Building Better Elections Results of the European Electoral Management Survey Toby S. James, Holly Ann Garnett, Leontine Loeber & Carolien van Ham April 2020 1 Building Better Elections: Electoral Management in Europe Building Better Elections There is considerable variation in the quality of the delivery of elections around the world. One factor that contributes towards this is the design of the electoral management body/bodies (EMBs) that are responsible for delivering elections. This policy brief presents pioneering data on variations in the institutional design of EMBs in Europe. It also highlights new research findings about ‘what works’ in improving electoral integrity. There is considerable variation in practice across Europe, and worldwide. Eight policy interventions to improve electoral integrity are proposed, which includes greater EMB independence, resourcing, training and management of workplace conditions. Introduction It is often said by policy-makers and academics that EMBs that are independent should be used to deliver While many elections across the world are conducted elections. However, there is remarkably little data to very high standards, there remains evidence of about how elections are managed across countries. In problems with the delivery of elections in both turn, there has been very little analysis of 'what works' transitional and established democracies. These when it comes to Improving electoral management. In problems are important as they can lead to citizens this policy we summarise new data on how elections losing their right to cast a ballot, have their confidence are run in Europe. We also point to new research in democratic institutions undermined or even lead to findings about how electoral integrity can be improved wider conflict and political instability. that was generated with this research by combining it with data sources. There are always multiple causes of problems and many solutions. One major factor, however, is the For more on the survey, see the Introduction to the Special Issue “Building Better Elections,” In the actual design of the electoral management International Political Science Review. Guest Edited body/bodies who deliver the elections. Are they by: Toby S James, Holly Ann Garnett, Leontine Loeber independent from government? Do they have and Carolien van Ham. Visit sufficient capacity? What technology are they using? https://doi.org/10.1177/0192512119828206 Are their staff well trained and independent? 2 Building Better Elections: Electoral Management in Europe Methodology Key Findings To understand the organizational determinants of Independence electoral management body performance and electoral integrity outcomes, pioneering data on variation in the EMBs were asked about their institutional design, as it institutional design of EMBs worldwide was collected. relates to how they function in relationship to other The European Electoral Management Survey (EMS) branches of government, and where they fit within the was conducted between July 2016 and October 2017 government bureaucracy. Traditionally, systems of by Toby S. James, Holly Ann Garnett, Leontine Loeber electoral management have been classified according and Carolien van Ham, and administered with the to three categories: independent, governmental or support of the Venice Commission. mixed. The independent model, also sometimes Figure 1: Participating European Countries referred to as the agency model, sees EMBs as arms- (Structural Survey) length from the executive branch of government. Governmental models, on the other hand, are often election administrators that work from within a government department or ministry. The mixed model refers to countries where both exist, and each have specific functions or oversight over elections in the country. In the European Electoral Management Survey, organizations were asked how they saw themselves: as independent, governmental or other. Of those countries that responded, the majority (17) identified themselves as independent bodies (65%), while 9 EMBs (35%) categorized themselves as within a government department. Figure 2: Formal Independence: Is your organization... The project both included a structural survey and a personnel survey and included a series of common questions in each survey. The structural survey was Within completed by one senior official from each EMB. This government survey collected data on the organisational design of department 35% the EMB, their tasks and responsibilities, the decision- making process, budgets, staff and training. Independent 65% Where appropriate, multiple EMBs were contacted in each country. In many countries, multiple organizations are involved in the administration of elections. As such, the results presented here represent 27 European countries that responded to the structural survey. See the Appendix for a full listing of Percentage of 26 countries that responded to this question. countries and organizations surveyed. It Is important to note that the sample is not necessarily representative Rather than functioning out of the executive, or because it is possible that those who are responding bureaucratic, branches of government, some EMBs are not representative of the population. are part of the judicial branch of government, such as a special electoral tribunal, for example. In this survey, The dataset is available for download on Harvard only 5 EMBs identified as a specialized judicial body. Dataverse: "Comparative Structural Survey Election Management Bodies EMS", https://doi.org/10.7910/DVN/1X5FVB 3 Building Better Elections: Electoral Management in Europe Figure 3: Specialized Judicial Bodies: Figure 5: Basis of Appointment: Is your organization... EMB Chair/President Party stataus 4% Both professional qualifications and A party status specialised 11% judicial body 22% Other 21% Professional Not a status specialised 64% judicial body 78% Percentage of 23 countries that responded to this question. Percentage of 28 countries that responded to this question. Figure 6: Basis of Appointment: A final dimension of independence is EMBs’ inclusion EMB Members (or not) of political parties in their management boards. There are arguments to suggest that involving political Both professional qualifications and parties in electoral management will lead to better party status cooperation, as parties can serve as “watchdogs” of 13% their elections. In this survey, the vast majority (19) of EMBs reported they did not include political parties in Other their organization. 17% Figure 4: Partisan Membership: Is your organisation… Professional Qualifications 70% Mixed partisan non- partisan 17% Note: Percentage of 23 countries that responded to this question. For more on the specific organisational design features Non- that shape EMB formal independence such as partisan appointment procedures, budgetary control, and formal 83% competences, see Carolien van Ham and Holly Ann Garnett. “Building Impartial Electoral Management? Institutional design, Independence and Electoral Integrity.” In the International Political Science Review. Note: Percentage of 23 countries that responded to this Visit https://doi.org/10.1177/0192512119834573. question. Another dimension of independence concerns the The European EMBs studied here were asked about basis of appointment of the EMB chair and board their powers for specific electoral functions. The most members. In this survey, the basis of appointment for common of these powers was to order a recount both the EMB chair and EMB board members were (partial or full) of results, though still only 9 EMBs predominately their professional qualifications (18 for noted they had this power. EMB chair, and 16 for EMB board members). However, a considerable portion of EMBs studied also noted unique procedures for choosing these important actors. 4 Building Better Elections: Electoral Management in Europe Budgets Figure 7: EMB Powers Does your organization have powers to… Budgetary data was collected from participating EMBs, however, it is difficult to compare these data directly, Call elections 12% since each EMB includes different tasks and activities in their budget. Order a recount (partial or 35% full) of results More comparable between countries is the response to Order re-polling in particular the question of whether the EMB's budget has 27% polling stations increase or decreased over the past 5 years. For the European countries studied here, most reported that Completely annul an election 31% their budget had remained about the same. Only 3 countries reported decreases in their EMB budget. 0% 10% 20% 30% 40% Percentage of EMBs Figure 9: Budgets Would you say that over the past 5 years your overall budget has… Percentage of 26 EMBs that responded to this question. Centralization Decidedly increased 3 EMBs were asked about their relationship with other Somewhat increased 4 EMBs at the regional or local level. 7 EMBs reported that these regional or local EMBs were subordinate Remained about the same 9 and accountable to the national EMB. Only 3 EMBs reported that regional or local electoral management Womewhat decreased 2 bodies were separate and autonomous from the national EMB. However, the greatest number of Decidedly decreased countries responded 'other' and described alternative 1 arrangements between the local, regional and national 0 2 4 6 8 10 levels. For example, Belarus and Croatia reported that Number of EMBs regional or local electoral commissions are created for specific elections that report