REGIONAL WORKSHOP ON CAPACITY-BUILDING IN ELECTORAL ADMINISTRATION IN AFRICA. Tangier, Morocco, September, 2001 AIDE-MEMOIRE

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1 Background and Justification REGIONAL WORKSHOP ON CAPACITY-BUILDING IN ELECTORAL ADMINISTRATION IN AFRICA Tangier, Morocco, September, 2001 AIDE-MEMOIRE Elections are a central feature of democratic governance, a testimony to peoples sovereignty. For the candidate, the purpose of competing in an election is to win public office by representing a group of think-a-like citizens and to gain power and influence over public policy and state resources. For the voter, the act of electing is an expression of his or her will in trying to influence public policy. The legitimacy of a government today turns more and more on the question of whether its leaders came to power through elections, and whether such elections were genuine. Many crises have broken out over disputes about the announced electoral outcomes. Various countries have worked hard over time to refine their electoral systems to guarantee reliable results of free and fair electoral contests. In Africa, the very notion of universal suffrage and contests for public office along party lines is relatively recent. Even in the countries that adopted a democratic system of government, elections with pre-determined results were common. Several political leaders arranged their own repeated victories, whether under a single or multi-party system. Admittedly, not many had the brazenness to declare to the electorate, as did Kenyatta s brother-in-law and Minister in Charge of Security that: He needed only two votes, those of Kenyatta and his wife, Mama Ngina ; or to ensure (as did General Sani Abacha of Nigeria in 1998) that all the five registered parties announced him as their Presidential candidate. But in between, many modes were tried to subvert genuine elections. These ranged from bribes to officials (electoral, police, party leaders, judges and notables) to intimidation of opponents and to making balloting papers scarce in opposition strongholds. The history of elections and democracy in many African countries is also that of an open challenge to the manipulation by a repressive and cynical leadership. Opposition parties, cultural associations, professional associations and trade unions have fought existing regimes, calling for more openness and transparency in the interest of all. The trend in the last ten years has been for the organization of competitive, credible elections to determine who governs. Often, multi lateral and regional organizations have been invited to monitor and observe the electoral process. They have played a critical role in adding to the pressure for a fair competition for the country s leadership. Some countries have also received international assistance to aid them in overcoming specific obstacles. The organization of elections is a major undertaking requiring considerable financial and organizational resources. Beside the requirements for professional planning and execution, the pressure to succeed is immense. In this context, the African Training and Research Centre in Administration for Development (CAFRAD), in partnership with UNDESA/DPEPA, will organize a Regional

2 Workshop on Capacity-Building in Electoral Administration in Africa. The Workshop will focus on major problems of organizing elections and take stock of best practices and appropriate strategies for competitive elections in Africa. Conceptualizing the Electoral Process Studies and reports about elections in specific countries are many. Each adds something to our knowledge about aspects of the electoral process. Of all these, the general overview provided by the Administration and Cost of Elections (ACE) Project, which is a joint endeavor by the International Institute for Democracy and Electoral Assistance (IDEA), the International Foundation for Electoral Systems (IFES) and the United Nations Department for Economic and Social Affairs (UN/DESA), seems to be the most appropriate. It is practical, without being insensitive to theoretical considerations. For the running of this workshop and eliciting from participants their views on an array of important matters relating to the conduct of elections we have, therefore, adopted ACE s position. The ACE project maintains that successful conduct of elections requires preparation and planning; and that while elections can be costly, not holding them may be more costly. Not only is a regime s legitimacy tied to elections, its stability and international acceptance are also involved. Training of electoral officials is becoming common in many countries (Britain, Mexico and the U.S. are examples). There are many models, but each should be seen as reflective of historical and other backgrounds of the country. In the developed world, the cost of election per voter ranges generally between 4 and 6 US dollars. While it is not significantly higher in less developed countries (except for the first elections), it represents a higher percentage of the national budget. An election is a complex process that requires the participation of a multitude of actors, each with different roles and agendas. The test of a fair and credible electoral process comes down to the degree to which it satisfies some guiding principles such as: independence, non-partisanship, professionalism and integrity. Independence means how separate from any party or sitting government the electoral body is. Non-partnership means that the electoral management bodies (EMB) should not be concerned with who wins or loses, but should establish a level playing field on which candidates and parties may compete freely and fairly. Professionalism means the capability of officials to deliver a service to the citizens and to the voters. Integrity means respect for the law, transparency, accuracy and accountability. Integrity is inherent in the principles of democracy, and without it there is no guarantee that the will of the voters will be reflected in the election results. When an election is organized, it has to take in account the electoral system, the legislative framework that gives it its legitimacy and the rules to be followed in the process and the socio-political environment of the country, which includes the infrastructure as well as administrative, logistic and cost considerations. Then it needs a management infrastructure able to implement and operationalize all the procedures needed to make voting possible while ensuring the transparency, accountability, secrecy and clarity of the process. In essence, the electoral process deals with issues related to strategic planning, funding, organization of core activities, clarity of operational plans, staff training, voter education and a fair and widely publicized system for dealing with complaints.

