Free and fair elections - and beyond final report from the International Electoral Institute Commission
Ur KB:s samlingar
Digitaliserad år 2014
Free and Fair
electzons
and
beyond
Final
report
The International Electoral
Institute Commission
October 1993
21,
m
SBU
MINISTRY FOR FOREIGN AFFAIRS 100 SWEDEN
Swedish Official Reports Series .
WW 1993: 100
Ministry for Foreign Affairs
w
Free and Fair elections
— and beyond
Final Report from The International Electoral Institute Commission Stockholm 1993
SOU och Ds kan köpas från Allmänna Förlaget ingår i C E Fritzes AB. Allmänna
som
Förlaget ombesörjer också, på uppdrag av Regeringskansliets förvaltningskontor,
remissutsändningar av SOU och Ds.
Beställningsadress: Fritzes kundtjänst
106 47 Stockholm
Fax: 08-20 50 21
Telefon: 08-690 90 90
Original: Editorial Office of the
Ministry for Foreign Affairs
THE PRINTING WORKS OF THE
ISBN 91-38-13481-0 CABINET OFFICE AND MINISTRIES Stockholm 1993 ISSN 0375-250X
INTERNATIONAL ELECTORAL INSTITUTE COMMISSION
Executive
Summary
This report deals with the prospects for free and fair elections and how to support and reinforce the electoral as part of the quest for
process
democracy around the world. After the end of the cold great
war a opportunity there and should be seized.
The International Electoral Institute Commission, appointed by the Swedish Government, has been at work for Its task has been
one year. to seek answers to four questions:
At this time in history there potential to promote and support free
a
and fair elections, transition to democracy and international
a
cooperation on these matters. What the character of the demand
short-term, long-term or a combination
-
2. What not currently being done and what will be the challenges in
a longer—term perspective
3. there need for institute existing bodies be adapted
a a new or can
to fill possible How could institute complement the United
gaps an
Nations and other bodies in this field
4. What the international interest in undertaking of this kind
an
This report addresses these questions under its various headings.
The Commission concludes that there need for and broad
a a interest world-wide in establishing international institute.
a new recommends the Swedish Government to take the initiative to invite interested partners to discuss and negotiate the formation of such an institute, based the proposals and recommendations contained in
on
this report.
Democracy on the move
The end of the cold led to in the demand for pluralism
war an upsurge
and in eastern Europe and parts of the former USSR.
democracy Country after country turned to the international community as they
started the transition from one—party states to multi—party democracies. A similar in other parts of the world. The
development taking place
fall of the Berlin wall developments in instances, but
precipitated some
pregnant with change for strong domestic
many political systems were
reasons.
From democratic values could become more universally
now on
The international community has opportunity to reinforce
accepted. an
and democratic that might otherwise founder.
give support to processes
demonstrates what when such moment lost.
History can happen a
Internal confrontations become overriding for the world
can concerns
also. There wide recognition today of the link between
community IS a
democracy and peace.
must from within and be supported from below.
Democracy grow
Outside interventions and initiatives often play a
top-down can
role in situation, but should be incidental
significant a specific seen as
with broad domestic base. Democracy of
to developments a more a
than fixed and finished state. must be furthered movement a as a
of ideas and views the
process, requiring exchange experiences, on
of different institutional frameworks. There limits to how
efficacy are
much of this be carried out in government—centred setting. A
can a
role for actors other than governments foreseen. Parliaments
growing
and electoral commissions and monitoring groups,
parliamentarians,
local media, movements and other NGO’s all
governments, popular
have vital roles to play in their different capacities.
II. The ahead and unmet needs can be
challenges largely
summarized into five categories:
Needs and demand far in this field of international
outstrips supply
The end of the cold and changing perception of
cooperation. war a sovereignty have opened for extended international cooperation on
up
broad of subjects.
a range
2. A long-term view rather than the concentration on or
necessary around election which has been the custom far. Dealing with
day, so
before and between elections, such the role of the opposi-
processes as
tion, legislation, coherent and less selective approach, exchange
a more of and networks, follow-up of the second and third election
experiences
in a transition.
3. Political neutrality and integrity: the sensitive nature of electoral
cooperation raises the question of who sets the agenda for different phases. lmpartiality highly relevant i.a. to the establishment of
universally accepted rules and guidelines. The international cooperation
must be based and reflect different cultures and perspectives.
on
4. Professionalism and efficiency; Except for some international
organizations there few actors, who work professionally and
are very with long—term perspective to support electoral In order to
a processes. achieve greater efficiency desirable that several professional categories coordinate their efforts in systematic
a more manner.
Mandates and roles: In democratic society the different actors in
a electoral processesparties, governments, parliaments, electoral commissions, the judiciary, researchers and media have distinctly different mandates and roles, which cannot be taken over by others. International cooperation should reflect this that mandates and roles
so
not misunderstood unduly mixed are or up.
III. Mandates and tasks of the institute
The Commission flexible mandate that beyond present
proposes a sees short—term projects requirements a mandate that has several windows
— and leaves doors
some open.
The tasks can be described under three captions:
1. Normative and Research tasks, which include data bank, internatio-
a
nal networking of researchers, initiating and supporting research
activities, development of internationally accepted rules and
norms, guide~lines for election observers well for aspects of electoral
as as
Publication of reports, research and studies. processes.
2. Capacity—building, Consultancy and Assistance. This includes training
of and support to national involved in the development of rules,
groups guide-lines and institutions to uphold free and fair elections. Electoral systems, laws, studies of election costs and other aspects to promote
a democratic culture. The method of work should be process—oriented rather than short-term projects.
International Electoral Cooperation. Tasks related to support and back-
of international observers in order to make such activities up more efficient. Coordination and exchange of experiences and knowledge through conferences and seminars. Examples of possible items could be the role of the opposition, the media well the military, nationality
as as and citizenship, the role of minority costs of elections, local
groups, elections and democratic culture.
The distinction above naturally has weaknesses. Very few issues
can
be neatly compartmentalized according to theoretical categories. Many
several Normative and operative activities
questions encompass aspects.
each other. The balance has to be struck for the Board
presuppose right of the institute and be influenced by experiences, demand and the
activities of others.
IV. Statutes
Political and integrity must be safeguarded in the statutes
neutrality
and in the functioning of the institute.
The institute would bring together governments, NGO’s,
proposed
bodies and international agencies as equal partners. A
parliamentarian
Board Trustees should be created the principal of the institute.
to act as
would be the guardian of the statutes, take decisions on the overall mandate of the institutes work and establish the annual budget. Three
categories of interests should be represented: financers, representatives
of various international bodies and the UN and, thirdly, individuals with different balance of geographical and
experiences, reflecting a
professional backgrounds.
The Board of Trustees should appoint Executive Committee and a
an
the institute. The Committee expected to
Secretary-General to run
lead and direct the institute’s operations. The Committee should thus comprise expertise of different kinds such as legal skills, electoral
academic research, information technology, political sci-
techniques,
ence etc.
proposed that the institute be established foundation. Apart
as a from the formal structure recommended that the institute consider
the of for advice well national committees and
use advisory panels as as support for networking.
groups
V. and
Organization budget
The of the institute much based the idea
operational principle very on
of different professions and experiences to achieve the best
networking
results. Permanent staff therefore be limited but must, the other
can on hand, intellectual critical to be able to perform well.
represent an mass
The presents staffing plan for the institute and a tentative
report a
budget for its first three deems desirable for the institute to
years.
full capacity within three years. At that stage
grow gradually, achieving
the institute would have total of thirty The total budget for
a employees.
three would amount to around USD 6 million, of which about half year will be direct costs. calculated that the budget for the
programme
first would be about USD 2 million and 4 million in two.
year year
VI. The role of the United Nations and other
organizations.
The United Nations has emerged significant actor in electoral
as a cooperation. The Commission has worked closely with the different entities in the UN, involved in the issues related to the task of the Commission. They have all welcomed the establishment of
a new institute as a complement to their efforts. The Commission
own proposes the establishment of a link between the UN and the institute.
The many other actors the electoral have different
on scene characteristics and emphasis. Some have a distinct geographic
or
geopolitical focus, some have a specific professional or national background while others owned by single category of principal.
are one
This one of the reasons why the present actors welcome
a new institute that envisaged to ground well to combine the
cover new as as capacity of the different actors in which not being done today.
a way
The Commission has had the privilege to conduct extensive
consultations with a great number of governments, parliamentarians,
international and national organizations, researchers and other experts
around the world. These consultations have produced strong encouragement and a large number of good ideas and suggestions,
which reflected in this report and for which the Commission wants
are
to its profound gratitude.
express
The final chapter of the report gives suggestions regarding the
some further process of creating the institute.
2. The Commissions Mandate and Work
In 1992 the Swedish Government established a commission
September
the and relevance of independent internatio-
to study feasibility a new
electoral Ambassador Bengt Säve-
nal institute for cooperation. former Under-secretary of state for development
Söderbergh,
to chair it. The creation of this Commission
cooperation was appointed
to demands from several parties in the Swedish came as a response
that effect, and also i.a. reaction to a dramatic
parliament to was a
in the numbers of to Sweden from all the world
increase requests over
for electoral observation. The Commission has consisted of secretariat and parliamentarians
a
and specialists in various fieldssee Annex 1.
The Commissions mandate to explore the need for a possible
was electoral institute. its was to outline proposals
findings were positive,
for the mandate, statutes, costs and provide other information necessary
for later, specific decision.
a more
could be that feasibility study international
argued a on an
institute should be undertaken by a of governments or group
The Swedish Government acted with sense of urgency.
organizations. a could take considerable time to identify potentially interested parties, of reference and to study the question.
agree on terms appoint a group however, that and analyses could
was felt, information-gathering
be entrusted to national commission. An international
probably a
would be for next step, an institute
approach necessary a possible
to be established. were The Commission has chosen to out its work in a transparent carry ideas and along the Most of its thoughts manner, testing proposals way. have been well received, few have been questioned and challenged, as a be and indeed of the for adopting a was to expected was one reasons tentative and This has provided the Commission
listening approach.
with many ideas and suggestions, reflected in this report. A list of the Commissions contacts and discussants attached Annex as The Commission wishes to place record its thanks and on indebtedness to all these contributors and to its appreciation of
express
the interest and support has received. For whatever be found may useful in this report, these inputs to be given credit; for whatever are doubtful, the Commission alone accepts responsibility. The Commission has emphasized consultations and informal discussions. Much time has thus been spent travel and direct on interaction with representatives of governments, parliamentarian many bodies, organizations and individuals. The Commission also had the privilege of being invited to present its ideas at several international conferences and meetings. As complement to these broad contacts the Commission organized a an informal round-table discussion in Geneva with 50 participants, some who had manifested interest in the Commissions work at early an an stage. A of the conclusions from that meeting and list of
summary a
participants enclosed as Annex Those present from were organizations or, in some cases, were invited in an entirely individual
capacity.
