Electoral System Design: The New International IDEA Handbook Electoral System Design: The New International IDEA Handbook Andrew Reynolds Ben Reilly and Andrew Ellis With José Antonio Cheibub Karen Cox Dong Lisheng Jørgen Elklit Michael Gallagher Allen Hicken Carlos Huneeus Eugene Huskey Stina Larserud Vijay Patidar Nigel S. Roberts Richard Vengroff Jeffrey A. Weldon Handbook Series The International IDEA Handbook Series seeks to present comparative analysis, information and insights on a range of democratic institutions and processes. Handbooks are aimed primarily at policy makers, politicians, civil society actors and practitioners in the field. They are also of interest to academia, the democracy assistance community and other bodies. International IDEA publications are independent of specific national or political interests. Views expressed in this publication do not necessarily represent the views of International IDEA, its Board or its Council members. The map presented in this publication does not imply on the part of the Institute any judgement on the legal status of any territory or the endorsement of such boundaries, nor does the placement or size of any country or territory reflect the political view of the Institute. The map is created for this publication in order to add clarity to the text. © International Institute for Democracy and Electoral Assistance 2005 Applications for permission to reproduce or translate all or any part of this publication should be made to: Information Unit International IDEA SE -103 34 Stockholm Sweden International IDEA encourages dissemination of its work and will promptly respond to requests for permission to reproduce or translate its publications. Graphic design by: Magnus Alkmar Cover photos: © Pressens Bild Printed by: Trydells Tryckeri AB, Sweden ISBN: 91-85391-18-2 Foreword The Universal Declaration of Human Rights states that ‘everyone has the right to take part in the government of his country, directly or through freely chosen representatives’. The United Nations has thus been involved in the field of electoral assistance since its founding in 1945, working to establish and advance the principles of democracy and political rights. The work of the UN in elections is most often most associated with comprehensive modern peacekeeping and peace-building operations, for example, in Cambodia, El Salvador and Mozambique, and more recently in Afghanistan and Iraq. These efforts are, however, only the most visible part of UN electoral assistance activities that currently support democratic election processes in over 50 countries. The design of electoral systems is a vital component of these processes. It cannot be considered in isolation from the wider context of constitutional and institutional design, and it can be critical for areas as diverse as conflict management, gender representation and the development of political party systems. Done well, electoral system design can add to the momentum of political change, encourage popular participation, and enable the emergence of legitimate representatives who are capable of handling a wide range of needs and expectations, immediately and in the future. Done badly, it can derail progress towards democracy or even political stability. To be successful, electoral system design processes must build understanding and trust–not just among politicians and election administrators, but among civil society organizations, among commentators, and above all among the citizens of a country undergoing democratic reform. Electoral systems must be designed not only to work under current situations but also to accommodate future changes in attitudes and behaviour as electoral incentives change. They can contribute to the development of stable democracy or they can be a major stumbling block to it. I am delighted therefore to welcome the publication of this new Handbook by International IDEA. It lays out essential knowledge about electoral systems and their consequences, presenting complex ideas with accessible clarity. It addresses key issues in the process of democratic transition and reform in a practical way. It is clear, simple and global in its approach, and will be a vital tool for those involved in the development of stable democracies. It should be made widely available and be widely read by electoral practitioners worldwide. Carina Perelli Director, United Nations Electoral Assistance Division I II III Preface It is now 50 years since Maurice Duverger’s work initiated the widespread study of electoral systems and their effects. For many years, however, the impact of this study on the real political world was limited. The worlds of political scientists and of electoral framework designers did not often connect, and the scope for institutional change was itself limited in many parts of the world of the Cold War. The 1990s saw an explosion of innovation and reform in electoral systems, especially as the new democracies in Africa, Asia, Eastern Europe, Latin America and the former Soviet Union began actively reforming their political and electoral systems and looking for options and experiences from elsewhere. Responding to this need for comparative information and guidance, IDEA, as a newly established international organization specifically mandated to promote democracy and electoral assistance, drew upon these many and varied experiences to create its first published Handbook, the International IDEA Handbook of Electoral System Design, in 1997. Since then, this resource has been widely used and has received much positive feedback. It has been made available on IDEA’s web site, distributed by CD ROM, and produced in French, Spanish, Arabic and Burmese editions. Notwithstanding its continuing success, there have, in the period since the first edition was published, been many more innovations and developments in electoral system design. Several countries have changed their systems, and lessons have been learnt in the process. There is much more understanding about the relationship between electoral systems and party systems and the broader democratic institutional framework, especially in the newer democracies. There is clearer acknowledgement that electoral system change is not simply a technical matter, but a political process requiring public debate and careful consensus building. In this context, electoral system design can be a crucial tool in conflict management strategies, helping to lay firm foundations for sustainable democracy. IDEA is publishing this new edition—Electoral System Design: The New International IDEA Handbook—as part of its tenth anniversary celebrations. While staying faithful to the original edition, the new Handbook features an updated core text, fresh material on the process of electoral system reform, new case studies, and several additional sections on particular issues such as the quality of representation, the challenge of post-conflict situations, and the use of direct democracy options. There is also a revised listing of the electoral systems of the world through the maps, annexes and tables. We hope the result is an accessible and useful volume which will assist those actively engaged in the process of democracy building. We would welcome your comments, suggestions and ideas on any aspect of this Handbook. Karen Fogg Secretary-General, International IDEA II III IV V Contents Foreword.................................................................................................................................................................. I Preface ................................................................................................................................................................III Acronyms and Abbreviations.............................................................................................................................IX 1. OVERVIEW .....................................................................................................................................................1 Introduction ......................................................................................................................................................1 How to Use this Handbook ..................................................................................................................................3 What Electoral Systems Are ................................................................................................................................5 The Importance of Electoral Systems.................................................................................................................5 Electoral Systems and Party Systems ...............................................................................................6 Electoral Systems and Conflict Management ..................................................................................6 Psychological and Mechanical Effects.............................................................................................6 The Importance of Context ..................................................................................................................7 The Broader Democratic Framework ................................................................................................7 Criteria for Design..................................................................................................................................................9 Providing Representation ....................................................................................................................9