THE OCTOBER 1990 ELECTIONS IN PAKISTAN NATIONAL DEMOCRATIC INSTITUTE FOR INTERNATIONAL AFFAIRS INTERNATIONAL OBSERVER DELEGATION TO THE PAKISTAN ELECTIONS OCTOBER 1990 VAHIT HALEFOGLU STANISLAW DEMBINSKI Delegation Co-leader Delegation Co-leader Former Minister of Foreign Member of Senate, Civic Affairs Parliamentary Club, (OKP) Turkey Poland MORRIS ANDREWS LOVIDA COLEMAN Executive Director, Wisconsin Attorney, Dilworth, Paxson, Education Council Kalish and Kauffman United States United States RAMALINGHAM LEE FELDMAN BALASUBRAMANIAM President, Global Analysis, Inc. Attorney/Senior Associate, United States Tiruchelvam Associates Sri Lanka EDWARD FOX Attorney, Mintz & Levin JAN BARAN Former Assistant Secretary of Attorney, Wiley, Rein and State Fielding; Counsel, Republican United States National Committee United States IVAN GABAL Director, Association for KATHRYN BARAN Independent Social Analysis Freelance Writer Former Campaign Manager, Civic United States Forum Czechoslovakia BERT BRANDENBURG Public Policy Analyst, Progressive PATRICK GRIFFIN Policy Institute President, Griffin-Johnson United States Former Secretary, Democratic Caucus, U.S. Senate United States PETER HATCH PETER MANIKAS Elections Officer, City of Director, Criminal Justice Birmingham Project, Cook County, Illinois England Former Executive Director, Special Commission on SAM HEINS Administration of Justice Attorney, Opperman, Heins & United States Paquin United States JAMES E. MCAVOY President, Washington METIN HEPER Communications Group Ruder- Chairman, Political Science Finn; Former Senate Press Department, Bilkent University Secretary, Vice President Dan Turkey Quayle United States HENDRICK HERTZBERG Editor, The New Republic CECI COLE MCINTURFF United States Executive Vice President, Bond­ Donate~li, Inc. DONALD JONES United States Asian-American Free Labor Institute MINORU NAKANO United States Professor of Political Science, Meiji Gakuin University PETER KATJAVIVI, M.P. Japan Director, Policy Research, SWAPO NICHOLAS T. MITROPOULOS Namibia Executive Director, A. Alfred Taubman Center for State and MARIA LEISSNER, M.P. Local Government, Harvard Liberal Party University Swden United States MONA MAKRAM-EBEID GUGILE NKWINTI High Executive Committee, Secretary, ANC/UDF Eastern WAFD Party; Lecturer of Cape Sociology, American University South Africa Egypt WILLIAM OLDAKER ELAINE SHOCAS Attorney, Manatt, Phelps, & General Counsel, American Phillips; Former Chief Counsel, Federation of Teachers Federal Election Commission United States United States RAYMOND SOCK OKI OOKO-OMBAKA African Center for Democracy Director, Public Law Institute and Human Rights Studies Kenya The Gambia ERGUN OZBUDUN BABACAR TOURE Professor, Constitutional Law and Editor, Sudhebdo Comparative Politics, Ankara Senegal University Turkey ILIANA VULKOVA, M.P. Bulgarian Association for Fair MARIANO QUESADA Elections Former Secretary-General Bulgaria NAMFREL Philippines KENNETH WOLLACK NDI Executive Vice President WILLIAM RICHTER United States Professor and Chairman, Department of Political Science, JOE WILSON, MEP Kansas State University Labour Party United States Wales BARNETT RUBIN SUE WOOD Associate Professor, School of President, Internatioaal Institute International Studies, Columbia for Women's Politic il Leadership University Former President, 'ational Party United States New Zealand STEVE SAUNDERS Saunders and Company Former Special Assistant U.S. Trade Representative United States NDI STAFF MAHNAZ ISPAHANI PATRICIA KEEFER Director of Research Senior Consultant Pakistan Project Co-Manager Pakistan Project Co-Manager ERIC BJORNLUND JOSEPH HENNESSEY Legal Consultant Program Assistant LARRY GARBER DONNA HUFFMAN Election Consultant Program Officer GINA GIERE JOSH STEINER Program Assistant Election Adviser/Monitor Copyright 0 1991 by. National Democratic Institute for International Affairs Copies available for $10.00 NATIONAL DEMOCRATIC INSTITUTE FOR INTERNATIONAL AFFAIRS BOARD OF DIRECTORS WALTER F.MONIMLE CHARLES T. MANAT" Chairm= Chairma, Emenas RACIIELLE HORDlWrrZ Vice Char SENIOR ADVISORY seNNi1IKENNE I FE Y TOCOMMITTEE THE BOARD MARVIN F WEISSBERG MADELEINE K.ALBRIGHT 7hufafr BILL ALEXANDER MICHAEL D. BARNES J. BRLAN ATWOOD JOHN BRADEMAS pesid, BILL BRADLEY RICHARD r CELESTE DAVID AARON MARIO M. CUOMO HARRIET C BABBIT PATRICIA M. DERIAN ELIZABETH FRAWLEY BAGLEY CIIRISTOPIIER J. DODD JAMES B. BOOE MICHAEL S.DUKAKIS 101 IN P.DUNFEY MARCt FONG EU THOMAS E EAGLEI'N MARTIN FROST EUGENE EIDENBERG RICHARD GEPiHARDT GERALDINE A. FERRARO JOHN T JOYCE RICHARD N. GARDNER MIKE J. MANSFIELD ALEXIS HERMAN DONALD E MCIIENRY MARIFE IIERNANDEZ DANIEL PATRICK MOYNI! IAN ROBERT E. ItUNTER EDMUND S. MUSKIE GERI M. JOSEPH TIOMAS . O'NEIL, JR. PETER G. KELLY BILL RICI IARDSON JAN KALICKI CHARLES S. ROBB PENN KEMBLE STEPHEN J. SOLARZ PAUL G. KIRK JR. CYRUS I. VANCE ELLIOTIT F KULICK ANNE W'EXLER MADELEINE M. KUNIN JOhN LEWIS LEON LYNCH KENNETH D. WOLLACK LEWIS MANILOW Executie Vice Phmiden LENORE MII.ER AZIE TAYLOR MORTON JEAN B. DUNN MARK A. SIEGEL Vice Prsdem fr Adnin MICIAEL R. STEED and Dewlopment MAURICE TEMPELSMAN ESIEBAN E. TORRES PATRICIA KEEFER ANDREW J. YOUNG Sjior Conwdzam IRANI NORTI T FRONTIER JM-W S, p TRIBAL AREASI -q-2-' AFGHisANTANI,- FED (SNI) NN •~~~~A \ D~ Ail Pakistan ..... I D, IRA. "' , ;.. ..... , TABLE OF CONTENTS ACKNOWLEDGMENTS ............................... i EXECUTIVE SUMMARY ............................. iv INTRODUCTION .................................... 