Two position papers have been circulated, dated November one 1992 and of March 1993. Several Newsletters from the Commission one have briefly and at irregular intervals indicated what activities had recently undertaken. The position made available in
papers were
English and in French. Japanese members of Parliamentarians for Global Action translated the March into Japanese.
paper
The main questions the Commission sought to the answer were
following.
There a potential at this point in history to promote and support
free and fair elections and transition to What the
a democracy.
character of the demand short-term, long-term combination - or a
the answer should be that unmet needs do exist, what
currently
not being undertaken and what will be the challenges in
a longer-
term perspective
Is there a need for a new institute existing bodies be
or can adapted
to fill possible Could institute the UN and
gaps an complement
other bodies in this field
4. What the international interest in of this kind
an undertaking
This report addresses these issues under its various But
headings.
the the Commission received to the fundamental of the
answer question
need, was a massive yes.
The international community at juncture of great transformation
a potential, when much and should be done to
can promote democracy.
Earlier modalities and structures need to be and
complemented
remoulded in this The Commission demand for body light. sees a a new
that could tasks outstanding, especially when looking at perform some
the of the ahead. The following chapters of this report
challenges years
set out to describe the various aspects of these findings. The Commission has taken point of departure the acute demand as a for electoral observation and monitoring. But has this as a seen of still taking shape and has chosen to
symptom new developments
these ongoing changes and needs. The reasons underlying
emphasize
for electoral missions, and the implications those forces have
requests
for the future, still issues that need to be addressed. How the present are
faces the challenge of boosting democracy and civil society generation a
will doubt colour the verdict of posterity the present-day internano on tional community and its leaders. The Commission feels satisfied after its rounds of talks and all the of View has received that there for institute as points a case a new such. There and rationale for special mandate. Such a body space a a be to existing facilities.
would a potentially important complement
would in the view of the Commission and
Leaving things as they are,
of those with whom has imply following a course of
many spoken,
inertia instead; in the Commission has met a strong sense
many quarters
of and for the fundamental questions of democracy at
urgency concern The Commissions report and
stake, a stress on keeping up momentum. modest contribution to these discussions and to
suggestions are a
the need for that have to the fore i.a. as a
meeting new policies come
of the demise of the cold and growing with human result war a concern
international interdependence and peaceful development. rights,
How institute’s links with the UN could be crafted, treated in an
of this report.
a separate chapter
The Commissions work ends with the presentation of this
formally
the Swedish Government. The final outlines what in
report to chapter
the Commissions View could be a next step.
on the Move - Some
Democracy
of the Recent Past
Experiences
The Commission has taken as its point of departure the electoral process
in a wide sense. The Commissions mandate only makes possible to hint briefly at few of the factors that have contributed to placing
a electoral cooperation high the international agenda in recent
on years.
Doing justice to the profound and sweeping changes the political
on landscape in the latter half of the eighties and in the nineties would require several volumes. The aim of this report simply to highlight
a few of the features that the Commission perceives particularly
as relevant to its task.
The demand
The end of the cold led to in the demand for pluralism
war an upsurge and democracy in Eastern Europe and parts of the former USSR. Country after country turned to the international community for electoral assistance in various forms, as they started the transition from one-party states to multi-party democracies. This led number
to an unprecedented
of foreign electoral teams being sent countries of this region in
to many
a short period of time. A similar development taking place in other
parts of the world.
The demise of the one-party state in these latter instances is, however, far from always an aftermath of the collapse of the Soviet Union. The concept of the one-party state and military rule in various forms
were
increasingly coming under fire. In countries the legitimacy of the
many ruling elites had been eroded by time. For generations, liberation
new
struggles and the popular support that swept post-colonial leaders to
of the to which could not relate. What they
power were a thing past they
could observe economic stagnation, abuses, corruption and
was
autocratic attitudes in varying mixes from country to country. People
disenchanted and suffered from economies in trouble. There
were deep
growing mood for change and for old leaders to step was a a pressure
down, from the influence of events in Europe and elsewhere.
quite apart
The fall of the Berlin wall precipitated developments in some instances, but with change for number of
many political systems were pregnant a
strong domestic reasons.
There in this context with developments in the
are some parallels
of human The ten to twenty have by and large
area rights. past years
witnessed of respect for human rights.
a gradual strengthening
Both outcome of this movement forward and for
an a prerequisite
the existence of bodies capable of articulating needs, providing documentation and information, and taking action.
The world could be the threshold of similar advances in democracy.
on The of this window of raises demands for long-
opening opportunity
term action in order to make this sustainable.
development
took in Latin American states that were
Military regimes over many
democracies in the 1950s. The one-party state ousted multi-party
took after colonial rule in parts of Africa in the 60s
systems or over many and 70s. There and elsewhere such trends being reversed. In Eastern
are
and in the former Soviet Union democratic issues are being
Europe
addressed.
would thus that from democratic values could
seem now on become For what be brief period in
more universally accepted. may a
time, the international community has opportunity of reinforcing
an and democratic that might otherwise founder.
consolidating processes
demonstrates what when such moment lost.
History can happen a
Underlying factors
The of the salient features of the democratic scene
following are some
that should be out especially relevant to the Commissions
brought as
work.
1. A New Field for International Cooperation
The issue of national sovereignty strongly championed in many
was
parts of the world far into the eighties. Newly independent states
tended to their and sensitive to
naturally safeguard independence were
what to encroach it. The division of the
they perceived as attempts on
world into cold-war blocs had similar effects.
partly
The today different.
scene
Governments feel need for international and regional
a a greater
cooperation in order to tackle common concerns. Many states are
their of and welcome sharing
reconsidering systems governance
experiences and views. The and of what
globalisation integration
defined national interests have opened new
previously were as up horizons and new possibilities.
b Other actors arebecoming increasingly important. Non-govemmental organizations of various kinds, parliaments and parliamentarian bodies
and the business community of entities and interests that
are examples
have more to the forefront than previously, also in an internatio-
come
nal context. Accepted authority consequently often questioned;
governments are under from below while having to adjust to pressure
different pattern of cooperation borders. The situation for many a across NGOs and international bodies complex in a similar way.
2. Security and democracy
One of the tasks of democracy to promote peaceful solution for
a conflicts and non-violent transfers of power. When this the case
domestically, most states and peoples tend to apply the same attitudes and values regionally and internationally. Viable and stable democracies
consequently seldom start armed conflicts.
wars or
This lends special importance to the challenge of democracy. Recent
history demonstrates how internal confrontations can also become overriding concerns for the world community.
In parts of the world nationalism and movements for self-
some determination in recent decades and have become powerful
grew a force. Civil strife based regionalism struggles of other kinds
on or power tore societies apart, not seldom because of inadequate systems of
governance. A climate of seeking peaceful means to settle differences
and the existence of domestic and external institutions that help
can create such attitudes and values are important elements in diminishing the risk of future conflicts.
There thus wide recognition today of link between democracy
a a and peace.
In quarters the inference drawn from this that:
many
Strengthening democracy urgent requirement that still largely
a. an
has to be met, and
Investments in this much less costly in terms of human lives,
area are
and political than the undertakings resulting from
money energy a
lack of adequate commitment at early stage.
an
3. The Issue of Promoting Good Governance, Human Rights and
Democracy
The challenge of setting accepted and passable standards of
governance widely felt than only few when the shadow of
now more a years ago,
the cold tended to obscure abuses of human rights and democracy
war and to stress other issues.
these squarely the agenda. Funds
Today governance concerns are on
being invested in this field and guidelines developed by aid donors
are and international bodies. Strengthening the civil society now high on
the agenda.
At the national level, thought and effort being devoted to
are
of and human in parts of the world.
questions governance rights many
Electoral in wide part of this picture and
processes a sense are a
require corresponding methodical treatment.
a
To put briefly, powerful forces were previously working contrary
to the need for focus good and its many expressions,
more on governance
them and elections, but most of these constraints have
among pluralism
either diminished disappeared during the early nineties.
gradually or
The result that of pent-up expectations and needs was
a floodgate
and of challenge to the international
opened posed a new type
community.
We currently experiencing for external support to are pressure
electoral worldwide. This be of
processes can seen as a symptom democratic and the call for electoral obser-
aspirations developments;
vation of much deeper, profound and far-
an expression a more
need. The immediate in the field of electoral
reaching challenge
observation and but the perspective different
monitoring, long-term
and brings out many other concerns.
Strengthening democracy
there growing that the long-term Internationally a slowly awareness
for action. Many decision-makers in
perspective presents a new agenda
and centres in different of the world see a need to adapt
capitals parts
to world in relation to democracy and to
a swiftly changing scene
rethink and of them in the light of both
existing policies means executing
current and foreseeable demands. Such forward-looking approaches
and discussed the and exigencies of
are being sought despite pressures
acute crises and considerations. more
Leaders and researchers with this kind of vision for the future of democratic values and civil underline the need to address
society
and in that respond to both the short-
problems policy options a way can
term and the demands. Some of these challenges are on the
long-term
international agenda now, such as electoral assistance in a narrow sense, others far-reaching issues that still largely need addressing.
are more
of such discussions viewpoints the nature of future
Examples are on
demands for including electoral assistance. There a
good governance
of the of other questions that today growing awareness centrality many
in the background but in all likelihood will attract more emphasis are
and attention. Some of these varying considerations the following,
are
few random given to illustrate the need.
quoted as a examples only,
The Establishment and Strengthening of Democracies
Democracy must from within and be supported from below.
grow
Outside intervention and top-down initiatives can often play a significant role in specific situation but should be incidental to
a seen as developments with broad domestic base.
a
Democracy of movement than fixed and finished state.
more a a
Democracy requires ongoing reassessment and discussion of
an modalities, institutions and values. Even mature democracies with a long tradition of pluralism have need to redefine and recast aspects of
a their systems. follows from this that democracy must be furthered as
requiring of experiences, ideas and views the
a process, exchanges on efficacy of different institutional frameworks, and that there limits
are to how much of this be carried out in purely govemment-centred
can a
setting.
2. New Actors In Their Own Right
-
There thus growing role for actors other than governments:
a
parliaments and parliamentarians, who also have loyalties to their
constituencies and parties, local governments, NGO’s of various kinds, popular movements and not least ordinary citizens.
The increasing importance of democracy strengthens the need for the non-governmental actors to be able to participate on their own
terms. That they do fundamental prerequisite for a sustainable
can so, a
democratic development and civil society.
The integrity of the various actors the democratic and
on scene emphasis their constituencies therefore crucial issue, both
on a
philosophically and in practical terms. Democracy an exercise in
pluralism. Who sets which agenda mustbe addressed as a key question.
