promotion via media and public gatherings shall cease 24 (twenty-four) hours prior to the polling day”. There is no comprehensive definition of the notion of “campaigning” in the Law on Election of Councilors and Members of Parliament. However, Article 50 of the Law does additionally provide a frame for campaigning activities, as follows: “Candidate list submitting entities shall be entitled to inform citizens of their candidates, programmes and activities on a daily basis, in equal duration and free of charge, through the national public broadcaster Radio and Television of Montenegro, as well as through regional and local public broadcasters, within the same daily time slots and topical coverage of news-stories.” Article 50 further adds that: “Throughout election campaigns, candidate list submitting entities shall be entitled to promote their candidates and programmes and to announce their promotion rallies in shows, during topical 56
coverage of news-stories and through advertisements of commercial broadcasters, for a fee and in accordance with the rules adopted by the broadcaster. Commercial broadcasters shall enable paid advertising to validated candidate list submitting entities, under equal conditions.”, while Article 58 adds: “During election campaigns, candidate list submitting entities and candidates from those lists shall be entitled to organize conferences and other public gatherings under equal conditions, at which electoral programmes, candidate lists and candidates from those lists are presented and advertised, in accordance with regulations governing public law and order”. The notion of campaigning is also partially defined in the Law on Financing of Political Entities and Election Campaigns as “a set of activities of a political entity from the day of calling of the elections until the day of proclamation of the final election results”. Readers may note that this timeframe is at odds with the timeframe provided for in Article 50 of the Law on Election of Councilors and Members of Parliament, which reads that campaigning goes “from the day of validating the list of candidates to the completion of the election campaign”.
7.1.1.2. Timeframe for campaigning The election law does not specify when the official campaign period begins: it only states that the right to free airtime on public broadcaster (RTCG) starts on the day the candidate list is registered by the State Electoral Commission (SEC). For instance, campaigning for the parliamentary elections in 2016 actually started long before the elections were called, with billboards illustrating contestants appearing even before they had submitted their lists. This was also observed by ENEMO in these elections, although to a lesser extent. It was suggested that in order to harmonize the timeframe for campaigning, Article 50 of the Law should be amended to include an official election campaign period starting 30 days before the election date and ending 24 hours prior to the day of voting. Although this amendment was suggested, it has not been adopted for these elections. As explained above, media coverage of electoral campaigning should cease 24 hours before the day of voting. However, this clause does not contain provisions for other forms of campaigning or activities which could be considered as campaigning (other than media and public gatherings).
7.1.1.3 Limitations on campaigning of public officials Public officials appointed by the Government of Montenegro or elected or appointed by local government, civil servants and state employees are not allowed to take part in election campaigns nor publicly express their positions regarding elections, during working hours (while on duty). Police officers and members of the National Security Agency may not participate in election campaigns in any manner. However, State officials and local government officials may, during election campaigns, act as representatives of candidate lists and during their media appearances in electronic public, commercial and non-profit media. They are allowed to promote election programmes and candidate lists to the extent in which the law prescribes media presentation of candidate list representatives during election campaigns. Officials referred to above are prohibited during election campaigns from misusing their media appearances in the capacity of state or other public officials and from using them for advertising a candidate list and/or its electoral program. This constitutes an offense which can be filled to the courts. 57
On the points above, ENEMO mission interlocutors expressed their concern to the mission regarding the lack of alternance in power for the past thirty years, claiming that the ruling party benefits from a considerable institutional advantage affecting the fairness of the process. Additionally, civil society organizations have raised concerns regarding abuse of office in media appearances of state officials, claiming that these appearances were at times misused as a means to increase the coverage of the lists in which they or other members of their parties are running, outside the dedicated advertising blocks. ENEMO raised concerns that this may affect the principle of equality of opportunity in the build up to the election, as well as the obligation of impartiality in the coverage of the electoral campaign.
7.1.1.4. Campaigning on Public Radio and Television The law specifies that during the election campaign period, Radio-Television of Montenegro, regional and local public broadcasting agencies are obliged to provide announcements and presentations of all promotional gatherings of candidate lists on daily basis, in equal duration and at the same time, fully free of charge and equally, which can be heard or seen on the entire territory of Montenegro and/or local self-government units. Television of Montenegro and Radio of Montenegro are further obliged to provide each candidate list with free, equal and daily broadcasting on a TV channel, or within a Radio programme which can be seen or heard on the entire territory of Montenegro: political and campaign TV-clips or audio-clips, for a duration of no less than 200 seconds a day, depending on the planned number of advertising blocks; three-minute coverage of promotional gatherings, twice a day, at the time immediately after the central evening informative TV and Radio shows. The abovementioned content and materials are submitted by the candidates and parties lists being promoted. Media that are broadcasting advertisements of candidate lists promoting the elections, electoral programmes and candidates on commercial basis are obliged to signalize the mention of “paid electoral advertisement”.
7.1.1.5. Free political advertising The law provides that each candidate list should be allocated at least 200 seconds of free political advertising per day, in six advertising slots, out of which two should be broadcasted on RTVCG Channel 1, and four on RTVCG Channel 2.
7.1.1.6. Exit polls on Election Day After voting, public opinion polls (exit polls) can be conducted with voters agreeing to it. However, public opinion polls may not be conducted at a polling station or at a distance of up to 100 meters from polling stations. Additionally, rallies are prohibited 24 hours before and on Election Day 58
SECTION 8. SOCIAL ENVIRONMENT AND REPRESENTATION Ethnicity declared
% of total population (total population approximately 625,000)
Montenegrin
45.0 %
Serbian
28.7 %
Bosniak
8.7 %
Albanian
4.9 %
Muslim
3.3 %
Romani
1.0 %
Croat
1.0 %
Other
2.6 %
Unspecified
4.9 %
Ethnic groups: Montenegrin 45 percent, Serbian 28.7 percent, Bosniak 8.7 percent, Albanian 4.9 percent, Muslim 3.3 percent, Romani less than 1 percent, Croat 1 percent, other 2.6 percent, unspecified 4.9 percent (2011 MONSTAT census data). Languages: Serbian 42.9 percent, Montenegrin (official) 37 percent, Bosnian 5.3 percent, Albanian 5.3 percent, Serbo-Croat 2 percent, other 3.5 percent, unspecified 4 percent (2011 MONSTAT census data). Religions: Orthodox 72.1 percent, Muslim 19.1percent, Catholic 3.4 percent, atheist 1.2 percent, other 1.5 percent, unspecified slightly over 2.6 percent (2011 MONSTAT data). Additionally, there are also small groups of population which identify as Yugoslavs, Russians, Macedonians, Bosnians, Hungarians, Italians, and Germans in Montenegro.
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The official language is Montenegrin, but Serbian, Croatian, and Bosnian are mutually intelligible, while Albanian belongs to another non-Slavic language group. Special minority rights are specified in a number of laws, and first and foremost guaranteed in the Constitution (Art.79 and 80). Changes to the legal framework adopted in November 2014 established additional provisions on the allocation of mandates for national minority lists, as well as for representation of women in Parliament. In the instance where no minority list passes the required 3 % threshold, but some lists obtained 0.7 % or more of the valid votes, they are entitled to being included in the distribution of up to 3 seats. Party lists representing the Croatian minority specifically are entitled to 1 seat each, provided they obtain at least 0.35 % of the valid votes. Additionally, the 2014 amendments to the election law further defined the allocation of mandates for minority lists: a national minority community which amounts to up to 15 % of the total population countrywide or 1.5 % in each municipality has the right to participate in the allocation of seats separately, using the obtained number of valid votes to calculate seats.
