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NATIONAL DEMOCRATIC INSTITUTE for INTERNATIONAL AFFAIRS Fifloor, 1717 Massachusetts Avenue, N.W Po NATIONAL DEMOCRATIC INSTITUTE FOR INTERNATIONAL AFFAIRS FiFloor, 1717 Massachusetts Avenue, N.W. Washington, D.C. 20036 (202) 3283136 FAX (202) 939-3166 . E-Mail: [email protected] THE MAY 9, 1993 NATIONAL ELECTIONS IN PARAGUAY A report of the National Democratic Institute for International Affairs A program funded by the U.S. Agency for International Development Grant No. LAG-0591-G-00-3014-00 @ conducting nonpartisan internationalprogram to help maintain and strengthen democratic institutions @ TABLE OF CONTENTS ACKNOWLEDGMENTS INTRODUCTION I. THE COUNCIL AND NDI ACTIVITIES A. The Council of Freely Elected Heads of Government B. The National Democratic Institute for International Affairs II. GEOGRAPHY AND HISTORY A. Geography B. Historical Background rn. ELECTORAL FRAMEWORK A. Overview B . Administrative Electoral Bodies C . Voter Registration D. Balloting Process E. Counting Process IV. ACTORS IN THE POLITICAL PROCESS A. Political Parties B . Military C. Church D . Press E . Nongovernmental Organizations F. Organization of American States v. PREPARATIONS FOR ELECTIONS A. Party Primaries B . The Candidates and the Issues C. Last Minute Concerns and Changes D. The Final Days VI. ELECTION DAY OBSERVATIONS A. Overview B. Election ObservationMethodology C. Delegation Observations D. Bombing of Channel 13 E. Closing the Borders VII. MOVING FORWARD A. Structure and Framework B. Oversight and Administration C. The Role of Political Parties and Nongovernmental Organizations D. The Role of the International Community E. Conclusions APPENDICES Press coverage from March NDI trip Letter of invitation to President Carter Sample Ballots Voter Registration Chart v. Lists of Parties and Candidates VI. Pastoral Letters VII. Press coverage of S- VIII. SUand official results IX. NDI/Council Pre-Election Statement X. Delegation Schedule XI. Terms of Reference XII. Election Day Deployment Sites XIII. NDI/Council Post-Election Statement XIV. Selected Field Reports XV. Election Day Checklist XVI. Press Accounts of NDUCouncil Election Observation Delegation INTRODUCTION Paraguay's democratic transition began in 1989 with the ouster of Gen. Alfredo Stroessner and the prompt election of Gen. Andres Rodriguez. During the last five years, voters have gone to the polls in record numbers to elect national leaders, municipal officials and members of the constituent assembly. These leaders in turn have created a democratic framework that emphasizes citizen participation and regional input. The May 9, 1993 national elections marks another important step in the five-year transition to democracy and has created a new pluralism for a new period of consolidation. With results accepted by all parties, the Colorado Party candidate Juan Carlos Wasmosy won the presidency with 40 percent of the vote. Opposition parties won a slight majority in congress. The pre-election period exemplified the liberalization of the Paraguayan political system. During the campaign, candidates debated issues and parties held rallies throughout the country for thousands of supporters. Journalists covered the campaigns of the major candidates, posing difficult questions about fraud and corruption. Local nongovernmental organizations freely conducted programs on civic education and pollwatcher training. For the first time in nearly 60 years, a third force -- the National Encounter Movement -- challenged the political dominance of the traditional Colorado and Liberal parties. Freedom of expression and organization during the campaign did not preclude suspicions regarding the administration of the elections, however. Political leaders worried that a close election could provoke government-orchestrated fraud or even military intervention. Pre-election developments contributed to these concerns. When a rival candidate appeared to have won the nomination in the Colorado primaries, the military interceded. A high-ranking military officer promised during the general campaign that the Colorado Party would co-govern with the armed forces regardless who won the elections. Political party leaders complained to international observers that their supporters were being systematically excluded from the voter registry. The Central Electoral Board tightly controlled access to the voter registry compounding fears. Through a combination of activities before, during and after election day, NDI and the Council international observers obtained a wide perspective on the challenges facing the electoral process. The NDI/Council mission concluded that the overall preparations and administration of the elections were much improved from years past. Supplies, including ballot boxes, ink and voter registries, arrived at the polling stations promptly and