Report of the Quaker Peace Network Election Monitoring Program

Communal (“Municipal”) Elections, May 24, 2010

Executive Summary

218 observers who were trained in election monitoring and signed a code of conduct for election observers submitted reports in response to a list of 40 standardized questions. These reports cover parts of 12 provinces, but should not necessarily be considered representative of the country as a whole. The accounts presented in this report do not consider pre- or post- election day activities but instead focus on May 24, 2010. The claims made herein have not been externally verified by third parties or additional follow-up with the CEPI or other body, and should therefore be used for identifying potential problems to further investigate rather than as a comprehensive account of the truth.

The findings in this report have not been externally verified by third parties or through additional follow-up with the Independent Communal Electoral Commission (CECI) or other bodies. They should therefore be used to identify potential problems to investigate further rather than as a comprehensive account of the truth. The findings do not necessarily reflect the views of the members of QPN-Burundi, but reflect the statements of election observers participating in the program.

The observations do not provide support for claims of systematic attempts to rig the elections on election day, though they do provide prima facie claims of problems that prevented the free and fair expression of the opinions of at least some voters.

Recommendations

To the Government of Burundi and the Independent National Electoral Commission: 1. Ensure elections begin on time, and that proper voting materials are in place before hand to reduce delays making it easier to ensure that staff complete all tasks required. This means, for example, verifying not just that flashlights are present, but that they have working batteries. 2. Ensure all polling station officials have a badge or other visible symbol of their official status.

1 3. Implement a more efficient system for telling voters which polling station they should go to if they do not know, in line with Article 20 of the electoral code which states that electoral rolls are public and can be viewed by anyone. This would prevent voters from traveling from station to station trying to discover where they are registered. 4. Ensure adequate training for prevention and response to disturbances and jockeying for position in the voting queue. 5. Provide clear rules for when people are allowed to move to the front of the queue and who is responsible for ensuring that people given special access are informed of this. 6. Provide voting booths that ensure full privacy, including for those with special needs. 7. Ensure that Batwa are properly represented among the staff of polling stations. 8. Ensure that all polling stations count all envelopes, both those of the white and black boxes. 9. Include a space for signatures of independent observers on the minutes (PV). 10. Work on developing a transparent process for transmitting sealed ballot boxes to the Communal Independent Electoral Commission (CECI), then to Provincial Independent Electoral Commission (CEPI), then to CENI, including through observers monitoring this process. 11. Provide greater transparency in all aspects of the process. If additional ballots are needed, and printed, share this information beforehand to prevent the spread of rumors.

To the Political Parties 1. Work with political observers to ensure they know their responsibilities, including the need to stay until the end of the count and only sign the minutes (PV) after all votes have been counted.

Observations

Timing

According to our observers, the polls did not open on time at 45% of the polling stations, though in many cases the delay was only 30-40 minutes. The greater problem was delays observed in Gitega Province, where polling stations closed for up to 4 hours in some cases due to a lack of voting cards for Parti du Peuple (PP) and an independent candidate. Consequently, some polling stations were kept open past the original closing time of 4 p.m and, as a result, some polling stations did not complete counting ballots until late into the night or even the next morning.

This contributed to situations where not all black envelopes were counted and led some political party observers to return home before vote counting was completed. In addition, some voters were turned away without voting. While this may have been few people in most places, in Bugendana in Gitega Province, the observer reported that many people were still waiting to vote, and in Buyenzi Commune in Bujumbura Mairie, the observer reported that people were sent away from the polling station by staff at 4 p.m because they did not have their identity cards.. In at least one case, documented in Gitega Commune in Gitega Province voters frustrated with the lack of voting cards for Parti du Peuple returned home without

2 voting.

Polling station and voting materials

40 observers (18%) stated that the voting materials provided were insufficient. This includes the aforementioned lack of voting cards, the inadequacy of voting booths, and the inadequacy of alternative sources of light when the electricity went off.

Some observers found, in addition to the shortages, that the number of cards was not equal for each party, which they found surprising since it is not difficult to have the same number of cards for all parties involved.

Many felt that the voting booths (“isoloirs”) did not provide sufficient privacy for voters. Furthermore, while in most cases lamps or flashlights were available when the electricity went out, in two cases in Gitega and Makamba provinces their batteries were not charged and did not work, and in a polling station in Kayogoro in Makamba Province there were neither lamps, flashlights, nor candles to provide light.

