1 | 2014 Local Elections in Podgorica: Second preliminary report

Mrea za afirmacij ne!ladinog se"tora # M$%S

Dalmatinska 188, 81000 Podgorica, Crna Gora
Tel/fax: +382202!!32!" 2!! 32#" +382!$%%! 0$%
mans&t'comme, (((manscome, (((i)*orise

Local Elections in Podgorica& 2' May 2014
SE()%* P+EL,M,%$+- +EP)+.

./is +eport concerns t/e actions ta"en 0y rele!ant instittions responsi0le for re!ie1ing t/e legality of t/e election
process in Montenegro in t/e cases of possi0le !iolations of election#related rig/ts& as monitored 0y M$%S2 3i!en
t/at t/e La1 does not empo1er t/e o0ser!ers to report possi0le irreglarities noted at t/e polling stations& as in!ited
0y M$%S t/ree contestants& meaning registered candidate lists& accepted to file complaints in t/ese specific cases2

$iming to restore p0lic trst in t/e election process& esta0lis/ t/e instittional practice& determine t/e deficiencies in
t/e implementation& as 1ell as ot/er isses lin"ed 1it/ t/e election administration& t/ese t/ree candidate lists
instigated o!er 2&'00 cases indicating to o!er 4'0 specific irreglarities2 ./e actions ta"en 0y rele!ant instittions
s/o1 t/at t/e decision#ma"ing process on election irreglarities 1as not flly transparent& and /ig/er instances 1ere
e!en less transparent t/an t/e at/orities 1/ose decisions t/ey re!ie1ed2

$ll instittions rejected complaints and appeals 1it/ t/e same jstifications& al1ays 1it/ t/e same majority& 1it/in an
e5ceptionally s/ort timeframe2 6o1e!er& 1/en t/e same irreglarities 1ere s0se7ently reported 0y ot/er election
contestants& t/ese 1ere discssed& some e!en accepted2 $t t/e session of t/e Election (ommission for t/e (apital (ity
and t/e State Election (ommission neit/er t/e polling station reports nor ot/er e!idence of possi0le irreglarities
1ere discssed8 rat/er& t/e complaints referring to !arios !iolations of election#related rig/ts and for !arios polling
stations s0mitted 0y different candidate lists recei!ed a 0lan"et rejection in a single !oting procedre2

./e (onstittional (ort esta0lis/ed t/at de to sc/ a decision#ma"ing process& t/e rig/ts garanteed 0y t/e
(onstittion and t/e Eropean (on!ention of 6man +ig/ts 1ere !iolated& 0t ne!ert/eless refsed to annl sc/
decisions adopted in an illegal procedre2 ./e final reslts of t/e elections 1ere officially proclaimed& alt/og/ some
of t/e legal proceedings regarding t/e decision#ma"ing on irreglarities are still pending& and t/e rationale to many
decisions /a!e yet not 0een s0mitted to t/e candidate lists t/at lanc/ed t/e proceedings2 ./erefore& t/e final
report on t/e election process 1ill 0e completed in atmn 20142

,%.+)*9(.,)%

T+e election administration *odies incl,de: -olling *oards .P/s0, m,nici-al election commissions .12Cs0, incl,ding t+e
2lection Commission of t+e Ca-ital Cit3 .CC2C0, and t+e 4tate 2lection Commission .42C0

5ccording to t+e 6a( on 2lection of Co,ncillors and 1em*ers of t+e Parliament .1Ps0, t+e 12Cs, or CC2C in case of
Podgorica, -ass decisions as -er t+e com-laints of election contestants on t+e co,nt of 7iolations of 7otng rig+ts
2lection administration *odies decide *3 t+e ma8orit3 7ote of its mem*ers
1
T+is means t+at t+e decisions to re8ect

1
5rt 21 6a( on 2leciton of Co,ncillors and 1Ps

2 | 2014 Local Elections in Podgorica: Second preliminary report
com-laints m,st *e s,--orted *3 t+e ma8orit3 7otes of 12C or CC2C or 42C mem*ers 9t+er(ise, if t+e decision is not
made (it+ t+e re:,ired ma8orit3 (it+in t+e sti-,lated 2% +o,r deadline, t+e com-laint is regarded as acce-ted
2


T+e mem*ers of 12Cs are at t+e same time a,t+orised re-resentati7es of t+e -arties taking -art in t+e (ork of t+e local
-arliament -ro-ortionall3 to t+eir strengt+, as (ell as t+e re-resentati7es of all registered candidate lists
3


T+e election contestants and citi)ens (+ose electoral rig+ts +a7e *een 7iolated +a7e t+e rig+t to file com-laints (it+in
#2 +o,rs from occ,rrence

