Election observation activities of the Parliamentary Assembly in 2024
Summary report and recommendations
Progress report
| Doc. 16096 Add. 3
| 23 January 2025
1 Introduction
1. In an era of heightened political
tensions and polarisation, rising populism and extremism, and growing challenges
to democratic values, the role of election observation is more important
than ever. An essential safeguard for the integrity of democratic
processes, election observation provides an impartial assessment
of electoral processes, promotes transparency and accountability,
and helps build public confidence in their fairness and legitimacy.
Through the identification of potential irregularities and the provision
of recommendations for improvement, election observation contributes
significantly to the strengthening of democratic institutions and
the promotion of a culture of respect for democratic principles.
2. The Parliamentary Assembly has long-standing experience in
observing presidential and parliamentary elections as well as national
referendums. It also carries out pre-electoral and, where necessary,
post-electoral visits to countries under monitoring or post-monitoring
procedure or to countries enjoying “Partners for Democracy” status
with the Assembly. Since 1989, PACE has observed some 210 parliamentary
and presidential elections in Europe and organised some 370 election-related
visits. Some 3000 PACE members have been deployed to observe these
elections.
3. At the Council of Europe Summit in Reykjavik in May 2023,
the Heads of State and Government of the member States reaffirmed
their commitment to our common democratic values and principles,
including measures to combat democratic backsliding, to strengthen
mechanisms for democratic participation and to uphold free and fair
elections. For more than three decades, the Assembly has played
a crucial role in verifying member States' compliance with their
Council of Europe electoral obligations through its robust election observation,
monitoring and follow-up procedures. In 2024, this commitment has
been further strengthened by integrating co-operation activities
into the Assembly's work, thus positioning the Assembly as the main coordinator
of the
Council
of Europe’s Electoral Cycle.
4. In response to the growing challenges threatening electoral
integrity and public confidence in democratic processes, the PACE
2023 Bern Conference on “Elections in times of crisis” underlined
the urgent need to address these issues head on. It underlined the
importance of enhanced exchanges between PACE observers and national
parliaments and the need for increased election-related activities.
In order to increase the visibility of the Assembly's electoral
work, the conference led to the creation of the PACE Network of
Election Observers (NEO). One of the Network's main tasks, as set
out in the Terms of Reference adopted by the Assembly's Bureau in
June 2024, is to produce an annual report on the organisation's
electoral activities.
5. This report seeks to highlight the electoral work carried
out by the Assembly in the context of the 2024 observation missions
and to propose future actions to address current electoral challenges.
I am honoured to have been designated Chair of the Network, based
on the agreement of the leaders of the five political groups, until
the formal election of the NEO Chair at the Network's launch event
on 29 January 2025.
6. I wish to thank all national delegations, political groups,
PACE members and Council of Europe office staff who contributed
to the 2024 election observation missions. They have given their
time and much appreciated support to this unique exercise, which
helps to assess the conduct of elections and referenda, but also
the quality of election campaigns and the electoral environment,
and to identify issues that will later be addressed by PACE committees
and
co-operation
activities.
2 Election observations by PACE in 2024
7. Our Parliamentary Assembly
is the only parliamentary organisation which, through the conduct
of regular pre-electoral missions about one month prior to the elections,
assesses the overall electoral environment and makes a public statement.
Note These pre-electoral missions are
very useful in allowing our members to gain insights and detailed
information and to increase the level of understanding through a continuous
political dialogue. They are also complementary to PACE monitoring
activities, when onsite monitoring visits just before and after
elections are not possible, while relying on the expertise of PACE monitoring
rapporteurs (who are ex-officio members of PACE ad hoc committees
of observers).
8. In 2024, PACE members participated in the 10 pre-election
and election observation missions (EOMs) in 4 member States:
- North
Macedonia: presidential election on 24 April (first round)
and 8 May (second round) and parliamentary elections on 8 May (headed
by Mr Alfred Heer, Switzerland, ALDE);
- Bulgaria: early
parliamentary elections on 9 June and 27 October (headed by Mr Oleksii
Goncharenko, Ukraine, EC/DA, and Mr Alfred Heer, Switzerland, ALDE,
respectively);
- Republic of Moldova:
presidential election and constitutional referendum on 20 October
(first round) and 3 November (second round), headed by Ms Petra
Bayr, Austria, SOC, and Mr Jone Blikra, Norway, SOC respectively;
- Georgia: parliamentary
election on 26 October (headed by Mr Iulian Bulai, Romania, ALDE).
9. PACE members demonstrated considerable interest in these EOMs,
with 64 members from 28 member States having taken part in one or
several EOMs in 2024. The list of election observation reports presented
to the Assembly is appended (Appendix 1).
10. The Assembly's election observation missions include legal
experts from the Venice Commission who advise the PACE delegation
and the International Election Observation Missions (IEOMs) on Council
of Europe and international standards in the field of elections,
in accordance with the co-operation agreement signed on 4 October
2004 between the Assembly and the European Commission for Democracy
through Law (Venice Commission). This long-standing co-operation
with the Venice Commission is of great benefit in strengthening the
credibility of our missions. The contribution of the Venice Commission
to our election observation is highly appreciated by our members
and all our partners and provides a real added value to our missions.
11. The participation of women in EOMs increased from 28.8% in
2022 to 37.5% in 2023 and 2024 and this trend is to be welcomed.
