Observation Mission to Ghana’s 2008 Presidential and Parliamentary Elections December 2008 – January 2009 Final Report Waging Peace. Fighting Disease. Building Hope. The Carter Center strives to relieve suffering by advancing peace and health worldwide; it seeks to prevent and resolve conflicts, enhance freedom and democracy, and protect and promote human rights worldwide. Observation Mission to Ghana’s 2008 Presidential and Parliamentary Elections December 2008 – January 2009 Final Report One Copenhill 453 Freedom Parkway Atlanta, GA 30307 (404) 420-5188 Fax (404) 420-5196 www.cartercenter.org The Carter Center The Carter Center Contents Foreword ..................................2 Conclusions and Recommendations ...........50 Executive Summary .........................4 Acknowledgments..........................53 Ghana’s Political History.....................8 Carter Center Election Observation Election Observation Methodology ............10 Delegation and Staff .......................55 Legal Framework ..........................12 Appendices Election Management .......................14 A. Terms and Abbreviations ................58 The Pre-election Period .....................16 B. Presidential Election Results and Statistics ....59 Election Day: Dec. 7, 2008, C. Carter Center Public Statements ...........60 Presidential and Parliamentary Elections .......32 D. Carter Center Deployment Plans ..........86 Developments in the Interim Period: E. Election Day Checklists ..................89 Dec. 8–27, 2008 ...........................40 F. Letter of Invitation ......................95 Election Day: Dec. 28, 2008, The Carter Center at a Glance ...............96 Presidential Runoff Election . .43 Special Voting in Tain: Jan. 2, 2009 ..........48 1 The Carter Center Foreword By John Stremlau Approximately 4,000 domestic observers were Vice President for Peace Programs, The Carter Center deployed throughout the country to conduct election- day observation and a parallel vote tabulation. Like he Jan. 7, 2008, inauguration of Ghana’s new their international counterparts, these observers were president, professor John Evans Atta Mills, unanimous in concluding that the Ghana Electoral Tmarked the second peaceful transfer of power Commission had conducted the election in a cred- from an incumbent to an opposition political party in ible manner that was peaceful, transparent, and Ghana’s electoral history. Mills defeated Nana Addo generally free of intimidation or other threats. The Dankwa Akufo-Addo by a mere 40,586 votes out of work of these observers was supported by Ghana’s 9,001,478 votes cast. This extremely close election robust media and civil society organizations, such as affirms Ghana’s democratic development, with all an interfaith national peace committee, professional parties acting in good faith in accordance with the associations, and human rights groups. The Carter constitutional provisions for the conduct of a com- Center was pleased to accept an invitation from the petitive, democratic election. Ghanaian government to conduct observation and, The recent election also shows political focus in having arrived prior to most other international Ghana is changing. Emphasis is now on issues of the observation missions, was able to engage deeply in the economy, access to education, health care, economic electoral process, providing a framework for coopera- opportunity, and corruption, rather than on divisive tion among observer groups, which served to support rhetoric appealing to ethnic loyalties or the politics and strengthen the work of Ghana’s strong, capable of personality. Basic democratic principles — which election management body. are enshrined in the Ghanaian Constitution, includ- The Carter Center commends the Ghanaian ing protection for fundamental suffrage rights and people for their dedication and support through- the entrenchment of core provisions such as an out the electoral process. As with any democracy, executive term limit and guaranteed independence Ghana faced many procedural and logistical chal- for an electoral commission subject only to judicial lenges during the 2008 election. Flagging trust in the review — prevailed. Electoral Commission, concerns over a flawed voters Broad and enthusiastic public participation in the register, and increased incidences of divisive politi- election confirmed the Ghanaian people’s commit- cal rhetoric marked the pre-election period. Many ment to representative governance. Turnout for this in the international community feared 2008 might election, which comprised two rounds on Dec. 7 evidence a backsliding of Ghana’s democratic devel- and Dec. 28, 2008, and voting in the Tain constitu- opment. However, the Ghanaian people and civil ency on Jan. 2, 2009, was higher than 70 percent, society organizations pressed all parties to adhere to and tens of thousands of Ghanaians participated the constitutionally prescribed process, discontinue in the management and monitoring of over 22,000 violent and divisive rhetoric, and resolve any elec- polling stations. The voting and counting process was toral conflicts by peaceful, lawful means, steps that efficient and transparent, and reflected a deepening helped to ensure continued democratic consolidation. national consensus and commitment to defend the This commitment continued in the immediate post- country’s constitution and the goal of democratic election period when, even with the race so tight and development. 2 The Carter Center Ghana’s 2008 Presidential and Parliamentary Elections widespread allegations of rigging by both main politi- Ghana has succeeded in creating conditions in cal parties, fears of violence or the rejection of results which political leaders are elected through consti- remained unfounded. Along with the steps taken by tutional means, and the integrity of the electoral the Electoral Commission to ensure the acceptance process is respected above the desire for power. The of results by all parties, the continuing efforts and Carter Center was proud to be a part of this success- commitment of Ghanaian individuals and organiza- ful election, which should serve to inspire emulation tions hold the great lessons for other countries under- by other emergent democracies, especially Ghana’s going transitions to representative governance. immediate neighbors, as they strive to recover from conflict and failed governance. 3 The Carter Center Executive Summary he Carter Center found that Ghana’s voters Center also deployed a 10-person observation team to participated in transparent and relatively observe the special polling day in the Tain constitu- Tpeaceful elections during the presidential ency on Jan. 2, 2009. During both rounds of polling, and parliamentary elections on Dec. 7, 2008, and election observers were deployed to all 10 of Ghana’s the presidential runoff on Dec. 28, 2008. The initial regions and visited more than 350 polling stations to round of presidential elections was contested by six observe voting and counting. Throughout its time in different parties, and as no candidate received the Ghana, The Carter Center worked in close coordi- required 50-percent-plus-one, a runoff took place nation with other international observer groups on between John Evans Atta Mills of the opposition the ground and shared its observations, findings, and National Democratic Congress and former Foreign recommendations with major stakeholders, including Minister Nana Addo Dankwa Akufo-Addo of the Electoral Commission staff, political party officials, ruling New Patriotic Party. The elections were well- civil society and domestic observer groups, and executed and illustrated the suc- media representatives. During the cessful administration and organiza- pre-election period and after each tion of the Electoral Commission round of polling, The Carter Center and the determination of the Election observers were released public statements detailing Ghanaian public to ensure con- its findings and recommendations tinued democratic consolidation. deployed to all 10 of Ghana’s for continued improvement (see The narrow margin of victory by regions and visited more appendices). the opposition and the peaceful than 350 polling stations to transfer of power from outgoing observe voting and counting. Pre-election Findings President John Kufuor to newly The pre-election period was marked elected President John Evans Atta by sporadic violence, heightened Mills marked an important moment tension, and heated rhetoric from the main politi- in Ghana’s democratic development and served as an cal parties. This increased instability was caused in example to its West African neighbors. The Carter part by the Electoral Commission’s logistical and Center commends the enthusiasm and determination administrative difficulties, as well as frequent altera- of Ghana’s people to continue democratic consolida- tions to the electoral calendar. Public confidence tion through active participation in an inclusive and in the Electoral Commission declined in the wake transparent electoral process. of a highly criticized voter registration process. Throughout the pre-election period, Carter Center The Carter Center in Ghana observers reported multiple delays in the procure- The Carter Center established a field office in Ghana ment process for the voter registration period, in May 2008 and deployed long-term observers in widespread shortage of essential materials, gaps in June 2008 and again in September 2008. Long-term voter education, and acts of intimidation