Secrecy, safety and attempts to influence voters.

In addition to the concern that people's privacy was not protected by the voting booths, there were incidents of people trying to influence voters and the voting process. In 66 voting stations (30%), the observers reported that there was not sufficient secrecy for voters.

At the most basic level, there were many cases of isolated individuals trying to convince others in the queue to vote for one party or another, wearing clothing with symbols of a political party, or simply ostentatiously showing who they had voted for. In general, staff of the polling station stepped in to end these violations.

Such incidents also occasionally escalated into violent confrontations, for example, in Giheta Commune (between National Council for the Defense of Democracy-Forces for Defense of Democracy (CNDD-FDD) and Union for Peace and Development-Zigamibanga (UPD- Zigamibanga) supporters) and Gitega Commune (parties unknown) both in Gitega Province. Another example of attempts to intimidate people through violence occurred in Buterere in Bujumbura by supporters of the National Liberation Forces (FNL) and UPD-Zigamibanga. In Buyenzi, in Bujumbura Mairie, there were two allegations of violent confrontations, one ended by the police and the second requiring military reinforcements.

Equal access

In 53 voting stations (24%) observers reported that the staff of the polling stations did not represent all ethnic groups, with the lack of Batwa staff being the predominate issue. Representation of both men and women in each polling place, however, was almost universal. In all but 12 stations (94%), observers reported that people with disabilities were able to vote with ease and received proper assistance when required. Nonetheless, there were some incidents at various polling stations, such as where people with special needs were not informed of their right to pass to the front of the queue. In Gatara Commune in Kayanza Province, people jockeying for position within the queue pushed over a pregnant woman who

3 then lost consciousness, though she then received proper attention. Other reports suggested that some people took an inordinate amount of time to vote (for example, 40 minutes) or had difficulty with the envelopes, which suggests a lack of support and understanding of the voting process for some members of the population.

Management of the Polling Stations

In general, polling station staff appear to have done the best they could with available resources to ensure a free and fair situation for all voters, and there were only a small handful of polling stations where observers believed that the staff demonstrated a bias towards one party or another.

In polling stations in Buterere (Bujumbura Mairie), Gitega Commune (Gitega Province), and Ruyigi Commune (Ruyigi Province), polling station staff allowed certain people to pass to the front of the queue on the basis of non-relevant characteristics, such as friendships or status. In Ruyigi Commune (Ruyigi Province), an observer at one polling station felt that the director of the polling station acted arrogantly when there were disagreements, such that other staff members did not feel that their opinions were considered.

In Bugendana Commune (Gitega Province), an observer claimed that, as voting cards were being passed out, those of CNDD-FDD were systematically always placed on the top of the pile. In Ruhororo Commune (Ngozi Province), the president of a polling station allegedly left the station to speak to friends and listen to the radio. In at least four other stations, observers reported that members of the polling station left causing delays in the voting process.

In Mutaho and Bugendana Communes (Gitega Province), persons were allegedly observed bringing voting cards into the polling station before being given voting cards. Another observer reported in Gitega Commune (Gitega Province) that more than one political observer from the same party was at the polling station and that they were attempting to influence the proceedings in a partisan manner.

Counting votes

There was essentially universal compliance with the basic standards of procedure, such as showing that the ballot boxes were empty before beginning, that votes were accurately read aloud as they were counted, and voters were required to present the identification required by law before voting. However, there were a few reports of irregularities at selected polling stations. In 17 polling stations (7%) there were “abstentions” (where either no ballots or more than one were placed in the white envelope), which does not necessarily suggest fraud, but does suggest need for greater understanding of the process.

Of greater concern is that in 16 polling stations (7%) not all the black envelopes were counted, including in polling stations in Gitega Province and Bujumbura Mairie. Given that some areas there were reports of irregularities involving people bringing in voting cards, or placing multiple cards in the white envelope, the counting of black envelopes is an important process. In Bugendana (Gitega Province), a polling station allegedly allowed white envelopes containing 2 voting cards for CNDD-FDD to be counted, which should instead be

4 marked as an abstention. In Mutaho Commune (Gitega Province), an observer reported that a member of the polling station staff went home with ballot boxes before returning with them the following day.