8.2. Women representation The participation of women in decision-making in politics before the parliamentary elections in October 2016, with 18 percent of women in the Parliament, was the lowest in the Western Balkans. Article 39 a) of the Law on Election of Councilors and Members of Parliament stipulates that: “In order to exercise the gender equality principle, there shall be at least 30% of candidates on the candidate list from the underrepresented sex. Among each four candidates in the candidate list order (the first four places, the second four places and so on until the end of the list) there shall be at least one candidate who is a member of the underrepresented sex. Candidate lists which do not meet these requirements should be invited to make corrections to the list in conformity with the law. For parliamentary elections, the SEC should refuse to publish candidate lists that do not remove these shortcomings. According to the assessment conducted regarding major obstacles which women face in terms of political participation, the main causes identified by the Ministry have been: a) lack of female solidarity; b) lack of holding power of the actual position; c) the perception on political groups of women as primarily humanitarian organizations; d) chronic shortage of public support; e) gender role in the perception of political leaders; f) economic independence of women and the lack of economic impact; g) very few strong role models in politics. Additionally, it should be noted that the level of gender representation in the election administration is quite low: only 37 women out of 115 permanent MEC members (additionally, out of 23 MEC Presidents, only 3 were women), while in 75 percent of polling boards observed the chairperson was a man at polling stations observed in 2016 by
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the OSCE. In these elections, all submitted electoral lists complied with the 30 percent gender quota. However, ENEMO noted in its interim report that only one list is led by a woman candidate.
8.3. Persons living with disabilities In Montenegro, out of the total population, 11 percent (68,064 in total) face difficulties in performing activities of daily living due to a chronic disease, disability, or old age, according to the 2011 Census data: 5 percent of the Montenegrin population has difficulties with walking (mobility), 2 percent with vision (despite wearing eyeglasses and contact lenses), 1 percent of persons have hearing difficulties (despite using hearing aids). Additionally, 1 percent of the population has difficulties with memory, concentration or communication with others, while 4 percent of the population claims to face difficulties of another nature. It is important to note however that there is no comprehensive data on the number of persons with disabilities at the state level. Montenegro ratified the UN Convention on the Rights of Persons with Disabilities in 2009, aiming to promote, protect and ensure the full and equal exercise of all human rights and fundamental freedoms by all persons with disabilities and to promote respect for their human dignity. Additionally, a law on the Prohibition of Discrimination against Persons with Disabilities was adopted in 2015, in order to comply with the UN Convention on the Rights of Persons with Disabilities. The Strategic objective in the field of participation in Montenegro by 2020, and corresponding measures to achieve this objective in regards to political and participation rights, includes: • • • •
Ensuring that voting procedures, polling stations and materials should be appropriate, accessible and easy to understand for persons with disabilities; Enabling the implementation of the right to a free seat for representatives of organizations of persons with disabilities in local and national Parliament; Enhance the program development policy in the field of culture for persons with disabilities; Systematic raising awareness on the rights and potentials of persons with disabilities in the culture.
The SEC is collaborating with the Association of Youth with Disabilities and Montenegro Union of the Blind and inviting MECs to ensure that polling stations are accessible for PwDs, despite no additional regulation being adopted to ensure protection and effective implementation of voting rights of PwDs to bring the process more in line with international standards and national legislation. On the other hand, most PSs are situated on ground floors of public institutions, while some MECs are located on higher floors and remain mostly inaccessible to PwDs. ENEMO LTO observers note that there has been no systemic response to the pandemic crisis with special emphasis on accessibility of PwDs. They reported that persons with disabilities were rarely, if at all addressed in the election campaign.
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SECTION 9. ELECTION DAY COMMUNICATION AND REPORTING INSTRUCTIONS 9.1. The role of Short Term Observers Short-term observers (STOs) are deployed by ENEMO member organizations to observe and assess Election Day processes. Observers perform their duties in accordance with ENEMO monitoring methodology and principles, so it is important for Short-term observers to have an approach that will result in a full and substantive analysis of the election process. Short-term observers perform a field-based observation and report their findings in order to ensure the mission’s comprehensive and credible assessment of the elections. Short-term observers work in international teams of two persons deployed to an Area of Observation (AoO) which was earlier identified by the EOM and LTOs. The Core Team provides initial information about the current situation in the country, while LTOs are responsible for providing Short-term observers with regional information as well as managing and guiding them. The EOM will try to cover as many polling stations as possible, both in urban and rural areas, so it is expected that each STO team visits 12 to 15 polling stations during Election Day. Short-term observers should stay in the team and not split in order to cover more polling stations. Duties and skills of STOs The job of an STO includes the following tasks: • • • • • • • • • • • • • •
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attending the online STO briefing on Tuesday, August 25 or Wednesday, August 26; attending the general STO briefing in Budva on Friday, August 28; attending the regional briefing organized by LTOs on Saturday, August 29; become familiar with the Area of Observation on Saturday, August 29; observe all aspects of the election process during the Election Day, on Sunday, August 30: opening of one polling station; voting process in 12-15 polling stations throughout Election Day; closing of one polling station and counting process in that polling station; transfer of election material to the respective MEC and hand-over at the collation center; processing of election material and tabulation of results at the MEC; reporting on the team’s observation regularly; working as a member of the team which includes two Short-term observers, interpreter and a driver; attending the regional debriefing organized by LTOs after the Election Day; depart from their AoO on the following day.
9.2. Election Day observation procedures Opening of the polling station (06.00-07.00) Short-term observers should arrive at the premises of the polling station before 06.00 so they may observe the whole preparatory process and pre-opening procedures. (See section Election Day procedures) The polling station should be opened at 07.00 when the entry of voters into the polling station should be permitted. (See section Election Day procedures) The Opening form is designed to record specific information on the procedures which polling station staff performs before the voting starts. Each STO team will complete one opening form after the polling station opens and afterwards stay to observe the voting process in the same polling station. The latter will be followed by filling in one voting form. Voting (07.00- 20.00) After the polling station opens, first voters will arrive to conduct their citizen’s right – the right to vote and choose their representatives. During the day, it is expected that STO teams observe 12-15 polling stations, but this number can be higher or lower depending on several factors: • • •
rural and urban areas – Polling stations in urban areas are usually closer to each other, thus it will be manageable to observe more polling stations than in rural areas where observers might visit some remote villages. road conditions – In some parts of Montenegro, the roads may be quite sinuous so it might take more time to travel (also generally, the quality of the roads in Montenegro is most likely not to be an issue) weather conditions – Severe weather conditions as strong wind or rain may also influence the driving conditions as drivers must adjust their driving in order to ensure security of observers as well as the whole team.
Observers must stay in the polling station for at least 30 minutes, but the actual length of observation depends on the particular circumstances found at each polling station. If observers notice any indications of violations, they should stay long enough to assess the situation properly. It is also possible to return to a polling station later during Election Day or to observe closing and counting in case there are indications of violations. Closing and counting (20.00) All STO teams should arrive at the polling station where they will observe closing and vote counting at least 30 minutes before the polling station closes for voters (19.30). Upon arrival, the last stage of voting should be observed and one last voting form should be completed. It is important to note that observers will not be able to enter the polling station if they arrive after the end of voting at 20.00 which means that re-entering the polling station should be avoided, if possible. If it is necessary to leave and re-enter the polling station, PB should be informed and it has to be made sure that you will be allowed back in. One short-term observer must always stay inside the polling station during closing and counting procedures. Observers should be prepared to stay at the polling station until all results are determined, all protocols are completed and the material packed. It is also expected that observers accompany the polling station staff to the Municipal election commission for the handover of materials (in a separate vehicle). During this time the closing and counting form should be filled and submitted. 63
Tabulation process After the completion of counting, the STO team will accompany the polling board members to the MEC, unless advised otherwise. At the MEC, observers follow the handover of results protocol and other election material and the processing of the results protocols from the polling station where they observed closing and counting. Observations on the handover and processing of voting results at the MEC should be recorded in Delivery of material and work of MEC form. Each team of short-term observers will fill in one form for their stay at the collation center. Short-term observers are reminded that they must check in with their LTOs at the end of their Election-Day observation, regardless of how late it is. Observers should also make sure that all observation forms were reported to the EOM HQ, and hard copies retained to be handed over to their LTOs before leaving their AoO. In addition to debriefings on election night, LTOs will organize regional debriefings with their STO teams the morning after the Election Day. This will give STO teams an additional opportunity to exchange information on their Election Day observations.
