Date Printed: 11/03/2008 .ITS Box Number: lFES 9 Tab Number: 26 Document Title: Technical Assessment of the Philippines Electoral System Document Date: 1995 Document Country: Philippines lFES ID: R01808 I I I I I I I I I N A l 0 F \ 0 U '\ ~ I ~ 'V ~ () «;- -r I .>. f... '" I --- ~ 0 I - z DO NOT REMOVE,FROM IFES RESOURCE CENTER! II I/:/ES International Foundation for Election Systems ~ 110115th STREIT, N.W.· THIRD flOOR· WASHINGlON, D.C. 20005 • (202) 828-8507 • FAX (202) 452.0804 II II TECHNICAL ASSESSMENT II OF THE PHILIPPINES ELECTORAL SYSTEM II JULY-AUGUST 1995 II II II II II II II Ii BOARD OF DIRECTORS Barbara Boggs Peter Kelly William R. Sweeney, Jr. Directors Emeriti Charles T. Manatt Patricia Hutar Dame Eugenia Charles Maureen A. Kindel Leon J. Well James M. Cannon Chairman Secretary {Dominica} Jean-Pierre Kingsley Randall C. Teague Richard M. Scammon David A. Jones Joseph Napolitan Judy G. Fernald (Canada) Counsel Vice Chairman Treasurer Victor Kamber Peter McPherson Richard W. $oudrlette President Ii II II II TECHNICAL ASSESSMENT II OF THE II PHILIPPINES ELECTORAL SYSTEM JULY - AUGUST 1995 II II II II II II IFES Assessment Team Gilbert H. Sheinbaum II Emmett Fremaux, Jr. Deborah A. Seiler II Contents o/the report reflect the views o/the authors and not necessarily USAlD, the U.S. Goverllmellt or Come/ec. I I Table of Contents I. Executive Summary II 2. Background on the Philippines Ii A. Geography and Population B. Historical Overview II C. Current Political Context 3. Legal Basis, Structure, and Operation of the Electoral System II A. Electoral LegislationlRegulations B. Commission on Elections (Comelec) C. Elective Office Structure and Election Parameters II D. Voter Registration Process E. Voting, Ballot Counting, and Canvassing Procedures F. Role of Non-Governmental Organizations II G. Electoral Manipulation Issues II 4. Overview of Planned Electoral System Modernization A. Progress in Reform of the Electoral Law II B. Establishing Computer-based Voter Registration and Vote Counting Systems C. Strengthening Electoral and Institutional Capabilities D. The March 1996 ARMM Pilot Election II E. Issues of Timing in Implementing Modernization Plans II 5. Technical Discussion: Computerization of Voter Registration 6. Technical Discussion: Computerization of Vote Counting and Canvass Functions II 7. General Evaluation and Recommendations 8. Appendices 1\ A. Maps of the Philippines B. Persons Interviewed II C. Integrity of the Voting Process D. Comelec Documents .~ E. The Ten Commandments for Responsible Voting II F. Photos from the Team's Visit I! Ii II I II IFES Phillipines Technical Assessment September II, 1995 II Page 1 1. Executive Summary II In his July 24,1995. State of the Union address, Philippine President Fidel V. Ramos said that one of his administration's "most urgent measures" is to "Clean up the electoral system." II With nearly a century of elections in the Philippines as a backdrop, elections were held throughout the Philippines on May 8,1995, for half the Senate, the entire House of Representatives and all local II offices. Many Filipinos had hoped that a modernized electoral system would be in place by the time of those elections, but an omnibus bill to improve the system did not get past the discussion stage in the session of the Philippine Congress that ended in June 1995. Following the May elections, the II Commission on Elections (Comelec) submitted several new bills to the Congress to modernize the electoral system. At the same time, the Comelec went ahead with arrangements for the March 1996 election for the Autonomous Region of Muslim Mindanao (four of the country's 77 provinces), for II which the Congress had previously authorized computerization of the registration and counting procedures. II Feeling the need for technical assistance, there was agreement between the Comelec and the USAID Mission in Manila to invite the International Foundation for Election Systems (IFES) to provide three experts who would help guide the Comelec in modernizing the electoral system and voting II equipment. IFES thereupon put together a proposal for (a) sharing its extensive electoral experience with the Comelec, and (b) providing assistance to the Comelec on voter education, voter registration, II design of the ballot, and the voting, counting and canvass procedures. An IFES technical assessment team conducted extensive research and interviews July 3 I-August 17, II 1995, meeting with key officials from the Comelec, the U.S. Embassy and USAID, the Philippine Congress, the Office of the President, principal non-govemmental organizations, the media, Catholic and Muslim religious leaders, former election officials, incumbent officeholders and recently II defeated candidates. The IFES team found that all individuals were very cooperative and eager to participate in the assessment. These contacts are listed in Appendix B. II Although the IFES team was present in the Philippines