10/02/2025 Election observation
Kosovo voters demonstrated their commitment to democracy by voting peacefully and without tensions during the 9 February 2025 elections to the Assembly of Kosovo, according to the observers’ delegation of the Parliamentary Assembly of the Council of Europe (PACE). Members of local election commissions should be commended for their collegial and respectful co-operation, overcoming political orientations and language barriers, distancing themselves from the divisive language and hate speech used by political leaders, which was a feature of the pre-election period.
These elections presented a pluralistic and dynamic political landscape with 28 competing lists representing both majority and non-majority communities. Moreover, the participation of Kosovo Serbs, who were offered a wide range of political options, contributed to a more inclusive electoral process.
The 24-member PACE delegation, led by Petra Bayr (Austria, SOC) and comprising 18 members of parliament, representatives of the Venice Commission and staff, observed the elections to the Assembly of Kosovo from 7 to 10 February. The eleven observer teams were deployed in Ferizaj/Uroševac, Gjilan/Gnjilane, Gračanica/Graçanicë, Kamenicë/Kamenica, Leposavić/Leposaviq, Mitrovica/Mitrovicë North, Mitrovicë/Mitrovica South, Pejë/Peć, Podujevë/Podujevo, Pristina, Prizren, Rahovec/Orahovac, Suharekë/Suva Reka and Zubin Potok.
These elections were conducted in accordance with the Election Law of 2023, which generally provides an adequate legal framework. The delegation acknowledges that the amendments to the law aim to improve the overall transparency of the electoral process. The lack of clarity regarding the criteria for the participation of party representatives of non-majority communities in local election commissions of non-majority municipalities needs to be addressed. The new legal framework also strengthens financial oversight of campaign expenditures, which is an important step towards European standards.
The law provides for a gender quota on party lists. However, the representation of women remains low. It remains to be seen if the preferential vote system for seat allocation will negatively or positively affect the number of women elected. Online hate speech against women has also had a detrimental effect on their participation and visibility in these elections.
Awareness raising on existing tools and possibilities to assist persons with special needs should be reinforced. Adequate measures to ensure access for persons with disabilities or reduced mobility should also be implemented in all polling stations to guarantee access to the fundamental right to vote to all eligible voters.
During its pre-election mission a month ago, the delegation noted that the election campaign was generally calm despite polarisation and inflammatory rhetoric reported to the Electoral Complaints and Appeals Panel (ECAP). Some isolated incidents, including destruction of campaign material and intimidation of candidates, were also documented.
The media landscape was characterised by a lack of regulation of social media. Questions arose about the functioning of the Independent Media Commission, transparency of media ownership, and potential impact of disinformation. The ruling party's boycott of three prominent television stations was seen as detrimental to public information.
The Central Election Commission generally worked well. It had to deal with last-minute challenges arising from public procurement (for example, problems with the transport of election materials abroad or quality issues with the indelible ink). The last-minute decision to allow the use of expired Kosovo identification documents caused some confusion. Training of the electoral administration, which was sometimes perceived as late and insufficient, voter education and the display of electoral information in polling stations could be improved. The delayed online publication of the preliminary results was also seen as a shortcoming.
The 2023 Election Law, adopted by a large majority in the Assembly, introduced new modalities for out-of-country voting, allowing diaspora voters - of which there are many - to cast their ballots abroad not only by mail but also in person, even with expired Kosovo identification documents. While the expansion of opportunities for out-of-country voting is welcome, the authorities must also address the issue of the voters' list, which must be accurate and reflect the realities both at home and abroad. Inaccuracies in the civil register lead to outdated voters' list, which paves the way for a lack of confidence and fear of possible manipulation. Mechanisms should therefore be put in place to ensure that the civil register and voters' lists are continuously kept up-to-date and factually accurate.
The delegation's election observation report will be discussed at the PACE April 2025 part-session. The Parliamentary Assembly of the Council of Europe and the Venice Commission stand ready to co-operate with a view to further improving the electoral framework.
*Throughout this document, all reference to Kosovo, whether to the territory, institutions or population shall be understood in full compliance with United Nations Security Council Resolution 1244 and without prejudice to the status of Kosovo.