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Handbook for European Union Election Observation

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Handbook for European Union Election Observation Second Edition © European Commission, 2008 Election Teams Directorate General External Relations http://ec.europa.eu/external_relations/human_rights/eu_election_ass_observ/ Directorate General EuropeAid http://ec.europa.eu/europeaid/where/worldwide/electoral-support/index_en.htm Manuscript finished in February 2008 Reproduction is authorized provided the source is acknowledge Graphic Design: Fröjdlund Grafisk Form AB, Sweden Cover photos: Kerstin Dokter, Richard Chambers, Claudia Aranda, David Ward Printed by Elanders Sverige AB ISBN 978-91-633-1480-3 Table of contents Introduction ........................................................................................................1 SECTION ONE ............................................................................................ ......4 The European Union and Election Observation .......................................... ......4 1.1 The EU and Democracy and Human Rights ........................................ ......4 1.2 Rationale for EU Election Observation ................................................ ......5 1.3 The Mandate for EU Election Observation .......................................... ......6 1.4 The Scope of EU Election Observation ................................................ ......7 1.5 The Role of EU Institutions .................................................................... ......7 1.6 Code of Conduct for EU Election Observers..............................................10 1.7 EU Electoral Assistance ........................................................................ ......11 1.8 Relations with Other Election Observer Organisations............................12 1.8.1 International Observer Groups ........................................................12 1.8.2 Domestic Non-Partisan Election Observers ....................................12 SECTION TWO ................................................................................................14 International Standards for Elections................................................................14 2.1 Key Definitions ..............................................................................................14 2.1.1 International Standards......................................................................14 2.1.2 Best Practice for Democratic Elections ............................................15 2.1.3 National Legal Framework ................................................................15 2.2 Overview of the UN Human Rights System/Framework..........................16 2.3 Principal Universal Legal Instruments for Elections ..................................17 2.3.1 The Right to Participate in Government and Public Affairs ..........18 2.3.2 Other Fundamental Freedoms and Political Rights ........................18 2.3.3 Interpretation of the ICCPR ..............................................................19 2.4 Other Universal Legal Instruments for Elections ......................................19 2.5 Principal Regional Instruments for Elections..............................................19 2.6 Applying International Standards ........................................................ ....20 SECTION THREE ........................................................................................ ....23 EU Observation Methodology .................................................................... ....23 3.1 Consistency .............................................................................................. ....23 3.2 Comprehensive and Long-Term Observation ...................................... ....24 3.3 Increased Coverage on Election Day...................................................... ....25 3.4 Impartial and Independent Assessment................................................ ....25 3.5 Non-Interference in the Election Process ............................................ ....25 3.6 Cooperation with the Host Country ...................................................... ....26 3.7 Openness in Findings and Visibility in Work........................................ ....26 SECTION FOUR .......................................................................................... ....27 Areas of Assessment .................................................................................. ....27 4.1 Political Context ...................................................................................... ....28 4.2 Legal Framework...................................................................................... ....29 4.2.1 Election-Related Legislation ........................................................ ....29 4.2.2 Election System ..................................................................................31 4.3 Election Administration .......................................................................... ....35 4.3.1 The Work of the Election Management Body (EMB) ................ ....35 4.3.2 Voter Education ............................................................................ ....39 4.4 Voter Registration..........................................................................................41 4.4.1 The Right to Universal Suffrage ........................................................41 4.4.2 The Registration of Voters ............................................................ ....42 4.5 Political Party and Candidate Registration............................................ ....46 4.5.1 Freedom of Association .............................................................. ....46 4.5.2 The Right to Stand for Election .................................................. ....46 4.6 Election Campaign .................................................................................. ....50 4.7 Media Environment ................................................................................ ....54 4.8 Complaints and Appeals ........................................................................ ....59 4.9 Human Rights ........................................................................................ ....62 4.9.1 All Human Rights.......................................................................... ....62 4.9.2 Non-Discrimination .................................................................... ....64 4.9.3 The Participation of Women ...................................................... ....65 4.9.4 The Participation of Minorities .................................................. ....68 4.9.5 The Participation of Persons with Disabilities .......................... ....70 4.9.6 The Participation of Internally Displaced Persons and Refugees ......................................................................................71 4.10 Civil Society.............................................................................................. ....73 4.11 Voting and Counting................................................................................ ....75 4.11.1 Polling: The Right to Vote, Equal Suffrage and the Free Expression of the Electorate’s Will ...................... ....75 4.11.2 Polling: the Right to a Secret Ballot ............................................ ....79 4.11.3 Special Voting Procedures .......................................................... ....80 4.11.4 Closing of Polling and Counting of Votes .................................. ....82 4.11.5 Electronic Voting .......................................................................... ....84 4.12 Tabulation and Publication of Results, and the Post-Election Environment ...................................................... ....86 SECTION FIVE ............................................................................................ ....92 Establishing an EU Election Observation Mission ...................................... ....92 5.1 Deciding whether to Observe an Election ............................................ ....92 5.1.1 Identification of Priority Countries ............................................ ....92 5.1.2 The Exploratory Mission .............................................................. ....93 5.1.3 Minimum Conditions for Effective and Credible Election Observation ............................................ ....95 5.2 Planning and Preparation for an Election Observation Mission ........ ....96 5.2.1 Memorandums of Understanding................................................ ....96 5.2.2 Terms of Reference ...................................................................... ....97 5.2.3 Appointment of a Chief Observer .............................................. ....97 5.2.4 Selection of Observers ................................................................ ....97 5.2.5 Mission Structure .......................................................................... ..100 5.2.6 Criteria for Deployment of Observers ........................................ ..100 5.2.7 Overview of EU EOM Programming Timetable ........................ ....101 5.3 Deploying an EU Election Observation Mission ......................................103 5.3.1 The Role of the Implementing Partner or Service Provider..........103 5.3.2 Mission Opening, Start-Up and Closure .................................... ..104 5.4 Mission Security ...................................................................................... ..105 5.4.1 Risk Assessment .......................................................................... ..106 5.4.2 Security Planning and Procedures .............................................
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