Com-laints against 12Cs decisions re8ecting or dismissing com-laints ma3 *e filed (it+ t+e 42C *3 original com-lainants
(it+in #2 +o,rs from recei7ing t+e decision

;inall3, in case t+e 42C (o,ld re8ect or dismiss com-laints, t+e com-lainants +a7e t+e rig+t to lodge an a--eal (it+ t+e
Constit,tional Co,rt (it+in 2% +o,rs from recei7ing t+e decision T+e Constit,tional Co,rt is o*liged to take t+e decision
(it+in %8 +o,rs, *,t ,nlike t+e 42C or 12Cs, t+e a--eal is not regarded as acce-ted in case of failing to o*ser7e t+is
deadline

T+e la( does not set an3 deadline (it+in (+ic+ eit+er t+e 12Cs, t+e 42C or t+e Constit,tional Co,rt are to -ro7ide t+e
rationale for t+eir 8,dgments and deli7er it to com-lainants/a--ellants

T+e 6a( does not em-o(er o*ser7ers to re-ort irreg,larities" +ence, t+e instit,tional -ractice in t+is res-ect is 7er3
modest, since -olitical actors rarel3 file s-ecific com-laints, e7en less so t+e indi7id,al 7oters <e7ert+eless, follo(ing
eac+ elections t+e contestants (o,ld insist t+at n,mero,s irreg,larities took -lace, most fre:,entl3 ne7er -rocessed

5iming to increase tr,st in t+e election -rocess and *,ild t+e instit,tional -ractice in election administration *odies,
15<4 asked all -olitical -arties to file com-laints regarding t+e irreg,larities noted at -olling stations *3 o,r o*ser7ers
/efore t+e elections, fo,r -arties acce-ted t+at, *,t t+e act,al com-laints (ere filed *3 t+ree election contestants
%


15<4 legal team drafted o7er 2,=00 com-laints for t+ree candidate lists addressing o7er 8=0 irreg,larities noted T+e
com-laints -redominantl3 concerned t+e local elections in Podgorica +eld on 2= 1a3 201%, (it+ aro,nd one +,ndred
com-laints filed for re-eated casting of 7otes at se7eral P/s
=
in Podgorica and Danilo7grad on 8 >,ne 201%

$: ELE(.,)% ()MM,SS,)% ); .6E ($P,.$L (,.-

$1: *ecision#ma"ing of t/e ((E(

T+e Ca-ital Cit3 2lection Commission .CC2C0 re8ected all com-laints regarding -ossi*le irreg,larities at t+e elections +eld
on 2= 1a3 at t+e t(o sessions o*ser7ed *3 15<4

2
5rt 10$ -ara 3 and 5rt 110 -ara 2 of t+e 6a( on 2lection of Co,ncilors and 1Ps
3
T+e 1,nici-al 2lection Commission is com-osed of a c+air, a secretar3, fi7e -ermanent mem*ers and one a,t+ori)ed
re-resentati7e of eac+ registered candidate list
%
T+e com-laints of irreg,larities noted *3 15<4 (ere filed *3 t+e 5l*anian Coalition ? Ci7ic @nitiati7e, t+e Democratic ;ront, and t+e
Positi7e 1ontenegro, (+ile t+e 4ocialist Peo-leAs Part3 decided against filing s,c+ com-laints
=
Casting 7otes (as re-eated at t+e -olling stations Primar3 4c+ool BCoko Prele7iDE F*li ? P> GoDi, Primar3 4c+ool B2$ no7em*arE
DinoHa .5'G0 and Primar3 4c+ool B2$ no7em*arE DinoHa .6'I0 in Podgorica, and at -olling stations BG,8a7aE, BGostil8eE and B6a)ineE in
Danilo7grad

< | 2014 Local Elections in Podgorica: Second preliminary report

5t t+e *eginning of t+e first CC2C session, t+e motion of its c+air t+at examination of P/ -olling station re-orts and
ot+er doc,ments to s,*stantiate com-laints is to *e done onl3 if an3 of t+e CC2C mem*ers (o,ld s-ecificall3 re:,est
t+at Jo(e7er, it ne7er +a--ened

5t t+e same session, t+e CC2C first considered indi7id,al com-laints, *,t soon, follo(ing t+e c+airAs -ro-osal, it (as
decided to mo7e to Bgro,- 7otingE @t act,all3 meant t+at t+e CC2C re8ected all com-laints Bfiled *efore 1800E (it+ a
single decision, and (it+ t+e s,*se:,ent decision re8ected all com-laints filed t+at da3 B,ntil 2200E T+,s, t+e CC2C +ad
*lanket re8ection of o7er 1,=00 com-laints in7ol7ing different P/s and 7ario,s t3-es of infringements filed *3 different
electoral contestants