However, only one of the six PACE EOMs in 2024 was led by a woman,
which remains unacceptable. Both the participation of women in EOMs and
in particular as heads of delegation needs to be improved. Political
groups should aim to include at least 40% of the under-represented
sex, namely women, when submitting their quotas of members for ad
hoc committees. This would increase the pool of women observers
as well as the pool of potential heads of delegations. I therefore
invite the Bureau to pay particular attention to this issue. I also
encourage the Women@PACE network to exchange views on ways to increase women's
participation in – and chairmanship of – PACE ad hoc observer committees.
12. In addition, the political rotation of EOM chairmanships in
2024 was out of balance, with three out of five electoral missions
having been led by the ALDE group, one by the SOC group and one
by the EC/DA group. I encourage the PACE Presidential Committee
to follow the PACE Guidelines for election observers
Note which asks to ensure an overall
political balance over a calendar year when designating chairpersons
of electoral missions.
13. The year 2024 also revealed several lacunae within the existing
PACE Guidelines for election observers, most importantly the lack
of procedures for replacing a chairperson of electoral missions
in the course of an already launched procedure. Introducing a position
of a vice-chairperson in order to ensure a smooth running of our
missions might be desirable. I therefore deem that the new Network
could make proposals for the revision of the current Guidelines,
to be submitted to the Bureau in the course of 2025.
14. Finally, I would like to recall the safeguards and rules governing
EOMs – as established by our Assembly in its Guidelines – to protect
the integrity and credibility of our observation missions, which
must be respected by our observers: members of ad hoc committees
can only observe if they have signed both the annual PACE declaration
of interest and the declaration of non-conflict of interests related
to the country observed. They must also abide by the provisions
of the Code of Conduct for PACE members as well as the Code of Conduct
for International Election Observation Missions (IEOM).
3 Strengthening
of the Assembly’s role in electoral matters
15. In the wake of the Reykjavik
Summit and the Bern Conference, the Assembly strengthened its leading role
in electoral matters. This involved both the Assembly’s positioning
within the Council of Europe as regards expertise in electoral matters
as well as our role and visibility within international fora.
3.1 Consolidation
and expansion of PACE electoral co-operation activities
16. Following internal restructuring
of Council of Europe activities to streamline and increase synergies,
the Parliamentary Assembly incorporated as from 2024 co-operation
activities in the field of elections. This work aims at providing
support and technical assistance to our member States in various
aspects of the electoral process, such as strengthening of capacities
and competences of election administrations, political parties and campaign
financing, media coverage, gender balance and political empowerment
of women, inclusivity, countering misuse of administrative resources,
fight against mis/disinformation and hate speech, digitalisation of
electoral process, to name but a few. It also includes fully-fledged
long term country specific projects funded within the framework
of Council of Europe Action Plans, by voluntary contributions or
joint Council of Europe/EU projects. Such projects are currently
implemented in Albania, Bosnia and Herzegovina, Georgia, the Republic
of Moldova and Ukraine. Co-operation activities and projects are
designed and implemented in close co-operation with the competent
electoral bodies, relevant parliamentary committees, government
institutions, civil society, partner regional and international
organisations and other electoral stakeholders.
17. In 2024, the Assembly continued to play an important role
in coordinating and further strengthening the Council of Europe
“Electoral Cycle” (see appendix 3)
Note. The cycle enables PACE to contribute
meaningfully to and benefit from electoral activities carried out
by other parts of the Council of Europe, a well-established practice
which reaffirms the Council of Europe’s comprehensive approach and
expertise on electoral matters.
3.2 Creation
of a parliamentary Network of Election Observers (NEO)
18. The establishment of the Parliamentary
Assembly Network of Election Observers (NEO) was prompted by the
need to enhance communication and collaboration on election-related
matters among its members. Following the Bern Conference and the
Reykjavik Summit and in line with
Resolution 2538 (2024) that endorses the revised Code of Good Practice on Referendums,
there was a recognised necessity to bolster exchanges among PACE
observers, strengthen the electoral activities, and heighten the
visibility of the Assembly's electoral undertakings.
19. On 24 January 2024, at their annual meeting (see conclusions
in appendix II), PACE members who had participated in election observation
missions discussed ways of improving this aspect of the Assembly’s
work – and supported the creation of a permanent informal network
to share experience, expertise, methodology and information, as
proposed by former PACE President Tiny Kox.
20. On 28 June 2024, the Assembly decided to set up the Network
and ratified its terms of reference
Note. The new Network,
the aim of which is to reinforce efforts to support free and fair
elections across Europe, was tasked with providing a platform for
sharing information and best practices among PACE observers, organising dedicated
seminars and ensuring the Assembly’s active participation in external
electoral activities and discussions.
21. On 4 October 2024, the Bureau approved the composition of
the Network. Membership in the Network comprises individuals approved
by the Bureau of the Assembly, with each political group appointing
one representative to the Bureau. In addition, a representative
appointed by the Congress of Local and Regional Authorities of the
Council of Europe and by the Venice Commission as well as a representative
of each parliament with observer or Partner for Democracy status,
will be full-fledged members. Leadership positions within the Network,
such as the Chairperson and vice-chairpersons, will rotate among
the political groups to ensure balanced representation.
22. While the expenses for attending meetings and events are the
responsibility of respective national parliaments, the Bureau of
the Assembly retains the authority to appoint ad hoc committees
for observing elections and referenda, thus preserving the established
operational procedures of the Assembly.
23. The first annual meeting, which will also elect the chairperson
of the Network, will be held on 29 January 2025 in Strasbourg.
