A Path to Democratic Renewal"
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PN-ABK-494 Best available copy -- portions of annexes are illegible PA -1\LK* A-+ National Democratic Institute National Republican Institute for International Affairs for International Affairs "A PATH TO DEMOCRATIC RENEWAL" A REPORT ON THE FEBRUARY 7, 1986 PRESIDENTIAL ELECTION IN THE PHILIPPINES By the INTERNATIONAL OBSERVER DELEGATION Based on a January 26 to February 19, '.986 observer mission to the Philippines by forty-four delegates from nineteen countries National Democratic Institute National Republican Institute for International Affairs for International Affairs 1717 Massachusetts Ave., N.W., Suite 605 001 Indiana Avenue, N.W., Suite 615 Washington, D.C. 20036 Washington. DC. 2000-1 (202) 328-3136 Telex 5106015068NDIIA (202) 783-2280 Te'ex 510',00016INRIIA Politicaldevelopment institutes workingfordemocracy DELEGATION MEMBERS J. Brian Atwood, USA Jerry Austin, USA Manuel Ayau, Guatemala Elizabeth Bagley, USA Smith Bagley, USA Ercol Barrow, Barbados Tabib Bensoda, the Gambia Mark Braden, USA John Carbaugh, USA Glenn Cowan, USA Curtis Cutter, USA Rick Fisher, USA Larry Garber, USA Raymond Gastil, USA Antonio Gomes de Pinho, Portuga B.A. Graham, Canada Guillermo Guevara, El Salvador Robert Henderson, USA Robert Hill, Australia John Hume, Northern Ireland Patricia Keefer, USA Martin Laseter, USA Dorothy Lightborne, Jamaica John Loulis, Greece Lord George Mackie, Scotland-UK Judy Norcross, USA Patrick O'Malley, Ireland Juan Carlos Pastrana, Colombia Misael Pastrana, Colombia Howard Penniman, USA Jose Rodriguez Iturbe, Venezuela Peter Schram, USA Keith Schuette, USA Ronald Sebego, Botswana Elaine Shocas, USA David Steinberg, USA Bill Sweeney, USA Dennis Teti, USA William Tucker, USA Steven Wagner, USA Kathleena Walther, USA Edward Weidenfeld, USA Curt Wiley, USA Sue Wood, New Zealand ACKNOWLEDGEMENTS The sponsors wish to thank each of the memters of the delegation for their participation in this historic mission. We are particularly grateful for the leadership of President Pastrana and Mr. Hume. Each member of the group understood in advance that the task of observing this vital election would not be an easy one. Indeed they knew that the members of the International Observer Delegation chose to accept those risks because they understood that the community of democracies had an important role to play in helping to preserve democracy in the Philippines. We at the sponsoring Institutes are particularly grateful for t'ie advice received from two individuals who have long experience in observing elections: Mr. Howard Penniman of the American Enterprise Institute and Mr. Larry Garber of the International Human Rights Law Group. NDI wishes to express its special thanks to Mr. Garber, its chief consultant, whose guidance, knowledge of Philippine law and drafting skill contributed greatly to the success of our efforts. The sponsoring Institutes also want to thank staff members who participated in the mission and the production of this report. These include: Robert Henderson, Kathi Walther and Steven Wagner of NRIIA; and Patricia Keefer, Curt Wiley, Karen Clark and Leticia Martinez of NDI. i Finally, we thank the organizations and individuals who contributed the resources necessary to complete the project. We are grateful for the confidence shown in our Institutes by the U.S. Agency for International DevelopmenL and the National Endowment for Democracy. Grants from these two organizations ani from countless private citizens enabled us to achieve our objectives. J. Brian Atwood Keith E. Schuette Executive Director Executive Director National Democratic Affairs National Republican Institute for International Affairs for International Affairs ii TABLE OF CONTENTS Page ACKNOWLEDGEMENTS ....................... .. .. ........... FORWARD ............................... ...... x EXECUTIVE SUMMARY ...................................... xii INTRODUCTION ............................................. 1 A. The Delegation's Activities in the Philippines ....... 2 B. Fact-Finding Methodology .............................. 5 INSTITUTIONAL SETTING .................................... 8 A. Background to Snap Election ........................... 8 B. Assessment of the Election Law ...................... 11 C. Assessment of Institutional Actors ................... 12 1. Commission on Elections (COMELEC) .............. 12 2. NAMFREL ....................................... 15 3. KBL ................... o ............ 17 4. UNIDO .......................................... 18 5. Catholic Church ... o............................ 19 6. Armed Forces of the Philippines (AFP) .......... 20 7. New Peoples' Army (NPA)........................ 21 • EVALUATION OF THE ELECTORAL PROCESS ......... ...... 