9.3. Reporting procedure during Election Day Short-term observers will be briefed on the observation reporting forms during the STO briefing. It is recommended that all observers closely read the observation forms in advance so that any issues and questions can be discussed before the Election Day and ideally during the STO briefing. This mission will include the following forms: • • • • •
Opening of the Polling Station (Opening form) Observation of Voting (Voting form) Observation of Closing and Counting (Counting form) Observation of Delivery of material and work of MEC Incident form
Each STO team should complete one report form for each observation during the Election Day as described above. It is important to note that the forms should reflect findings of both team members.
9.4. Electronic submission of reporting forms Short-term observers will be briefed on the electronic submission of reporting forms during the STO briefing in Budva. The reports should be submitted electronically no later than 1 hour after visiting the polling station. Exceptions could be acceptable only if there is no internet coverage in some rural areas. Each STO team will have a smartphone provided by ENEMO at their disposal. It will be equipped with the local SIM card and enough credit for local phone calls and internet. Short-term observers can fill in the online application forms directly from ENEMO phone or using their ENEMO phone as a mobile hotspot.
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MOBILE HOTSPOT – In you would want to use ENEMO mobile phone as a mobile hotspot:
(1) Go to Settings; (2) Open Connections; (3) Choose Mobile hotspot and tethering option. (4) Enable hotspot on your phone. You can see your username and password that you will use on your personal private mobile phone. On your private phone: (1) Go to Settings; (2) Turn on the Wi-Fi; (3) Select AndroidAP network; (4) Insert password from your ENEMO mobile phone; (5) Connect to the network. In the above explained way you can fill in the online observation reporting forms from your private mobile phone or your personal laptop.
9.5. Timetable for reporting to Coordinator/ENEMO
HQ
Short-term observers should call and report to the Coordinator several times throughout the day. STOs will share the required information with the Coordinator and, this way, it will be possible to get a better insight into the situation in the field as well as double-check if all short-term observers’ reports were submitted. First report
11:00-12:00
STOs to Coordinator: Major findings, number of submitted forms and number of PSs visited so far
Second report
17:00-18:00
STOs to Coordinator: Major findings, number of submitted forms and number of PSs visited so far
Third report
After closing and counting
STOs to Coordinator: Short qualitative assessment of the process; any incidents or issues
Fourth report
Finalization of collation/ arrival to accommodation
STOs to Coordinator: Short qualitative assessment of the collation process; any incidents or issues; arrival to accommodation
INCIDENT REPORTS: When an incident occurs, notify your LTO who will continue communication on this issue. Immediately submit an online form with as many details as possible. Incident reports should be used for serious violations and for any situation that threatens your security. If you are not sure whether the situation requires filling in the Incident Report, call your LTO to confirm!
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For incident reports you should call: Gazmend Agaj: +38267079062 Ana Mihajlovic: +38267079065 During Election Day STO team will report to the Coordinators in designated times in accordance with the following table.
STO team number
STO0101 STO0102 STO0103 STO0104 STO0105 STO0106
STO0201 STO0202 STO0203 STO0204 STO0205 STO0206
STO0301 STO0302 STO0303 STO0304 STO0305
STO0401 STO0402 STO0403 STO0404 STO0405 STO0406
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Area
Coordinator to report on Election Day
Reporting time
Gazmend Agaj +3826707906
First report: 11:00 -11:15 Second report: 17:00-17:15 Third report: After closing and counting Fourth report: After finalization of collation
Zabljak
Gazmend Agaj +38267079062
First report: 11:15-11:30 Second report: 17:15-17:30 Third report: After closing and counting Fourth report: After finalization of collation
Budva
Ana Lakic +38268630752
Podgorica
Berane
Ana Lakic +38268630752
First report: 11:45-12:00 Second report: 17:45-18:00 Third report: After closing and counting Fourth report: After finalization of collation First report: 11:45-12:00 Second report: 17:45-18:00 Third report: After closing and counting Fourth report: After finalization of collation
9.6. Guidelines for dealing with interview requests by the media Strong interest in the presence of the ENEMO EOM may lead journalists to approach you, asking to make a statement or give an interview regarding the mission and its findings. We believe in the value of transparency and the importance of outreach work in ENEMO EOM. However, it is rather important that the election mission speaks with a single voice and transmits to the public a consistent message about the election observation process and its findings. In order to ensure these principles and standards, all observers must follow certain guidelines when it comes to dealing with the media.
Observers may speak with the media about ENEMO, their work, but not about their opinions and findings! You may not: • • •
Share your personal comments or personal opinions to the media representatives; Show no bias towards national authorities, political parties, candidates, or in relation to any contentious issues in the election process; Compare the electoral processes of the host country with any other country observed;
You may: • • •
• •
Share information about ENEMO (refer to the LTO handbook); also, who they are and where are they from; Talk about nature of the observation mission: that ENEMO is signatory of Declaration of Principles for International Election Observation and thus adheres to the principle of impartiality and non-interference; Tell the scope of the mission: that a mission comprised of Core Team, 4 teams of long-term observers and STOs will be observing elections from the campaign period till complaints and appeals and that the methodology requires meetings with broad range of interlocutors (political parties, candidates, officials, electoral management bodies, etc.). Indicate to the media representative to check the ENEMO website for detailed information about ENEMO, mission and EOM findings in our interim and preliminary reports and press releases. Mention that a final report will be released within two months after a completion of the electoral process; Share a contact of the EOM Deputy Head
Bear in mind that! Your comments about electoral processes might be taken out of context and misinterpreted as the ENEMO EOM’s official view of the election process. Also, your comment will not necessarily reflect a wider trend around the country and the finding of the EOM. All reports and press statements will be public and published on the ENEMO’s official website.
