ELECTION REPORT ✩ Presidential, Legislative, and Provincial Assembly Elections in Mozambique Final Report October 2014 Mozambique ELECTION REPORT ✩ Presidential, Legislative, and Provincial Assembly Elections in Mozambique Final Report October 2014 One Copenhill 453 Freedom Parkway Atlanta, GA 30307 (404) 420-5100 www.cartercenter.org Contents Foreword..................................... 4 Postelection Developments .................. 44 Executive Summary........................... 6 Vote Counting and Tabulation .............. 44 Recommendations ......................... 7 Election Results. .47 Electoral Dispute Resolution ................ 48 The Carter Center in Mozambique............ 11 Political Developments ..................... 51 Election Observation Methodology .......... 12 Historical and Political Background .......... 15 Conclusions and Recommendations .......... 54 Recommendations ........................ 54 Electoral Institutions and the Framework for the Presidential, National, and Provincial Appendix A: Acknowledgments .............. 58 Assemblies Elections ......................... 22 Appendix B: The Carter Center Legal Framework .......................... 22 Delegation and Staff ......................... 59 Electoral System ........................... 24 Appendix C: Terms and Abbreviations ........ 61 Election Management ...................... 25 Appendix D: Statements...................... 62 Pre-election Developments ................. 28 Candidates, Parties, and Campaigns ......... 31 Appendix E: Table of Recommendations From Previous Missions..................... 118 Campaign Finance ......................... 34 The Media ................................ 36 Appendix F: Deployment Plan............... 120 Civil Society ............................... 37 Appendix G: Checklists...................... 121 Election Day ................................. 39 Appendix H: Letter of Invitation ............. 146 Poll Opening .............................. 41 The Voting Process ........................ 41 Closing and Counting ...................... 42 Foreword By Dr. John Stremlau The 2014 elections were conducted just after Vice President for Peace Programs, The Carter Center the signing of a peace agreement that ended sporadic but alarming violent clashes between Mozambique’s 2014 elections offered fresh hope for government forces and armed RENAMO peace and prosperity in a country still struggling elements. The agreement opened the door for a to overcome entrenched poverty, rising inequality, number of important legal and procedural reforms and risks of renewed conflict and authoritarian regarding the election process that were intro- rule. The elections were overall more competitive, duced to address concerns raised by RENAMO. peaceful, and transparent than previous elections These reforms included measures proposed by The Carter Center has observed in Mozambique. RENAMO to address issues and concerns raised by The 2014 elections were the fifth to be held RENAMO in past elections. In particular, these in Mozambique since independence. At the included the presence of political party members presidential level, elections were contested by both as party agents and/or polling station staff, historic opponents since independence: the procedural changes such as the checking for ruling Liberation Front of Mozambique (Frente ink to prevent the invalidation of ballots, and da Libertação de Moçambique, or FRELIMO) adjustments to the dispute resolution system to and armed insurgency-turned-political party strengthen the role of the courts. Mozambique National Resistance (Resistencia On election day thousands of international and Nacional Moçambicana, or RENAMO) as well domestic observers deployed across the country as the newly formed Mozambique Democratic and reported a generally peaceful and orderly Movement (Movimento Democrático de polling process. Compared to past elections, Moçambique, or MDM), which splintered from the 2014 polling process was notably smoother, RENAMO in 2009. FRELIMO again won the with turnout slightly higher than before but at 2014 presidential race and secured the highest 48 percent still considerably lower than in other number of legislative seats, although by smaller African national elections. While we did observe margins than in past elections. Since its first some isolated incidents of indiscipline and of bad win in 1994, FRELIMO has secured the highest practices in the counting and tabulation of voting, percentage of the vote in both the presidential these did not appear to have seriously affected the and National Assembly elections but has failed to results of the election. achieve national integration so vital for sustain- This report contains recommendations the able economic and political development. Going Center hopes will be considered in advance of forward, it is incumbent upon the leadership of future elections. political parties and civil society to ensure that Mozambique’s history of civil conflict — and Mozambique becomes a genuinely multiparty and today’s prospects of major new foreign investment representative democracy. 4 and national revenues that could fuel sustained long-term presence in Mozambique, coupled and equitable development — argue for a renewed with their willingness to coordinate closely commitment to genuine political accommodation with our observers for these crucial elections, and to strengthening the foundation of a represen- gave us greater national coverage and enhanced tative multiparty democracy. Peace and stability confidence in the recommendations rendered in have been threatened in the postelection period, this report. We are also grateful to the overall and Mozambique’s political elite must assume their leadership of our joint mission by former Kenyan responsibilities of leadership and begin to work Prime Minister the Hon. Raila Odinga. Together together for the betterment of the country. we hope this successful example of North–South Finally, I would like to offer my personal thanks cooperation signaled to the Mozambique people to our lead partner in this observation mission, a growing international awareness of the regional the Johannesburg-based Electoral Institute for and international importance of their demo- Sustainable Democracy in Africa (EISA) and cratic experiment. its executive director, Denis Kadima. EISA’s Presidential, Legislative, and Provincial Assembly Elections in Mozambique 5 Executive Summary At the invitation of the Ministry of Foreign obligations for democratic elections under public Affairs and Cooperation, The Carter Center and international law, including regional and interna- the Electoral Institute for Sustainable Democracy tional treaties. in Africa (EISA) partnered to deploy a team In its preliminary statement released on of 87 observers representing 40 countries to Oct. 17, The Carter Center noted that the elec- observe Mozambique’s Oct. 15, 2014, presidential, tion campaign was conducted in a generally National Assembly, and provincial elections. peaceful and tolerant atmosphere, with the excep- The EISA/Carter Center mission was conducted tion of clashes, which reportedly took three lives, using common assessment forms and an integrated among party activists in Gaza, Nampula city, and deployment that permitted broader coverage while Angoche on the final day of the campaign. The allowing both organizations to retain institutional president of the National Elections Commission autonomy. This report is the Carter Center’s (CNE) was appropriately outspoken at key final mission report on the EISA/Carter Center moments to encourage a peaceful campaign. partnered mission. On election day, the team, led On election day, observers witnessed the by former Prime Minister of Kenya Raila Odinga opening and closing of polling stations, the and co-led by EISA Executive Director Denis conduct of voting in a generally orderly and Kadima and Carter Center Vice President of peaceful environment, and the counting of Peace Programs John Stremlau, visited 543 polling ballots. During polling, CNE staff conducted their stations in 82 of 151 districts. responsibilities with professionalism. Although the polling process was conducted largely in an atmo- sphere of calm, EISA and Carter Center observers noted a number of isolated incidents during the The 2014 elections were the most competitive in counting process, including a small number of Mozambique’s history and occurred at an important violent incidents in Angoche (Nampula prov- ince), Nampula city, and Beira. While these yet challenging moment in the country’s postwar incidents were serious in nature, they were local- development. ized events and did not affect the credibility of the process as a whole or its outcome. Party agents and political party members were not consistently The observation mission was conducted in present among polling station staff. accordance with the Declaration of Principles for The 2014 elections were the most competi- International Election Observation. The Carter tive in Mozambique’s history and occurred at an Center assessed the electoral process against important yet challenging moment in the coun- Mozambique’s legal framework for elections and its try’s postwar development. The framework for the 6 established mechanisms for the resolution of any election-related complaints. Good governance in the postelection period Sonia Rodrigues has been hampered by challenges and tensions around political violence, failed demobilization, decentralization, painstakingly