There demand for in which different actors
a new ways can interact. This true not only of types of bodies but also geographically;
often initiatives have emanated from the North. But the perceived
very
needs are shared in quarters of the world. Countries and groupings
many
in the South wish their special emphases and aspirations adequately
to see
expressed.
Many national engaged in civic rights, human rights and
groups
furthering democracy in various need international partnerships
ways and networks to be able to function in their role agents of democratic
as change. Such collaboration provides them with certain degree of
a
protection, capacity-building and an exchange of seminal ideas.
New partnerships should be established, and adequate vehicles for
them, between governments, parliaments, national and international bodies and other actors in democracy and development, respecting their different mandates and terms.
3. Action-orientation
Sometimes events in control of Ideally they trigger the
are policy. formulation of long-term policies and help develop orientations. Going
the of elections, similar observations be to more specific question can made in the broader field of democracy. As noted earlier, the present
as
of demands for electoral observation indication of more far-
spate an
needs. The the requests raise much what action
reaching question as
must be taken in the long-term what must be done
now perspective as
to address acute issues. A developing in
immediately consensus
different that the time has to craft policies and many quarters come new
the institutional in order to buttress democracy and survey scene advance its development. A view shared by that an imaginative
many
to concerted action respecting different
approach now possible -
mandates and terms in order to further sustainable democratic
-
and civil society, including electoral in a wide
development processes
sense.
should be noted that there are differences of opinion regarding
what short-term and what long-term. Electoral observation a case in Some the present demand passing need in few years’
point. see as a - a time there would be little demand the international community
or no on for this kind of assistance.
Others take opposite view. They forward the intriguing an put
vision of electoral observation accepted feature of the
becoming an
international much the with the observation of military
scene, as case
The advantages of such a system would be to remove
manoeuvres. a the stigma of being observed and in principle put countries on a more
make difficult for reluctant rulers to dismiss
equal footing, b more
elections them, create basis of interna-
outright or rig c help a common
tional in this which would further both human
understanding area, and mutual security and could successively be deepened, d help rights
to raise domestic capacity and in this field. The Commission
awareness
that this idea has complications, such as sometimes the
aware many Vested, negative interests in elections in country by its neighbours
one
other but feels that solutions to such or by regional or powers,
problems could be found.
This demonstrates clearly that dynamic and forward-
example a
to the issue of democracy in itself new horizons
looking approach opens
and creates also for in the security
opportunities preventive measures
field.
4. What the What are the
Challenge -
needs
Much good work has developed and taking place in the field of
electoral assistance in recent Also, the scene characterized by
years. ongoing improvements and change. The main actors flexible and
are meet new challenges as they arise. To present an to date and in
up every
detail accurate picture of what going therefore far from easy.
on What true one month be less than reliable the next and perhaps
may
misleading short time after that. Nevertheless, through its
even a consultations the Commission has identified some areas of electoral assistance in which the international community should intensify its efforts. There a broad consensus on the importance of addressing these electoral issues consistent and systematic
in a manner.
At earlier stage the Commission listed of these challenges
an some
and has been privileged to receive observations incorporated
many —
here its reading of the situation.
-—on
Demand and Supply
Demand outstrips supply in the field of electoral cooperation. The
Electoral Assistance Unit of the United Nations has at one time a
any
long list of requests for various kinds of observation missions, technical assistance and other types of smaller and bigger projects to be carried out by the UN or other organizations. To this list can be added, from various countries, demands which have not found their into the
way
UN, to the Commonwealth, The Council of Europe, CSCE and other
e.g.
regional bodies.
National election bodies in established democracies have natural
limitations with regard to what they undertake abroad,
can
constitutionally, financially and with regard to manpower. They came
into and dimensioned to cater for domestic needs. On the
being were
international the UN and other actors were not originally
scene, conceived for all the different roles that they called to
are now upon
play.
2. A long-term view
International has hitherto tended to centre election day. The
concern on
short-term. The approach has been
perspective, generally speaking,
than concerned with
more project-oriented processes.
Hitherto there has also been imbalance between building domestic
an capacity and sending external teams, the latter form of action being
favoured. more
These observations should be in the context of how swiftly and
seen
changes have taken place in recent The international
radically years.
has had to to situation, by the nature of
community respond a new
events, and has had to do so ad hoc and in a largely improvised manner.
The call for external election observation and monitoring should be
of and far-reaching demand
interpreted as a symptom a more complex
for support for democratic and electoral The international
processes. community has recognized this and has indicated by fielding missions that this need its One of the questions that must be
high on agenda. asked is, however, how cost effective and adequate in a longer perspective
to address electoral issues in the present manner.
The fundamental challenge how to further sustainable democratic
a
Policies and operations should be optimally crafted in both process. financial and substantive terms. In order to meetboth these requirements, the overall should comprise the entire from election
perspective process
to election. Many decision-makers have stressed this point. Others have also the need to take account of local situations and needs.
emphasized
There also growing debate about the of the
a consequences ongoing transformation of the role of the nation—state and of increasing
international interdependence. This has i.a. raised the question of new patterns of democratic cooperation boundaries.
across
a The Role Opposition
an
The first test of the viability of democratic electoral often
a process
in the election when most foreign teams have
occurs days following an -
left. How the opposition treated How does act
This of the benchmarks of sustainable democracy. A
one a
propensity to hold elections less than reinforced, the
governments
rulers arbitrarily throw the into prison the
new opposition-to-be or
The role of opposition should be clarified, showing number
gutter. an a
of models and what constitutes the bottom line with regard
indicating
to conduct the side of both governments and
commonly accepted on
oppositions. The Commonwealth Secretariat has i.a. indicated this
aspect as one that in its experience calls for reflection and support;
more other discussants hold similar views.
Most of the Commissions Contacts have also highlighted the working conditions of an opposition, such de facto possibilities to influence
as public opinion. The role of the media of course central issue in this
a context.
In quarters there anxiety that unrealistic expectations of
many an
what democracy can bring about in the short term, lead to
may a
backlash in societies, unless the longer-term challenges tackled
many are
squarely and forcefully.
b Legislation and Domestic Models
Legislative measures electoral laws and similar provisions also
— - are
elements of viable and sustainable democracy. Part of this the
a scene
existence of a strong, competent and independent judiciary. This
a field that today requires assistance.
more
Although the basic values underlying pluralistic systems of
government be widely shared, the outward expressions of may
democracy do differ. Much reflection and still has to into this
thought go
area.
A special feature of this demand for adaption and innovation within the area of cost. Present procedures often outside the financial
are
of nations. New, cost-sensitive alternatives
range many poor more
should be promoted.
c Local Government
A broadly held View that should be rooted the local and
democracy on municipal level. The procedures and practices there crucial factor
are a in creating climate conducive to sound electoral
a a development
nationally. Civic education, participation by citizens in decisions that affect them immediately, and strong civil
a society are interdependent and mutually reinforcing. Against this background, much should
more be done to further sound procedures for local elections.
d Dearth Long-term, Coherent Support
The international scene with regard to electoral support characterized
by some paradoxes. While there proliferation of different teams and
a forms of assistance in some cases those that have attracted extensive
attention electoral needs scantily met in others.
- many are
Looking at some instances, there ground for concern that too much
being undertaken by whereas other observers, taking
too many; many
in the broader picture, are struck by the diverse and largely unmet
challenges that call for additional efforts.
of its contacts have out to the Commission that the
Many pointed
international community and national governments are devoting
funds and other to issues of economic considerably more resources
than to of sustainable democratic processes,
development questions
including electoral support.
The democratic deficit must be reduced, but relatively little
global
and efforts applied to this task a
resources are being consistently -
in comparison with what into economic development,
pittance goes
which in itself The risk imminent that the present
inadequate.
democratic mood will be lost and swept in backlash of frustrated
away a
unless done now.
hopes, more
However, decision-makers have noted this imbalance and
many are
that must be redressed. A of their analysis comprises the aware part
review and the international institutional tools for
necessity to reshape
new, long-term policies.
e Exchanges Experience
The thrust and of electoral determined by what
content cooperation are
constitutes Democratic institutions take time
a functioning democracy.
to build; they the result of ongoing and cannot come
are an process
about Nor democracy from the outside. Democracy
overnight. can come
and elections have fewer chances of becoming sustainable element of
a
external concentrates overly the run-up governance, cooperation on
election, the election itself and the work of non-domestic observers to an and teams.
The and reflection based on
pre-electoral phase requires analysis
and relevant research. Decisions issues of electoral
experience gained on
seldom taken after less than preparation in
support are not adequate
this The international would benefit from a more
respect. community
and structured approach to electoral
systematic learning process a more
particularly but not only at this early stage. challenges,
Members of the international community need to learn from each
other and benefit from each other’s Many in the
experience. groups
South perceive need of networks that would both permit such exchanges
a and least of and leeway for action that
not provide a degree security
- -
be evident without the international connection. Ms. Grace
might not as
Githu, who chaired the National monitoring team in
a Kenyan lawyer
election December 1992, has, for instance, remarked to the
Kenyas
Commission in relation to this aspect: A number of national groups are
in countries and the need therefore arises to
springing up developing
international which would offer basis for establish an body a co-
ordination, and technical assistance. The Commission has
networking
similar views from bodies and individuals in the South.
received many
Role the Military
f
Among the areas that could be studied the role of the military in many
societies. The challenge how the military establishment could become
more democratic or function better support to democracy rather
as a than antidemocratic force, often the act as an as case.
g Follow-up
The post-electoral phase crucial for the establishment and acceptable
functioning of democratic institutions; the real test of democracy generally the second and third election in transition period, not
a always
the first which today gets most of the attention and where the risk one, of exposure for cheating greater. A consistent and well-articulated follow-up could benefit the entire international community. Experience has furthermore shown that there need, not always a
met today, for support structures and professional backup for outside
parliamentarians, researchers and others in another active one way or in electoral support.
Another when electoral should and where concern support begin
the responsibility of the community ends
international - politically,
technically and morally. A point that be taken from operations
can hitherto undertaken that the timespan of international involvement should be much longer than has been normally the case.
h Worldwide Approach
Many of the actors in the field of electoral assistance regional
are or national. An equitable balance between interests and perspectives, and interaction, would be facilitated by a forum for debate and common
reflection, with a specific focus electoral
on processes. The inference drawn by the Commission from the long-term, process-oriented needs indicated above that institutional
more capacity
internationally would considerably improve opportunities for backstopping, professional expertise, reflection and analysis.
Political Neutrality and Integrity
Elections and democracy fundamentally result of from
are a pressures within society and must be carried forward that
a by society. Ultimately
the people participating in election must their election. an own They who are most affected by the outcome should have the best possible for making their judgement. For this, often need external means they support and advice. The outside world assist in several can ways.
