Policy Brief August 2015 Overview Since establishing an office in Tonga in a new political Canberra, International IDEA’s engagement in the Pacific Islands has increased to the extent that order – Analysing the 2014 IDEA is now in a strong position to make significant contributions general election results in support of democracy. Its work has grown from highlighting the Introduction value of International IDEA’s global The constitutional and political reforms undertaken prior to the 2010 general election resources to providing expertise paved the way for the people of the Kingdom of Tonga to elect more representative specific to the region based on governments that are accountable to the electorate. Tonga held its second general research on government stability, election since the reforms on 27 November 2014. What political bearing did the inputs to the Solomon Islands political and constitutional reforms have on the results of the 2014 general election? government’s electoral reforms Could further reforms be introduced to make the government of Tonga more discussions, and relations with representative? This brief analyses the results of the 2014 general election in order to various electoral and political party highlight those areas that should be considered by political leaders wishing to build on bodies in Melanesia. the foundations of political reform to consolidate democracy in Tonga. This Policy Brief is part of International IDEA’s work to Constitutional and political reforms increase knowledge among The 2010 general election saw the end of the role of the monarch in appointing politicians and policy makers on the government. The executive role of the Privy Council also came to an end. how political institutions, processes Before 2010, the Privy Council consisted, in addition to the monarch, of the and reforms can be designed to prime minister, the cabinet ministers and two governors. All were appointed by promote democracy and sustainable the monarch and served for as long as the monarch wished them to. Parliament, human development. on the other hand, was elected every three years. The cabinet formulated laws About International IDEA and introduced these to parliament, which was made up of nine elected People’s Representatives, nine Nobles’ Representatives (elected by the Nobles) and the The International Institute for cabinet ministers and governors. Laws came into effect only after the monarch Democracy and Electoral Assistance gave his or her written assent. (International IDEA) is an The principal source of pressure for reform was a pro-democracy movement intergovernmental organization with led by Samuela ‘Akilisi Pohiva, the leader of a political group known as the Paati a mission to support sustainable Temokalati ‘o e ‘Otu Motu Anga’ofa (PTOA, ‘the Democracy Party’), who is democracy worldwide. www.idea.int currently the prime minister. Although the PTOA calls itself a political party, there are no registered political parties in Tonga and the general norm is for independent candidates to stand for election. Minor reforms to the appointment of cabinet ministers had been introduced in the later years of the reign of King Tupou IV (1967–2006), but it was King George Tupou V (2006–12), in particular, who paved the way for reforms by setting up a committee to review the legislative system. This policy brief is based on a presentation in the State, Society and Governance in Melanesia seminar series, Coral Bell School of Asia and Pacific Affairs, ANU College of Asia and the Pacific, © International IDEA Australian National University, 4 May 2015. 1 In the new political order, Nobles’ are 17 single-member constituencies: and People’s Representatives form the ten on Tongatapu, one each on ‘Eua government from among themselves. and the Niuas, two on Ha’apai and The monarch appoints a prime minister three on Vava’u. on the recommendation of parliament, and then the ministers recommended The 2014 Election Results by the prime minister. The current For the 2014 general election, the government is predominantly comprised Tonga Electoral Commission registered of People’s Representatives. The Privy 51,447 voters, of whom 40,727— Council has supposedly acquired an approximately 80 per cent of the advisory role to the monarch, who, adult population—cast their votes. except for some discretionary powers, This was a lower turnout than at the has ceded most of his executive powers. 