22 A. Political Campaign .................................. 22 1. Adequacy of Campaign Period ..................... 23 2. Political Rallies; Restrictions on Political Campaigning .......................... 24 3. Political Killings, Arrests and Intimidation ... 25 4. Improper Campaign Practices ..................... 29 iii Page B. Role of the Media .................................. 31 1. Television ................................... 33 2. Radio .......................................... 35 3. Newspapers ..................................... 36 4. Foreign Press .................................. 38 C. Summary ............................................. 39 IV. ADMINISTRATION OF THE ELECTION -- PRE-ELECTION PHASE .... 40 A. Voter Reqistration .................................. 40 B. Preparation of Election Materials ................... 42 C. Distribution of Election Materials ................ 43 V. ELECTION DAY OBSERVATION .......................... .... 45 A. Ballotinq Process ........ ........... ....... 46 B. Problem Areas ... .... ... ..... ....... 49 1. Disenfranchisement .............. 49 2. Indelible Ink ... ... .... ............. 51 3. Vote Buying ........................... 52 4. Intimidation .. ................ 53 5. Exclusion of NAMFREL from Pollinq Sites ........ 55 VI. COUNTING PHASE ............... ............. 57 A. Chronology ...... o ........ ............. 57 1. "Operation Quick Count" ..................... 58 2. The "Official" Count .......................61 B. Problem Arias ................ ................ ..... 64 1. Misreportinq of Results ... ..................... 65 2. Statistical Improbability ........................ 65 iv Page 3. Ghost Precincts ................................. 66 4. Exclusion of UNIDO from Canvassing Process .... 67 5. Discrepancy Between COMELEC/Batasang and NAMFREL Results ................................. 67 C. Developments During the Week Following the Election 71 1. COMELEC's Handling of Post-Election Complaints. 71 2. Reprisals ........................................ 73 3. Response of the Filipino People ............... 74 VII. FOREIGN OBSERVERS AND THE ELECTION ..................... 76 VIII. CONCLUDING OBSERVATIONS ................................. 78 ANNEXES ............................................... 87 I. Members of the International Observer Mission ......... 87 II. Executive Summary: Report on the Feasibility of an International Observer Mission to Observe the February 7 Philippine Election .......................... 90 III. Transcript of Press Conference Given By International Delegation at Manila Hotel - February 5, 1986 ......... 95 IV. Observer Mission Briefing Schedule - February 5, 1986 . 103 V. Observer Mission Terms of Reference ................... 104 VI. Observer Mission Deployment Schedule .................. 107 VII. Observer Mission Evaluation Form ....................... 109 VIII. COMELEC Resolution 1747: "Rules and Regulations Regarding Foreign Intervention" (re: Foreign Observers) ............................................ 113 IX. Transcript of Press Conference Given By International Delegation at Manila Hotel - February 9, 1986 ......... 117 X. Catholic Bishop's Statement on the Philippines: Post-Election Statement - February 13, 1986 ............ 126 v Page XI. Statement by NAMFREL Chairman Jose Concepcion February 18, 1.986 ....................................... 130 XII. NAMFREL Evaluation of 1984 Batasang Elections ....... 133 XIII. University of the Philippines Report on the 1984 Elections .................................. 135 XIV. 1985 U. S. Department of State Human Rights Report (Conclusions Only) ...................................... 139 XV. Ferdinand Marcos' Letter of November 11, 1985 to the Batasang Pambansa Requesting Special Election ......... 148 XVI. Batas Pambansa BLG. 883: An Act Calling a Special Election for the President and Vice President, Providing for the Holding Thereof, Appropriating Funds Therefor, and for Other Purposes ................................. 151 XVII. COMELEC Resolutions Regarding Special Election (Table of Contents: Resolutions 1721-1753) ......... 156 XVIII. Policy Speeches by Corazon Aquino (titles only) ..... 160 XIX. Pastoral Letters issues by the Catholic Church: 1. "We Must Obey God Rather Than Man" Catholic Bishop's Conference Joint Pastoral Exhortation - January 23, 1986 ...................... 161 2. Cardinal Sin Letter - December 28, 1986......... 164 3. Cardinal Sin Letter (from the NAMFREL Corner) 167 XX. Reform Armed Forces of the Philippines Movement "Kamalyan 86" Program .................................. 168 XXI. UNIDO complaint regarding Antique (Letter from Enrique Javier to COMELEC) - January 26, 1986 ................. 171 XXII. List of Complaints Filed with the Commission on Elections in Connection with February 7, 1986