Recording the Minutes (PV)

Many observers noted that there was not a place for (non-political) observers to sign the minutes, which they felt was inconsistent with the role that members of civil society can play. Others noted that political observers did not sign the minutes, or signed them and left before the full counting of black envelopes was completed. One observer in Bujumbura Mairie noted that they did not provide copies of the minutes to the political observers, as is written in the Electoral Code, Article 42.

About QPN

The Quaker Peace Network is coordinated by a monthly meeting of representatives of 11 member organizations, including representatives from CAPI (Change Agents for Peace International), HROC (Healing and Rebuilding Our Communities, MIPAREC (Ministère Paix et Réconciliation sous la Croix), MCC (Mennonite Central Commitee), AFSC (American Friends Service Committee), FWA (Friends Woman's Association), AGLI (African Great Lakes Initiative), CPK (Comité de Paix de Kibimba), THARS (Trauma Healing and Reconciliation Services), École de la paix de Magarama, et PAV-Burundi (Projet d'Alternatives à la Violence au Burundi).

QPN Burundi aims to contribute to transparent, free and fair elections in Burundi. The Coordinator of QPN Central Africa is Mr. Adrien Niyongabo [email protected].

Annex – List of Polling Stations Observed

(Note: There were more than one observer at some polling stations, but duplicates were removed from this list.)

Province Commune Zone Quarter Vote Office Bubanza Bubanza Bubanza Shari E.P. Bubanza 1 Bubanza Bubanza Bubanza Shari Lycee communal Bujumbura Mairie Buterere Buterere Buterere I Centre de Sante Secabu BV. 2 Bujumbura Mairie Buterere Buterere Buterere IIA E.P. Buterere, BV 1 Bujumbura Mairie Buterere Buterere Buterere IIA Mubuterere Ajecker II Bujumbura Mairie Buterere Buterere Buterere IIA E.P. Buterere II, BV 2 Bujumbura Mairie Buterere Buterere Buterere IIB Ajeca BV 1 Bujumbura Mairie Buterere Buterere Kabusa II E.P. Kabusa Bujumbura Mairie Buterere Buterere Kabusa II Ecole Maternaire I Bujumbura Mairie Buyenzi Buyenzi II & III Lycee Urbain de Buyenzi Bujumbura Mairie Bwiza Bwiza Quartier II Bwiza Centre Bon Aceueil Bujumbura Mairie Cibitoke Cibitoke Cibitoke Lycee Municipal Cibitoke 9e Ave Bujumbura Mairie Cibitoke Cibitoke Cibitoke Lycee Municipale Cibitoke, BV 1 Bujumbura Mairie Gihosha Gihosha Gasenyi Lycee Municipal Gasenyi Bujumbura Mairie Gihosha Gihosha Gihosha Lycee Municipal Gihosha BV 2