Electorates would benefit from having picture of what
a possible
and desirable in different situations. There electoral systems that
are no
in and and procedures can rarely be
are perfect every respect, patterns
replicated.
The sensitive nature of electoral collaboration in a longer and more
also raises the question of who sets the
process-focused perspective
for different phases and elements of electoral cooperation.
agenda
Political and integrity vital concerns.
neutrality are
This issue of relevant i.a. to the
political impartiality highly
establishment of rules and guidelines. The
universally accepted
of democratic and within them of the electoral
sustainability processes
such need by most who have
system requires norms a acknowledged
reflected of the few Some of the salient
over experiences past years.
enumerated below The list could be made
questions are as examples. very long.
What and should observers concentrate on On whose behalf do can make statements Who do they report to What do they do, they
they
discover Will the be How does
irregularities opposition accepted
its role How considerations and not seldom
perceive can political
be from factual conclusions
necessary political compromises separated
election such Sometimes marred election may
regarding an as even a
be forward, but in such instances crucial that the findings of
a step
observers both domestic and international be put record in their — on distinct from whatever different actors
own right as political course
choose follow. These of the which there
to are just some key questions on
What intolerable and what laudable in a no consensus today.
situation, furthermore not always a clearcut issue.
given
Elections exercises in Many different actors and voices
are pluralism.
therefore also be welcome in electoral observation and cooperation. must
Little would be served by attempts to centralize procedures, purpose this feasible. But having said this, equally
even were practically
clear that the proliferation in some instances of observer groups
present
would benefit from element of clarity and core of
an stringency, a
This close collaboration between
accepted guidelines. presupposes a
international and domestic organizations, which in its turn requires
form of worldwide contact.
some this there need felt for agent for
Against background, a by many an
that in its balanced both in relation
electoral support decision-making
the various interests at political parties, NGO’s,
to play - governments,
and bodies and in relation to the cultural and
parliaments comparable -
realities of societies in different of the world. The
historical parts
of the OAU those who have especially
Secretary-General among
emphasized this aspect.
4. Professionalism and Efficiency
A major the interlinked challenge of professional competence
concern In of the countries in transition, there a
and capacity-building. many
both of elections and the wider but related
dearth expertise on on
of democratic institution and of election observers,
question building,
monitors and researchers.
In discussions with the Commission, representatives of Switzerland
and Austria have particularly keenly stressed this aspect. They have
also pointed out that in their international development cooperation
they have facilities to help achieve this goal and would be interested in seeing pursued also by others the need considerable. On
- seen as a national basis Norway has carried out thorough inventory of what
a Norwegian society as a whole has to offer Nordem. The Commission
sees these initiatives as examples that could be emulated nationally and
serve as an inspiration internationally.
On the international side also, striking that of the actors,
so many
for instance parliamentary bodies, have main tasks other than election observation and monitoring. Such work generally not what they
were created for. Consequently they most often feel that they do not have the
the structures to them out well they would wish. resources or carry as as The Speaker of the Danish parliament of the Commissions
one discussants that has expressed desire for technical support in
a more various ways for parliamentarians participating in electoral observation misssions.
The field in need of centre that could and
a develop, merge
maintain professionalism in the electoral field the whole gamut of
over
expertise required jurists, parliamentarians, government officials,
-
experts on electoral systems and the mechanics of elections, political
scientists, educators, and others whose know-how and experience relevant to electoral operations.
Mandates and Roles
In a one-party state the of the state, party and parliament not
organs are separated. Often their roles are even combined in one and the
same individual. Nominal NGO’s in such systems also often manifestations
are in another form of this monolithic structure.
power
In a pluralistic democracy, on the other hand, different actors have different mandates and roles, and these roles not interchangeable.
are Parliaments, parliamentarians and NGO’s do not report to national
govemmentbodies or to international, intergovernmental organizations.
The UN, other multilateral agents, individual governments, parliaments,
NGO’s and the research community have constituencies, separate
which must be respected.
All these different actors should be able to participate in their
own right and on their own terms.
In elections the ruling government but of the actors. For
one an
election to be free and fair crucial to separate the role of government
from that of electoral Commission. A similar View must be taken with
an regard to the varying mandates and roles of election observers.
Even a sketchy overview of the available and actors
resources indicates that there tasks currently not and for
are being performed
which existing bodies cannot provide a full because of response
limitations in their mandates and affiliations.
5. Mandate and Tasks of the Institute
In 3 of this the Commission has described what in its
chapter report
have the challenges in the field of
consultations emerged as major
international electoral assistance They have led the Commission
today.
the that follow the institute’s mandate and
to conclusions regarding
work. there the of where to Irrespective of what
Also, question begin.
the institute have in medium-term perspective, would
agenda might a
have build to this In later chapter the Commission
to up gradually. a
forward ideas of what the initial tasks of the institute could
puts some
be during the first two to three years.
the with backgrounds and
Among many persons varying
with whom the Commission has been in touch, there a
perspectives
most of the tasks of the institute
broad consensus regarding possible -
the and mandate and differences of
process-oriented forward-looking -
few others, how much prominence
emphasis on a depending mainly on
also of the immediate, needs.
given to some aspects project-centred
A that most have made that the institute should focus
point people
what between elections. Consequently should not
mainly on happens
election and the immediate to it. The longconcentrate on day run-up electoral in wide should be the centre of focus term process a sense rather than electoral of various kinds. This point taken. has
projects
obvious for the kind of mandate the institute should have.
implications
of the have further and
Some Commissions contacts gone one step
in broad the and possible pointed to democracy a sense as concern mandate of the institute. An institute with elections would obviously be furthering an
dealing
of But immediate task in the short
essential element democracy. as an term, should concentrate onbuilding professionalism and competence
delimited The institute’s leadership feel at a
in a clearly sphere. may
that broader than this would be desirable.
later stage a approach
Whether not such extension of the mandate should be contemplated,
or an
should depend experience gained, perceived needs and the institute’s
on competence at that juncture. The institute’s statutes should therefore be
flexible enough to accommodate possible broader at some a scope
future date. Democracy wide concept that embraces than what
a more
directly and indirectly relates to the electoral better to begin
process. in specific rather than raise unrealistic expectations of early
a area expansion into wider field. A strengthening of the electoral
a process
and its foundations formidable challenge in itself.
a The institute’s possible tasks be described under three captions:
can
A. Normative and research,
B. Capacity-building, consultancy and assistance,
C. International electoral cooperation.
However, this distinction that should be used intellectual
a as an
tool only. There risk in overemphasizing basis for firm
a as a decisions the institute’s mandate. Very few issues in reality be
on can
neatly compartmentalized according to theoretical categories, as the
following examples will demonstrate. Many questions encompass
several aspects, although they be mainly characterized as belonging
may
other of the three types of tasks. to one or
A. Normative and research functions
The Commission has found large degree of unanimity regards the
a as need for normative capacity on the international electoral scene. This
a heading umbrella for spectrum of related but different tasks.
an a The most central of them the following:
are
1 A data bank 2 Research-oriented activities
3 Internationally accepted rules and guidelines
norms, 4 Publication of reports and studies
Examples of Normative Needs The borderline between normative, capacity-building and operative
demands not always distinct, as some of the following examples serve
to illustrate. They have normative side but also others.
a
These examples of practical needs represent possibilities for
an institute. Longer term and shorter term priorities would have to be set within them. A work plan for the institute would probably comprise
of the following issues but not necessarily all of them they
some - are quoted to demonstrate the type and of demands that still have to
scope
be met.
Where does turn to today for comprehensive information,
a one
compilation of studies and research. On all the different aspects of the
electoral technical, financial, comparative, legal and others process -
Where there to date, universal and easily accessible repository b an up of information national systems The Inter Parliamentary Union,
on IPU, has extensive records within its special field of competence, for
instance, which has expressed willingness to put at the disposal of a
institute. So far this of information has been largely untapped new source for lack of body that could utilize and draw together with other
a related documentation.
Much research should also be done in fields that today receive scant
c
attention. In the present situation, fresh of research
changing areas
should be identified. The institute could help to focus vital questions.
on
The need to the roles of government and opposi-
d clarify respective a
tion nas been mentioned earlier. Electoral legislation, the role of
and other assemblies also need to be analysed. In
parliaments popular practical guidelines should be developed.
some cases
Hitherto most international attention has been directed towards
e
presidential and parliamentary elections. But in a longer term perspective
from below; its foundations the local level.
a democracy develops are on
Practical tasks here beyond the capacity of the international
are
and must be undertaken nationally. But there for
community scope
discussing different models and approaches internationally with a view
to countries in democratic in local
assisting reinforcing processes a
context.
In respects the local level crucial to the growth of a democratic many
culture and to civil society. What happens there, tends to happen
Local the of democratic and
nationally. decision-making nursery
electoral However, local and local level
development. governments
institutions often struggling against constraints in
representative are
countries democratic transition. Can they be assisted
many undergoing a
material and advice from body that has broad view
conceptually by a a
of the scene
There need to international acceptance for standard norms,
f a gain
rules and What observed Who observes To whom do
guidelines.
observers What do do, they observe irregularities These
report they
and similar questions need to be tackled in comprehensive and as
a
uniform a way as possible.
The situation less than clear. Some bodies do have highly
today
professional staff and rules, but different external teams tend to follow
their which sometimes ad hoc; and national observer
own norms, are
diverge from country to country and from time to
groups even more time. The aim should be that not least domestic teams should by and large have with due consideration for specific
comparable guidelines,
situations.
What body today documents the extent to which electoral rights are
g
observed in different parts of the world A suggestion could be an annual state of the art document centred electoral in a
on processes
wide sense.
These of the normatively oriented issues that the
are only some Commission has met in its consultations and that the institute could address. The for international normative and research-oriented
case an mandate recognized by the international
a strong one, widely
community. The challenge is, the relatively short list of unmet
as even needs demonstrates, to confront number of practical and down-to-
a earth tasks rather than purely theoretical
ones.
Some fundamental, initial tasks would have to be undertaken and
normative capacity would have to be in place early on, the chief some of which the following.
are
1. Data Bank
An institute would have to establish data bank acting service
a as a facility for researchers and practitioners in the electoral and related fields. The data bank could draw together and factual informa-
process tion country basis, reports, evaluations, research findings and
on a similar documentation. A professionally managed information repository of this kind could quickly become an important instrument
for individuals and bodies seeking reliable and easily accessible mate-
rial Computerized and structured to facilitate cross-references. Many alternative grounds for presentation should be possible. Digests, executive summaries and annotated bibliographies would also be part of the services offered. In short, the data bank would act as a modern, specialized information centre.
National committees and support would also benefit from
groups
the services of data bank.
a
likely that data bank would entail some form of periodical
a
publication, although the data facility at least to begin with, would probably mainly react to requests.