3.3 Promotion
of transversal activities within the Parliamentary Assembly
24. As part of follow-up to the
Bern Conference, the Committee for Political Affairs and Democracy
has now been tasked with preparing a report on “Elections in times
of crises”,
Note which should enable the Assembly
to design follow-up proposals and recommendations to member States.
25. Electoral issues were also addressed by other PACE committees.
PACE
Resolution 2525
(2024) on “The theme of migration and asylum in election campaigns
and its consequences on the reception of migrants and their rights”
from the Committee on Migration, Refugees and Displaced Persons
raised the balance between freedom of expression and hate speech/disinformation,
particularly during election campaigns.
26. In June 2024, at PACE's request, the Council for Democratic
Elections asked the Venice Commission to study on circumscribing
freedom of expression and banning hate speech in the context of
election campaigns in the light of the case-law of the European
Court of Human Rights and the standards drawn up by Council of Europe
bodies, notably Committee of Ministers recommendations, in the area
of combating hate speech and hate crimes, and on the promotion of
pluralism in the expression of opinions in a democratic environment.
The recently adopted
interpretative
declaration on digital technologies and AI, which can amplify hate speech on social media, offers
additional tools for parliaments to protect electoral integrity
in the age of new technologies.
3.4 Participation
at the Council for Democratic Elections and co-operation with the
Venice Commission
27. The Parliamentary Assembly
is a key party of the Council for Democratic Elections (CDE), a
unique tripartite body advising the Venice Commission on electoral
matters and fostering dialogue between legal and political experts
on elections.
28. The Assembly contributed to the work of the CDE, with three
members and three substitutes appointed respectively by the Committee
on Political Affairs and Democracy, the Committee on Legal Affairs
and Human Rights and the Monitoring Committee. The Bureau of the
Assembly renews the designation of its members to the CDE at each
January part-session. Given the important role of the Council, I
strongly encourage the PACE committees concerned and the Bureau
to ensure a good balance of political parties and gender when appointing
its members.
29. The Council is regularly updated on the Assembly’s activities
– such as past and upcoming election observations, the establishment
of our Network of Election Observers, and thematic reports relevant
to elections. It also has a valuable role in supporting the follow-up
of PACE resolutions and activities related to elections. Currently
chaired by Stewart Dickson, Thematic Spokesperson of the Congress
of Local and Regional Authorities on local elections, the Council
has two Vice-Chairs: Michael Link, representing PACE, and Srdjan
Darmanovic, representing the Venice Commission.
30. I extend my gratitude to the PACE representatives appointed
to the Council for Democratic Elections (CED): Michael Georg Link
(Committee on Political Affairs and Democracy), Laura Castel (Monitoring Committee),
and Pablo Hispan (Committee on Legal Affairs and Human Rights).
Their contributions have brought valuable insights from their respective
committees.
31. In 2024, the CDE reviewed several important draft opinions,
later adopted by the Venice Commission. These included amendments
to Georgia's amendments to the Election Code (including those abolishing gender
quotas) and to the Rules of Procedure of the Parliament; the Republic
of Moldova's law on partial postal voting; potential legislative
solutions for Haiti's future electoral processes; and an amicus curiae brief for the European
Court of Human Rights in Staderini and
Others v. Italy concerning the stability of electoral
legislation and aspects of mixed electoral systems.
32. The CDE also discussed key interpretative declarations to
the Code of Good Practice in Electoral Matters, addressing emerging
challenges. One focused on
digital
technologies and artificial intelligence, emphasising that voters must be informed when interacting
with AI systems instead of humans. It also called for a ban and
sanctions against political 'deep fakes,' where deceptive AI-generated
content is used to influence elections or undermine voters' ability
to make informed decisions.
33. Another key document approved by the Council is the
report
on electoral observers as human rights defenders. This issue highlights a negative trend observed during
recent election observation missions. Our observers have faced accreditation
challenges (e.g., Türkiye and Poland, 2023), a refusal to invite
PACE despite statutory obligations (Azerbaijan, 2024), and targeted
attacks on international observers, including the Head of the PACE
delegation, by high officials (Serbia, 2023). In one case, the car
of a PACE observation team was even vandalised (Georgia, 2024).
34. The situation is even more challenging for domestic observers
from respected organisations we regularly meet during missions.
They often face smear campaigns, harassment, or restrictive legislation designed
to silence them or deter others from participating (e.g., Serbia
2023, Georgia 2024), not mentioning domestic observers that face
life risks in other part of the world. Many of these observers are
young people who deserve support in their efforts to ensure transparent
elections and expose shortcomings or potential fraud. I fully agree
with the Venice Commission's conclusion in the report: “these challenges
cannot be understood as isolated from a global trend toward democratic
backsliding”.
35. I welcome the Venice Commission's recognition of election
observers as human rights defenders. The Network of Election Observers
and PACE General Rapporteur on Human Rights Defenders should, along the
recommendations of the Venice Commission, urge member States to
adopt measures to provide sufficient possibilities to observe elections,
based on clear criteria and enable them to have effective access
to the European Court of Human Rights.
36. The CDE will host the 20th Conference of Electoral Management
Bodies in Vilnius (15-16 April 2025) on “Stability of Electoral
Law – Practical Aspects.” PACE’s contribution will be important,
as parliaments play a key role in updating electoral legislation
and are sometimes responsible for its frequent changes. The conference will
address challenges faced by electoral administrations due to frequent
or late changes to electoral law and how they manage these issues.