5t t+e second session +eld on 28 1a3, t+e CC2C re8ected anot+er $00 or so com-laints T+is time, t+e3 -assed t+ree
Bgro,- decisionsE, *,t no( not *ased on t+e time (+en t+ese com-laints (ere filed, *,t *ased on (+o filed t+em T+,s,
t+anks to ma8orit3 7otes of t+e CC2C, all com-laints filed *3 one election contestant (ere re8ected in a -ackage,
regardless on (+ic+ P/ or t3-e of infringement it referred 9r in fig,res, at t+at session eac+ com-laint (as on a7erage
dealt (it+ in less t+an t+ree seconds

T+e min,tes of t+ese sessions are still not -,*licl3 a7aila*le, alt+o,g+ t+e min,tes of sessions +eld later (ere
-,*lis+ed
!


T+e 6a( on 2lection of Co,ncillors and 1Ps does not en7isage t+e -ossi*ilit3 for com-laints addressing different t3-es of
infringements and different P/s to *e decided 8ointl3 Jo(e7er, neit+er t+e la( itself nor t+e im-lementing legislation
act,all3 ela*orates s,c+ met+od of (ork and decision'making for t+e 12Cs

$2: ((E( decisions

T+e decisions t+at CC2C deli7ered to com-lainants differ radicall3 from t+e met+od of reac+ing t+e decision follo(ed at
t+e act,al session ;irstl3, t+e CC2C c+air s,*se:,entl3 com-iled se7eral concl,sions to 8oin se7eral com-laints filed *3
different election contestants on t+e co,nt of 7aried infringements at different P/s (it+o,t +a7ing -re7io,sl3 informed
t+e CC2C mem*ers at t+e session

T+e decisions state t+at t+e CC2C ins-ected t+e P/ -olling station re-orts and t+,s esta*lis+ed t+ese (ere signed *3 P/
mem*ers (it+o,t o*8ections, and t+,s concl,ded t+ere (ere no irreg,larities noted at t+ese P/s 5s -re7io,sl3 stated,
no -olling station re-ort (as e7er ins-ected at t+e CC2C sessions, follo(ing t+e c+airAs -ro-osal s,--orted *3 t+e
ma8orit3 of mem*ers

9ne of t+e exam-les (+ere t+e CC2C
#
ado-ted t+e decision to 8oin cases refers to t+e com-laints filed *3 Positi7e
1ontenegro .230, t+e Democratic ;ront .180 and t+e 5l*anian Coalition ? Ci7ic @nitiati7e .$ com-laints0 T+e CC2C
decision states t+at all com-laints concerning t+e infringements ,-on election'related rig+ts in7ol7ing 18 different P/s
(ere re8ected
8
T+e CC2C, +o(e7er, ne7er -ro7ided an3 reasoning for re8ecting t+ese com-laints @t is -artic,larl3
interesting t+at t+e 8oined cases contained allegations of different infringements T+,s, in a single go, t+e3 decided on

!
15<4 re:,ested t+ose min,tes in7oking t+e ;ree 5ccess to @nformation 6a(, and t+e same ro,te (ill *e follo(ed *3 t+e election
contestants as com-lainants 4+o,ld t+ese *e o*tained *efore t+e final re-ort is -,*lis+ed, t+e3 (ill *e s-ecificall3 anal3sed
#
CC2C Decision ref no 1!13/1% dated 28 1a3 201%
8
5t P/s designated as: 8#, !3'5, 8#'5, 20, !!'5, !%, #2'/, 11'5, 23, !0, 3$'/, 8!, 10#, 3$'5, 100, 20'/, !1'/ and $8

4 | 2014 Local Elections in Podgorica: Second preliminary report
allegations of irreg,larities in -re-aration of t+e -olling station and t+e P/ for casting 7otes, deficiencies of 8oint
candidate lists, election materials, *reac+es of 7oting -roced,res, mo*ile 7oting, and 7iolations regarding closing of
-olling stations and *allot co,nt

$<: (onflict of interests for ((E( mem0ers

T+e CC2C also decided on com-laints regarding t+e alleged -olling station irreg,larities ca,sed *3 t+e CC2C mem*ers
-ro-er

T+e first set of cases refers to t+e CC2C c+air (+o, at t+e session deciding as -er com-laints alleging infringements o
7oting rig+ts stated +is -art3 (as kee-ing -arallel records of t+e 7oters (+o cast 7otes and t+at s,c+ cond,ct is
legitimate
$