2. Research Orientation
Another facet of the normative work could be research-oriented. The institute could maintain network of researchers and research institu-
a tions chapter 8. Not least by utilizing its data capacity, the
see own
institute could initiate or stimulate research into significant issues that the body of information available and indications from the field show
to be relatively little explored.
The Commission does not envisage the institute itself carrying out much academic research of its To build extensive such
own. up new facilities could be a duplication of what often best handled in
anyway
distinctly academic environment that provide researchers a more can
with the infrastructure and daily departmental and interdepartmental
contacts that they need to function well.
On the other hand, the institute should have nucleus of qualified
a researchers in order to have overview of ongoing work
a professional
worldwide and to commission and initiate research projects in fields that the institute has identified as meriting more attention.
A of this oriented work could be to provide
part analytically more
information and material than to undertake research in the
compile
strict of the word, but the borderline not distinct and need not
sense be so.
B. Capacity-building, consultancy and assistance
Capacity-building, the indicates, measures to
as name encompasses
strengthen domestic developments. They could include:
1 Assistance in establishing national needs and priorities 2 Facilitating the work of local
groups
3 Establishing networks for training
4 Some aspects of confidence-building
Examples of Needs in these Areas
As in the of normative tasks, the Commission has encountered
case
unanswered relating to the building of domestic capacity
many questions
to handle electoral The following small, illustrative
processes. a selection. Like several of the previous they combine different
ones,
centre capacity and know-how.
aspects although they mainly on
Much of the in the electoral field the role of
emphasis today on
external teams. They do play Vital role and are sometimes an
a
element. But giving to the long-term
indispensable more prominence
domestic the agenda. Each
processes means placing capacity high on
nation will have to develop its institutions and train electoral personnel of various This requires international cooperation and
categories.
massive scale. The skills must be imparted exchanges on a necessary and effective and structures put in place. This
adequate organizational a long-term process.
The mood and culture of in have to be
a society may many cases affected. Some adversarial than others,
multi-party systems are more but does understanding of the role of an
a democracy presuppose an
and that of and of the of the
opposition a government complementarity
two.
Meeting National Needs
The cost of elections question that should be given more thought.
a a
The Commission has asked an expert from Elections Canada body
- a that has experience from fifty countries to write short
some - a paper on this subject, which annexed Annex 3. In countries elections
many under the existing patterns are most difficult to undertake without
heavy outside support; domestically sustainable methods would have
to be different. In some parts of the world regional cooperation might help to bring down costs; several countries could share ballot boxes and other material and institutional infrastructure, they coordinated their elections in time. How can this and related issues be tackled
systematically
b Many voices from the South have emphasized the need to analyse the particular constraints and challenges in developing countries,
many where illiteracy and other country-specific conditions militate against
of the procedures and assumptions which and
many on European
North-American elections based. This particularly true of the rural
are areas, where most of the electorate lives in such countries.
The values and rationale underlying elections the but the c are same,
Varies in which an electorate freely and fairly its will and
way expresses
how the electoral system conceived. There doubt alternatives
are no to be considered that would better suit the conditions of countries
many
but thought and comparative study has to into these and other - more go
practical problems.
d The existence of experienced and well-trained judiciary andan
an adequate legal framework central also to the electoral and
process
often needs strengthening in countries with fragile democracies in
or transition.
Local Groups
In some countries there domestic often recently established e are groups, in connection with a first election, that seek i.a. to strengthen the principles of democratic and to monitor elections.
governance They often work with small means and have concluded that they must operate in a long-term perspective and in wider context than that
a offered by their national situation. Their need for back-up, service and support, sometimes also the protection that international network
an
could provide. This kind of important part of future group an
interlinkages and to be found in different countries.
Training Network
f Several governments and organizations training in
run courses
subjects connected with the electoral in its broad Many process sense. potential beneficiaries of these facilities however, of the
are, unaware
of that could be to them. There a role for a
range possibilities open
that caters to the needs of nationals of countries who might not
body
otherwise have information of what offered that perhaps do not
or have the to participate owing to bilateral limitations or other
funding
practical obstacles.
Confidence Building
Often national impasses elections characterized by distrust g over are between parties and in country. Now and then an impartial
groups a
outside body this lack of confidence and loosen can help to overcome knots facts advice based
tight simply by presenting giving professional
in quarters of the world.
on experiences many
This kind of intervention cannot be But when the need and
planned.
arise, t institute could consider playing such role, by
possioility .e a
the involved about and practices in other
informing parties legislation
countries. The of who national and thus eligible to vote bone
question a a
of contention in countries. Citizenship issues often solved many are than the of accepted rules; but
more through negotiation by application
in instances does to have to systematic surveys and some help access of what has been tested in other situations. This function would
analyses
be in between norm-setting and mediation. The Commission recognizes that most aid donors are already engaged in electoral assistance and wish to be doing so. also
providing seen
however, that the needs today great and varied and will be so notes, are for a long time to come. Much effort and assistance called for in the
more development are
period in between elections than currently forthcoming. Capacityin this stretches from the after election to and
building area day one up
including next election day and comprises an array of support measures. The beneficiaries local communities and
are governments, parliaments,
NGO’s in the countries concerned. The from helping NGO’s range and local to furthering national elections in a
developing government
broad sense. For the foreseeable future there will be demand for strengthening a institutions and attitudes that fundamental to elections and are A democratic culture and democratic attitudes take time to
democracy.
become sustainable. The here not too much involvement but
problem
too little; for the institute where to begin and what limitations to more make than should do anything at all. for national elections often described homogeneous in
Support as
character 0 all electoral assistance basically the
as everywhere was
In different types of action are lumped same. reality, many very under the of electoral assistance, even of electoral
together heading
observation. The and goals of teams differ. Some are more
perspectives
technical, Even in and the same election, teams some more political. one
have varying Election support falls into several categories.
may agendas.
One when elections are part of a larger peace-making of the
process
UN, such as Namibia and Cambodia. In other instances an election part of transition, such in Kenya and Malawi, to quote recent
a as examples, and the upcoming elections in Russia and South Africa. Such exercises generally well-covered projects.
are
On the other hand the second third election and the long and
or painstaking of creating democratic climate much less
process a
supported, although generally seen as being at least as important. A
consistent, coherent and broad approach to the issue of electoral
cooperation largely unmet need, despite the superficial impression
a of wide support to the field that the most publicized elections tend to create in the public mind.
The role of the institute in this area should be both a direct and an indirect one. Through its data collecting, situational mapping, expertise and networks in different fields, the institute could help in establishing national needs and priorities when requested to do so. could also act as a broker by collaborating closely with training centres and course organizers in different parts of the world in order places and
to secure
organize tailor-made for representatives of NGO’s
courses or
governments. Similarly could identify possible sources of assistance
to meet pinpointed needs.
Capacity-building take forms. The institute should have
can many
the development of know-how and of institutions of its central
as one themes, but should be and flexible about how achieves these
open
aims.
C. International electoral
cooperation
The Commission identifies two main types of work for an institute in the field of international electoral cooperation:
1 one relating to exchanges of experiences through seminars and
conferences and
2 one that focuses supporting electoral observation and monitoring
on in various forms.
The two treated under A and B previously those which
areas are on
there a large degree of consensus. As regards elements of the
some third of the institute’s possible undertakings, electoral observation,
monitoring and verification, the emphasis differs depending how
on this task perceived and defined. An emphasis the present and its
on needs leads kind of bias, whereas preoccupation with where the
to one a international community heading, implies another stress.
The Commission has discerned need to discuss broadening of
a a
operational action beyond electoral observation, monitoring and
verification, which today often are seen as almost to synonomous
electoral assistance. There much international interaction of other
kinds that potentially could be as important. One such to bring about exchanges of views on concerns concern shared such the role of the military and costs. such by many, as exercises action-oriented and down-to-earth, the implementation were of would doubt follow. In most instances,
accepted proposals no
and in best carried out domestically.
changes improvements are any case
In most not least in countries in transition there a strong
quarters - -
desire to exchange information and experiences, to come together in seminars, and at round tables to discuss issues also in a
workshops
the need much for intellectual assistance in
practical manner; as
domestic for abstract debates
tackling practical problems as more on
and theories.
principles
The institute should be well and equipped to mount seminars,
placed
conferences and spearhead topics, to meet the needs
workshops on
referred to elsewhere in this report. An annual conference chapter
see
7 the role of the Board of could be of the activities
on Trustees one
serving this purpose.
Another task and to observers, both domestic
backstopping support
and international service. An fact also that experiences of international observation
accepted
mixed. Some have worked well; others have been less than are teams There could thus be for evaluating and helping to
perfect. a case
improve electoral observation. The Commission wishes to raise this kind of for two reasons. concern
One International electoral cooperation should be basically
conceptual.
a mutual concern. Another, motive that the Commission also wishes
more practical
the operational needs balance to the present
to emphasize long-term as a
trend to stress short-term electoral projects.
of operational needs Examples
Topics Collaborative Exploration
for
The role of the has been mentioned under the normative
a opposition but has operational implications of an advisory nature as heading,
well. In must be viable alternative to the sitting
principle an opposition a
should be able to follow societal needs and
government. consequently
how the tackles them, the
study government implying an openness on
of the administration and willingness to discuss major
part sitting a
issues lines to ascertain whether there common ground. across party
The for its part must develop its role as a responsible opposition
alternative. This self-evident, but demonstrates
may seem experience
much remains be done reinforce this of the electoral and that to to part democratic process.
that and inference the
b A generally accepted tenet democracy by
— . electoral about what happens at the grass-roots
process basically
-
level of society. Democracy must function on the local level, to be
viable and sustainable process. This a fundamental requirement.
a The demands often than not greater there than
practical are more even at the national level. Arguably societies in transition towards
some
democracy should special emphasis decision-making and place on participation locally. What bodies are addressing this issue
systematically How much attention and being directed
resources are towards this of concern
area
The role of the military also subject that societies wish to c a many penetrate and that institute could help in analyzing and for
more an
which could provide forum for discussing.
a
d The situation of minorities and the issue of nationality and eligibility to vote likely to remain important question that needs to be studied
an further.
Elements Electoral Observation and Monitoring
As has been said above, there have been different views as regards to
e
what extent institute should involve itself in organizing international
an observer missions. This will have to be decided the institute comes
as
into being. What follows here a description of problems encountered
in such missions and proposed model for observers, that has been
a presented to the Commission:
A problem in elections who makes a statement on how free
many
and fair the has been and whose behalf this kind of judgement
process on
passed. Sometimes individual observers in a make
many group
comments and give interviews, which might might not be consistent
or with each other. Sometimes observers are required not to have
any
communication at all with the media; in such instances the final assessment be left to people bodies that have not been in
may even or
the country.