3 Objectives The overall objective of the workshop is to build and enhance African officials capacities in electoral administration. The specific objectives of the workshop are to: Share experiences and knowledge in electoral administration in Africa and elsewhere; Take stock of the best practices, failures and problems relating to electoral processes in Africa; Strengthen skills of African electoral managers in electoral administration; Facilitate and encourage co-operation among stakeholders (parties, NGOs, electoral bodies, donors and other partners) in electoral administration; Develop appropriate strategies to cope with challenges of electoral processes in Africa; and Suggest ways and means of making elections cheaper, more credible and competitive. Content of the Workshop Participants The main topics to be addressed at the workshop include the following: 1. Elections and democracy in Africa (keynote address) 2. Planning of elections (an overview): - Electoral legislative framework - Electoral calendar - Electoral officials: selection, training, discipline - Voter education - Voter registration - Voting operations: infrastructure and logistics - Funding and budgeting the electoral process - Vote counting (including dispute resolution). 3. Management (administration) of elections: - Round Table on National Electoral Commissions: role, responsibility and accountability mechanisms - Partnership in electoral organization: the role of NGOs, civil society, political parties, administration, donor agencies, international community, etc. - General coordination and supervision of elections - Security during elections 4. Electoral monitoring and observation 5. Information and communication technologies in electoral administration 6. Media coverage of elections 7. Case studies from six African countries and two non-african countries The Workshop will bring together high officials from electoral bodies, training and research institutions, political parties, donor agencies, and NGO s and other stakeholders.

4 Resource Persons Resource persons with proven expertise in electoral administration will be invited from national and international partner institutions, especially from UNDESA, IDEA, IIAP and the Electoral Commission of Canada. One of them will serve as special invited speaker and General Rapporteur. Methodology The workshop will be conducted in a participatory manner, with presentations and discussions on the topics indicated above. At the center of these are the cases to be introduced by participants from the electoral management bodies of eight countries. It is envisaged that each will present in some detail the way in which elections are conducted in his/her country, specifying successes as well as problem areas with envisaged solutions. Attention is to be given by each presenter to ways of cutting costs while enhancing vote acceptability. Where possible, copies of relevant electoral rules and regulations will be made available for more effective discussions. Apart from plenary sessions, some group work may be required. Outcome It is expected that after the workshop, participants will be better acquainted with the prospects and constraints of effective electoral administration in Africa and ways of thinking through the problems for better electoral management. In addition, the report of the workshop will be published in book form for dissemination and use by the major stakeholders. Follow-up A series of national and sub-regional training workshops will be organized. Languages: English and French Venue: Tangier (Morocco). Dates: September, 2001.

5 P R O G R A M M E Monday 24 September, 2001: Registration Opening Ceremony. Chairperson: H.E. Mr. M Hamed EL KHALIFA, Minister of Public Service & Administrative Reform of the Kingdom of Morocco, Chairman of the Governing Board of CAFRAD. - Opening Speech by the Chairman of the Board Addresses: - CAFRAD - UNDESA - H.E. Joâo Baptista KUSSUMUA, Vice-Minister of the Territorial Administration, Republic of Angola. - Presentation of Programme and Participants M. Lelo, CAFRAD Coffee Break SESSION I: Chairperson Alhaji Shehu MUSA The Electoral process: an overview/electoral Calendar (Ms. Sue Nelson), Brief comments :Mr. C. Nanga Discussion Lunch Discussion Lunch Discussion. Tuesday, 25 September, 2001 SESSION II: Chairperson: Mr. O. Fambougoury, Electoral Officials: Selection, training and assignment (Mr. Ron Gould) Brief comments by Mr. F.M.A.Monteiro Voter Education (M. Ibrahim Biu) Brief comments by Mr. F.H. Naife SESSION III: Chairperson : Mr. A.G. Carrasco Voter Registration (Mrs Helena Alves) Breif comments by Mr.Hassan Aghmari, Discussion Budgeting and funding for elections (Ms. Helena Alves) Brief comments by Mr. Hassan Aghmari

