“The electoral campaign in Serbia is taking place in a highly polarised environment that could undermine a level playing field for contestants,” said a pre-electoral delegation from the Parliamentary Assembly of the Council of Europe (PACE), headed by Piero Fassino (Italy, SOC), ending a two-day visit to Belgrade on 12 and 13 October 2026.
In a prevailing atmosphere of “referendum”, these elections are yet another instance of a now well-rooted culture of early elections, which has instrumentalised electoral cycles - a pattern that disrupts the functioning of democratic institutions and political competition.
Amendments to four electoral laws were adopted in May 2026, shortly before the elections – at odds with international standards – introducing some welcome changes, including caps on campaign funding and mandatory training for electoral board members. However, these amendments did not sufficiently address previous recommendations by ODIHR and the Venice Commission, nor did they resolve persistent challenges that should be tackled as a matter of priority.
These include the misuse of administrative resources, pressure on voters and the abuse of provisions intended for national minority lists. Several interlocutors also expressed concern about the failure to implement adequate legal provisions in place and the lack of action by independent institutions to investigate alleged violations of fundamental freedoms.
The delegation heard widespread concerns about unequal campaign conditions, and disproportionate media coverage favouring the incumbent party.
It also heard complaints about the lack of independence and failure of state institutions to adequately address serious issues relating to the accuracy of voter lists and arrangements for out-of-country voting, raising questions about risks of electoral manipulation. The Republic Electoral Commission’s decision to only marginally increase the number of polling stations abroad was not, in the view of some interlocutors, justified by clear and predictable criteria, despite the number of registered voters abroad having more than doubled. The limited access to these polling stations, combined with the voting hours in Serbia – which means that some voters living on different continents will have to vote at night – was regarded as a serious risk of disenfranchising a significant number of Serbian voters abroad.
The delegation noted the hostile and aggressive rhetoric targeting activists from the opposition, civil society representatives and journalists, as well as the persistent and credible allegations of surveillance as well as concerns about the safety of voters and observers. Uncertainty about the post-election period was also expressed across the political spectrum. The demonisation of and smear campaign against critical voices has no place in a democratic society and cannot be the answer to the demands expressed by a vibrant society, which have translated into increased mobilisation and interest in political engagement today, or to the emergence of a political alternative offered to voters.
We call on all political actors, including the governing parties, opposition movements and civil society representatives, to refrain from inflammatory rhetoric and intimidation, and to avoid any conduct that may undermine a peaceful and democratic electoral process which complies with the country’s obligations as a member state of the Council of Europe.
In this tense and divisive electoral environment, robust domestic and international observation of the elections is of critical importance. The delegation expects the authorities to grant election observers access to all stages of the electoral process.
The delegation also expects the competent authorities to ensure a peaceful environment throughout the remaining campaign period and around election day. National security institutions must refrain from using force or placing undue restrictions on the right to freedom of assembly, as guaranteed by the European Convention on Human Rights to which Serbia is a signatory.
During its visit to Belgrade, the delegation met with the Speaker of the National Assembly and the Acting President of the Republic, as well as with members of the Serbian delegation to PACE, representatives of parliamentary groups and extra-parliamentary parties (including national minority parties), from both the majority and the opposition, and representatives of the Ministry of the Interior, the Republic Electoral Commission and the Voter Register Audit Commission. The delegation also met members of the diplomatic community, the OSCE/ODIHR Election Observation Mission, civil society and the media.
PACE will deploy a fully-fledged election observation mission to observe the scrutiny of 25 October 2026 alongside the ODIHR, the OSCE Parliamentary Assembly and the European Parliament.
The pre-electoral delegation comprised Piero Fassino (Italy, SOC, Head of delegation), Dominik Oberhofer (Austria, ALDE, Deputy Head of delegation), Albana Vokshi (Albania, EPP/CD) and Bernardo Pessanha (Portugal, ECPA), as well as Victoria Tiblom (Sweden, ECPA), co-rapporteur of the Monitoring Committee (ex officio).
