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1998 Montenegro R01761 Date Printed: 11/03/2008 JTS Box Number: IFES 8 Tab Number: 11 Document Title: Republic of Montenegro: Voter Awareness Assessment Legal Review, Nov 1997-Feb Document Date: 1998 Document Country: Montenegro IFES ID: R01761 A L o F \ o REpUBLIC OF MONTENEGRO VOTER AWARENESS ASSESSMENT LEGAL REVIEW NOVEMBER 1997 - FEBRUARY 1998 PREPARED By: CATHERINE BARNES, PROJECT TEAM LEADER ALEXANDRA LEV ADITIS, PROGRAM ASSISTANT DANIEL FINN, LEGAL ADVISOR IFES ~ International Foundation for Election Systems 1l0115th Street, NW, Third Floor Washington, DC 20005 This Report was made possible by a grant/rom the United States Agency for International Development (USA/D). The opinions expressed in this Report are solely of the International Foundation/or Election Systems (IFES). This material is in the public domain and may be reproduced wilhout permission, citation is appreciated. REpUBLIC OF MONTENEGRO VOTER AWARENESS ASSESSMENT LEGAL REVIEW NOVEMBER 1997-FEBRUARY 1998 ISBN 1-879720-48-5 TABLE OF CONTENTS EXECUTIVE SUMMARY .......................•................................................... :.................................................... 1 VOTER AWARENESS ASSESSMENT I. INTRODUCTION ................................................................................................................5 A. MISSION BACKGROUND .......................................................................................5 B. MISSION OBJECTIVES ...........................................................................................5 C. SCOPE OF MISSION ...............................................................................................6 D. COMPARATIVE EXPERIENCE: SERBIA AND MONTENEGRO ...............................6 II. BACKGROUND ..................................................................................................................7 A. COUNTRY BACKGROUND .....................................................................................7 B. ORGANIZA TION OF THE STATE ............................................................................7 C. RECENT POLITICAL DEVELOPMENTS ..................................................................9 III. ELECTION FRAMEWORK .................................................................................................12 A. CONSTITUTION .....................................................................................................12 B. LA W ON ELECTION OF COUNCILORS AND REPRESENTATIVES ..........................12 C. LA W ON THE REGISTER OF ELECTORS ...............................................................15 D. LAW ON FINANCING OF POLITICAL PARTIES ......................................................16 E. ELECTION ADMINISTRATION STRUCTURES ........................................................17 F. AGREEMENT ON MINIMUM PRINCIPLES FOR DEVELOPMENT OF A DEMOCRATIC INFRASTRUCTURE ........................................................................ 19 G. MULTI-PARTY WORKING GROUP ON ELECTORAL REFORM .............................20 IV. POLITICAL PARTY SCENE ................................................................................................22 A. DEMOCRATICPARTYOFSOCIALISTS .................................................................22 B. PEOPLE'S PARTY OF MONTENEGRO ....................................................................23 C. LIBERAL ALLIANCE OF MONTENEGRO ...............................................................23 D. SOCIAL DEMOCRATIC PARTY ...............................................................................23 E. DEMOCRATIC UNION OF ALBANIANS .................................................................24 F. THE DEMOCRATIC LEAGUE OF ALBANIANS IN MONTENEGRO ..........................24 V. THE MEDIA ENVIRONMENT .............................................................................................26 A. THE LA W ON PuBLIC INFORMATION ..................................................................27 B. STATE MEDIA OUTLETS .......................................................................................28 C. INDEPENDENT MEDIA OUTLETS ..........................................................................30 D. THE MASS MEDIA AND ELECTION CAMPAIGNS ..................................................30 VI. NGO DEVELOPMENT ••••••••••••••••••••.••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 32 A. NGO ENVIRONMENT ••••••••.••••••••.•••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 32 B. ELECTION RELATED NGOs •••••.•••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 32 C. ELECTION ACTIVITIES OF STUDENT GROUPS •••••••••••••••••••••••••••••••••••••••••••••••••••• 33 VII. THE CITIZENRY ••••••••••••••••••••••••••••••••••••••••.