The Framework Convention for the Protection of National Minorities (FCNM) is the specific legally binding instrument that ensures the protection of minorities in the Council of Europe member states. This text needs to be examined in order to place the issue into its correct context, before dealing more specifically with the issue of conformity of double voting with the ECHR. According to Article 15 FCNM "the Parties shall create the conditions necessary for the effective participation of persons belonging to national minorities in cultural, social and economic life and in public affairs, in particular those affecting them". The explanatory report underlines that the provision’s aim is "above all to encourage real equality between persons belonging to national minorities and those forming part of the majority". Inter alia the following measures are listed to create the necessary conditions for the participation by persons belonging to national minorities:

- consultation with these persons by means of appropriate procedures and, in particular, through their representatives institutions;

- involving these persons in the preparation, implementation and assessment of measures likely to affect them directly;

- undertaking studies, in conjunction with them, to assess the possible impact on them of the projected measures;

- effective participation of persons belonging to national minorities in the decision making processes and elected bodies both at national level and local levels; decentralised or local forms of government.