6 Coffee Break Discussion Discussion Lunch Discussion Coffee Break Discussion Wednesday, 26 September, 2001: Discussion Coffee Break Discussion Lunch. SESSION IV: Chairperson : Mrs. Saïda Zaid. Voting operations: infrastructure and logistics. (Ms. H. Alves Ms. T. Laanela). Vote counting (including dispute resolution) (Mr. Ron Gould) Brief comments by Ms. L. Olivier. SESSION V: Chairperson: Ms. T. Laanela Electoral monitoring and observation. (Ms. Sue Nelson and Prof. J. Balogun). SESSION VI: Chairperson : Mrs. G. AIHOU Country presentations (2). - Cameroun - Nigeria SESSION VII: Chairperson: Mrs. Gisèle Aihou. Country presentations (2). - South Africa - Canada ACE Questionnaire. Questionnaire ACE Coffee Break Discussion. Thursday, 27 September, 2001: SESSION VIII : Chairperson: Mrs. Tomsie Phillips Country presentations (2) - Mozambique - Morocco.

7 Discussion Coffee Break Discussion. ESSION IX: Chairperson: Mr. F.S.M. de Freitas Round table on National Electoral Commissions: role, responsibility and accountability mechanisms. Mr.W. Nicol - Mr. T. Gnonlonfoun M. F.Monteiro. SESSION X: Chairperson: Mr. F.D.S.M. De Freitas Security during elections (Ms.Sue Nelson) SESSION XI: Chairperson : Mr. W. Nicol - Partnership in electoral organization: the role of NGOs, Civil Society, political parties, administration, donor agencies, international community, etc. - Media coverage and Elections. (Ms. Theresa Laanela) Brief comments by : Mr. J. Martins & Mr. F. Freitas Discussion Déjeuner SESSION XI: Chairperson: Ms.W. Enssle. Information and communication technologies in electoral administration Discussion Coffee Break Discussion. (Ms. Theresa Laanela) Brief comments by Mr. C. Mbanaja. Friday, 28 September, 2001: Closing Session: Chairperson: Mr. Ron Gould Presentation of the Communiqué by Mr. Nanga Après-midi : Vote of thanks - UNDESA - CAFRAD - Participants. - Free. COMMUNIQUE The Regional Workshop on Capacity-Building in Electoral Administration in Africa, organized by CAFRAD with financial and technical support of UNDESA/DPEPA,

8 took place at Hotel Solazur, Tangier, Morocco between 24 th and 28 September, It was declared open by H.E. M Hamed El Khalifa, Chairman of the Governing Board of CAFRAD and Minister of Civil Service and Administrative Reform of the Kingdom of Morocco; who, in his Speech, welcomed all present and congratulated the organizers for their choice of an important theme for Africa. Mr. El Khalifa pointed out that King MOHAMED VI of Morocco had re-iterated the necessity for democracy and the rule of law. The speech laid emphasis on the value of professionalism in the discharge of the various tasks in the management of the electoral process. While appreciating that different countries, should choose methods and processes appropriate to their situation; Participants, who very carefully examined, and exchanged views on, the various technical and associated issues pertinent to the conduct of elections, called for wide-ranging consultations with all stakeholders in the construction of legal and institutional frameworks for elections. They stressed the importance of the role of electoral management bodies, centrality of planning, training of electoral officials, civic and voter education, utilization of appropriate technology, and sensitivity to cost-effectiveness, in the conduct of elections. Consideration was given to the strengthening of communication with political parties and the media; as they both play pivotal roles in the entirety of the process. The Workshop decried the high incidence of electoral violence in Africa. Participants agreed that more efforts should be made in preventative measures, and in that regard collaboration with security agencies should be improved. Similarly, participants shared knowledge and experience in the management of the Electoral Calendar in situations of open or potential conflict. The Workshop was attended by high officials from: Angola, Benin, Cameroon, Cape Verde, Mali, Morocco, Mozambique, Namibia, Nigeria, Sao Tome & Principe, Sierra Leone, and South Africa. Resource Persons were from: Elections Canada, IDEA, the United Nations, ECA, Sweden and the USA. There were cases presented by officials from South Africa, Cameroon, Canada, Morocco, Mozambique and Nigeria. All present contributed actively to the proceedings. Several Recommendations were made by the Workshop, the main ones being that: (a) CAFRAD, alongside relevant partners, organize periodic sub-regional and regional workshops dealing with urgent concerns of African electoral bodies; (b) In particular, CAFRAD, in collaboration with relevant partners, urgently organize a workshop dealing with elections in areas which have on-going conflicts, or in areas prone to such; and (c) Donor agencies be urged to continue to extend their hands of partnership in capacity-building for electoral administration in Africa. The Workshop closed with all Participants and Resource Persons thanking CAFRAD and UNDESA/DPEPA for this initiative, and the Kingdom of Morocco for its support and warm reception. The Director-General of CAFRAD thanked everyone for honoring the Centre s invitation to the Workshop.