It follows the Barcelona expert seminar (November 2023), attended
by Damien Cottier (Switzerland, ALDE), and the adoption of the Revised
Interpretative Declaration on the Stability of Electoral Law in
June 2024 by the Venice Commission.
3.5 Co-operation
with the Committee of Ministers and other Council of Europe institutions
37. The 2024 Annual meeting on
election observation (see Appendix II) devoted to the follow-up
to the Reykjavik Summit with the participation of the Chair of the
Committee of Ministers Rapporteur Group on Democracy (GR-DEM), illustrated
the synergies that can be developed in the Council of Europe. Collaboration in
election-related activities was emphasised, citing the Reykjavik
Principles for Democracy, which underscore the importance of political
participation for legitimate democratic institutions.
38. In November 2022, a new Steering Committee on Democracy (CDDEM)
was established to implement these principles, focusing on a wide
range of current and emerging issues, including identifying and
countering the causes of democratic backsliding; removing barriers
to meaningful and effective civil society participation; addressing
growing voters’ disaffection from elections; enhancing the resilience
of democracies through good governance reforms; harnessing the opportunities
and minimising the negative aspects of digital transformation and
artificial intelligence, and assisting Ukraine in the recovery and
reconstruction of democratic institutions and governance.
39. The CDDEM started working in May 2024 and held its second
meeting on 29-30 October, which discussed the draft Parameters to
facilitate the application and implementation of the Reykjavik Principles
and other relevant Council of Europe standards, to which the Assembly
also provided its contribution at secretariat level. Our new Network
could consider how to best co-operate with the CDDEM and encourage
the implementation of the Reykjavik Principles within national parliaments.
40. Elections were also a central theme of the Council of Europe’s
2024 World Forum for Democracy (Strasbourg, 6-8 November), where
they were recognised as pivotal moments in democratic life, with
the potential to deepen societal divides, especially through disinformation
campaigns and divisive political narratives during election periods.
41. The Parliamentary Assembly actively contributed to discussions
on inclusive electoral practices, strategies to safeguard electoral
integrity, and ways to overcome binary thinking and promote unity
in diverse societies. The PACE Forum Talk, moderated by PACE General
Rapporteur on Democracy Georges Papandreou (Greece, SOC), addressed
“
Elections
Under Pressure: What’s at Stake for Representative Democracy?”. Topics included electronic voting, representative
and participatory democracy, election observation, human rights
violations, citizens’ trust, foreign interference, the influence
of interest groups, and factors promoting active citizen participation
like wealth redistribution, access to rights, and civic education.
Note NEO Vice-Chair Claude Kern (France,
ALDE) moderated another Forum Talk organised by the French Permanent
Representation on “Protecting the Integrity of Elections Means Protecting
Human Rights,” emphasising PACE’s election observation and co-operation
activities to strengthen electoral integrity in Council of Europe
member States.
4 The
role and added value of the Parliamentary Assembly within International
Election Observation Missions (IEOM) and fostering international
co-operation
42. In line with a well-established
practice, the Assembly observes elections in the framework of International
Election Observation Missions (IEOM), which include the OSCE/ODIHR
EOM (comprising a core mission and its long- and short-term observers),
the OSCE Parliamentary Assembly (OSCE PA), the European Parliament
(EP) and the NATO Parliamentary Assembly (NATO PA).
43. Our co-operation with ODIHR and parliamentary partner organisations
has been excellent throughout the years. ODIHR provides essential
support and assistance on the spot, as well as ensuring that all participating
organisations of the IEOM speak with one voice and issue joint preliminary
findings and conclusions based on a credible, fact-based methodology.
44. However, recent elections have increasingly exposed a methodological
gap within international election observation. While ODIHR's technical
fact-based assessment approach remains valuable, it struggles to address
evolving geopolitical challenges and the influence of technology
on electoral processes. Parliamentary observers, by contrast, are
better positioned to analyse the political context, including rising
polarisation and hybrid threats, that often shape elections today.
Modernising IEOM methodologies is crucial in the current context
to enhance the relevance of international election observation,
and to address these emerging trends. A more integrated approach,
combining ODIHR's technical expertise with parliamentarians' political
analysis, would provide a more comprehensive assessment.
45. Furthermore, election assessments must avoid ambiguous messages,
clearly reflect the overall electoral environment and genuinely
represent the will of the voters. International observers should
avoid euphemisms and technical jargon when core democratic principles
– universal, free, equal, and secret suffrage – are violated or
observers' rights are restricted. Impeccable voting day procedures
in non-democratic countries often mask pre-election manipulations
and systemic issues that undermine genuine competition. The mere
presence of multiple parties on the ballot does not constitute a
competitive election. Equal access to resources, media, and voters
is essential, and assessments must address these critical factors
to provide a complete and accurate picture of the electoral process.
Hiding behind technicalities obscures the true nature of electoral
shortcomings and fails to hold States accountable for upholding
democratic standards.
46. International election observation must adapt to the increasing
use of AI in electoral processes as well as to the massive use of
social media in campaigning and to new electronic and hybrid voting
systems. While our observers are adept at identifying irregularities
with physical ballots, detecting manipulation in electronic systems
requires specialised expertise. The pre-election-day parliamentary
briefings should hitherto include exchanges with computer and digital
media experts who are reviewing electronic voting procedures. Subsequently,
short-term PACE observers should receive targeted training on identifying
potential vulnerabilities in these systems. This enhanced training,
combined with expert technical analysis, will ensure robust observation
of all voting methods.