T+e 6a( on 2lection of Co,ncillors and 1Ps ex-ressl3 -ro+i*its an3 -arallel records of 7oters (+o cast *allots
10
T+e P/
r,les of -roced,re define t+e -olling station as t+e room (+ere *allots are cast (it+ t+e accom-an3ing 3ard
11
T+e 6a(
ex-ressl3 -ro+i*its t+e ,se of electronic comm,nication means, s,c+ as cell -+ones, to -re7ent kee-ing records, or t+e
sta3 of -ersons (+o +a7e no election administration rig+ts or d,ties at t+e -olling station
12


T+e -,r-ose of t+is *an of kee-ing -arallel records is to -re7ent t+e ,nla(f,l infl,ence on 7oters eit+er to cast or not to
cast 7otes, or to -re7ent an3 infl,ence on t+e free (ill of 7oters to decide (+et+er to exercise t+eir rig+t and if 3es, (+o
for T+e exercise of -ress,re on 7oters is a criminal offence ,nder t+e Criminal Code
131%


1ost of t+e irreg,larities re-orted *3 15<4 o*ser7ers referred to kee-ing ,nla(f,l -arallel records *3 t+e P/ mem*ers,
*,t also *3 t+e -ersons located at t+e -olling station -ro-er or in its 7icinit3

T+e CC2C c+air, (+o -re7io,sl3 stated t+e -olitical -art3 +e is affiliated to (as kee-ing -arallel records of 7oters, 7oted
on all com-laints concerning t+at iss,e

@n addition, t+e CC2C decided also on t+e com-laint regarding t+e -+3sical assa,lt on t+e o*ser7er for re-orting
irreg,larities at a -olling station, for (+ic+ a CC2C mem*er (as s,s-ected T+is mem*er (as not exem-ted from
deciding in t+e case in7ol7ing +imself nor +as s,c+ a -ossi*ilit3 e7er *een considered
1=



$
T+e CC2C c+air is 4rKan LaiMe7iD, a re-resentati7e of t+e Democratic Part3 of 4ocialists .DP40
10
5rt #1a -ara 2 reads BP/ mem*er and -ersons monitoring t+e (ork of election administration *odies are -ro+i*ited d,ring t+e
casting of *allots to kee- an3 records at t+e -olling station of 7oters (+o cast 7otes, or to ,se a co-3 of t+e 7oter list or an3 ot+er
ancillar3 7oter recordsE
11
@tem 2 -ara 1 of t+e L,les on Definition of and 5rrangements at Polling 4tations and 1eas,res to 2ns,re 4ecrec3 of /allot reads:
BT+e *,ilding (+ere *allots are cast and its 3ard are regarded as t+e -olling stationE
12
5rt #1a and #2 of t+e 6a( on 2lection of Co,ncillors and 1Ps
13
T+e Criminal Code in 5rt 18! sets fort+ t+e fine or ,- to t+ree 3ears im-risonment sentence for (+oe7er infl,ences a citi)en to
cast or not to cast *allot, or to 7ote for a s-ecific candidate or a candidate list @n case t+is offence is committed *3 a P/ mem*er or
ot+er -ersons (it+ official d,ties in t+e election -rocess, it is -,nis+a*le *3 im-risonment ranging *et(een t+ree mont+s and fi7e
3ears @n t+e same 5rticle, t+e Criminal Code en7isages a fine or im-risonment ,- to one 3ear for (+oe7er calls a 7oter regarding
casting of 7otes or demands to state +o( +e cast *allot, or (+3 +e did or did not cast *allot
1=
9ne of t+e CC2C mem*ers is t+e C+ef 5dministrator of t+e Ca-ital Cit3, Nel8ko O,ko7iD, (+o at t+e election da3 -+3sicall3 assa,lted
t+e <G9 15<4 o*ser7er 5nKela <ico7iD, (+o dre( attention to t+e fact t+at t+e in7isi*le ink (+ose ex-ir3 date +as -assed (as
,nla(f,ll3 ,sed at a P/ 15<4 fled a criminal re-ort, and com-laints (it+ t+e CC2C d,e to t+e interr,-tion of *allot casting at t+e
-olling station and -re7enting -ro-er marking of 7oters (+o alread3 casted *allots

' | 2014 Local Elections in Podgorica: Second preliminary report

$4: P/ysical assalt at t/e ((E( premises

Gi7en extremel3 s+ort deadlines for -assing t+e CC2C decisions, and t+e act,al n,m*er of com-laints and -ossi*le
irreg,larities, 15<4 filed t+e same com-laints for t+e t+ree election contestants in stages to facilitate t+e (ork of t+e
CC2C *3 not *eing o*liged to esta*lis+ facts for e:,al cases t+ree times
1!