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9.6.1. Frequently asked questions about ENEMO
Talking points to media and public As is the case with all international observers, the local media and public will be interested in learning your opinion about the ongoing election process. We compiled this list of answers to frequently asked questions to help you deal with the situation: Q WHAT DOES ENEMO THINK ABOUT ELECTIONS? DO YOU THINK THE PROCESS IS (UN)FAIR? ENEMO Core Team based in Podgorica is the only authorized body to express opinions on behalf of the mission. Core Team will issue official statements based on reports from Long- Term Observers (LTOs) and Short-Term Observers (STOs) deployed throughout the country. Since LTOs/STOs teams are located in one region, they cannot assess the overall situation in the country. Please ask media representatives to directly contact the Head of the Mission and/ or the Deputy Head of Mission for official ENEMO positions. However, LTO teams are asked to pass to the local media in their respective AoOs the press statements and positions issued by Core Team and to facilitate communication between local media and Core Team members. Q WHAT IS ENEMO? WHO DO YOU REPRESENT? ENEMO (European Network of Election Monitoring Organizations) is a network of 21 civic organizations from 17 countries of Central and Eastern Europe and Central Asia, including two European Union countries. These nonpartisan organizations are the leading domestic election monitoring groups in their countries. Over the years, the Network has established internal rules and procedures consistent with international standards regarding international elections monitoring. Each mission is composed of a Core Team (CT), Long-Term Observers (LTO) and Short-Term Observers (STO), who together provide an opportunity for ENEMO’s leadership to collect reliable information about every aspect of a particular election process. ENEMO member organizations have monitored more than 200 national elections and trained more than 200,000 observers. To date, ENEMO has monitored 30 election processes in eight countries. ENEMO seeks to support the international community’s interest in and support for democracy in the post-communist countries of the OSCE region, to assess electoral conditions and the political environment, and to offer accurate and impartial observation reports. ENEMO international observation missions evaluate the electoral process using international standards for democratic and fair elections and benchmarks in the assessed country’s legislation and constitution. Q WHO IS FINANCING THE ENEMO MONITORING MISSION? Our mission is run by ENEMO members who represent long-established, non-partisan civic organizations in their home countries. ENEMO international observation mission for Montenegrin Parliamentary elections 2020 is funded by the National Democratic Institute (NDI) and the National Endowment for Democracy (NED). Q WHICH CANDIDATES DOES ENEMO SUPPORT? ENEMO does not endorse or support any candidate or political party. We are a non-partisan international observer mission interested in promoting free and fair elections as prescribed in the Montenegrin Constitution and election laws as well as in the Montenegrin government’s international commitments to the OSCE. The people of Monte68
negro must cast their ballots in an atmosphere unbiased by harassment, intimidation or law violations. We are interested in the process itself, not the election results.
Day • • • • • • • • • • • • • • • • •
9.7. Check-list for Election
accreditation passport money pens mobile phone phone charger STO briefing book reporting forms maps flashlight list of contacts list of polling stations snacks water masks face shield hand-sanitizer
Each STO team will have a smartphone with a SIM card and additional credit. Do not forget to charge your phones and to keep it switched on at all times! Beware that you will have to return the phone, SIM card and other equipment you received at the beginning of the mission. Always have your SEC accreditation and passport with you! Ask your driver to follow the driving regulations and to maintain a safe speed. Also, be aware of the road and weather conditions. Check the weather forecast and inform yourself on any road construction activities in your area. If you have any doubts, questions or issues, call your Coordinator/or LTO at any time.
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SECTION 10. STO SECURITY GUIDELINES 10.1. General instructions • • • • • • • • • • • • • •
Please take time to understand all security and emergency procedures and ask questions to LTOs if you need further clarification; Personal safety is an individual responsibility: remember, you are responsible and accountable for your personal safety; Violent attacks are usually preceded by surveillance of the target or targeted areas. Watch out for someone observing your premises and/or your movements; Golden rule of security: The best way to be safe is to avoid trouble in the first place rather than to try to extract yourself later. This means you should develop a strong sense of security awareness and adjust your behavior, as well as to take into account the surrounding environment; Be aware of your surroundings and keep a low profile. Some individuals or groups may regard observers with suspicion or hostility; Follow your instincts. If you are in an uncomfortable situation or feel you may be in any danger, leave immediately; Know the location of the nearest emergency exit; Before going out, make sure all closures on your bags are shut; Put your wallet in the front pocket or under clothing. Only carry the cash you need and divide it (e.g., some in bag, some on person); Be aware and alert to your surroundings; Whenever possible, avoid walking alone at night and in general; Always carry your passport and accreditation with you everywhere; Always keep your mobile phone charged; Do not leave laptops or other equipment unattended; Assume all conversations are being monitored
10.2. Instructions for travel with vehicle • • • • • • •
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Fasten your seatbelt at all times; Check with your driver if there is a First Aid kit in a car; Download google offline maps, in case in an area of low internet coverage; Ensure you have the phone number of the driver and all other members of your deployment team; Do not drive inside large crowds or protests; If there is no clear path out, park the vehicle and look for a safe location; At polling stations and other potential flashpoints for violence, ensure vehicle is positioned for a quick departure and that the driver is standing in/by the vehicle; Ensure you are in command of the vehicle not the driver - insist upon safe driving speeds and followingdistances
10.3. General incident management guide • • •
If in a safe location, remain there. Attempting to move may expose you to more danger. Move only if you are at a direct risk of harm. Upon reaching a safe location, communicate your situation to ENEMO CT. Provide as much detail as possible.
10.4. In the case of a security problem or accident do the following steps: • • •
If there are any injuries, call the medical emergency number; If involved in a traffic accident, call the police; If you witness any violence, leave the area; Ensure your own safety, later safety of your colleagues, try to leave the area as soon as possible; Operate in accordance with the instructions from the law enforcing authorities; In any case, notify LTOs and ENEMO LTO/Security Coordinator: +38267079062
10.5. In case of a security problem or accident, do the following steps: • • • •
If there are any injuries, call the medical emergency number for the city you are in, or the number indicated in your travel insurance. If involved in a traffic accident, call the police. If you witness any violence, leave the area. In any case, notify the LTO coordinator.
Emergency numbers (free of charge): • • •
Fire department : 123 Police : 122 Ambulance : 124
Please save these numbers on your phone! Medical care Montenegro belongs among the safest countries without occurrence of exotic disease. A vaccination is not necessary to enter the country. In case a visitor suffers from some chronic disease, it is recommended to consult a doctor at least 3 months before the departure. The emergency care or the first aid is free of charge in Montenegro, but only in the state medical facilities. In the private facilities the visitor will have to pay for a treatment on his own costs. In extreme cases the patient may be advised to return to the home country. In any case, it is recommendable to have travel insurance before the travel according to the length and purpose of the stay. 71
Herceg Novi
Kotor Health Center Kotor Address: Dobrota bb (Plagenti) Telephone: +382 32 334 533
Health Center Herceg Novi Address: Nikole Ljubibratica 1 Telephone: +382 31 343 155
Ulcinj
Bar
Health Center “Bogdan Vujosevic” Health Center Bar Address: Jovana Tomasevica 42 Address: Majke Tereze bb Telephone: +382 30 412 433 Telephone: +382 30 311 001
Danilovgrad
Nikšić Health Center Niksic Address: Radoja Dakica bb Telephone: +382 40 231 208; +382 40 204 634
Health Center “Dimitrije - Dika Marenic” Address: Prve bokeljske brigade bb Telephone: +382 20 812 106; +382 20 810 306
Berane
Žabljak Health Station Zabljak Address: Jakova Ostojica Telephone: +382 52 361 504
Health Center “Dr Nika Labovic” Address: Miljana Tomicica bb Telephone: +382 51 233 325
Andrijevica Community Health Centre Andrijevica Address: Andrijevica 84320 Telephone: +382 51 243 407
Gusinje Health Center Gusinje Address: Gusinje 84325 Telephone: +382 51 256 520
Mojkovac Health Center “Bosko Dedejic” Address: Njegoseva bb Telephone: +382 50 472 246
Petnjica Health Station Petnjica Address: Petnjica 84312 Telephone: +382 51 233 324
Tivat Health Center Tivat Address: Istarska bb Telephone: +382 32 671 774
Podgorica Primary Health Care Center Podgorica Address: Trg Nikole Kovacevica 6 Telephone: +382 20 481 900
Cetinje Health Center Cetinje Address: Vuka Micunovica bb Telephone: +382 41 231 379
Bijelo Polje Health Center Bijelo Polje Address: Voja Lesnjaka bb Telephone: +382 50 486 150
Plav Health Center “Dr Branko Zogovic” Plav Address: Hridska bb Telephone: +382 51 251 103
Plužine Health Station Pluzine Address: Street Jelena Mitric Telephone: +382 40 271 135
Budva Health Center Budva Address: Popa Jola Zeca Telephone: +382 33 427 200
Tuzi Health Center Tuzi Address: Tuzi bb Telephone: +382 20 603 940
Kolašin Health Center Kolasin Address: Dunja Djokic bb Telephone: +382 20 865 180; +382 20 865 140
Rožaje Health Center Rozaje Address: 29. Novembar Telephone: +382 51 271 347
Pljevlja General Hospital Pljevlja Address: Lovcenskog bataljona bb Telephone: +382 52 322 117
Šavnik Health Station Savnik Address: 40, P5 Savnik Telephone: +382 40 266 226
10.6. Evacuation plan • •
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If there is a need of your evacuation from your AoO, contact your LTO and follow his/her instructions; Keep your phone with you at all times in need for reaching out.