in sufficient quantity. Voters generally found their polling stations with little difficulty, putting to rest fears th%tthe registration list had been manipulated to exclude the participation of opposition supporters. Voters cast their ballots in an atmosphere free of intimidation. The delegation noted with concern, however, attempts to impede citizen participation and disrupt the process. The night before the elections, the army closed the country's borders and prohibited Paraguayans outside the country from voting or participating in the following day's activities. On election morning, unknown assailants bombed a television station owned by a rival of President Rodriguez. Also, the state-owned telephone company cut SAWSphone lines, placing in jeopardy the only independent count in the country. This report assesses the 1993 national elections in Paraguay. The report recognizes the impressive progress made since 1989 and offers suggestions to fbrther increase the transparency and confidence in the election process. It begins with an overview of NDI and the Council's activities in Paraguay. Chapter two presents a brief geographical, economic and historical overview. Chapter three details the electoral framework and voting process while chapter four examines the principal actors in the electoral process. Chapter five reviews the campaign and chapter six reflects on election day proceedings. Finally, chapter seven provides observations and suggestions by the international delegation. CHAPTER ONE THE COUNCIL AND NDI ACTIVITlES A. The Council of Freely Elected Heads of Government The Council of Freely Elected Heads of Government is an informal group of 2 1 current and former heads of government from throughout the Americas. The Council was established in November 1986 at a meeting chaired by former U.S. Presidents Jimmy Carter and Gerald Ford on "Reinforcing Democracy in the Americas" at The Carter Center. The Council's goal is to reinforce democracy in the Americas and promote the peaceful resolution of conflict. The Council has been a pioneer in mediating and observing elections. In addition to Paraguay, the Council has observed elections in Panama (1989), Nicaragua (1990), the Dominican Republic (1990), Haiti (1987, 1990) and Guyana (1992). B. The National Democratic Institute for International Affairs The National Democratic Institute (NDI) was founded in 1983 to promote and strengthen democratic institutions around the world. NDI is based in Washington, D.C. and is funded in part by the National Endowment for Democracy. Working with political parties, government leaders, legislatures, civic groups and other institutions, NDI conducts nonpartisan programs to promote, maintain and strengthen democratic institutions in new and emerging democracies. NDI has conducted democratic development programs in more than 70 countries. Programs focus on six fimctional areas: election processes, legislative training, local government, civil-military relations, civic education and political party training. NDI involves democratic leaders, experts and activists from around the world as participants, trainers, and advisors in its programs. NDI Activities in Paraguay NDI has been involved in Paraguay since 1988. In February of that year, an NDI survey mission visited the country to meet with civic leaders interested in establishing an independent organization that would pressure the dictatorship to liberalize the political system. In a visit to Washington the following month, Aldo Zuccolillo, the publisher of ABC Color, reiterated the Paraguayans commitment to such an institute and discussed specific program ideas with NDI staff. Zuccolillo and other prominent leaders created the Center for Democratic Studies (CED) in August 1988. CED's board of directors includes leaders of opposition parties as well as democratic opponents of Stroessner within the ruling Colorado Party. AAer the February 2, 1989 coup in Paraguay, NDI sponsored the visit to Paraguay of two Chileans who played leading roles in the plebiscite campaign. With their assistance and a grant from NDI, CED leaders conducted a comprehensive election support program, including a civic education campaign, public opinion survey, pollwatcher training and an independent parallel vote count. A 19- member international delegation led by Senator B.A. Graham of Canada, Christian Democratic Party President Eduardo Frei of Chile and United States Representative Bruce Morrison complemented the efforts of the CED. In August 1990, NDI and the CED conducted seminars and panel debates throughout the country to provide a platform for citizens and local leaders to speak about important issues facing the country. In the seminars, participants discussed the importance of municipal governance, the responsibilities of political parties and the
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