The of the institute and its governing bodies
Secretary-General
could not and should not play the role of kind of international
some
arbiter. Besides other under its aegis, the institute could
super groups
by drawing its network appoint small Chief Observer Group of
on a
experienced and respected individuals say five for this delicate
- overall task, chaired by eminent who would reach decision
an person a together with the group and supported by it. These conclusions could be based on this Chief Observer Groups contacts with observers including those that the institute have in place, NGO’s and others
may whose findings and opinions they might wish to seek in order to complement their observations in situ. The chair could normally
own make any official statements on behalf of the expert and be solely
group responsible for whatever the verdict might be, in much the
same way as the bench in a court reaches its decision in its own right in specific case,
a
irrespective of who has made the appointment or the courts
pays
salaries.
The role of the institute could in some instances be to establish such
team of eminent and other observer and to assure
a personalities groups
1 that all those involved objective, well qualified and of high
are
and 2 that certain set rules and adhered to.
integrity, guidelines are
Given this of the authority of the chief observa-
preeminence personal
tion team, the institute could well also help to build local capacity very
and through its people, by drawing on its networks or
competence own
by brokering.
Some elections attract much international attention and observation.
f
. Others the do not. The that not much in the majority ones are so - — often merit much How this need be adequately
limelights as support. can
met Are there demands for observation that still largely ignored are
the work done by teams of electoral observers yet
g Evaluating
another of that receives scant attention. What can be
type activity today
What has functioned well, and why
improved
One inference to be drawn from this brief list which could be much that different possible tasks for the institute are not so easy to
longer -
from each other when to concrete action. Democratic
separate comes
and electoral have reinforcing elements. Another
processes mutually
observation that much still remains to be done. very
and wish to mark their
Many governments organizations presence
their teams for electoral observation in elections that
by fielding own
have to follow Some discussants have
they special reasons closely.
therefore drawn attention to the for practical coordination in the case
field.
But has emerged from this overview, the Commissions opinion as
that the and fundamental needs today in the field of
major challenges
democracy and electoral do not include the issue of an processes
abundance of observers in what short-term projects anyway. More are
coordination should be achieved possible, but certainly other issues
should have The fundamental argument for institute has
precedence. an little bearing the proliferation question either way.
on
The international needs to strongly and to
community pull together
act the window of opportunity that exists for furthering on now
democratic and electoral The overriding need for farprocesses. a
strategy and adequate of implementing it. sighted means
Remarks on Mandates and Tasks
Concluding
In its consultations the Commission has established need for an a
institute and has identified number of other needs that could a address. The the Commission has the issues and
more penetrated
with its talks, the less has been able to exclude some of the
proceeded to others. Hypothetically the challenges or to give higher priority one or
other of task could be isolated, but when looking at the practical
type
issues all, the Commission has found in saying that
facing us difficulty
two aspects of them should be relevant and not others. only one or
Solutions will cut the board in and
probably right across many cases
have both normative, and operational sides to them.
capacity-building
The balance between these tasks should be task for the institutes
right a
Board and and be influenced experiences, demands and
leadership by
the activities of other bodies in the electoral field.
Normative and activities each other. Much
operative presuppose
research in the social and political sciences participatory in some
How the link between research evaluation and sense. necessary and
operations best and systematically handled today
and interaction with regard to other actors should
Complementarity
be vital principles for the institute to maintain.
The Commissions plea for mandate that beyond present
a sees short-term project requirements. A of this should be a
consequence
mandate that has windows and leaves some doors open. To box
many in institute that should deal with what necessarily a fluid and
an dynamic factor in development should be avoided. Democracy an ongoing movement. The institutes mandate should reflect
process, a this.
6. UN and Other The Role of the
Organizations
A number of organizations currently engaged in electoral large are
assistance in different forms. Annex 1 indicates those with which the
Commission has discussed needs and that have briefed the
outstanding
Commission their activities. others should doubt have been
on Many no
of the Commissions deliberations. The Commission would ideally
part
have sought broader contacts but had time constraints. even
The Commission indebted to the bodies and individuals
deeply
has been in touch with for their observations and sound advice. many
wealth of experience and professionalism Together they represent a that would merit an in-depth individual presentation.
the format of this justice to each
Regrettably, report precludes doing
and actor in the electoral field, especially as new developments every
about of emphasis and approaches. are constantly bringing changes
One of the initial tasks of the institute could be to publish an
many
overview of what being undertaken already in the field of electoral
assistance. The Commissions mandate and immediate task was to ascertain
whether these working with electoral support
organizations already
need for activities that vital but fall outside the scope of issues see a are that these able to address. One of the Commissions concerns
players are
also whether could meet whatever needs there
was some existing body
be in the field without having to create entirely new entity for
might an
the purpose. On both these the Commission received unequivocal and
points an
unanimous reaction: Yes, there needs summed up in a preceding are of this and the major actors in the sphere of
part report, yes, present
electoral assistance would welcome institute. In its suggestions for a an mandate 5 of the Commission has taken many
cf. chapter this report
from them and has been attentive to what they have defined as cues desirable. The United Nations, UN, significant actor in relation
an especially
electoral also. The Commission has been in close
to cooperation
communication with the Electoral Assistance Unit and UNDP in New York and the Centre for Human in Geneva at various stages in
Rights
its work. They have been helpful and have repeatedly welcomed very the establishment of institute to the UN’s efforts
a new as a complement
and factor in relation to the UN.
as a potentially reinforcing
The various have also expressed desire to collaborate
organizations a
with institute around different tasks that they as crucial. an see
The UN
Member states seek assistance from the UN essentially in four circumstances: when country undergoing transition to democracy; a a when to build peaceful alternative to conflict; following
seeking a
decolonization; and in self-determination elections. after its inception, the Electoral Assistance Unit EAU
Very quickly
of the UN launched ambitious and successful of electoral
an programme
observation and monitoring. Particularly taking into account its resource
constraints and the flood of incoming requests for support received,
the Unit must be deemed to be singularly successful. particularly that the Unit has not only managed the demands
noteworthy many
in terms of numbers, but has also step by step developed
placed on
its The referendum in Malawi in mid-1993 the best
methodology.
to date of functioning coordination by the UN of
example many
different actors and inputs. From its perspective the Centre for Human Rights in Geneva has
moved forward the positions of the international
conceptually
also in electoral support and has cooperated with the EAU
community
and others field situations. in many
The UNDP financer, through its resident representatives and
as a
technical assistance has been able to further electoral observa-
through
tion projects and other elements of the electoral process.
Notwithstanding these achievements, the UN has expressly
welcomed the idea of creating institute, given the magnitude and a new of the tasks ahead. has stated its interest and
complexity repeatedly
to with such institute, particularly in the
willingness cooperate an
normative and capacity-building fields, where an institute would complement the work of the UN.
Characteristics the scene apart the UN
from
The other actors the electoral have individual emphasis many on scene an
that follows from their particular background.
Sometimes their chief focus geographic geopolitical. The regional
or organizations in Europe such the CSCE and the Council of Europe are
as illustrations of this; there corresponding entities elsewhere.
are
In instances the role played by major actors defined by their
some
identity. The Commonwealth Secretariat perhaps the best
political
of this. Its mandate naturally centred the requirements
example on
and demands of the states that make the Commonwealth. The
up
Communities have similarly mandate that derives from EC
European a priorities.
virtue of their background of the actors have
By professional some a
crucial role to play in part of electoral but see their
one an process
task centred that, without comprising the whole agenda
specific as on
of electoral cooperation. Elections Canada and International Foundation for Electoral Systems IFES of the USA in point; without t .eir
are cases skill, dedication and the electoral field would be much
professionalism
but they have chosen to limit themselves to their special sphere poorer,
of competence.
4. The contributions of American institutes particularly the Carter
- Center, the National Democratic Institute NDI and the International
Republican Institute IRI are global, professional and recognized as
crucial in They pioneers in the field and have experience
many cases. are that few other actors enjoy. However, they nationally based
very are and to extent interpreted linked to specific political interests.
are some as They share this characteristic with number of other actors, among
a them parties and national parliaments. Sometimes this perceived national affiliation be strength, sometimes a disadvantage. Neutrality
can a and much easier to make credible in context where the
impartiality are a
principals of body more balanced.
a are
All actors today owned by single category of principal ony:
are one
parties, NGO’s, Most entities are from the
governments, or parliaments.
North. The need, stressed by of the Commissions contacts, to
so many
combine Various constituencies, geographic economic backgrounds
and types of perspective, unmet today.
This brief in doing justice to the
analysis — although no way
combined, substantial know—how and efforts in the electoral field and
less to individual actors to highlight a few points. even —can serve
illustrates all the actors welcome institute that
a. why present an
could the that the other players for individually cover ground
varying reasons cannot or will not enter.
b. Mandates and perspectives differ for individually well-founded
many
there need for comprehensive mandate.
reasons, so a a more
A number of the actors define their mandate and tasks
c. large present
in the of acute demands and in project terms. This often a
light
conscious priority evolving from their having other primary tasks.
thus conclude that they would benefit from the services of a
They
long-term oriented institute. more
A link to the UN
The field of electoral assistance fluid and dynamic. Responses and should therefore be flexible. The UN has demonstrated its
approaches
to to in this has been
ability adapt creatively new challenges area, as
indicated. However, despite these creative initiatives and documented prothe facing the UN and other actors daunting. The
gress, challenges are
UN, in with its mandate and responsibility feels the
particular, global
combined of short-term and demands. Not the
pressure long-term even
UN hope to provide in—depth electoral support in every situation can where there acute need and simultaneously reinforce the
an process
from election to election. such ambition would be
Perhaps an even
The role of the UN could be strategic as in the
counterproductive. a one,
of the recent referendum in Malawi, drawing on resources from case
different quarters, also for forward-looking and process—oriented
more efforts. The work must be done at several levels. The UN should be able to mobilize and direct efforts by others in where feels that this areas would benefit the task at hand. - At the outset of its work the Commission had as one of its hypotheses that there possibly too actors involved on the electoral scene.
were many
This assumption has proved to be wrong. Whereas a proliferation of observers manifest in perhaps ten to twenty key elections annually, there dearth of and actors overall and patently a resources an enormous unmet need when comes to the electoral as a
process
whole. Many of the Commissions contacts have stressed the desirability of subtle link to the UN to be able to work closely with the UN and a guarantee complementarity. The unanimous opinion the Commission has encountered this issue that the institute should be formally free on in relation to the UN and be financed outside the UN context but
nevertheless have conceptual and operational relationship.
a How such link could be crafted, must await the creation of the a institute. Representatives of the UN have kindly supported the work of the Commission and the idea of establishing an institute. An institution with agreed mandate and statutes must more or less have come into an
being, before the UN be formally approached the relationship.
can on The Commission suggests possibility that the link could take the as a
shape of the of the UN appointing personal
Secretary-General a
representative the Board of Trustees and the Board presenting its
on
annual report to the Secretary-General.