47. Finally, maintaining solidarity among IEOM partners is paramount.
When one organisation is excluded from observation for political
reasons, as recently occurred in Azerbaijan, it undermines the credibility
of the entire process. Such exclusions often target organisations
known for their rigorous assessments, creating an environment where
less critical voices prevail. Therefore, we should encourage our
IEOM partners to adopt a principle of solidarity, agreeing to coordinate
our participation and consider withdrawing collectively when one member
is unjustly excluded. This unified approach would safeguard the
integrity of international election observation and send a strong
message that attempts to manipulate electoral assessments will not
be tolerated. A commitment to solidarity ensures that assessments
remain comprehensive, credible, and resistant to political pressure.
48. The Parliamentary Assembly’s critical role in electoral matters
took centre stage at the
2024 Annual Implementation
Meeting for Endorsers of the
Declaration
of Principles for International Election Observation, hosted by ODIHR
in Gdańsk from 20-22 November 2024. Former Polish President and
Nobel laureate H.E. Lech Wałęsa inaugurated the event, which brought
together 85 representatives from over 30 election-observing organisations
worldwide.
49. I was honoured to present our newly established Network for
advancing electoral integrity across Council of Europe member States
and beyond, leveraging PACE’s decades of election observation experience. I emphasised
that this initiative would enhance collaboration, share expertise,
and address pressing challenges such as emerging technologies and
foreign interference. Moreover, the Network complements PACE’s existing
monitoring procedures, ensuring adherence to international standards
throughout the electoral process. Our goal is to promote free, fair
elections and rebuild trust in democratic systems through innovation
and co-operation.
50. The meeting also sparked lively discussions on pressing issues,
including the safety of election observers in polarised environments,
best practices for reporting findings, the impact of artificial
intelligence on electoral observation, and inclusion of persons
with disabilities in election observation missions. Drawing on my
experience as a politician and PACE observer, I highlighted how
empowering parliamentarians with disabilities to join these missions
not only enriches the process but inspires broader societal inclusion, particularly
in countries where disabled individuals face marginalisation.
51. A resounding call emerged for stronger post-election engagement
under the Declaration of Principles, urging concrete, actionable
follow-ups on recommendations – essential for the lasting impact
of election observation missions. Together with the Congress of
Local and Regional Authorities and the Venice Commission, we reiterated
the Council of Europe’s unique “Electoral Cycle” approach, which
facilitates continuous improvement of electoral frameworks across
member States and throughout the entire electoral cycle.
52. I suggested that elections cannot be presumed to be “free
or fair” if parliaments repeatedly fail to implement standard-based
recommendations, amend electoral laws to align with international
standards, or safeguard the independence of electoral management
bodies. As parliamentarians, we have a duty to spell out what our
experts and the Venice Commission recommend, including the necessity
for constitutional reform, advocate boldly for necessary electoral
changes, providing stakeholders with honest and expert-driven recommendations
to strengthen democratic institutions.
5 Key
challenges for election observation
53. Based on the statements and
reports from the PACE election observation missions in 2024, our members
have identified several critical challenges (both new and long-standing)
that need to be addressed for effective election observation in
future missions:
- Political polarisation: The rising
tide of political polarisation has created a fraught atmosphere
for election observation missions. In highly polarised environments,
electoral campaigns often devolve into hostile exchanges characterised
by mudslinging and hate speech directed at opponents, overshadowing substantive
policy discussions. This adversarial climate not only impedes voters'
ability to make informed decisions but also leads to findings from
observation missions being dismissed or distorted as biased by various
political factions, thereby undermining their credibility and authority.
- Obstruction and restrictions: The
emergence of increasingly autocratic leadership in various European
regions has generated formidable legal and logistical barriers to
effective election monitoring. Domestic observers often face restricted
access to polling stations, particularly in remote or politically sensitive
districts, limiting their ability to conduct thorough assessments.
As regards our observers’ experience, a notable example is Azerbaijan,
which declined invitations for PACE delegations to observe the early
presidential election on 9 February 2024 and the parliamentary elections
on 1 September 2024. This decision not only set a troubling precedent
for other authoritarian regimes but also raises concerns about the
integrity of future electoral processes.
- Free and fair: We
are often asked whether an entire election was free and fair. In
most cases, not all aspects are entirely unfair or unfree. Our task
is to assess whether the extent of partial unfairness or irregularities
is significant enough to deem the entire election unfair. For example,
if voters were free to choose among candidates on polling day but
the slate had been restricted by the government or ruling party
through technical or administrative measures, we must evaluate how
free the overall election truly was. These are critical questions
we will address in the coming year.
- Interference and hybrid threats: Foreign
interference in elections, manifesting through methods such as illegal
campaign funding, direct vote-buying or targeted propaganda, has
escalated into a pressing issue and a matter of national security.
Such interferences often begin long before Election Day, complicating
the electoral landscape. Our mandate now includes carefully evaluating
the roles of external actors, particularly in geopolitically sensitive
areas. This necessitates a reassessment of our observation methodologies
to incorporate strategies for mitigating hybrid threats. It also
highlights a need for collaboration among relevant institutions
to establish a cohesive framework capable of countering foreign
interference. Additionally, our observers require updated technical
skills to navigate modern challenges such as cyber threats, big
data, and artificial intelligence.