4ince t+e legal team of 15<4 drafted all com-laints and took care of t+e deadlines and of all means of redress, after t+e
com-laints (ere signed *3 t+e t+ree candidate lists, o,r logistic team (o,ld take all t+e com-laints and file t+em (it+
t+e CC2C sim,ltaneo,sl3

@n t+e first stage, o,r logistic team +ad no -ro*lems in filing t+e com-laints on *e+alf of all candidate lists

Jo(e7er, (+en t+e re-resentati7es of 15<4 attem-ted to file t+e second *atc+ of com-laints, t+e CC2C staff ref,sed
to acce-t t+e com-laints (it+o,t t+e -resence of t+e re-resentati7es of candidate lists t+at signed t+em

T+e Constit,tion of 1ontenegro en7isages t+at e7er3one +as t+e rig+t to file com-laints, and t+en t+e state a,t+orities,
in terms (it+ t+e la(, decide (+et+er t+e com-laint (as filed *3 an a,t+orised com-lainant 4till, no la( sti-,lates t+e
o*ligation of filing t+e com-laint in -erson or *3 t+ird -arties a,t+orised *3 t+e com-lainant nor +as s,c+ -ractice e7er
*een recorded (it+ state administration a,t+orities ;,rt+ermore, t+e Criminal Code en7isages sanctions for
res-onsi*le -ersons in state a,t+orities if acting contrar3 to t+ese -ro7isions
1#


Des-ite t+e calling ,-on t+e constit,tional and legal -ro7isions, t+e CC2C administration ref,sed to acce-t t+e
com-laints 15<4 re-resentati7es attem-ted to doc,ment t+is irreg,larit3 *3 recording it (it+ t+eir cell -+ones onl3 to
*e -+3sicall3 assa,lted *3 one mem*er of t+e CC2C staff, and t+en locked in t+e CC2C -remises @t (as onl3 after t+e
-olice (as called t+at 15<4 staff (ere ena*led t+e freedom of mo7ement and t+e -romises (ere ,nlocked

T+e second *atc+ of com-laints (as filed (it+o,t -ro*lems, (it+ -olic3 -rotection and in t+e -resence of t+e CC2C
C+air and 4ecretar3, after +a7ing talked to t+e C+air of t+e 4tate 2lection Commission

T+e deadline for s,*mission of com-laints to CC2C ex-ired at = oAclock in t+e morning for t+ose irreg,larities t+at
occ,rred (+ile -re-aring t+e -olling stations for o-ening
18
P+en 15<4 staff, escorted *3 t+e -olice, attem-ted filing
t+e last *atc+ of com-laints *efore t+e ex-ir3 of t+e deadline, t+e CC2C (as closed @t (as not o-ened e7en at t+e
re:,est of -olice officers alt+o,g+ it (as e7ident t+e staff (ere inside T+e filing of t+ese com-laints (as dela3ed, *,t
(ere not dismissed on t+is gro,nd, *,t in -ackage (it+ ot+ers, as ex-lained in t+e -re7io,s section



1!
5s alread3 stated, 15<4 -re-ared t+e same com-laints for t+ree candidate lists to -re7ent t+em from *eing a*,sed for -artic,lar
-olitical interests
1#
5rticle 1## of t+e Criminal Code of 1ontenegro reads: B.10 5n3one (+o -re7ents anot+er -erson from exercising +is rig+t to file a
re:,est, a--lication, action, lodge a com-laint, o*8ection, ot+er legal remed3 or an3 ot+er filing, s+all *e -,nis+ed *3 a fine or a
-rison term ,- to one 3ear .20 P+ere t+e offence ,nder -ara 1 a*o7e (as committed *3 a -,*lic official (+ile acting in +is official
ca-acit3, +e s+all *e -,nis+ed *3 a -rison term ,- *et(een t+ree mont+s and t+ree 3earsE
18
@tem 12 -araga-+ 1 of t+e P/ L,les of Proced,re sets fort+: BPolling /oard .-ermanent mem*ers and a,t+orised re-resentati7es
of registered candidate lists0 is o*liged to arri7e at t+e -olling station at =:00 oAclock .t(o +o,rs *efore o-ening of t+e -olling station
at t+e election da30 5ll ,na,t+orised -ersons s+all *e remo7ed from t+e -olling stationE