7. Statutes
Political and must be safeguarded in the statutes
neutrality integrity
and the of the electoral institute. There should be checks and
functioning
balances that the institute and to be This
to ensure impartial seen so.
i.a. that fair based assured.
implies a globally representation
A issue the need to create principal for the institute.
special a
derives its mandate from national
Normally an organization a intergovernmental body specific NGO or
government, an or some
NGO’s. In this the institute would not be dependent on any one
case
other this follows from the need for freedom of
government or agent;
action and for non-partisan decision-making.
The Commission thus that Board of Trustees be created
proposes a
to act the principal of the institute.
as
The institute structure suggested comprising the
governing as
following:
1. A Board of Trustees
2. An Executive Committee
The institute should have its operational
a Secretary-General as
head.
Board of Trustees
The Board of Trustees would be the of the statutes and have
guardian
of its tasks make in the mandate and overall direction
as one to changes
of the institute’s work, and when the Board deems such modifications
as to be necessary.
Another of the Board should be to establish the
major responsibility
annual of the institute. The financial framework and directives
budget
the of funds would decisions by the Board of
on use require specific
Trustees, which would appoint external auditor for the institute. an However, the Commissions view that the Board should restrict itself to the main elements of the budget, delegating executive decisions and
details to those responsible for the policies and guidelines for the
of the institute. This consideration not only based
operations a on of subsidiarity. The institute’s impartiality could conceivably
principles
be constraints imposed by the Board in effect regulated
jeopardized,
what the institute’s practical decisions would be in a specific situation. The Board of Trustees would exercise control the institute not over least by appointing its Executive Committee and Director. Establishing
shortlist of candidates would doubt be exacting task
a possible no an
the assistance of also outside the Board of Trustees.
requiring persons
The Commission merit in the Board drawing network of wellsees on a
connected senior personalities with varyingbackgrounds. As a resource
this network could be consulted for not least in group many purposes, connection with the appointment of qualified leadership for the institute. Such advisory panel should be informal but could play an an role by reinforcing the expertise of the Board of Trustees. As
important
advisors influential worldwide could help to both people ensure a broad recruitment of staff and generally facilitate the
geographically
institute’s and the Boards work.
Composition
The Board of Trustees should comprise three categories of interests. One would be by the financiers, another by with
represented persons different backgrounds, reflecting balanced geographical and professional
and third should be individuals with their base in
backgrounds, a
international bodies and the UN. This latter could comprise
group e.g.
and parliamentary bodies, NGO’s, regional parliamentarian
organizations and institutions with international share of activity an close relevant to that of the institute. to or
Size and Right to Representation
The Commission has given much thought to the question of numbers. The Board of Trustees should not be large. Yet at the
unmanageably
time, there advantage in having financiers the same an many — institute’s freedom and integrity would be greater that and the way, economic burden each contributing government body would be on or less. As the size of the financing influences that of the others, a group of the composition of the financiers’
point departure inevitably
group. The Commission is, however, not in position to define exactly what a size of the should be. Presumably all financing bodies
an optimal group
would wish to be represented and should be so.
The chair of the Board should be elected by the Board of Trustees for
limited five The incumbent should be recruited
a period, perhaps years.
worldwide basis.
on a
Work the Board
As the Board of Trustees would not be involved in the operational activities and decisions of the institute, should normally meet once a
in plenary.
year The annual board meeting could be combined with a symposium or
conference related to the general of the institute. The
on a topic scope
Commission has perceived interest in and need for some periodic
an a
event of this kind, where researchers, jurists, electoral technicians,
and decision-makers could exchange views and
parliamentarians
Indeed, such recurrent exercise may well in its own right
experiences. a
become of the prominent of the institute’s undertakings.
one more
II. The Executive Committee
The Board of Trustees should appoint Executive Committee and a
an
the institute.
Secretary-General to run
The Committee should consist of about ten members, including the
Secretary-General.
to the Committee suggested to be on an individual
Appointments are
basis and limited, renewable mandate. The should apply to the
a same
Secretary-General. The terms of tenure should be staggered, not more
than half the Committee for renewal time, in order to
being up at a
safeguard continuity.
The Committee to lead and direct the institute’s opera-
expected
tions. This would of the Committee that adequately
require a composition
reflects the various facets of the institute’s work. Thus the Committee should expertise of different kinds: legal skills, electoral
comprise
and relevant research fields, information
techniques methodology, technology, training and capacity-building, political science, economy,
administration and other that important for the institute’s
areas are work. The basis for selection should be competence and
proven
Incumbents should be soughfoworld-wide but with a view
experience.
to geographical balance far possible. striking an acceptable as as
The Committee three four times year; details of
might convene or a its methods should be to the Committee itself to decide.
working up
The total of the Committee should be ofthe guiding
competence one
for selection member of the Committee. would be
principles as
to that crucial of expertise not absent important ensure some area was in the Committee.
The Committee should also be for the maintenance of
responsible
budgetary and other administrative routines.
intemationally recognized
III. The Status of the Institute
The institute would bring together in the same body
proposed
NGO’s, parliaments and international agencies as equal
governments,
The Commission that the institute therefore be partners. proposes
established foundation have similar status, depending on the
as a or
in the country where the institute sited, that could cover a
legislation
between governments, international organizations and
cooperation
parliaments.
Parallels in other fields demonstrate that legal arrangements can be
made with host exemptions from domestic fiscal
governments to secure
and other when and that such special
regulations necessary
often not required. This matter for
understandings are area a
negotiation with host country government and only be tackled,
a can when firm for seat have been tabled. This whole area must
suggestions a
be for negotiation when establishing the institute.
a subject
Advisory Panel and Contact Groups
from this formal structure the Commission sees advantage in the
Apart
institute’s having to network of personalities who could proffer
access a advice issues and assist in head hunting for senior posts and
on specific
missions. Such advisory panel would be outside the structure of the
an
institute but could nevertheless reinforce and broaden the institute’s
decision-making capacity.
The Commission has also met suggestions from quarters in the
- a. Netherlands and Kenya that national committees, support or
- groups
societies of friends of the institute could provide with points of contact
and This idea appealing, but such should be inputs. any groups
external to the formal decision-making structure. In some countries
there might be strong for national groups, in others not; national
a case
contact should be an option to consider but should be voluntary. groups
and Guidelines
Organizational Principles
Three main of tasks have been proposed above for the institute.
areas
A firm structure for the institute follows from later
organizational
decisions on the mandate. At this stage the Commission
mits itself to suggestions regarding principles and some practicalities.
Organizational principles
The following few of the considerations that might be useful as
are a
guidelines for the institute in organizational terms.
There could be advantages for the institute in having system based
a mainly networks of various kinds. Much of the initial work to be done
on would then be in and maintaining these networks.
establishing
I On the normative side important linkages would be with and
between research institutions worldwide and the institute.
I Capacity-building would imply making a resource inventory internationally resembling that established by Norway nationally
Nordem, and creating formalized cooperation between
more training and briefing institutions and bodies in way or another
one
engaged in competence in the different elements of the
reinforcing
electoral in a wide sense.
process
I An especially significant network should comprise national groups,
as indicated earlier. Their needs should be met, and they should be
in position to influence the institute’s and other actors’ agenda.
a
I Electoral assistance would necessitate the setting of rosters of
up
experts in different fields and working i.a. with parliamentarians.
These networks should be actively maintained. This going
means well beyond documenting letterbox exercise. The networking
a or
and bodies should be able to interact with one another and with
groups
the institute. This could be brought about i.a. through meetings, conferences and publications with considerable inputs from the
participating organizations.
National support or friends of the institute could be
groups
encouraged wherever there domestic interest to have them. Such
a
could focal point nationally for the institute and could groups serve as a bring together various domestic actors who might otherwise have less
possibility of interacting and cooperating.
This possible catalytic effect of the institute a function that could potentially be as important as much of its direct action.
The other side of the networking coin that the institute should
cultivate and emphasize its position facilitator and analytical
as a
This places two demands the institute organization. resource. on as an
should be able to draw know-how external to in specific a on areas and apply its own capacity strategically to the overall scene.
As Samuel Johnson remarked: Knowledge of two kinds. Either
know the know where to find them. A part of the you answers or you institute’s knowledge should be of the second kind coupled with a
special competence related to the needs and dynamics of the electoral
in its broad sense.
process
b Through its data bank the institute would also be able to supply
many concrete answers. should serve as a central agent for information and
analytical capacity. However, this role the just
presupposes one
mentioned an overview coupled with a willingness to employ the
services of, for instance, centres of learning to assist in consultancy
a capacity. The institute should be responsible for the analyses and overviews produces on the basis of its data, but some of the actual compilation and study could probably be farmed out. Whenever feasible
such approach should be adopted.
an
A of this approach that the institute’s staff could be
consequence
limited in number. Specialists in various fields would be available externally. The institute could emphasize problem identification and
definition and an understanding of the comparative advantages of
different bodies and actors worldwide in providing solutions in given situations.
virtue of its structure the institute should have special task to
By a
combine actors with varying constituencies their own terms. This
on
clear of facilitating such cooperation in field
implies a policy e opera-
tions, conferences and studies. Institute staff sometimes, through
may their work, be in touch with category of actor than with
more one another. Also, the internal working at the institute should
procedures
take this into account and create balance in the overall organizational
a culture.
Whatever structure adopted by the institute, there
organizational
should be built—in close contact between different activities. As has
a been indicated earlier, in actual the borderlines between tasks
practice
often arbitrary. Different parts of the institute
are ambiguous, even
would often have to draw each other’s skills and networks.
probably on
There should be both formal and informal ties to secure this collaboration.
Some practical suggestions
At this would be to draw exact of the
stage premature an organogram
institute. However, based the previous chapters, suggestion could
on a
be the following:
Adm. SECR. GEN Info.
__
I I
Capacity International
Normative
building Electoral
and Research
Consultancy Cooperation
A few practical points also be raised:
can
Information in various forms will predictably be major practical a. a work—load for the institute. There should be continuous flow of
a information in and between the networks. Both request and on its
on
initiative the institute will be governments and
own supplying
organizations with material and studies. Briefings should constitute an integral part of what the institute will be expected to deliver. In its formative the institute will also have to make its mandate and
years plans known.
Some of this work of nature should be the
- a more general -
of the Secretary—General’s office. Most of would,
responsibility
however, be linked to the institute’s activities and indeed
organically
often be important element of its output.
an In the latter instances the staff involved should provide the substance and of the information of its tasks. But
see production as one as
in other fields should have the support and backing of
specialists they
in information techniques and communication.
professionals
The institute should have its nucleus of such competence, given own the role that information be expected to have.
providing can
b. The work of each department of the institute should regularly
plan
what time and would require from other departments,
specify inputs
in consultation with those units. Budgets should regularly include such non-financial needs.