- Election technology: The
growing dependence on electronic and digital voting systems has
introduced layers of complexity into election observation. Our observers
considerably lack technical expertise to adequately assess the cybersecurity,
transparency, and functionality of these systems. Ensuring accurate
vote counting and protecting against potential hacking or manipulation
are paramount yet exceptionally challenging tasks, necessitating
enhanced training and resources.
- Disinformation and misinformation: The
proliferation of social media as a central platform for political discourse
has significantly amplified the dissemination of disinformation
and misinformation. Such campaigns distort public perception, erode
trust in the electoral process, and foster scepticism toward election
observer missions. As a result, monitoring the digital information
landscape has become imperative for our observers, demanding a robust
strategy to identify and counter erroneous narratives.
- Inclusivity of the electoral
process: Ensuring that elections are inclusive of all
societal groups –encompassing women, minorities, and individuals
with disabilities – is essential. Challenges such as inadequate
facilities for disabled voters, voter suppression tactics, and discriminatory
practices severely compromise the fairness and representativeness
of elections. Observers must rigorously assess these dimensions
to advocate for equitable electoral processes.
- Monitoring diaspora voting: Monitoring
out-of-country voting presents substantial logistical hurdles. Maintaining
the integrity of the voting process for citizens residing abroad
– especially regarding ballot handling and voter identification
– is complicated by geographical dispersal and diverse legal frameworks.
For years, our members have proposed that PACE broaden its observation
scope to encompass major expatriate centres, advocating for legal
frameworks that facilitate the monitoring of out-of-country voting
within PACE electoral activities.
- Short observation timelines: The
limited duration of our observation missions – often restricted
to just one or two days before Election Day – significantly hampers
our observers' ability to monitor crucial pre-election activities,
including voter registration, candidate nominations, and media coverage.
These crucial issues are covered in OSCE/ODIHR interim reports and
short LTO briefings on the day before the elections. Expanding the
observational timeframe by introducing supplementary (online) briefings
by the PACE Election Division could ensure a more comprehensive
assessments and better preparation for potential electoral irregularities.
- Transparency in campaign financing: Ensuring
transparency in campaign financing remains an ongoing challenge.
Our observers lack the access to essential financial data, hindering
their ability to ascertain whether campaigns adhere to fair and
legal practices, including limits on expenditure and disclosure
of funding sources. Establishing clearer guidelines and enhanced
access to financial information is vital for promoting transparency
in electoral financing.
6 Conclusions
and recommendations
54. In 2024, the Assembly actively
engaged not only in observing elections but also in promoting electoral activities
that enhance electoral legal frameworks and practices across several
member States. It also successfully integrated electoral co-operation
activities with various electoral management bodies thus being able
to support member States with advice and technical expertise on
electoral matters..
55. The Assembly also established a parliamentary Network of Election
Observers to foster dialogue and co-operation on electoral issues
among its members, enhancing both its activities and visibility
in this field. It adopted a significant report on “Migration and
Asylum in Election Campaigns and Its Impact on Migrant Reception
and Rights” and continued its work on reports addressing foreign
malign influence and elections during crises.
56. From a broader perspective, the year was marked by heightened
political instability and a continued erosion of democratic standards
across many member States. These challenges were exacerbated by escalating
threats of foreign malign interference and influence in electoral
processes, affecting both countries monitored by PACE observers
and those outside their remit. The era of “boring” routine elections
has given way to a new reality where elections are increasingly
intertwined with national security concerns. In this evolving landscape,
the need for PACE election observation to address modern electoral
challenges has never been greater. The newly established PACE Network
of Election Observers plays a vital role in enhancing the relevance
and adaptability of PACE's efforts to meet emerging electoral trends.
57. Europe is facing serious challenges that could threaten the
integrity of elections and fuel people’s mistrust in democratic
elections. Our Assembly should remain committed to continuing and
further developing its activities to promote and guarantee participative
democracy through free and fair elections in line with the Reykjavik
Principles for Democracy.
58. I invite the Bureau to consider ways of further strengthening
the Assembly’s electoral activities, in particular:
59. Regarding our core election observation responsibilities,
to:
- encourage PACE members
to participate actively in election observation and political groups
to ensure gender balance in observer missions and chairmanships,
along with a fair political rotation of chairpersons;
- in accordance with Article 1 of the Guidelines for the
Observation of Elections by the Parliamentary Assembly, encourage
also other member States who are not under any form of monitoring,
to invite the Assembly to observe their national elections and referendums.
This measure is essential to safeguard free, fair, and transparent
electoral processes across Europe;
- address the challenges of out-of-country voting and promote
equal voting opportunities for citizens abroad. In line with Article
37 of the Guidelines for the Observation of Elections by the Parliamentary Assembly,
which already provides for the possibility of observing diaspora
voting procedures, develop comprehensive guidelines to clarify how
PACE members can carry out such observations abroad;
- enable the Assembly to conduct longer pre-electoral monitoring
of campaign environments and management of electoral process by
appointing ad hoc committees as soon as elections are scheduled –
potentially even before an official date is announced;
- pay special attention to post-election periods, where
instability may trigger violence or political deadlocks; encourage
continued engagement of PACE observers in post-electoral settings
by presenting and discussing PACE recommendations with election
management bodies and civil society, thereby fostering further electoral
reforms;
- ensure that adequate resources (both human and financial)
are allocated to the effective functioning of the newly established
PACE Network of Election Observers.
60. As regards addressing emerging electoral challenges, to:
- incorporate national security
considerations and new technologies in election observation; broaden observation
parameters to cover foreign malign interference, political campaign
funding, propaganda, and potential cyberattacks on election infrastructure.
