Elections in times of crisis
- Author(s):
- Parliamentary Assembly
- Origin
- Assembly
debate on 27 January 2026 (4th sitting) (see Doc. 16297, report of the Committee on Political Affairs and Democracy,
rapporteur: Mr Damien Cottier). Text
adopted by the Assembly on 27 January 2026 (4th sitting).See
also Recommendation 2301
(2026).
1. The Parliamentary Assembly recalls
that free and fair elections, based on universal, equal, free, secret and
direct suffrage, are the cornerstone of democratic governance and
a fundamental requirement under the European Convention on Human
Rights (ETS No. 5).
2. Crises and the State responses they require can have profound
implications for rights and freedoms, as well as for the functioning
of democratic institutions. The Covid-19 pandemic, terrorist attacks,
natural disasters and, most severely, the full-scale war of aggression
by the Russian Federation against Ukraine have all placed extraordinary
pressure on Council of Europe member States, requiring exceptional
measures to uphold democratic processes.
3. The Assembly notes that elections today are rarely held in
conditions of normalcy. Polarisation, widespread disinformation,
foreign interference, cyberattacks, climate-related disruptions
and the spillover of conflicts have created a persistent context
of risk and vulnerability for electoral processes across Council
of Europe member States and globally. These pressures compound wider
trends of democratic backsliding, including restrictions on freedom
of expression and freedom of assembly, which are essential for open campaigning
and meaningful political competition. Crises should therefore not
be seen only as exceptional disruptions but as a structural challenge
of our times that requires adaptation and resilience at all phases
of the electoral cycle.
4. When elections are scheduled or are held during such crises,
the risks to democratic integrity are magnified. Both postponing
elections and proceeding under constrained conditions may carry
risks for democratic legitimacy. Gaps in the constitutional and
legal frameworks governing elections may emerge, and the ability
of institutions to respond effectively to extraordinary circumstances
may be severely strained.
5. Further, limitations on campaigning, voter turnout, equality
of participation and election observation pose challenges to electoral
integrity and, ultimately, to the legitimacy of results, which can
constitute a major risk for democracies. These conditions underscore
the need to further develop frameworks and practices capable of
delivering safe, technically sound and credible elections, while
safeguarding fundamental rights and ensuring public confidence in
electoral processes.
6. The urgent need to update national security concepts and to
upgrade electoral security has been highlighted by the Russian Federation’s
full-scale war of aggression against Ukraine and by its hybrid threats across
Council of Europe member States.
7. The Assembly recalls the Reykjavik Principles for Democracy,
endorsed by the heads of State and government of the Council of
Europe’s member States in May 2023, which express the shared determination to
“hold elections... in accordance with international standards and
take all appropriate measures against any interference in electoral
systems and processes”. The Assembly stresses that ensuring credible
elections in times of crisis is a central element of this commitment.
8. Building on the 2023 Bern Parliamentary Conference entitled
“Elections in times of crisis: challenges and opportunities” and
echoing the Council of Europe’s work towards a New Democratic Pact
for Europe, the Assembly underlines that safeguarding electoral
integrity must be at the heart of efforts to protect and revitalise democracy
in Europe.
9. The Council of Europe has long provided a framework for safeguarding
the right to free elections. Through the work of the European Commission
for Democracy through Law (Venice Commission), the case law of the
European Court of Human Rights, the activities of the Assembly,
the Congress of Local and Regional Authorities of the Council of
Europe and the Council for Democratic Elections, member States have
access to a unique and comprehensive body of principles, guidance
and monitoring mechanisms relating to the conduct of democratic
elections. These instruments, ranging from standard setting to monitoring
and technical co-operation across all phases of the electoral process,
together form the Council of Europe Electoral Cycle. These instruments
protect and promote Europe’s electoral heritage and offer a shared
framework for upholding electoral integrity that is as relevant
for times of crisis as it is for times of normalcy.
10. As part of its continuing commitment to free and fair elections,
the Assembly has observed elections for over forty years. It has
integrated electoral co-operation activities with electoral management
bodies to support the implementation of recommendations stemming
from election observation missions, the Venice Commission and Council
of Europe monitoring bodies. The creation in 2025 of the Parliamentary
Alliance for Free and Fair Elections constitutes a further step
in strengthening the Assembly’s role in meeting the challenges of
contemporary election trends.
11. Echoing the call by the Secretary General of the Council of
Europe for a New Democratic Pact to protect and strengthen democracy
in Europe, the Assembly calls for determined efforts to ensure that
the lessons learned from electoral processes during recent crises
are translated into timely and effective reforms.
12. In the light of these considerations, the Assembly stresses
that safeguarding electoral integrity in times of crisis requires
a comprehensive approach. This encompasses clear legal and procedural
measures to regulate emergencies, operational adaptation and strengthened
co-operation among State institutions, enhanced societal resilience
to crisis situations and threats of foreign interference, robust
and adaptable election observation methodologies, innovation and
preparedness for digital and technical challenges, and specific
strategies for elections held in prolonged emergencies or post-conflict
settings.