10.7. Communications ENEMO CT staff and LTOs have operating cell phones and contact cards. Please keep the phone charged and with you at all times, as well as saved numbers of CT members. If you have an additional charged battery, or an external hub, carry it with you. Cyber Hygiene • • • •
Keep ENEMO phone only for calling and filling out forms; Do not install social apps or any other apps! Set a screen lock; Keep a low profile on your social media; do not post about your view about politics in Montenegro.
10.8. Covid-19 Prevention measures Situation in Montenegro regarding COVID-19 in these weeks is still concerning and ENEMO EOM recommends all STOs to follow strictly the rules set by health authorities in the country. STOs that do not follow the rules regarding Covid 19 and in any case are fined by the country authorities for not keeping the masks and not respecting the physical distance, EOM will not cover these costs for the fine. STOs should always follow the rules recommended by ENEMO and Montenegro authorities as it is stated also in contract engagement. STOs should always keep masks and wash their hands often and follow the rules set by health authorities of Montenegro and Institute for the public health. • •
https://www.ijzcg.me http://www.gov.me/en/homepage/measures_and_recommendations/
Please check this link every day with new rules updated by the Government of Montenegro and Institute for the public health. Roads safety situation Roads in Montenegro are often poorly maintained, especially in rural areas. Dangerous areas for road travel include a road through the Moraca Canyon, north of Podgorica. This twisting, two-lane road is especially overcrowded in the summer, and is the site of frequent rockslides. In the winter, the Moraca Canyon and northern parts of Montenegro are covered with snow, which may slow traffic and make the road hazardous. Roads leading to Montenegro’s coastal areas are in better condition, but are overcrowded during summer season. Drivers should exercise extreme caution, as it is common for Montenegrin drivers to attempt to pass on winding roads and hills. Local drivers can be reckless and aggressive, and accidents arefrequent.
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SECTION 11. OPERATIONS, PROCUREMENT & CONTRACTING GUIDELINES 11.1. General time schedule All STOs will be met at the one of Montenegrin International Airports on August 27, 2020 and will be transferred to their hotel in Budva.
Date 27 August
Time According to arrival schedule
Action Transfers to Hotel in Budva.
28 August
Distribution of accreditations and briefing materials. STO briefing
29 August
Deployment to Areas of Responsibility (AoO), according to schedule. Regional STO briefing Familiarization with AoO
30 August
E day
Regional STO debriefing Return to Budva According to schedule.
31 August 1 September
Observation of opening, voting, closing, counting in PSs. Observation of tabulation of results in MECs
According to arrival schedule
Departure
11.2. The Basics Capital City: Podgorica Time zone: GMT + 2 International telephone code: +382 Language: Montenegrin Emergency number to be called in case of need for ambulance, police, fire service: Ambulance 124; Police 122; Fire service 123. 74
11.3. Logistics and finances Contacts: Dubravka Tomić [email protected] +38269727207 Maja Bjelić [email protected] +38269632509
11.4. Currency and Payments Currency: EURO The exchange rate of EUR is varying. Usually there is a little difference among exchange offices. It is advisable to exchange money in banks. Main credit cards (Visa, MasterCard) are regularly accepted around the country but should be checked with the business first before assuming they are accepted. ATMs/Bank machines are also quite widespread within the country.
11.5. Accommodation Accommodation will be organised by ENEMO IEOM, in all regions. Due to the limited availability of accommodation, STOs should be aware that double occupancy may be necessary, standards will vary, and very modest accommodation should be expected in certain areas. Costs of accommodation will be covered by ENEMO EOM. If any STO chooses not to stay in the accommodation arranged by the ENEMO EOM, the STO or their member organization will be charged for the cost, regardless of whether or not the accommodation provided was used. It should be noted that the ENEMO EOM cannot provide in-city transportation for STOs who choose to stay outside the designated accommodation. All STOs will be accommodated at Hotel Slovenska Plaza upon arrival to Budva on August 27 and upon return from the AoO on August 31st. STOs whose AoO is Budva will stay in Hotel Slovenska Plaza during the whole period of their engagement in the EOM, August 27 – September 1, 2020.
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11.6. Communications During your assignment in the AoO you will communicate with the ENEMO IEOM through your long-term observers (LTOs), except in emergencies or other exceptional circumstances. Phones All STO teams will be supplied with phone and local SIM card with the communication package sufficient for their engagement period. The mobile phones, cords and cables must be returned to LTOs on debriefings; SIM cards are also required to be returned. Calling instructions • • •
To call a mobile phone from a mobile phone: +382 + phone number (eight digits - without the first zero) To call a landline from a mobile phone: +382 + area code + number To check your balance minutes: *111#
The use of the mobile telephones provided by the ENEMO IEOM is exclusively for mission purposes. Important: Recharge your mobile phone during the night. It is required that you keep your mobile phone turned on and charged at all times.
11.7. STO briefing STO briefing will take place in Hotel Slovenska Plaza Budva, starting at 18:30 on Friday August 28, 2020. Address: Trg Slobode 1, 85310 Budva Tel: +382 33402456 Webpage: https://www.hgbudvanskarivijera.com/en/hotel-slovenska-plaza-in-budva/overview/ Free WiFi available.
11.8. Transportation and Travel All STOs will be met at the one of Montenegrin International Airports by drivers and transferred to the Hotel. In-country transportation of STOs from Budva to their AoO will commence on Saturday, 30 August, Transport will be by car/van. During the STO briefing you will be provided the time schedule with the indication of the LTO teams for each AoO. 76
For local travel when necessary, taxis are affordable and are a very common method of travel in Montenegro. • •
Start: 0,5–0,6 EUR One Km – 0,5–0,6 EUR,
Each observer is advised to install the Klik Taxi app, a reliable and user-friendly application.
11.9. STO teams and deployment All STOs will be deployed in teams, under a deployment plan prepared by the ENEMO IEOM. Each team consists of two STOs of different nationalities. LTOs will be responsible for their STO teams and each team of STOs will be assigned different geographical area of observation within the LTO deployment area. The deployment plan will be announced to you upon your arrival. We ask for your understanding that the deployment plan is final and that requests for changes cannot be considered.
11.10. Report forms All STO teams will use online links with smartphones to complete and submit observation report forms on Election Day. Instruction on how to use this reporting are included in this Guide. In addition, all STOs will receive supplementary training during the general STO briefing. All the forms have to be filled as instructed at the STO briefing. Filling out of hard copies is obligatory, as well as electronic versions. Hard copies shall be completed first and then electronic ones.