= | 2014 Local Elections in Podgorica: Second preliminary report

>: S.$.E ELE(.,)% ()MM,SS,)%

>1: *ecision#ma"ing

5t t+e *eginning of t+e first 4tate 2lection Commission .42C0 session +eld on 31 1a3 201%, it (as decided *3 t+e
ma8orit3 7ote of t+e 42C mem*ers to close t+e session for t+e -,*lic T+e 6a( on 2lection of Co,ncillors and 1Ps
en7isages t+at t+e (ork of t+e election administration *odies is -,*lic
1$


5 com-laint filed *3 t+e Democratic Part3 of 4ocialists .DP40 (as disc,ssed at t+is session, and 42C 7oted t(ice on t+e
same iss,e 5de:,ate ma8orit3 for decision'making (as not sec,red d,ring t+e first 7ote 5s alread3 stated, t+e la( is
ex-licit in sa3ing t+at in case of fail,re to reac+ t+e decision, t+e com-laint is regarded as acce-ted, +ence, after t+e
ad8o,rnment, t+e 42C re-eated t+e 7ote t+is time (it+ t+e ade:,ate ma8orit3 to re8ect t+e com-laint

5 da3 later, on 1 >,ne Dan 201%, t+e second 42C session (as +eld, deciding on com-laints lodged *3 15<4 o*ser7ers 5t
t+at session, t(o 42C mem*ers nominated on *e+alf of DP4 reasoned t+e com-laints filed *3 t+e Democratic ;,nd, t+e
Positi7e 1ontenegro and t+e Ci7ic @nitiati7e, and t+en called for re8ection, -,t for 7ote *3 t+e 42C T+,s, all com-laints
-re-ared *3 15<4 o*ser7ers disc,ssed at t+at session (ere re8ected, (it+o,t ins-ection of t+e P/ -olling station
re-orts or an3 ot+er data and doc,ments annexed to t+e com-laints

5sked *3 15<4 o*ser7ers a*o,t t+e -rinci-le for selecting Bra--orte,rsE in different cases, (+et+er it in7ol7ed an3
internal -roced,re or 42C decisions to t+at effect, 42C called a se-arate session to ado-t t+e o-erational -roced,res @t
(as agreed on t+is session to (ork in t+e so'called Bmini (orking gro,-sE to disc,ss t+e materials and e7idence o,tside
t+e 42C sessions T+e 42C L,les of Proced,re set fort+ t+at 42C is to o-erate and -ass decisions in -lenar3 sessions, and
to disc,ss com-laints and ot+er matters related to t+e election -rocess in sessions

5t t+e next 42C session, se7eral mem*ers acted as ra--orte,rs and stated onl3 t+e information on t+e n,m*er of
com-laints, t+e date of filing and t+e com-lainants, noting t+en t+ere (ere no gro,nds to acce-t t+e com-laints
Pit+o,t an3 disc,ssion or ins-ection of e7idence, t+e 42C C+air
20
acted identicall3 in e7er3 single case and -ro-osed to
-ass t+e decision to re8ect t+e com-laint @n eac+ case t+e s-lit of 7otes (as e:,al, nine 42C mem*ers (o,ld 7ote for
re8ection, and t(o for acce-tance T+e same +a--ened to all ot+er com-laints regarding t+e irreg,larities noted *3
15<4 o*ser7ers decided ,-on at 42C sessions

;ollo(ing t+is met+odolog3, t+e 42C disc,ssed and decided, on a7erage, ,-on t(o com-laints a min,te

>2: SE( decisions

5s alread3 noted, 42C re8ected (it+o,t disc,ssion all com-laints filed *3 t+ree candidate lists for all irreg,larities noted
*3 15<4 o*ser7ers Jo(e7er, 42C acce-ted some com-laints of ot+er com-lainants regarding t+e 7er3 same
irreg,larities noted *3 15<4 o*ser7ers t+at (ere -re7io,sl3, (it+o,t an3 disc,ssion, re8ected *3 42C
21



1$
5rt 22 6a( on 2lection of Co,ncillors and 1Ps
20
T+e 42C C+air is @7an Gale)iD, a DP4 mem*er
21
T+e exam-le of t+e 4ocialist Peo-leAs Part3, (+ose com-laint (as acce-ted, and casting 7otes re-eated at 3 -olling stations in
Podgorica

? | 2014 Local Elections in Podgorica: Second preliminary report
@n t+e decisions -assed as -er t+e com-laints, 42C stated it ins-ected t+e c+allenged CC2C decisions, t+e com-laints and
t+e P/ -olling station re-orts, and esta*lis+ed t+at no infringements or irreg,larities (ere noted at t+ose -olling
stations, +ence fo,nd t+e com-laints ,nfo,nded <o(+ere did 42C state e7en t+e alleged infringement on t+e co,nt of
(+ic+ t+e com-laint (as filed, nor disc,ssed an3 -ro-osed -iece of e7idence