13. To ensure legal and institutional preparedness, the Assembly
encourages Council of Europe member States to:
13.1 undertake regular and timely
assessments of electoral laws, rules and procedures to enhance resilience,
agility and adaptability for times of crisis;
13.2 ensure that constitutional and electoral legislation provides
clear provisions for the holding of elections during emergencies,
including clear and limited criteria for postponement, in line with
the principles of legality, necessity, proportionality and temporariness;
13.3 provide that decisions to postpone or substantially alter
elections require parliamentary approval, preferably with a qualified
majority and following a consultation of all relevant stakeholders,
in particular political parties, with broad support across the political
spectrum. Such decisions should be limited in time and subject to
judicial oversight from an independent and impartial court;
13.4 ensure that any emergency-related changes to electoral
legislation are consultative and transparent and that they involve
all affected stakeholders, including political parties, civil society,
media and the wider public;
13.5 avoid late amendments to electoral law and ensure that
changes made to adapt to emergency situations are limited in scope,
broadly consensual and clearly communicated to the public;
13.6 consider creating a national election co-operation network
that brings together the election authorities and relevant administrative
and operational services or agencies in areas including security, civil
contingencies, cyberdefence and communication.
14. To strengthen operational preparedness and institutional capacity,
the Assembly calls on Council of Europe member States to:
14.1 undertake comprehensive risk
assessments to evaluate the robustness of electoral processes against
potential crises and develop contingency plans to address identified
vulnerabilities;
14.2 strengthen the independence, capacity and resources of
electoral management bodies;
14.3 institutionalise crisis-management processes for electoral
management bodies and relevant State bodies, including co-ordinated
scenario planning and simulations to safeguard electoral continuity during
emergencies;
14.4 adapt voting arrangements to ensure equality of participation
in emergency situations;
14.5 guarantee transparency and public trust by developing
clear crisis communication strategies by electoral management bodies
and other partners.
15. In view of the need for strengthened resilience to counter
foreign interference risks that aim to undermine electoral integrity
and processes, the Assembly urges Council of Europe member States
to:
15.1 develop comprehensive strategies
for countering disinformation and malign foreign interference, including
via the adoption of whole-of-society approaches to electoral resilience
that involve political parties, security agencies, academia, civil
society and the media;
15.2 enhance the protection of electoral infrastructure against
foreign cyber operations and technical manipulation, including through
independent audits, regular stress tests and transparency measures;
15.3 strengthen the capacity to track, analyse and anticipate
cyberattacks and develop early-warning capabilities;
15.4 enhance voter education strategies on information integrity
– including by promoting fact-checking – and media and information
literacy.
16. Affirming that election observation is an integral part of
electoral transparency, the Assembly:
16.1 calls on Council of Europe member States to ensure that
international observers are able to access elections, even during
emergencies, including by extending standing invitations;
16.2 supports the development of a common framework for international
election observation that upholds the quality and integrity of observation
in times of crisis and that enables rapid methodological adaptation,
including remote and hybrid observation;
16.3 calls for the use of adapted and innovative observation
methods, such as remote stakeholder meetings and long-term monitoring,
without diminishing the overall integrity of observation.
17. Recognising that some crises are not temporary disruptions
but prolonged states of emergency with profound implications for
democratic governance, the Assembly:
17.1 recalls its
Resolution 2605 (2025) “Legal
and human rights aspects of the Russian Federation’s aggression
against Ukraine” and reaffirms that, in accordance with international
democratic standards, elections cannot be held under martial law;
17.2 recalls that the Russian Federation has repeatedly compelled
Ukrainian civilians in the temporarily occupied territories of Ukraine
to participate in so-called electoral processes, including the local
elections in 2023, and the presidential “election” in 2024. Such
practices violate fundamental principles of international law, including
the Charter of the United Nations, and further undermine any claim
to the legitimacy of these elections;
17.3 calls for continued support to member States affected
by conflict or prolonged emergencies, with particular attention
to Ukraine, to enable secure, inclusive and credible elections to
be conducted in line with European and international standards as
soon as conditions permit.
18. As regards its own work, the Assembly should:
18.1 further strengthen the coherence,
impact and visibility of its work in the electoral field, relying
on its deliberative work, election observation, co-operation and
the Parliamentary Alliance for Free and Fair Elections;
18.2 reinforce the Council of Europe Electoral Cycle as a comprehensive
tool covering all phases of the electoral process, and promote this
tool actively in its activities;
18.3 intensify co-operation with international partners on
protecting electoral resilience and integrity in times of crisis,
as well as ensuring that election observation methodologies evolve
with contemporary electoral practice and current threats, paying
particular attention to digitalisation and cybersecurity;
18.4 consider observing national elections and referendums
in member States not subject to any form of monitoring to further
promote free, fair and transparent electoral processes throughout
Europe and ensure the exchange of best practices;
18.5 assess its own election observation methods and procedures,
particularly in the light of risks and developments linked to the
digitalisation of electoral campaigns and election management;
18.6 actively promote and participate in regular exchanges
of views and experience between central electoral commissions of
member States and partners, with a particular focus on threats to
electoral processes and measures to safeguard their integrity and
resilience;
18.7 contribute actively to the ongoing development of the
New Democratic Pact for Europe, ensuring that the protection and
resilience of electoral processes are central to broader efforts
to reinforce Europe’s democratic foundations.