5 Bujumbura Mairie Gihosha Gihosha Gihosha E.P. Gihosha 1 BV 1 Bujumbura Mairie Gihosha Gihosha Gihosha Lycee Municipal Gihosha 1 BV 3 Bujumbura Mairie Gihosha Gihosha Gihosha Lycee Saint Esprit Bujumbura Mairie Gihosha Gihosha Gihosha E.P. Gihosha BV 2 Bujumbura Mairie Gihosha Gihosha Gihosha Lycee Saint Esprit Bujumbura Mairie Gihosha Gihosha Gihosha E.P. Gihosha BV 2 Bujumbura Mairie Gihosha Gihosha Muyaga E.P. Gihosha Bujumbura Mairie Kamenge Kamenge Cibizi R. Mika Bujumbura Mairie Kamenge Kamenge Gikizi L.M.K. Nyabagere 2 BV 2 Bujumbura Mairie Kamenge Kamenge Gikizi L.M.K. No 16 Bujumbura Mairie Kamenge Kamenge Kamenge 10 Centre Jeune Cibitoke Bujumbura Mairie Kamenge Kamenge Kavumu Ecole St Christophe Bujumbura Mairie Kamenge Kamenge Mirango I No. 3 Bujumbura Mairie Kamenge Kamenge Mirango II No. 19 Bujumbura Mairie Kamenge Kamenge Songa E.P. Nyabagera Bujumbura Mairie Kamenge Kamenge Songa E.P. Nyabagera Bujumbura Mairie Kanyosha Kanyosha Gisyo No. 2; E.P. Kanyosha I Bujumbura Mairie Kanyosha Kanyosha Gisyo E.P. Kanyosha I, BV 3 Bujumbura Mairie Kanyosha Kanyosha Musama E.P. Kanyosha II, BV 3 Bujumbura Mairie Kanyosha Kanyosha Musama C.S.K Primaire, BV 2 Bujumbura Mairie Kinama Kinama Muramvya Ave Marie Bujumbura Mairie Kinama Kinama Ngozi BV 1 Bujumbura Mairie Kinindo Kinindo Kibenga BV 2 Bujumbura Mairie Kinindo Kinindo Zeimet Ecole les Mignons, BV 2 Bujumbura Mairie Musaga Musaga Kamesa I Centre Wallis Bujumbura Mairie Musaga Musaga Kamesa I Centre Wallis, BV 1 Bujumbura Mairie Nyakabiga Nyakabinga Nyakabiga II E.P.A. Nyakabiga, BV 3 Bujumbura Mairie Nyakabiga Nyakabinga Nyakabiga II E.P.A. Nyakabiga Bujumbura Mairie Nyakabiga Nyakabinga Nyakabinga II BV 1 Bujumbura Mairie Nyakagiba Nyakabinga Nyakabinga III Facagro BV 3 Bujumbura Mairie Rohero Rohero Rohero Athenee Primaire, BV 2 Bujumbura Mairie Rohero Rohero Rohero Athenee Primaire, BV 2 Bujumbura Mairie Rohero Rohero Rohero II E.P. Notre Dame d'Afrique, BV 2 Bururi Rumonge Romonge Mugomere BV 3 Bururi Rumonge Rumonge Birimba College communal Birmba BV 4 Bururi Rumonge Rumonge Kanyenkoko BV 1 Gitega Bugendana Bugendana Mugitega College communal Mugitega Gitega Bugendana Bugendana Mugitega E.P. Mugitega Gitega Bugendana Bugendana Mugitega College communal Mugitega Gitega Bugendana Bugendana Mukoro Mukoro Gitega Bugendana Bugendana Mukoro Lycee Bugendana Gitega Bugendana Mwurire Mwurire Mwuire Gitega Bugendane Bitare Gitongo E.P. Gitongo Gitega Bukirasazi Bukirasazi Kibuye E.P Kibuye 1 Gitega Bukirasazi Bukirasazi Tema College communal Tema BV 2 Gitega Giheta Giheta Muremera E.P. Muremea Gitega Giheta Kabamga Murayi E.P. Murayi Gitega Giheta Kabamga Rweru E.P. Rweru 1 Gitega Giheta Kabanga Kibimba E.P. Kibimba Gitega Giheta Kabanga Kibimba Kibimba 2 Gitega Gitega Birhe Mess Officier 3eme Bataillon Commando Gitega Gitega Gitega Magarama E.P. Magarma 1 BV 3

