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Guide for Citizen Observers on Electoral Reform Citizen Observers Guide for Citizen Observers on Electoral Reform Contents CITIZEN This project is funded by OBSERVERS the European Union GUIDE FOR CITIZEN OBSERVERS ON ELECTORAL REFORM CITIZEN OBSERVERS GUIDE FOR CITIZEN OBSERVERS ON ELECTORAL REFORM CONTENTS PAGE 7 INTRODUCTION CHAPTERS 9 CHAPTER 1 ELECTION OBSERVATION AND DEMOCRATIC ACCOUNTABILITY 13 CHAPTER 2 FORMULATION OF RECOMMENDATIONS 21 CHAPTER 3 SELECTION OF RECOMMENDATIONS 27 CHAPTER 4 INITIATING POST-ELECTION DIALOGUE 33 CHAPTER 5 DEVELOPING A STRATEGY AND ESTABLISHING A PLATFORM ON ELECTORAL REFORM 41 CHAPTER 6 RELATIONS WITH STAKEHOLDERS 47 CHAPTER 7 ELECTORAL REFORM PROMOTION AND ADVOCACY INITIATIVES 59 CHAPTER 8 TRACKING THE IMPLEMENTATION OF RECOMMENDATIONS 64 ACRONYMS · ANNEXES 65 ANNEX 1 SAMPLE RECOMMENDATIONS CHART 66 ANNEX 2 SAMPLE MATRIX TO TRACK ELECTION RECOMMENDATIONS 67 ANNEX 3 PERIODIC FOLLOW-UP REPORT TEMPLATE 68 ANNEX 4 FURTHER AVAILABLE RESOURCES 3 INTRODUCTION Over the past 30 years, election observation by both domestic and international organisations has become a widely accepted practice around the world. It is commonplace for civil society organisations (CSOs) in the country and intergovernmental or nongovernmental international organisations to observe various stages of an electoral process and to present an assessment after election day on the degree to which the elections have met international and regional standards for democratic elections. Typically such groups issue their preliminary findings immediately after election day, and then present more comprehensive findings in a final report in the weeks and months that follow. Often the final report includes a set of recommendations on how to best address issues identified during the electoral process, to bring elections into line with regional and international standards for democratic elections. The simple act of issuing recommendations already demonstrates that election observation is a constructive activity which aims to improve elections in line with international and regional standards. However, following elections there is often a general ‘election fatigue’ and most often these recommendations made by observers remain unaddressed by electoral stakeholders during the inter-election period. It is also the case that parliaments and other stakeholders have a myriad of other challenges, so getting attention for electoral reforms can be difficult. Observer groups that make recommendations may miss the opportunities for maintaining focus on them. This happens for a variety of reasons, such as a non-conducive political context, competing organisational priorities, lack of funding or lack of expertise on electoral reform. In other cases, CSOs advocate for electoral reforms, but without a coherent strategy, so their efforts may not be sufficiently organised or properly timed. In such cases, election recommendations can provide a framework for these advocacy and monitoring initiatives. Citizen election observation (and the recommendations that result) is not an end in itself. Such efforts are only one part of the citizen-based promotion of election integrity, which continues throughout the election cycle. While election observation provides evidence-based recommendations for reform, CSOs should advocate for those reforms throughout the inter- election period, and continue to monitor the degree to which they have been considered and implemented prior to the next election. In this way, recommendations can act as an instrument of democratic accountability, enabling citizen oversight of democratic reform. Advocating for electoral reform is part of the responsibility of citizen election observer groups. The Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organisations (DoGP) commits endorsing organisations to: 5 ‘where practicable, advocate for improvements in legal frameworks for elections and in their implementation, for violence-free, accountable, open and responsive electoral and political processes, for removal of unreasonable restrictions and other barriers to full citizen participation in electoral and political processes and to contribute more broadly to advancing democratic governance;’1 This step-by-step guide is aimed primarily at citizen observer groups and other CSOs that are interested in leveraging their potential to play an influential role in improving electoral processes throughout the electoral cycle. It provides user-friendly guidance on how citizen observer groups and others can effectively follow up on observer recommendations using the existing networks, visibility and capacity that they developed during the elections. By promoting the implementation of election recommendations, citizen observer groups have demonstrated the potential impact of election observation. USING THE GUIDE This guide focuses on two main types of follow-up activities for CSOs: ELECTORAL REFORM PROMOTION AND ADVOCACY that raises awareness and encourages stakeholders to address election 1 recommendations prior to the next elections. TRACKING OF RECOMMENDATIONS to monitor progress towards 2 their implementation and reporting regularly on the findings. These two types of activities would ideally be undertaken at the same time. The choice and design of initiatives will depend on a number of factors – both internal and external to the CSOs themselves. Internal factors include organisational priorities, resources and capacity, while external factors include the overall political context and attitudes of stakeholders towards election reform. These issues will be discussed in-depth in the guide. 1. ‘Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organisations’, para 21(k), endorsed by more than 290 citizen observer groups in 93 countries worldwide and supported by 13 key intergovernmental and international nongovernmental organisations, launched at the UN headquarters in 2012, available at www.gndem.org. 6 WHO SHOULD USE THIS GUIDE? As mentioned, the primary audience for this guide is citizen observer groups: CSOs that take on election observation, but which may lack extensive experience in democracy promotion. Citizen observer groups usually issue reports during the election period, however they may not issue specific recommendations that can help to link their findings to advocacy initiatives enabling concrete improvements to the process. The guide provides assistance to election observers in the formulation and promotion of recommendations, and ways to monitor their implementation. Other CSOs outside of the election observation sphere may also have an interest in focusing on election recommendations that relate to their specific area of work. For instance, a CSO that promotes the rights of persons with disabilities may be interested in promoting the adoption of recommendations that address such issues, while a CSO focused on women’s rights may be more interested in recommendations that address issues related to the participation of women in elections and political life. This guide may be useful to other stakeholders in the process who have a role in the implementation of recommendations, including political parties, parliament, the election management body (EMB), and other state institutions. At the same time, even if their work is of a different nature, international and regional organisations that take part in election observation may also benefit from the information presented in the guide, as they too have an interest in promoting follow- up to recommendations. Finally, European Union (EU) Delegations and other donors may also be interested in the information contained in the guide, so that they may consider support to CSOs to do follow- up work as part of an approach that encourages maintaining support for democratic elections, as well as democratic reform more broadly, throughout the electoral cycle. CHAPTER 1 Election observation and democratic accountability CHAPTER 1 ELECTION OBSERVATION AND DEMOCRATIC ACCOUNTABILITY In recent years, citizen election observation has become an accepted part of the electoral process in many parts of the world. Citizen election observation (also known as domestic nonpartisan election observation) provides an opportunity for citizens to engage in their own democracy and hold government institutions accountable for the conduct of genuine, credible elections. CSOs that conduct election observation often mobilise thousands of volunteer election observers on election day – who transmit findings from across the country in order to form an overall assessment of the election day process. Recognising that elections are not one-day events, citizen observer groups typically monitor and assess pre- and post-election processes as well, since such processes can have a significant impact on the credibility of an election process. Through citizen election observation, CSOs gather a great deal of information about the election process. These findings are usually reflected in public reports that assess the overall integrity of the process, and the degree to which it was held in line with national law, as well as international and regional standards for democratic elections. The reports and statements of citizen observer groups identify specific problems with the election process, and often with the democratic process more generally. Through the formulation of recommendations, citizen observers suggest how state authorities and election stakeholders can improve the process, in line with the international and regional obligations and commitments of the country.
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