5s alread3 stated, 15<4 o*ser7ers (ere -re7ented from monitoring t+e 42C (ork in Bmini (orking gro,-sE, and t+ere
(as no disc,ssion in sessions (+en decisions (ere -assed, nor an3 examination of accom-an3ing doc,ments to (+ic+
42C referred T+e min,tes of s,c+ 42C sessions (ere not -,*licl3 a7aila*le at t+e time of t+is re-ort

5not+er -ro*lem referred to t+e fact t+at it took 42C eig+t da3s to come ,- (it+ t+e first doc,ments in (+ic+ t+e3
8,stified t+eir decisions and deli7er t+em to com-lainants T+e 6a( sets no deadline *3 (+ic+ 42C (o,ld *e o*liged to
do so, sa3ing onl3 t+at t+e deadlines for ot+er means of redress start r,nning (it+ t+e recei-t of s,c+ decisions

@n addition, 42C decided on t+e legalit3 of CC2CAs decision to 8oin cases @nitiall3, (it+o,t an3 disc,ssion, 42C re8ected
15<4 a--eals against t+e concl,sions to 8oin cases, noting t+eir lack of com-etence in t+at matter since it did not
in7ol7e 7iolation of electoral rig+ts" +o(e7er, t+e legal ad7ice at t+e end of s,c+ decisions instr,cted t+at t+eir decisions
mig+t *e c+allenged *efore t+e Constit,tional Co,rt in t+e -roced,re for electoral rig+t infringements

T+e Constit,tional Co,rt ann,lled s,c+ 42C decisions and ordered t+em to decide on t+e merits of s,c+ cases
22
@n t+e
ne( decisions, 42C acce-ted its 8,risdiction, *,t still re8ected t+e a--eals as ,nfo,nded 4till, t+e3 ga7e t+e same
reasoning as t+e first time t+at t+e met+odolog3 of deciding ,-on com-laints on alleged electoral -rocess 7iolations
does not in7ol7e electoral rig+ts Bnor +as s,c+ a doc,ment -re7ented -rotection of electoral rig+ts for com-lainants,
and t+,s co,ld not +a7e +ad an im-act on t+e exercise of electoral rig+ts ,nder t+e 6a( on 2lection of Co,ncillors and
1PsE
23
5t t+e time of t+is re-ort, t+e -roceedings on t+is gro,nd are still -ending

(: ()%S.,.9.,)%$L ()9+.

T+e final sa3 in t+e -rotection of electoral rig+ts rests (it+ t+e Constit,tional Co,rt of 1ontenegro
2%
, (+ic+ re8ected all
a--eals of all t+ree candidate lists concerning t+e irreg,larities noted *3 15<4 o*ser7ers 15<4 o*ser7ers (ere not
allo(ed to monitor t+e Constit,tional Co,rt sessions, t+,s (e are ,na(are of t+e met+odolog3 follo(ed

<ot e7en fifteen da3s after t+e first Constit,tional Co,rt decision (as -assed did t+e com-lainant recei7e an3 (ritten
reasoned decision, and t+e 6a( is silent as regards an3 deadlines for doing so

5s regards t+e decisions as -er a--eals regarding 8oining of cases, t+e Constit,tional Co,rt, as alread3 noted, acce-ted
t+em and ret,rned to t+e 42C for re-eated decision @n its decision, t+e Constit,tional Co,rt stated t+at redress ma3 *e
so,g+t Bagainst all decisions, acts or omissions, etc, and not onl3 against t+e decisions of m,nici-al election commission
dismissing or re8ecting t+e com-laintE ;inall3 t+e Constit,tional Co,rt noted:

BPit+ its ar*itrar3 inter-retation of t+e -roced,ral legislation, t+e 4tate 2lection Commission +as, in t+e o-inion of t+e
Constit,tional Co,rt, 7iolated *ot+ t+e constit,tional and t+e con7ention rig+t to an effecti7e remed3 of t+e
com-lainants, g,aranteed *3 t+e -ro7isions of 5rt 20 of t+e Constit,tion and 5rt 13 of t+e 2,ro-ean Con7ention


22
1ore details in 4ection D concerning t+e Constit,tional Co,rt
23
Q,ote from a 42C decision
2%
5rt 110 -ara 2 of t+e 6a( on 2lection of Co,ncillors and 1Ps

4 | 2014 Local Elections in Podgorica: Second preliminary report
Gi7en t+e a*o7e, t+e Constit,tional Co,rt finds t+e c+allenged decisions of t+e 4tate 2lection Commission to *e legall3
,nfo,ndedE