6 Gitega Gitega Gitega Nyabututsi Lycee Saint Therese 1, 2 & 3 Gitega Gitega Gitega Shatanya CDF 2 Gitega Gitega Gitega Yoba E.P. Pentecote 2 Gitega Gitega Kabamga Kibimba Kibimba Gitega Gitega Mubuga Kimamama BV No 3 Gitega Gitega Mumgwa Butamuheba E.P. Butamuheba Gitega Gitega Mungwa Butamuheba Consellers Communaux Gitega Gitega Nyamugari Magarama BV 1 Gitega Gitega Nyamugari Magarama College de la Paix BV 2 Gitega Gitega Nyamugari Magarama Ecole de la Paix BV 1 Gitega Gitega Nyamugari Magarama E.P. Magarama BV 2 Gitega Gitega Nyamugari Magarama BV 1 Gitega Gitega Rural Bwoga BV 1 Gitega Gitega Rural Rugari-Gitano Ceru; E.P. 1; E.P. 2; coco 1, coco2 Gitega Gitega Rural Rukoba E.P. Kwibuka BV 2 Gitega Gitega Rural Rukoba L.P. Kuibuka BV 1 Gitega Gitega Rural Rukoba Lycee Pedagogique, Kwibuka BV 2 Gitega Gitega Rural Rukoba E.P. Kwibuka Gitega Gitega Rutegama Rukoba Lycee Pedagogique, Kwibuka BV 1 Gitega Gitega Urban Magarama E.P. Magarama de la Paix Gitega Gitega Urban Musinzira Lycee Urban BV 2 Gitega Gitega Urban Musinzira BV No 1 Gitega Gitega Urban Musinzira Lycee Urban Gitega Gitega Urban Nusinzina BV No 1 Gitega Gitega Urban Nuvamugar BV No 2 Gitega Gitega Urban Nyabiharage E.P. Saint Luc de Nyabiharago Gitega Gitega Urban Nyabututsi Lycee St. Therese Gitega Gitega Urban Nyamugari BV No 2 Gitega Gitega Urban Nyamugari BV No.1 Gitega Gitega Urban Nyamugari E.P. Mucunguzi Gitega Gitega Urban Nyamugari E.P. Mucunguzi BV 2 Gitega Gitega Urban Nyarnugari Ishure Ryisumbuye Rya Cornibu BV 2 Gitega Gitega Urban Rango LND Sapene Gitega Gitega Urban Rango College Urban Gitega Gitega Urban Rango Urban 2 Gitega Gitega Urban Rungo CND Lycee Notre Dame - Sayesse Gitega Gitega Urban Shatanya CDF Gitega Gitega Urban Shatanya Centre des Jeunes Gitega Gitega Urban Shatanya CDF Gitega 1 Gitega Gitega Urban Yoba Yoba BV 1 Gitega Gitega Urban Yoba Yoba BV 2 Gitega Mutaho Mutaho Mutaho College Communal Mutaho Gitega Mutaho Mutaho Mutaho Mutaho 3 Gitega Mutaho Mutaho Mutaho E.P. Mutaho 2 BV 2 Gitega Mutaho Rwisabi Bigera E.P. Mutaho 1 BV 3 Gitega Mutaho Rwisabi Gatabataba E.P. Gatabataba BV 3 Gitega Mutaho Rwisabi Kinyinya Lycee St. Vincent De Paul 1 Gitega Mutaho Rwisabi Nyangungu Ecole de l'espour BV 2 Gitega Mutaho Rwisabi Nyangungu BV No 2 Gitega Mutaho Rwisabi Rurengera Usine Rurengera Karusi Buhiga Buhiga Buhiga E.P. Buhiga 2 BV 1 Karusi Buhiga Buhiga Gurinyama Lycee Buhiga