Close collaboration with cybersecurity and artificial intelligence
experts would help observers identify technological vulnerabilities.
Engagement with media regulators is also crucial to counter disinformation
and mitigate propaganda;
- promote electoral reforms that systematically address
barriers to participation for marginalised groups, including women,
ethnic minorities, and persons with disabilities. Advocate for accessible
polling stations, user-friendly voter materials, and stricter inclusion
policies that effectively guarantee everyone’s right to vote.
61. As regards co-operation with IEOM partners and methodological
improvements, to:
- work closely
with IEOM partners to ensure that observation methodologies keep
pace with evolving voting systems and campaign practices – particularly
concerning electronic, remote voting, and digital campaigning;
- revisit how preliminary findings of observer missions
are presented and communicated to the public, ensuring they remain
clear, neutral, and conducive to building confidence in international
observation efforts
62. Furthermore, as chairperson-designate of the newly established
PACE Network of Election Observers, I encourage the Bureau and members
of the Network to:
- actively
contribute to developing the Network’s Action Plan and engage in
pre-electoral, electoral, and post-electoral activities;
- organise a major bi-annual meeting focusing on a pertinent
election-related theme;
- participate in joint meetings with relevant PACE committees
and sub-committees on transversal issues (e.g. AI, new technologies,
disinformation, foreign interference) and collaborate with other
Networks (e.g. Women@PACE);
- propose to the Bureau of the Assembly draft modifications
to the PACE Guidelines for the observation of elections, taking
into account the recently identified gaps and omissions (e.g. nomination
of a Vice-Chairperson and rules of replacing a Chairperson, modalities
of observing in out-of-country polling stations, etc.);
- enhance co-operation with the Council for Democratic Elections
by attending events such as the Election Management Bodies conference
in Vilnius (March 2025) and exploring avenues for closer co-operation;
- liaise closely with their national parliaments, promoting
the Assembly’s and the Network’s electoral initiatives and seeking
opportunities for joint activities. Ensure synergies and actively
support electoral cooperation activities, which are led by the PACE
Parliamentary and Electoral Co-operation Division and provide the
necessary political backing to amplify the impact and effectiveness
of these initiatives in promoting democratic principles.
63. By addressing these various pressing challenges, the Parliamentary
Assembly and its Network of Election Observers can play a pivotal
role in safeguarding democracy throughout the Council of Europe’s member
States. Achieving this goal will require robust coordination, forward-thinking
strategies, and an unwavering commitment to transparency, fairness,
and inclusivity.
Appendix 1 – Elections
observed by PACE in 2024
|
Country
|
Date
|
Report
|
|
Bulgaria
|
|
Early parliamentary elections (6th round)
PACE
|
9 June 2024
|
Head
of Delegation: Mr Oleksii Goncharenko (Ukraine, EC/DA)
PACE
Election observation statement (10 June 2024)
|
|
Early parliamentary elections (7th round)
PACE
|
27 October 2024
|
Head
of Delegation: Mr Alfred Heer (Switzerland, ALDE)
EOM
Press release and preliminary conclusions
Report
- Doc. 16077
|
|
North Macedonia
|
|
Presidential election
IEOM
with PACE and ODIHR
|
24 April 2023
|
Head
of Mission: Mr Alfred Heer (Switzerland, ALDE)
PACE
pre-electoral statement
IEOM
Press release and preliminary conclusions
(first round of the presidential election)
|
|
Second round of the presidential election
and parliamentary elections
IEOM with PACE, OSCE PA,
EP and ODIHR
|
8 May 2024
|
IEOM
Press release and preliminary conclusions (2nd round of the presidential elections and parliamentary
elections)
Report - Doc. 16013
|
|
Republic of Moldova
|
|
Presidential election
and constitutional referendum
Pre-electoral mission
|
18-19 Sept 2024
|
Chair
of ad hoc Committee/Head of Delegation: Ms Thorhildur Sunna Aevarsdottir
PACE
pre-electoral statement
|
|
1st round
of the presidential election and constitutional referendum
IEOM
with PACE, ODIR, OSCE PA and EP
|
20 October 2024
|
Chair
of ad hoc Committee/ Head of Delegation: Ms Petra BAYR (Austria,
SOC)
IEOM
Press release and preliminary conclusions (first round of the presidential election and constitutional referendum)
|
|
2nd round
of presidential election
|
|
Head
of Delegation: Mr Jone BLIKRA (Norway, SOC)
IEOM
Press release and preliminary conclusions (2d round of the presidential election)
Report
- Doc. 16074
|
|
Georgia
|
|
Parliamentary elections
|
26 0ctober 2024
|
Head
of Mission: Mr Iulian Bulai (Romania, ALDE)
PACE
pre-electoral statement
IEOM
Press release and preliminary conclusions
Report
- Doc. 16079
|
Appendix 2 – 2024 PACE
Annual meeting on Election Observation – Report of the meeting held
in Strasbourg on 23 January 2024
Annual meeting on
Election Observation
23 January 2024
Summary report
The meeting was chaired by Mr Tiny Kox, immediate past President
of PACE, who represented President Theodoros Rousopulous in the
chair.