1 CHAPTERS 1. NDI ACTIVITIES IN PAKISTAN .................. 5 2. POLITICAL HISTORY ......................... 11 3. THE LEGAL AND ADMINISTRATIVE FRAMEWORK FOR THE ELECTIONS ............ 26 4. THE POLITICAL CAMPAIGN ENVIRONMENT ..... 35 5. ELECTION DAY OBSERVATIONS ................ 56 6. POST-ELECTION DEVELOPMENTS .............. 82 7. INVESTIGATION AND ANALYSIS ............... 90 8. REFLECTIONS ON PAKISTAN'S ELECTIONS ..... 102 9. RECOMMENDATIONS ....................... 110 APPENDICES I. Members of NDI Pakistan Election Observation Delegation and Survey Missions 1987-89 ............ 120 II. Pre-Election Survey Mission to Pakistan, September 9 - 16, 1990 ......................... 122 III. Collage of Press Clippings Covering September 1990 NDI Survey Mission ............................ 123 IV. Statement of NDI Executive Vice President Kenneth Wollack before Subcommittee on Asian and Pacific Affairs, October 2, 1990 ................ 124 V. Terms of Reference ........................... 142 VI. International Observer Delegation Briefings in Islam abad ................................ 148 VII. 1990 General Election Team Deployment; Pre-Election Delegation Team Meetings; and Functional Teams .......................... 149 VIII. Arrival Statement of Delegation, October 23, 1990 ..... 156 IX. Preliminary Statement of Delegation, October 26, 1990 ............................. 159 X. Statement of NDI Executive Vice President Kenneth Wollack before Subcommittee on Asian and Pacific Affairs, November 2, 1990 .............. 163 XI. Election Commission Allocation of Symbols to Political Parties ............................ 170 XII. IJI Political Advertisement ...................... 174 XIII. Section 574(b) of the Foreign Operations, Export Financing, and Related Programs Appropriations Act, 1991 (The Mikulski Amendment) ................................ 175 XIV. Letter Allegedly Written by Prime Ministe: Benazir Bhutto to Peter Galbraith ................. 176 XV. PDA Political Advertisement ..................... 177 XVI. Sample Voter ID Card ......................... 178 XVII. Sample Ballot ................................ 179 XVIII. Sukkur and Gujranwalla Team Reports ............. 180 XIX. Report of "Election Cell" Activities ................ 195 XX. Results of 1990 National Assembly Elections by Party and Region ........................... 196 XXI. Results of 1990 Provincial Assembly Elections by Party and Region ........................... 197 XXII. Methodology for Statistical Analysis ............... 198 XXIII. Statistical Analysis ............................ 207 XXIV. Collage of Press Clippings Covering NDI International Election Observation Delegation ........ 230 XXV. Letter from NDI President Brian Atwood to Secretary of State James Baker ................... 231 XXVI. Statements by Other Observer Groups: International Federation for Human Rights and SAARCN ......... 232 A ACKNOWLEDGMENTS The international delegation organized for the October 1990 Pakistan National Assembly elections required an enormous effort before, during and after the elections. The National Democratic Institute for International Affairs (NDI), which sponsored the delegation, thanks all those who contributed to this important endeavor. NDI board member Kenneth Melley led a five-member, pre­ election mission, which visited Pakistan from September 9-16. The work of the pre-election mission provided the basis for deciding to send an international delegation and for determining the delegation's terms of reference. The members of the international delegation gave generously of their time, not only by participating in the election mission, but also by reviewing diligently the post-election analysis performed as part of the project. NDI owes a special debt of gratitude to the delegation leaders: former Turkish Foreign Minister Vahit Halefoglu and Senator Stanislaw Dembinski of Poland. Their leadership and their personal experiences and expertise were critical to the delegation's activities. The contribution of delegation member Lee Feldman deserves special mention.