5s regards t+e -roced,res in7ol7ing t+e -olling station BC,Ke7inaE in GolaHin, and t+e re-eated casting of *allots at
se7eral -olling stations in Danilo7grad, (+ic+ re7eal s,*stantial deficiencies of t+e 6a( on 2lection of Co,ncillors and
1Ps, fa7o,ring election mis,ses, t+eir anal3sis (ill *e gi7en in t+e final re-ort

*: .+$%SP$+E%(- ); *E(,S,)%#M$@,%3 )% S9SPE(.E* ELE(.,)% ,++E39L$+,.,ES

T+e 6a( on 2lection of Co,ncillors and 1Ps en7isages t+at t+e (ork of election administration *odies is -,*lic
2=
T+e
6a( on Constit,tional Co,rt sti-,lates t+e -rinci-le of -,*licit3 (+ic+, among ot+er t+ings, is to *e sec,red *3 +olding
-,*lic disc,ssion in t+e -roceedings *efore t+e Constit,tional Co,rt
2!
T+e Constit,tion of 1ontenegro sti-,lates t+e
general -rinci-le of -,*lic ad8,dication, as (ell as t+at t+e -,*lic ma3 *e excl,ded onl3 for t+e reasons (+ic+ are
necessar3 in a democratic societ3 and onl3 to t+e extent needed and sti-,lated in t+e Constit,tion
2#


T+e actions taken *3 se7eral instit,tions s+o( t+at +ig+er instances t+at decided on t+e com-laints filed (ere e7en less
trans-arent t+an t+e *odies (+ose decisions t+e3 re7ie(ed T+,s, t+e Constit,tional Co,rt denied t+e rig+t to
a,t+orised o*ser7ers to monitor its sessions, and t+en denied t+e stat,tor3 rig+t for t+e -arties to attend t+e session
and take -art in disc,ssions

T+e Constit,tional Co,rt informed ,s 7ia e'mail t+at t+e 8,dges (ere of ,nanimo,s o-inion t+at Bt+e -ossi*ilit3 for 3o,
in t+e ca-acit3 of election o*ser7ers to attend t+e Constit,tional Co,rt sessions does not stem from t+e 6a( on
Constit,tional Co,rt and t+e L,les of Proced,re of t+e Constit,tional Co,rt of 1ontenegroB. T+is message makes no
reference to an3 -ro7ision, et+er of t+e Constit,tional Co,rt 6a( or t+e L,les of Proced,re, as t+e gro,nds for re8ecting
15<4 a--lication

1oreo7er, t+e 6a( on t+e Constit,tional Co,rt of 1ontenegro en7isages t+at *ot+ t+e a--ellants and t+e -ersons t+e3
a,t+orise ma3 take -art in t+e -roceedings *efore t+is Co,rt
28
5ll t+ree candidate lists t+at filed com-laints s,*mitted
to t+e C+ief >,dge of t+is Co,rt also t+e re:,est for a,t+orised re-resentati7es to take -art in t+e disc,ssion T+ese
re:,ests remained ,naddressed ,ntil t+e clos,re of t+is re-ort

Pre7io,sl3 t+e 42C excl,ded t+e media from t+eir sessions, and t+e o*ser7ers (ere not allo(ed to monitor t+e (ork of
t+e so called Bmini (orking gro,-sE, *,t onl3 t+e act,al 7ote at t+e -lenar3 session

5s regards t+e CC2C, t+e media s+o(ed no interest in attending t+eir sessions, (+ile t+e o*ser7ers (ere allo(ed to
monitor its (ork, *,t not to record t+e -lenar3 sessions

15<4 ,sed se7eral means of redress in an attem-t to o*tain s-ecific CC2C decisions, and t+e gro,nds for *anning t+e
monitoring of some -arts of t+e 42C (ork, *,t ,ntil t+e clos,re of t+is re-ort (e +a7e not recei7ed t+e (ritten
res-onses or decisions

2=
5rt 22 -ara 1 6a( on 2lection of Co,ncillors and 1Ps
2!
5rt 3 -ara 1 6a( on Constit,tional Co,rt of 1ontenegro
2#
5rt 130 of 1ontenegroAs Constit,tions sti-,lates t+at -,*lic ma3 *e excl,ded onl3 Bin t+e interest of moralit3" -,*lic order" (+en
minors are trialled" in order to -rotect -ri7ate life of t+e -arties" in marital dis-,tes" in t+e -roceedings related to g,ardians+i- and
ado-tion" in order to -rotect militar3, *,siness or official secret" and for t+e -rotection of sec,rit3 and defence of 1ontenegroB
28
5rt 22 6a( on Constit,tional Co,rt of 1ontenegro