Mr Kox highlighted
that the traditional format of the annual meetings for election
observers had undergone a transformation in 2023, becoming a more
inclusive platform focused on dialogues with other organisational sectors
involved in the Council of Europe's comprehensive “Electoral
Cycle”. The Bern
Conference, held in collaboration with the Swiss delegation on
9-10 May 2023, represented a pioneering endeavor to convene nearly
all pivotal stakeholders related to the “Electoral cycle” to deliberate
on conducting elections amidst crises. Subsequent to the Reykjavik
Summit in May 2023 and the endorsement of the “Reykjavik Principles
of Democracy”, the Assembly's electoral initiatives had been augmented,
incorporating the previously intergovernmental Division of Participatory
Democracy and Elections into the Assembly's undertakings.
He emphasised the critical nature of elections as the cornerstone
of democracy, especially against the backdrop of global democratic
backsliding. It was therefore imperative for PACE members to engage
actively in election observation, ensuring a gender-balanced leadership
within delegations of election observation missions (EOM). To enhance
the Assembly's visibility and influence, the establishment of a
network of election observers was proposed. That network would facilitate
the sharing of electoral information and EOM activities, arrange
focused seminars, and act as the Assembly's ambassadors in external
electoral endeavors. Annually, this network could compile an informative
report on the Assembly's election-related actions for discussion during
January sessions.
He further informed attendees that, as of January 2024, the
Assembly had assimilated certain collaborative activities into its
framework and agenda, necessitating innovative hybrid formats for
engaging with diverse stakeholders and partners, spanning governmental,
parliamentary, and civil society spheres.
The meeting addressed
recent advancements within the Council of Europe related to elections:
- Ms Barton,
Director of Committees for Human Dignity and Sustainable Development
at the Council of Europe, apprised participants of the restructuring
efforts that integrated election-related co-operative activities
into the Assembly's Secretariat. That initiative aimed to bolster
member States in enhancing various electoral aspects, including
the capabilities of election administrations, political parties, campaign
financing, media representation, gender parity, political empowerment
of women, countering administrative resource abuse, combating misinformation
and hate speech, and digitalising electoral processes. Co-operation
programmes encompassed long-term country-specific projects funded
by voluntary contributions, currently operative in Georgia, the
Republic of Moldova, and Ukraine. This restructuring has also expanded
the PACE Secretariat with nine staff members stationed in Tbilisi, Chisinau,
and Kyiv to implement election-related projects. Additionally, the
Assembly was charged with the stewardship and further evolution
of the Council of Europe's “Electoral Cycle”, with increased financial
resources to be allocated to co-operation activities. That integrated
approach would enable the Assembly to aid member States in different
electoral phases, ensuring the recommendations from EOMs were more
effectively followed up within the respective countries.
- Ambassador Geleva,
Permanent Representative of North Macedonia and Chair of the Committee
of Ministers Rapporteurs Group on Democracy (GR-DEM), expounded
on GR-DEM's activities in the domains of participatory democracy
and elections. She stressed the importance of strengthening collaborative
efforts across the organisation's various election-related sectors.
The Reykjavik Principles for Democracy highlight the critical role
of political participation, elections, and referenda in legitimising democratic
institutions. In November 2022, a new Steering Committee on Democracy
was convened to translate the Reykjavik Principles into tangible
actions. This Committee's scope included addressing voter disengagement,
enhancing democratic resilience, promoting voter turnout with a
focus on women, youth, and vulnerable populations, and revising
standards for e-voting and ICT guidelines in electoral processes.
Additionally, the Committee would tackle gender-based cyber violence
and the impact of artificial intelligence on democratic processes.
There was anticipation for the signing of the framework convention
on artificial intelligence in May. GR-DEM had been mandated with
five key areas, including support for Ukraine, engagement with Russian
civil society, field offices, and the general civil society.
During the exchange of views,
in which Lord Blencathra, Mr Fridez, Mme Clapot,
Mr Schennach and Mr Link took the floor, the following issues were
raised:
- Concerns
regarding potential downscaling of election observation missions:
participants emphasised that the detailed reports produced by election
observations were highly regarded by the States involved. While
there were some concerns about the potential diversion of resources
due to the integration of intergovernmental co-operation activities
into the PACE's operations, the Director of Committees assured that
there was no intention to diminish funding or scale back on election observation
missions. On the contrary, synergising the attention given to EOM
reports with co-operation activities might increase member States'
receptivity to PACE recommendations.
- Advocacy for continued pre-election
missions: in response to an earlier suggestion to reduce
pre-election missions, several participants defended their importance.
Pre-election missions contributed significantly to the overall credibility
of PACE assessments and offered insights into the campaign period,
where most election manipulations usually occured, not just on election
day.
- Observing international voting:
recognising the critical role of expatriate votes in the outcome
of several 2023 elections (Türkiye, Poland, Serbia, etc), participants
suggested that PACE should extend its observation to major expatriate
centers. They proposed devising legal means to incorporate observations
at consulates and other international polling stations.
- Maintaining observer neutrality:
concerns were raised about the challenge of maintaining complete neutrality
in assessments. A politically diverse delegation was seen as the
best assurance of objectivity. Recent instances of accreditation
denial by two member States were deemed unacceptable.
- Co-operation among IEOM partners:
the recent exclusion of PACE from election observations in Azerbaijan,
where OSCE/ODIHR and OSCE PA were invited, prompted calls for establishing
clear solidarity principles among parliamentary IEOM partners.
- Establishing a Network of
Election Observers: participants endorsed the proposal
by the former PACE President to create a network of EOM experiences
and good practices related to elections.
Participants also reviewed the election schedule for 2024,
which includes planned observations in North Macedonia, Georgia,
and the Republic of Moldova.
