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Office for Democratic Institutions and Human Rights REPUBLIC OF AUSTRIA PRESIDENTIAL ELECTION REPEAT SECOND ROUND 4 December 2016 OSCE/ODIHR Election Expert Team Final Report Warsaw 17 March 2017 TABLE OF CONTENTS I. EXECUTIVE SUMMARY ................................................................................................................... 1 II. INTRODUCTION AND ACKNOWLEDGEMENTS ....................................................................... 2 III. BACKGROUND .................................................................................................................................... 2 IV. POSTAL VOTING AND ELECTION DAY PROCEDURES .......................................................... 3 A. LEGAL FRAMEWORK ............................................................................................................................ 3 B. ELECTION ADMINISTRATION ................................................................................................................ 4 C. POSTAL VOTING ................................................................................................................................... 5 D. ELECTION DAY PROCEDURES ............................................................................................................... 7 V. RECOMMENDATIONS ...................................................................................................................... 9 ANNEX: FINAL RESULTS ......................................................................................................................... 10 ABOUT THE OSCE/ODIHR ....................................................................................................................... 12 Page: 11 REPUBLIC OF AUSTRIA PRESIDENTIAL ELECTION REPEAT SECOND ROUND 4 December 2016 OSCE/ODIHR Election Expert Team Final Report1 I. EXECUTIVE SUMMARY Following an invitation from the Austrian Federal Ministry for Europe, Integration, and Foreign Affairs and based on the recommendation of a Needs Assessment Mission, the OSCE Office for Democratic Institutions and Human Rights (OSCE/ODIHR) deployed an Election Expert Team (EET) to observe the repeat second round of the presidential election held on 4 December 2016, with a special focus on the legal framework for postal voting and election day procedures. The repeat second round of the election was administered in an efficient and professional manner. The election took place against the backdrop of the annulment of the 22 May second round election results by the Constitutional Court primarily over procedural irregularities in administering the counting of postal votes. Subsequently, the repeat second round initially scheduled for 2 October was postponed due to the poor quality of glue used for the postal voting envelopes. These developments may have detracted from an otherwise high public confidence in the efficiency of the election administration. The legal framework provides a sound basis for the conduct of democratic elections and was essentially unchanged for all rounds of the election. However, in a move broadly supported by parliamentary parties, the Constitution was amended to allow those voters included in the voter lists after the first round of the election to take part in the vote. In total, some 6.4 million citizens were registered to vote on 4 December, including 56,539 citizens residing abroad. No concerns were expressed regarding the overall accuracy and inclusivity of the voter lists. The Federal Election Board supervises the work of a five-tiered election administration that mirrors the governance structure. The Federal Ministry of Interior (MoI), which takes the lead on technical preparations, issued comprehensive guidelines for election boards that specifically addressed irregularities identified by the Constitutional Court and focused on clarifying election day and postal voting procedures. Other measures included the introduction of cascade training of members of election boards, online e-learning courses and a call-centre to respond to queries. These measures were considered comprehensive and useful by election boards and parties met with by the OSCE/ODIHR EET. In line with the OSCE/ODIHR’s methodology, the OSCE/ODIHR EET did not undertake a comprehensive and systematic observation of election day procedures. However, the EET members visited a number of polling stations and intermediate election boards in Styria and Tyrol around election day. Overall, the election boards visited were well prepared and organised the electoral process, including the counting of postal votes, efficiently, transparently, and collegially. The result of the election was announced on 15 December, with the voter turnout reported at 74.21 per cent. A total of 651,726 voters (13.72 per cent of participating voters) cast a postal ballot of which a relatively high proportion (5.25 per cent) were deemed invalid, largely due to the absence of voters’ signature confirming that the vote had been made personally and in secret. 1 The English version of this report is the only official document. An unofficial translation is available in German. Republic of Austria Page: 2 Presidential Election, Repeat Second Round, 4 December 2016 OSCE/ODIHR Election Expert Team Final Report On 7 December, the parliament promulgated legislation to create a unified centralized voter register, as previously recommended by the OSCE/ODIHR, that will come into effect on 1 January 2018. Further electoral reform efforts are widely expected to commence soon after the election. The OSCE/ODIHR stands ready to assist this process, including the follow-up of recommendations included in this and previous OSCE/ODIHR reports. II. INTRODUCTION AND ACKNOWLEDGEMENTS Following an invitation from the Austrian Federal Ministry for Europe, Integration, and Foreign Affairs (MFA) to observe the repeat second round of the presidential election and based on the recommendation of a Needs Assessment Mission conducted from 25 to 26 August, the OSCE Office for Democratic Institutions and Human Rights (OSCE/ODIHR) deployed an Election Expert Team (EET) from 28 November to 9 December. The OSCE/ODIHR EET consisted of four experts from four OSCE participating States. The EET was based in Vienna and also made visits to the provinces of Styria and Tyrol. The OSCE/ODIHR EET assessed the legal framework in respect of postal voting and election day procedures. This report is therefore limited in scope and does not offer an overall assessment of the electoral process. The specific area under review was assessed for its compliance with OSCE commitments, other international obligations and standards for democratic elections, and with national legislation. In line with the OSCE/ODIHR’s methodology, the EET did not observe election day proceedings in a systematic or comprehensive manner, but visited a limited number of polling stations. This report should be read in conjunction with the 2016 OSCE/ODIHR NAM reports, which provide additional details on the broader electoral process in Austria.2 The OSCE/ODIHR EET wishes to thank the MFA and Federal Ministry of Interior (MoI) for their co- operation and assistance, as well as to express gratitude to representatives of other public institutions, political parties, media, civil society, and other interlocutors for sharing their views. III. BACKGROUND Austria is a federal republic consisting of nine provinces. The federal president is head of state and directly elected for a six-year term, with a limit of two consecutive terms. If no candidate obtains a majority of valid votes in the first round, a second round is held between the two candidates who received the largest number of votes. The president formally holds significant powers; she/he appoints the federal chancellor and ministers, is commander-in-chief of the armed forces and may dissolve parliament. In practice, however, the president is often expected to follow the recommendations of the government, to act in a consultative manner, and provide moral leadership to the country. In the first round held on 24 April, six candidates contested the election. Mr. Norbert Hofer of the Freedom Party of Austria (FPÖ) received 35.05 per cent of the valid votes, with Mr. Alexander Van der Bellen, a member of the Green Party contesting as an independent, followed in second place with 21.34 per cent. A second round was held on 22 May between Mr. Hofer and Mr. Van der Bellen. According to the final results published on 1 June, Mr. Van der Bellen received 50.35 per cent of votes, and Mr. Hofer 49.65 per cent, with a difference of 30,863 votes. On 8 June, Mr. Hofer’s representative challenged the election results at the Constitutional Court (Court), claiming that provisions regarding postal voting were unconstitutional and that the election 2 See all previous OSCE/ODIHR reports on Austria. Republic of Austria Page: 3 Presidential Election, Repeat Second Round, 4 December 2016 OSCE/ODIHR Election Expert Team Final Report results had been affected by irregularities in administering certain aspects of the election. The complaint, in particular, noted non-adherence to general procedures for the receipt, storage, and counting of postal votes, as well as the transmission of partial election results by the Federal Election Board (FEB) to media before voting had concluded throughout the whole country. During its hearings on the complaint, the Court found a variety of procedural infringements in the counting of voting cards used for postal voting, including: premature