2010 general election, when 91 per Since 2010, parliament has been cent of the adult population voted. Of made up of 17 People’s Representatives the 105 candidates contesting the 17 and nine Nobles’ Representatives, all constituencies, only 16 were women. of which are elected for four years. In 2010, 11 of the 144 candidates were women (see Figure 1). A total Figure 1 Distribution of Candidates by Gender and Electoral District, 2014 of 138 polling stations were set up. General Election On the main island of Tongatapu, 60 candidates contested the ten seats (see Figure 1). Tongatapu Ha'apai Vava'u 'Eua Ongo Niua The PTOA was the only political group. It fielded candidates in 16 seats in 2014. All the other candidates were independents. The PTOA won eight seats, with 20 per cent of the votes cast for a successful candidate, down from 11 seats in 2010. This included six seats on Tongapatu, down from nine in 2010. Its candidates won one seat each on Ha’apai and ‘Eua. As in the 2010 13 47 0 11 2 24 1 4 0 3 election, the PTOA failed to win seats on Vava’u and the Niuas. Independent Tongatapu Ha'apai Vava'u 'Eua Ongo Niua candidates won nine seats, with 21 per cent of the votes cast for a successful Registered eligible voters (all those candidate in 2014. Five incumbent aged 21 years and above) can vote for People’s Representatives were re-elected, a People’s Representatives under a First including the Deputy Prime Minister Past The Post electoral system. The and two ministers, representing a Nobles’ Representatives are elected by turnover rate of 71 per cent. up to 33 hereditary Nobles and three In 2014, winning candidates Life Peers, who are appointed by the accounted for just over 40 per cent of monarch. In Tonga, the holder of a the total votes cast. In other words, Noble title—who is always male—has approximately 60 per cent of the votes traditional status, and enjoys legal cast were for unsuccessful candidates, and constitutional privileges that including the 16 women candidates. include representation in parliament.1 Just four candidates won with over The People’s Representatives are 50 per cent of the votes cast in their elected from five electoral districts: constituencies. Most of the successful Tongatapu, Ha’apai, Vava’u, ‘Eua and candidates won between 30 and 49 per the Niuas (which consists of Niuafo’ou cent of the votes. At present, the fact and Niuatoputapu). Altogether, there that many candidates are being elected with less than 50 per cent of the votes 1 For more information on Nobles and does not seem to be an issue, unlike their role in Tongan society, see Powles elsewhere in the region where it has led 2013. to changes in the electoral system. International IDEA – Policy Brief – August 2015 2 Turnover and share of the vote but independents were only elected in Candidates appear to have received nine seats. Similarly, in the 2010 election votes from electors in their own family, the 11 successful PTOA candidates village and kinship networks, as well collectively obtained approximately just as through ex-student associations and 28 per cent of the votes cast. church groups. However, votes were Politically, tenure as a member of split where there were several candidates parliament cannot be guaranteed at each from the same village. Apart from election. In both 2010 and 2014, the three People’s Representatives, all the number of new People’s Representatives incumbents contested their seats, but elected to the Legislative Assembly was most were edged out. Five incumbents higher than the number of incumbents were placed second to the winner. re-elected: 11 new People’s Representatives As the only political group to contest were elected in 2010, and 12 in the elections, PTOA performed strongly, 2014. Programmes on parliamentary and picked up 29 per cent of the vote. proceedings and the workings of Independent candidates, including 15 of government will be important for the 16 women candidates who stood for equipping new parliamentarians with election, received 71 per cent of the votes, representation and law-making skills. Figure 2 Polling Results of PTOA Candidates against Elected PRs – Tonga Election, 2014 General Election ELECTORAL CONSTITUENCIES Tongatapu 1 Tongatapu 2 Tongatapu 3 Tongatapu 4 Tongatapu 5 Tongatapu 6 Tongatapu 7 Tongatapu 8 Tongatapu 9 Tongatapu 10 Eua 11 Ha'apai 12 Ha'apai 13 Vava'u 14 Vava'u 15 Vava'u 16 Ongo Niua 17 0 500 1000 1500 2000 ELECTORS Votes obtained by Elected PRs Votes obtained by PTOA Cadidates International IDEA – Policy Brief – August 2015 3 Table 1: Summary of Election Results for People’s Representatives, Tonga 2014 People’s Representative (Name) Number of votes Number Constituencies Female Candidates Voter the winning PR (numbers indicate of Elected Status /Total Candidates Turnout percentage of total number of Formal Votes) Informal Political Affiliation other candidates Votes 1 TONGATAPU ‘Akilis Pohiva Incumbent re-elected 76% 54% 13 PTOA 2 TONGATAPU Semisi Sika Incumbent re-elected 71% 48% 9 PTOA 3 TONGATAPU Siaosi Sovaleni New PR 76% 34% 6 Independent 4 TONGATAPU Mateni Tapueluelu New PR 77% 32%