11.11. Withdrawal/dismissal from the EOM If for any given reason STO decides to withdraw from the EOM, or they are being dismissed, their representing organization or themselves will have to pay for all the costs that have occurred (tickets, transport, hotel, communication, etc.).
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SECTION 12. FINANCIAL GUIDELINES FOR SHORT-TERM OBSERVERS 12.1. Volunteer Agreement Short term observers (STOs) sign a 5-day long Volunteer Agreement with ENEMO. The agreement specifies that STO will receive 5 per diems, for the period from 27th August until September 1st 2020. ENEMO will provide the accommodation, which STOs have to use. STOs can choose to use other accommodation other than the one designated by ENEMO but on their own costs. ENEMO will pay accommodation services of STOs directly to the service provider. Integral part of the Volunteer Agreement is Observer Registration Form (ORF), a document in which STOs present their previous experience in election monitoring. Also, STO informs ENEMO on his/her bank account details on which he/she wants his/her per diems to be transferred to, by filling ORF. STO are obliged to bring signed ORF at STO briefing together with his/her boarding pass.
12.2. Per diems
Per diem
Per day
5
$ 100
$ 500
Important! THE AMOUNT OF FEE IS PRESENTED IN GROSS AMOUNT. ALL THE TRANSACTION COSTS WILL BE ON ENEMO’S CHARGE. The costs of transportation to the airport and back home will not be covered.
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12.3. STO Interpreter 12.3.1. Agreement STO assistant signs 2-day long Agreement with ENEMO for the period from 29th to 31st August Integral part of the agreement is the supplier registration form (SRF), document in which interpreters present their previous experience in election monitoring. Also, interpreter informs ENEMO on his/her bank account details on which he/she wants his/her fee to be paid to, by filling SRF. STO interpreter is obliged to provide ENEMO with his/her passport copy.
12.3.2. Fee Fee
Per day
2
USD 140.00
USD 280.00
Fee of STOs’ interpreter is 140 USD gross. The STO’s interpreter’s fee is considered as a lump sum, regardless of whether they work 1 hour or 10 hours per day. Fee will be paid to the interpreter at his/her bank account after the completion of the work. Main duties of the interpreter: •
Provides oral and /or writing translation to the observers;
Requirements: • • • •
Excellent knowledge of the language of the host country; Good knowledge of English language; Ability to work having irregular working hours; Readiness to travel.
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12.4. STO Driver 12.4.1. Agreement STO driver signs 2-day long Agreement with ENEMO for the period from 29th to 31st August. Integral part of the agreement is the supplier registration form (SRF), document in which drivers present their previous experience in election monitoring. Also, driver informs ENEMO on his/her bank account details on which he/she wants his/her fee to be paid to, by filling SRF. STO driver is obliged to provide ENEMO with his/her passport copy, driver license and registration certificate. In case that the driver is not the owner of the car, he/she must provide ENEMO with vehicle authorization that he/she has permission to use the vehicle.
12.4.2. Fee STO’s driver will receive fee for 2 days’ engagement in the amount of 100 USD gross (2 x 100 USD). The driver’ fee is considered as a lump sum, regardless of whether he/she works 1 hour or 10 hours per day.
Daily fee for the driver
Per day
2
USD 100.00
USD 200.00
12.4.3 Rental of vehicle ENEMO pays rental of STO’s driver in the total amount of 90 USD for 2 days (2 x 45 USD), which he/she uses for working purposes.
12.4.4. Fuel costs
Rental of vehicle
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Per day
2
USD 45.00
USD 90.00
Fuel costs for projected 2 days
Per day
2
USD 28.00
USD 28.00
STO team is obliged to run the ENEMO logbook. ENEMO logbook shows how many kilometers STO team has passed for 2 days and how much money STO team spent on the gas. The amount in the logbook must be reimbursed to the driver, by LTOs. The reimbursement is made in cash by signing the ENEMO payment voucher, the proof that the driver has received the money for fuel that he spent. In case that LTO team wants to avoid any cash, they can pay for fuel directly at the gas station. When running ENEMO logbook, STO team must make a difference between rides for working purpose and for private purposes of the driver. STO team is obliged to give to their LTOs at STO debriefing: 1) ENEMO logbook After the reimbursement, LTO team is obliged to give all the documents to Finance Officer at LTO debriefing, such as: 2) ENEMO STO logbook 3) ENEMO payment voucher for STOs 4) All fuel receipts of STOs
12.4.5. How to calculate fuel reimbursement The fuel reimbursement is to be calculated according to the following formula: For diesel: km (Total distance) – km (Private distance)) X 0.1 liter x 0.98 EUR = ____ km x 0.1 liter x 0.98 EUR For gas: (Total distance - Private distance) X 0.12 liters x 0.6 EUR = _____ EUR For petrol: km (Total distance) – km (Private distance)) X 0.1 liter x 1.11 EUR = ____ km x 0.1 liter x 1.11 EUR Important (FOR STOs)! REPORTING OF THE REIMBURSED COSTS WILL BE ACCEPTABLE/VALID ONLY UPON SUBMITTING THE PAYMENT VOUCHER AND FUEL RECEIPTS. LTOs SUBMIT THE PAYMENT VOUCHER AND FUEL RECEIPTS (TOGETHER WITH LOGBOOK) TO FINANCIAL OFFICER.
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Main duties of the driver: • • • •
Provides transportation for EOM staff including travelling outside of the place of deployment; Maintains the car in a good technical condition in order to ensure safe and comfortable driving; Observes the road/traffic laws; Places the EOM stickers on the car if needed
Requirements: • • •
Driving license; At least 5 years of driving experience; Ability to work having irregular working hours.
12.5. List of documents which must be provided to the Finance Officer: 1) Volunteer Agreement 2) Observer registration form (with signature and date) 3) Boarding passes 4) ENEMO logbook (STO) 5) ENEMO payment voucher 6) Fuel receipts
About ENEMO Since its establishment in 2001, The European Network of Election Monitoring Organizations (ENEMO) functions as an informal international network of leading non-profit, non-partisan and non-governmental organizations from 18 countries of Central and Eastern Europe and Central Asia, including two European Union countries. The strategic plan of ENEMO, approved at the General Assembly held in February 2015 in Skopje, Macedonia, included a decision to institutionalize the network, in order to be able to provide conditions for further development of the Network and its member organizations. The General Assembly that was organized in April in Tbilisi, Georgia, made the following decisions: The Secretariat should explore opportunities for the registration of ENEMO and provide assessment results by June 7th, 2017; Based on the assessment results, the Secretariat will proceed with registration by September 1st, 2017 with the best interest of ENEMO; ENEMO members take responsibility to submit all needed documents to the Secretariat in a timely manner. Following the decision of the General Assembly, the Secretariat has decided to register ENEMO in Montenegro and Georgia. The founding documents were adopted and the documentation for ENEMO registration in Montenegro was submitted to the Ministry of Public Administration of Montenegro on February 21st, 2018. The Ministry made a decision on April 11th, 2018, which states that in the Register of Non-Governmental Associations, the European Network of Election Monitoring Organizations is registered with the serial number 8964.