for only two weeks, one member, Gilbert H. Sheinbaum, had earlier resided in the country for four years and has closely followed Philippine affairs for over 16 years. His primary role was to ensure that the political, economic, social and II cultural climate of the Philippines has been and will continue to be fully considered in drawing up this report to the Comelec and, as appropriate, providing ongoing as'sistance. The other two team members, Deborah Seiler and Emmett Fremaux, are experienced election administrators from the II United States who provided the technical expertise in election systems for the assessment. In this report and in its discussion with Philippine officials, IFES does not pretend to propose an I ideal electoral system for the Philippines. Nor does IFES promote the sale of any specific electoral I II I Ii products. It does, on the other hand, offer a number of observations and options for consideration as the Congress and the Comelec move forward to improve the system. II The IFES team's conclusions generally paralleled the Comelec's views on the best ways to modernize the system. At the same time, the team introduced a variety of technical considerations for the II implementation of the modernization scheme. In its recommendations, the team strongly urged (I) swift action by the Philippine Congress on the bills before it because much must be accomplished prior to the next national elections in May 1998; (2) greater emphasis on voter education: (3) II complete computerized re-registration of all voters; (4) introduction of pre-printed (rather than hand­ written) ballots; (5) automated counting and canvass procedures (another bill before the Congress); (6) careful attention to protecting the integrity of the entire electoral system; (7) additional II comprehensive training of Comelec staff, especially in the provinces; (8) a cautious, selective approach to the purchase of hardware; and (9) utilization of additional technical assistance. In reaction to the IFES team's preliminary report, the Comelec appeared to accept all ·points and II expressed both its appreciation for the team's guidance and its intention to request additional technical assistance. II II II II Ii II .j' I II IFES Phillipines Technical Assessment September 11. 1995 II Page 3 II 2. Background on the Philippines A. Geography and Population II An archipelago of over 7,000 islands, the Philippines extends about 1,000 miles from north to south. It lies between the South China Sea on the west and the Philippine Sea and Pacific Ocean on the east, II while the Celebes Sea lies to the south, separating the southern Philippines from the eastern end of the Indonesian archipelago. Total land area is over 115,000 square miles, of which the two largest islands in the archipelago, Luzon and Mindanao, make up 65 percent. Most of the islands have II substantial mountainous topography, but there are also narrow coastal plains are agriculturally rich, as are inland valleys and plains. II Latest estimates indicate that the population numbers about 66 million: 45 percent live on Luzon, 35 percent on the central Philippine group of islands called the Visayas, and most of the rest on Mindanao. The population growth rate is estimated to be 1.97 percent, as of 1993, as published in II World Factbook 1993. About 91 percent of the population is of Malay-Polynesian stock. Muslim Filipinos represent about five percent and are the majority in two provinces in Mindanao and the two provinces of the Sulu archipelago southwest of Mindanao. Chinese Filipinos represent about 1.5% II and are located in the major urban areas. About 90 percent of Filipino adults are literate. Because of great emphasis placed on education since II the beginning of the American era, scores of colleges and universities can be found throughout the II country. The two most prominent -- but not closely related -- dialects are Tagalog (most of Luzon) and Visayan (which dominates the Central Philippines and Mindanao). Pilipino and English are the II official languages. The former is relatively new and is based mostly on Tagalog in an attempt to instill a pan-Philippine language for lill Filipinos; however, but it is generally resisted by speakers II of Vi sayan and other minor Filipino dialects. B. Historical Overview II As the world knows, Ferdinand Magellan visited the Philippines (in the Visayas) in 1521 and claimed all of what is now the Philippines (named after King Phili~) for Spain. It was a land of diverse communities with little relationship to one another. In the Central Visayas, Cebu (which II claims to be older than Manila and is now the country's second most populous city) was a populated area where Magellan spent most of his short and fatal visit. The remnants of Magellan's fleet left II after his death near Cebu, and the Spanish did not establish a permanent settlement until 1565 when Miguel Lopez de Legazpi arrived as the first royal governor.