•••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 35 VIII. RECOMMENDA TIONS ••••.••••••.••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 36 A. LEGAL REFORM •••••••••••.•••.•••••••••.••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 36 B. ELECTION MANAGEMENT AND ADMINISTRA T10N ••••••••••••••••••••••••••••••••••••••••••••• 36 C. VOTER REGISTRIES •••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 37 D. SYSTEM OF REPRESENTATION •••••••••••••.••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 37 E. CANDIDATE NOMINA T10N AND CERTlFlCAT10N •••••••••••••••••••••••••••••••••••••••••••••••• 38 F. CAMPAIGNS, FINANCING, AND THE MAss MEDIA •••••••••••••••••••••••••••••••••••••••••••••• 38 G. VOTER INFORMATION •••••••••••••••••••••••.••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 38 H. POLLING SITE PROCEDURE ••••••••.•••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 39 I. BALLOT SECURITY AND CONTROL OF THE ELECTION PROCESS ••••••••••••••••••••• .40 J. TABULATION AND REpORTING OF RESULTS •••••••••••••••••••••••••••••••••••••••••••••••••••••• 40 IX. PROGRAMMING OPPORTUNITIES ••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• .41 A. ADVISING ON THE DEVELOPMENT OF DRAFf LEGISLATION ••••••••••••••••••••••••••• ..41 B. ASSISTANCE IN UPDA T1NG AND MAINTAINING VOTER REGISTRIES ••••••••••••••••• 41 C. NON-PARTSIAN VOTER EDUCA T10N •••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 41 D. NON-PARTISAN CANDIDATE INFORMATION AND SUPPORT SERVICES ••••••••••••• .42 E. TRAINING FOR CORE AND EXPANDED MEMBERSHIP OF MUNICIPAL ELECTION COMMISSIONS AND POLLING STATIONS ••••••••••••••••••••••• 42 F. CIVIC EDUCATION .................................................................................................42 G. LEGAL AND TECHNICAL ADVISING •••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 43 X. CONCLUSION •••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 44 TECHNICAL LEGAL ANALYSIS OF DRAFf ELECTION LEGISLATION INTRODUCTION .......................................................................................................................46 I. OVERALL OBSERVATIONS ................................................................................................48 A. CONSTITUTIONAL BASIS ......................................................................................48 B. ORGANIZATIONAL ISSUES ••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••••• 50 C. DRAFfING ISSUES .................................................................................................52 D. STRUCTURE AND OPERAnONS OF ELECTION COMMISSIONS •••••••••••••••••••••••••••• 53 1. STRUCTURE ..............................................................................................53 a. TIMING OF ApPOINTMENT AND TERM OF OFFICE ......................53 b. SEPARA TION OF POWERS AND ApPOINTMENT OF ELECTION COMMISSIONS ..............................................................................54 2. OPERA TIONS ............................................................................................56 a. ADMINISTRA TIVE TRANSPARENCY ..............................................56 b. ROLE OF EXPANDED MEMBERSHIP .............................................58 E. NOMINATION OF CANDIDATES ............................................................................59 F. COMPLAINT RESOLUTION ...................................................................................61 G. PROTECTION OF MINORITY INTERESTS ..............................................................62 1. ETHNIC MINORITIES ................................................................................62 2. REFUGEES .................................................................................................65 H. OBSERVERS ..........................................................................................................66 II. SPECIFIC COMMENTS ON PROPOSED LA ws ...................................................................68 A. LEGISLATIVE ELECTION LA W .............................................................................68 1. GENERAL COMMENTS .............................................................................68 a. SCOPE AND A VAILABILITY ..........................................................68 b. RELATIONSHIP OF THE REC TO MECs ......................................68 c. BALLOT SECURITY .......................................................................69 d. VOTING OUTSIDE POLLING STATION .........................................69
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