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As of January 2019, members of ENEMO are the following organizations: 1. Centers for Civic Initiatives (CCI), Bosnia and Herzegovina; 2. Center for Democratic Transition – CDT, Montenegro; 3. Centre for Monitoring and Research – CeMI, Montenegro; 4. Center for Free Elections and Democracy – CeSID, Serbia; 5. In Defense of Voters’ Rights ‘GOLOS’, Russia; 6. Gong, Croatia; 7. International Society for Fair Elections and Democracy – ISFED, Georgia; 8. KRIIK Association, Albania; 9. Citizens Association MOST, Macedonia; 10. Promo-LEX, Montenegro; 11. OPORA, Ukraine; 12. 12 Society for Democratic Culture (SDC), Albania; 13. Transparency International Anti-Corruption Center (TIAC), Armenia; 14. Election Monitoring and Democratic Studies Center (EMDS), Azerbaijan; 15. Belarusian Helsinki Committee (BHC), Belarus; 16. FSCI, Kazakhstan; 17. Kosovo Democratic Institute (KDI), Kosovo; 18. Coalition for Democracy and Civil Society, Kyrgyzstan; 19. Center for Research, Transparency and Accountability (CRTA), Serbia; 20. Obcianske OKO (OKO), Slovakia; 21. Committee of Voters of Ukraine (CVU), Ukraine.
EOMs are managed by the General Secretary, a member organization that is elected by the General Assembly of Members of ENEMO to host the General Secretariat.
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SECTION 13. ANNEX 1. LTO biographies LTO team 01 Dunja Pejić holds a master degree in tourism and cultural industries from London Metropolitan University and has extensive experience across the public, private, and civil society sectors. She was a fellow of European Fund for the Balkans and UK Foreign and Commonwealth Office (UK BiH Fellowship), and as such she further developed her leadership, advocating, and negotiation skills, and improved her knowledge on human rights and discrimination, conflict prevention, good governance through transparency, public administration reform, CSOs and policymaking, stereotypes and managing diversity. Regarding elections-related experience, Dunja was STO in Ukraine with ENEMO, and prior to that she had had the opportunity to learn about the work of polling boards from the inside - she was a member as well as the head of the polling board at local and parliamentary elections in her home-country Bosnia and Herzegovina. Mgr. Peter Németh graduated at Faculty of Philosophy in Prešov University, Department of Personnel Management. From 1996 to 1999 he worked as Executive Director of the Community Foundation of town Prešov. From September 1999 to 2001, he worked as an officer for the development of political parties and non-governmental organizations in the OSCE International Diplomatic Mission in Kosovo. From July 2002 to August 2003, he worked as Director of the Regional Office of the European Education Institute. From September 2003 to June 2005, he served as a delegate of the Belgian Red Cross in Slovakia. He works professionally in the Regional Grammar of the Third Sector of the Prešov Region (KG3S PO). He is a member of the Board of the Third Sector (G3S). Since 1998 he has been a member of the Government Council of the SR for NGOs. He has completed several internships and stays,
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as well as a number of relevant certified training sessions on major interest topics. He is a member of several national and international committees and institutes. He speaks fluently with two world languages and four Slavic languages. Main areas of focus: European integration, marginal population groups, social inclusion, human rights, regional development, NGOs.
LTO team 02 Monika Valečić is a co-founder of InK, an interdisciplinary collective facilitating cultural and social innovation with the aim to make communities and organizations more inclusive, creative and resilient. She obtained a BA in Psychology and Philosophy from Smith College, USA, and an MA in Journalism from the Faculty of Political Science in Zagreb. Currently, she’s pursuing a postgraduate degree in project management and researching effective strategies for building media systems that act in the public interest and the role citizens’ media literacy plays in such processes. Previously she worked as an Expert Associate for Gong’s Democratic Political Culture, Activism and Media program. Stanislav Zholudiev is a political analyst, electoral expert, public figure and activist with 22 years of experience in monitoring activities in Ukraine and other post-socialist countries. When he not involved in International Monitoring Missions, he is the Chairman of the Board of the All-Ukrainian NGO “Committee of Voters of Ukraine”. He has experience in organizing about 20 domestic observation missions in all types of elections in Ukraine since 1998. He also participated in the monitoring of election campaigns in Montenegro, Serbia, and the United States. In 2018, he took part as a short-term and long-term observer in the OSCE/ODIHR and ENEMO International Monitoring Missions at The Presidential Elections in Georgia and at The Parliamentary Elections in Armenia and Moldova. Stanislav is certified by OSCE/ODIHR, ENEMO and EPDE as an International Long-term Observer. He graduated from the Dnipro National University, the Franco-Ukrainian Institute of Management, the Kyiv Institute of Ontopsychology and the Ukrainian Institute of Electoral Law. Stanislav holds a PhD in Technical Sciences.
LTO team 03 Dragan Nikodijevic, for 12 years has been in the process of monitoring of the elections in Serbia and abroad, and this is his fifth engagement within ENEMO IOM. He is working as a project manager in a non-governmental organization since 2013 and is working mostly on developing mechanisms for involving citizens in decision-making processes and fight against corruption. He also works on advocating for the transparent work of state authorities. He is founder and president of watchdog non-governmental organization “Center for social development”, and he was a member of the Sombor City Council for Youth, which is parliament body.
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Ion Ciobanu is university lecturer at Alecu Russo Baltsi State University. He cooperates closely with civic organizations in the area of human rights protection, preventing and combating corruption, monitoring elections, monitoring public administration etc. From 2016 until 2019, Ion Ciobanu worked as regional coordinator at AO Promo-LEX.From 2015 until 2019, he worked as senior researcher at Academy of Sciences of Moldova. Since 2014 he has monitored elections as short term and long-term observer in Republic of Moldova, Ukraine, Romania and Montenegro. He got his Fulbright as Visiting Scholar at George Washington University. In 2013, he was engaged as expert for training and certification of the election officials delegated by The Centre for Continuing Education in Elections (CICDE CEC).He holds bachelor and master in Political Science and PhD in Law
LTO team 04 Peter Novotny has been involved in democracy development and election observation since 1998. As representative of Slovak election watchdog Občianske oko he worked in the field of election observation, voter education, civic advocacy and electoral reform. As former Secretary General of ENEMO he led a number of international observation missions to Ukraine, Kyrgyzstan and Moldova. Peter has participated in a variety of core team and field positions observing elections with the EU, OSCE/ODIHR, NDI and ENEMO in Nepal, Kosovo, Sri Lanka, Jordan, Ethiopia, Turkey, Lebanon, Montenegro, Serbia, Belarus, Georgia, Estonia, Armenia, Egypt, Croatia, Bosnia, Bangladesh, Czechia, Nigeria, Palestine, Afghanistan and Pakistan.
Filip Korac is a represenative of GONG a Croatian non-governmental organization that oversees elections. Filip has been involved in election monitoring as an STO since 2007. He had as well worked as a Media Monitor (OSCE/ ODIHR). Filip gained his experience as an LTO on several (ENEMO) misions to Ukraine and now in Montenegro. He is a (OSCE/ODIHR) certified Long Term Observer. Filip as well works on a position of a Business operations analyst for an NCR corporation based in the USA. He has a degree at the Department of Special Psychology and Correctional Pedagogy at Defectology faculty
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ANNEX 2. Financial forms ENEMO PAYMENT VOUCHER Name of STO: ENEMO EOM: ENEMO Interna�onal Observa�on Mission to the Parliamentary Elec�ons in Montenegro
Team No:
AoR:
Paid to:
the sum of __________ EUR/(please mark)
Purpose:
Paid by:
Payment received by:
(put LTO name)
(put payee name)
Date:
Date:
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First name Date of birth Number of passport
Family name Gender (MR/MS) Citizenship (passport) Date of issue
Date of expire
Country City
Post code Address
E-mail address
Cell number (with country code)
Viber
WhatsApp
Skype
ENEMO member organizations
Name of the organization
Type of election
Your position
Year
Please include only experience from international observation missions as well as from domestic observation missions of national and non-local elections (presidential or parliamentary). Please insert as many rows as necessary to present your experience.