7 Karusi Buhuga Buhinyuza Kajeri C.D. Kajeri 1 Kayanza Gatara Gatara Muhingira Lycee Gatara Kayanza Gatara Gatara Muhingira Lycee Gatara Kayanza Gatara Ngoro Gisyo E.P. Gisyo Kayanza Kayanza Kayanza Kirema BV No. 1 Makamba Kayeroho Kayeroho Pootare E.P.L.A. Balteoue BV 2 Makamba Kayogoro Kayogoro Kabizi Kabizi BV 1 & 2 Makamba Kayogoro Kayogoro Kayogoro Lycee Comm Kayogoho 2 Makamba Kayogoro Kayogoro Kibimba E.P. Mukari Makamba Makamba Kabuye Nyabigina Lycee de Makamba BV 2 Makamba Makamba Makamba Makamba St. Pierre Claver de Makamba Makamba Makamba Makamba Makamba 1 Makamba 1 ITE BV 2 Makamba Makamba Nyange Rurenba E.P. Nyange 1: BV 2 Makamba Nyanza-Lac Muyange Mukubano BV 4 Makamba Nyanza-Lac Nyanza-Lac Bukeye-Bukeye 2 Bukeye Burau 3 Makamba Nyanza-Lac Nyanza-Lac Kabondo Nyanza-Lac 1 Muramuvya Mbuye Buhangura Rugari E.P. Rugari Muramuvya Mbuye Gasura Murehe Murehe BV 2 Muramuvya Mbuye Gasura Murehe BV 1 Muramuvya Rutegama Mushikamo Bupfunda BV 2 Muramuvya Rutegama Rutegama Camumandu Mumero BV 3 Muramuvya Rutegama Rutegama Camumandu BV 3 Muramuvya Rutegama Rutegama Munanira BV 2 Muramuvya Rutegama Rutegama Myarurambi BV 2 Muramuvya Rutegama Rutegama Nyarunazi 2 E.P. Kabuguzo Muramuvya Rutegama Rutegama Rutegama BV 1 Muramvya Rutegama Rutegama Nunonera 1 Kerehe Mwaro Kayokwe Muyebe Kibenga-Migende BV 1 Mwaro Nyabihanga Kibungere Gisitye BV 2 Mwaro Nyabihanga Kibungere Iteka BV 2 Mwaro Nyabihanga Kibungere Iteka E.P. Kirambi Mwaro Nyabihanga Muyange Muhaganya E.P. Mbogora BV 2, 3 Mwaro Nyabihanga Nyabihanga Miterama BV No 3 Lycee Comm Nyabihanga Mwaro Nyabihanga Nyabihanga Taba E.P. Taba Mwaro Rusaka Makamba Rwintare Rwintare Ngozi Mwumba Gatsinda Buhanda BV 6 Ngozi Ngozi Ngozi Shikiro Ecole Coranique Ngozi Ruhororo Mubanga Mubanga Ryirengeye L.P.C. Rubanga, BV 1 Ngozi Ruhororo Mubanga Mubanga Site L.P.C. Rubanga, BV 2 Ngozi Ruhororo Mubanga Mubanga Site Nyinya 2 Ngozi Ruhororo Mubanga Mubanga Site Taba I BV 2 Ngozi Ruhororo Mubanga Nyakibingo Nyakibingo BV 3 Ngozi Ruhororo Ruhororo Bucamihi College Communal Ruhororo Ngozi Ruhororo Ruhororo Cagura BV 2 Ngozi Ruhororo Ruhororo Gitamo Kagoma E.P. Gitamo BV 4 Ngozi Ruhororo Ruhororo Gitaramuka E.P. Rusunwe BV 2 Ngozi Ruhororo Ruhororo Kabuye E.P. Nukuni Ngozi Ruhororo Ruhororo Kinyami E.P. Kinyami Ngozi Ruhororo Ruhororo Mutobo Sante de Jene Mutobo Ngozi Ruhororo Ruhororo Rwamiko Nyamugari A Rutana Giharo Butezi Butezi Butezi I, BV 2 Rutana Giharo Butezi Kabingo E.P. Kabingo

8 Rutana Giharo Butezi Kabingo E.P. Kabingo I Rutana Giharo Muzye Muzye Lycee Comm Mazye 2, BV 1 Rutana Rutana Gitaba Gitaba Gitaba BV 2 Rutana Rutana Gitaba Mika Gitaba BV 1 Rutana Rutana Gitaba Mika Nyenzuki No. 2 E.P. Mika BV 2 Rutana Rutana Rutana Gifunzo Gifunzo Rutana Rutana Rutana Gufunzo Lycee Communal de Gifunzo I Rutana Rutana Rutana Kayove Rugara I Rutana Rutana Rutana Kayove Rugari II Rutana Rutana Rutana Mika E.P. Mika BV 1 Rutana Rutana Rutana Nyarubere – Stade Nyarubere – Stade Rutana Rutana Rutana Rutana E.P. Rutana BV 2 Rutana Rutana Rutana Rutana Rutana I Rutana Rutana Rutana Rutana E.P. Rutana I BV 1 Ruyigi Butezi Butezi Nkingwe Nkingwe Ruyigi Butezi Butezi Wa Sorero E.P. Mageyo 1 Ruyigi Butezi Bwagiriza Bwagiriza BV 1 Ruyigi Butezi Bwagiriza Gashurushuru-Nyamugri Gashurushuru-Nyamugri Ruyigi Ruyigi Rusengo Buruhukiro E.P. Kirambi 2 Ruyigi Ruyigi Ruyigi Gasanda BV 1&2 Ruyigi Ruyigi Ruyigi Rukaragata BV 1 Ruyigi Ruyigi Ruyigi Sanzu Sanzu 1 Ruyigi Ruyigi Ruyigi Sanzu BV 2 Yakarusi Shombo Nyarurambi Kuyange Agacimbiri Mayiro 2

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