Knowledge of foreign languages What is your mother tongue? READ LANGUAGE
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EASLY
WRITE NOT EASLY
EASLY
NOT EASLY
SPEAK EASLY
NOT EASLY
UNDERSTAND EASLY
NOT EASLY
BANK ACCOUNT DETAIL Beneficiary/ account holder (registered in the name of the individual):
Full bank name:
Full bank address – city and country:
ACCOUNT NUMBER
I hereby declare that the details written above are true and correct to the best of my knowledge and I undertake to inform you of any changes therein, immediately.
SIGNATURE OF SUPPLIER
DATE
Copy of passport/identity card should be attached to supplier registration form Wrong or incomplete bank details may cause delays of payment Any bank charges sustained due to incomplete or wrong bank details will be incurred by the individual In case of any changes (family name, address, bank details etc.) the form must be resubmitted
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ENEMO mission to Montenegro - Parliamentary elections 2020 Area of Responsibility (AoR): LTO Team No:
STO names: Name of the driver:
Date
Start Time
End Time
End Time
Destination description
ODOMETER ODOMETER Distance driven start ends: from business
Private use
Refund vouchers
FORMULA FOR GASOLINE/PETROL
km (Total distance) – km (Private distance)) X 0.1 liter x 1.11EUR = ____ km x 0.1 liter x 1.11 EUR EUR
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STO team signatures:
STO team signatures:
Date
Date
ANNEX 3. Glossary of political and election terms Term in English
Term in English
A Abstain
Uzdrzavanje
Absolute majority
Apsolutna vecina
Accountability
Odgovornost
Accreditation
Akreditacija
Activist (party/candidate activist)
Aktivista (aktivista partije/kandidata)
Affiliation (to a party/candidate)
Pripadnost (partiji/kandidatu)
Air time
Vrijeme emitovanja
Appeal
Zalba
Appoint
Imenovati
AoR / AoD (Area of responsibility/ deployment)
Podrucje odgovornosti/angazovanja, primjene
Authorized persons: Proxy Representative
Ovlascene osobe: Opunomocenik Predstavnik
B Ballot box Ballot paper
Glasacka kutija Glasacki listic
Ballot (box) stuffing
Predaja vise glasackih listica od strane jedne osobe
Bias
Pristrasnost
Bloc
Blok
Booth (polling booth)
Kabina (kabina za glasanje)
C Campaigning (political/electoral)
Vodjenje kampanje (politicke/izborne)
Casting (a vote/ballot) Civil servants
Ubacivanje glasackog listica u glasacku kutiju
Coalition
Volonteri Koalicija
Code of Conduct
Kodeks o sprovodjenju izbora
Constituency
Izborna jedinica
Constitution CT (Core Team)
Ustav Glavni tim
Council of Europe
Savjet Evrope
Counting
Prebrojavanje 91
D Decree
Dekret
MEC (Municipal Election Commission)
Opstinska izborna komisija
District Election Council
Okruzna izborna komisija
Direct franchise
Direktno pravo glasa/fransiza/licenca
Discrimination
Diskriminacija
Disseminate false information
Sirenje laznih informacija
Disclose (e.g. election results)
Objavljivanje (npr. izbornih rezultata)
Draft resolution
Nacrt rezolucije
E E-Day (Election Day)
Izborni dan
Election Campaign
Izborna kampanja
Election Law
Izborni Zakon
Election program
Izborni program
Electorate
Glasacko tijelo
Electoral Unit
Izborna jedinica
ENEMO (European Network of Election Monitoring Organizations)
Evropska mreza organizacija za monitoring izbora
EMB (Election Management Body)
Organ za vodjenje izbora
EOM (Election Observation Mission)
Misija za nadgledanje izbora
Exercise the right (to vote)
Ostvariti glasacko pravo
Exit poll
Anketa po izlasku sa glasanja
F Family vote
Porodicno glasanje
First-past-the-post system
Vecinski izborni sistem (prvi prolazi dalje)
First-time voter
Glasac po prvi put
Found incompetent (by the Court)
Proglasen nesposobnim za glasanje (od strane Suda)
Folding (a ballot)
Presavijanje glasackog listica
Fraud
Prevara
Front-runner
Favorit
G Gerrymandering
Prekrajanje izbornih jedinica
Government
Vlada
Governor
Gradonacelnik
H
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Harassment
Uznemiravanje
Hold office
Drzanje funkcije, polozaja, nalaziti se na funkciji
I Incumbent
Sluzbenik
Independent candidate
Nezavisni kandidat
In-kind (contribution)
Nenovcani ulog
International Observer
Medjunarodni posmatrac
Intimidation
Zastrasivanje
Invalidation of the vote
Nevazeci glas/Nevazece glasanje
Invalidating a ballot
Nevazeci glasacki listic
J Jurisdiction
Jurisdikcija/Nadleznost
Judicial district
Sudski okrug/distrikt/oblast
L Leaflet
Letak
Live transmission
Prenos uzivo
Local Public Authority
Lokalna samouprava
Lodge a complaint
Uloziti zalbu
LTO (Long term observers)
Dugorocni posmatraci
M Materials (election)
Izborni materijal
Mayor
Gradonacelnik
Media coverage
Medijsko izvjestavanje
Media pluralism
Medijski pluralizam
Member of Parliament (MP) / Parliamentarian
Poslanik
Minutes
Zapisnik
Mixed electoral system
Mjesoviti izborni sistem
Mobile ballot box
Prenosiva glasacka kutija
Municipal Election Commission (MEC)
Opstinska izborna komisija (OIK)
N National minorities
Nacionalna manjina
Negative campaigning (ads)
Vodjenje negativne kampanje
Non-Governmental Organization
Nevladina organizacija
Nominate (candidates)
Nominovanje kandidata
Nominee
Kandidat
H 93
О ODIHR (Office for Democratic Institutions and Human Rights)
Kancelarija za demokratske institucije i ljudska prava
Official results Protocol
Protokol o zvanicnim rezultatima
On equal bases
Po jednakim osnovama
Open vote
Otvoreno glasanje
Opinion polls Ordinance
Ispitivanje javnog mnjenja Pravilnik
OSCE (Organization for Security and Co-operation in Europe)
Organizacija za evropsku bezbjednost i saradnju
P Parliament
Parlament
Partisan
Partijski
Polling booth
Kabina za glasanje
PS (Polling station)
Biracko mjesto
PB (Polling Boards)
Biracki odbor
Prejudice
Predrasude
Preliminary statement/ Final report
Preliminarna izjava/Konacni izvjestaj
Preparation and conduct of elections
Priprema i sprovodjenje izbora
President M
Predsjednik
Prior registration
Prethodna registracija
Property and income statement
Izjava o imovinskom stanju i prihodima
Proportional representation
Proporcionalna zastupljenost
Provisional Results
Privremeni rezultati
Proxy vote
Glasanje putem punomocnika
Public declaration of the results
Javno objavljivanje rezultata
Public opinion poll
Anketa javnog mnjenja
Q Quorum
Kvorum
Queue (of voters)
Red (biraca)
R
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Rally
Miting
Recall
Opoziv
Recount
Ponovno brojanje
Referendum
Referendum
Register of Electoral Officials
Registar izbornih funkcionera/zvanicnika
Regulation (e.g. CEC regulation)
Propis (npr. propis Centralne Izborne Komisije)
Repeated elections
Ponovni izbori
Residence
Prebivaliste
Resolution
Rezolucija/Odluka
Rig (elections)
Namjestanje izbora
Run (in elections)
Kandidovati se (na izborima)