Electoral field operations can demonstrably edge out c. cooperation - -
normative work, unless checked by priorities and policy constraints. more that the institute’s leadership be attentive to this possible
important
risk and the and that individual
through budget supervision ensure no
of the institute’s in unforeseen The
part operations grows an way.
Commission has encountered few misgivings this particular issue a on but that the institute’s will be of the
anticipates leadership aware
and will utilize the instruments of control and
possible problem mana-
gement that has at its disposal. Sometimes tensions in arise from the fact that outside
organizations
demand for activities that greater than
pressures create a operational
the wish to out other activities, e. long-term
organizations own carry
normative action. This be countered by creating an external or can
for such work, for instance in the form of an advisory pressure group
of who have such activities at heart and be expected
group experts can
to for them.
push
As indicated earlier, the different sides of the institute’s activities also each other and to some extent be mutually
presuppose can
reinforcing.
d. Staff should be employed in stages, rather than incumbents sought for all the established posts at once. A staggered recruitment could
for in finding that complement each
provide greater leeway persons
other.
and
Budget Organization
This chapter outlines a tentative budget for the establishment of the
Institute and the first three of operations.
years
As stated in chapter 8 on organizational principles, at this stage
premature to draw an exact of the Institute. Nevertheless
organogram
and possible to calculate preliminary costs.
necessary
The Commission estimates that staff of about thirty in all should be
a a feasible target, provided that the institute draws external
on resources on an ad hoc basis to complement its own capacity.
The first three of operations should be characterized by an years
organic growth of the Institute. Staff should be employed in stages, rather than all at In order to simplify the picture, take three
once. we year
as the point of departure when sketching the preliminary budget.
should be understood that this rough outline, due to the fact that the
a details of the growth and the administrative structure must be
process subject to decisions by the Institute itself and its Board of Trustees.
The costs will be treated under three different headings: A Salaries
and Related Costs; B Office Rent, Furniture and Maintenance, and C
Direct Programme Costs.
A Salaries and related costs
1. Outline of staffing plan
To enable the creation of a preliminary budget expressing the costs of establishing and running the Institute, number of assumptions
a
regarding the Institute’s staffing will be made in the following. should
be underlined that the personnel establishment meant to reflect the Institute’s situation in the third
year.
The Secretary-Genera1’s office could, apart from the Secretary-
General him her self, be manned by i.a. one clerk, a senior administrator, communications expert and senior secretary.
a a
The departrnents for normative work, capacity building and electoral cooperation could each consist of Head of Department, b four
a one senior officers experts, two junior officers and d two secretaries.
c
The figures mentioned in the following are comprehensively displayed in table no The text below explains the preliminary budget figures in table
no
2. Salaries and related costs
As points of reference for salary estimates, the Commission has used three international organizations. These the International Union
are a for Conservation of Nature and Natural Resources IUCN
a semigovernmental organization based in Geneva, b the International Institute for Environment and Development IIED an international
NGO based in London and, the Mekong Secretariat, a regional
c
intergovernmental organization.
Professional staff should be recruited international basis.
on an
Others should be employed locally. The personnel costs will naturally
depend on where the Institute will be sited. The following an approximation arrived at by amalgamating and weighting salaries and related costs from the three different bodies mentioned above. The figures, should be emphasized, total for post, i.e. medical care,
cover expenses a -
social costs, etc than the incumbents actual salary.
- more
Allfigures in USD
| Personnel | Year 3 | |
| 1 Secretary General: | 100,000 | |
| 12 Senior officersexperts: | 950,000 | |
| 1 Communications | expert: | 70,000 |
| 1 Senior administrator | officers: | 290,000 |
| 1 Clerk: | 40,000 | |
| 4 Senior secretaries: | 160,000 | |
| 3 Mid level secretaries: | 90,000 | |
| Total cost for staff | 3. | 1,760,000 |
year
The Commission has also made an estimation of these salary costs based available UN standards. That approximation turned out to be
on almost USD million higher than the figure above. The Commission
one
has preferred the lower figures.
to use
However, bearing in mind the Institute’s proposed link to the UN and the importance of being able to recruit truly competent staff, the Commission possible need to recruit staff UN terms. The
can see a on issue of salaries will be question for the Board of Trustees. There
a
should thus be for somewhat higher figure than the
a preparedness a quoted above.
one
3. Fees and related costs, non-permanent staff
Funds must be available for the Executive Committees fees and travel
As described in chapter Statutes, the Executive Committee expenses. should consist of about ten members and meet about four times a year. The cost for this could be estimated at USD 200,000 annually.
Funds must also be available for the Annual Meeting of the Board of Trustees, which outlined in could be combined with
as chapter an
international conference, hence the cost of organizing
symposium or
the Annual Meeting could amount to USD 200,000.
In the Commission the creation of network of
chapter suggests a
senior to be connected to the Board of Trustees sort of
personalities as a
advisory panel. Travel and fees for such an advisory panel
expenses could be estimated at USD 100,000. The Institute must have budget for fees to consultants and for
a temporary assistance of not directly related to specific projects or
i.a. administrative organizational work during the programmes, or formative period of the Institute. A sum of USD 200,000 an estimate for three.
year
4. Travel and communication costs
The Institute’s international character indicates relatively high costs for travel, telecommunications, postage etc.
The for travel costs based the assumption that the
figures are on
staff of 18 will make four
professional persons on an average
intercontinental annually, and two regional trips each.
joumeys
Year 3
Travel expenses 500,000
Telecommunications, postage etc: 70,000
Total estimated cost for travel and communication, year three: 570,000
B Office rent, maintenance, furniture and equipment
Recurrent costs
The estimated cost for rent of office in major capital USD 10,000
space a
which to USD 300,000 three.
per employee, sums up approximately year
The budget for general maintenance and normal office upkeep
approximated at USD 40,000 three.
year
The annual budget for replacement of equipment estimated at
USD 40,000.
Initial costs
The initial cost for office furniture and equipment estimated at USD 10,000 employee, plus round of USD 100,000 for equipment
per a sum and furniture not related to individual employees. This amounts to
a total investment cost of USD 400,000. This investment could, for the sake of be divided equally the first three years, which in
simplicity over
round leads to estimated annual investment cost of USD
figures an
140,000 during the first three years.
C Direct costs
programme
The Institute’s costs will depend the level of
programme-related on
activities that the Institute in, which an issue to be discussed
engages
and decided by, the Board of Trustees. among,
Below follows estimate of the costs directly related to
an programme
activities.
1. Establishing and maintaining a data bank
The setting and maintenance of the proposed data bank would be a
up
part of the Institute’s day-to-day activities. The basic cost for personnel
reflected in the personnel budget. Costs for the systematic acquisition,
processing and distribution of information are estimated at USD 100.000,
three. The Commission has consulted organizations with similar year activities. The cost of running data bank depends the extent can
a on draw information in other existing data banks and data bases. The
on
here that of the information
figure quoted presupposes some necessary
be compiled from diversity of existing and that some have can a sources to be created from scratch. the need for manual data collection
proves to be extensive, the cost for the data bank will increase. This must be studied in detail before concrete decisions have to be taken
more regarding the data bank.
2. Academic and professional networks
The Institute’s support to external academic work, linking of academic
and professional institutions organizations in global networks and
commission of analytical work, would require a budget of USD 500,000 for year three.
3. international seminars and workshops:
Organizing
The cost of seminar workshop, with fifty international
organizing a
participants would depend geographical location and the number of
on participants covering their own travel expenses. A cost estimation lies between USD 125,000 and 200,000 seminar. The Institute could be
per
expected to organize two such meetings three, and one minor
year
meeting approximated total annual cost of USD 450,000.
- at an
4. Organizing training and
courses
The Institute will in the organization of courses and training
engage
i.a. to national electoral committees and the
programmes strengthen
civil society. A of USD 600,000 estimated figure for three.
sum an year
5. Information and Publications
The Institute will need to undertake extensive information activities such i.a. and distribution of newsletters, yearbooks and
as production
participation in conferences. An estimated budget for external information amounts to USD 200,000, three.
year
Electoral cooperation activities
As stated in chapter consistent, coherent and broad approach to the
a issue of electoral cooperation and the practical challenges outlined there, a need to be met by the Institute. Long-termflprojects
over
several could be important element of the Institute’s
years an
undertakings.
The Commission recommends that the Institute should have
a
budgetary preparedness to participate in and to undertake electoral
cooperation activities. The cost for electoral cooperation activities during
three approximated at USD 1,000,000. year
The total cost of estalishing and running the institute
‘ By summing all the costs accounted for in this chapter, shown in
up as
table ends with grand total of USD 6,400,000 as a
no one up a
preliminary figure reflecting the possible cost of running the Institute
‘-
during the third of operations.
year
In order to make rough estimate of the total cost of setting the
a up Institute, and the first three of activities, the costs for the first two
years
must be added to the of USD 6.400.000. To make approxiyears sum an mation of the costs for the first two suggest, for the sake of
years we
simplicity, and bearing in mind that the Institute to gradually,
grow
that the cost for the first two years regarded as equal to the cost of
year
three, meaning that the cost for the first two could be estimated at
years USD 6,400,000. The division between one and two could, year year
in mind the gradual growth of the Institute, be
again bearing
at USD 2,200,000 and USD 4,200,000 two.
approximated year one, year
This exercise leads to round of USD 12,800,000, reflecting
us a sum the cost of setting the Institute and the first three of
probable up years
operations.
Table No 1
Cost estimations USD Year 3
in
A Salaries and related costs
| 1. Staff | 1,760,000 | |
| 2. Fees and related costs, non-permanent | staff | |
| Executive Committee | 200,000 | |
| Consultants | 200,000 | |
| Annual Meeting | 200,000 | |
| Advisory Council | 100,000 | 700,000 |
3. Travel and communication Travel 300,000
expenses
Telecommunications, etc. 70,000
570,000
B Office rent, maintenance, furniture and
equipment
Recurrent
| Office rent | 300,000 |
| General maintenance | 40,000 |
| Replacement | 40,000 |
Initial annually during a three-year period
Furniture and equipment 140,000
520,000
C Direct costs
programme
Data bank 100,000 Academic and prefessional networks 500,000 International seminars and workshops 450,000 Training and courses 600,000 Information and publicationes 200,000 Electoral cooperation 1,000,000
Total estimated cost 3 6,400,000
year
Assuming gradual growth of the Institute, the cost for the first year
a could be estimated at USD 2,200,000, the cost for the second year USD 4,200,000, and as shown above the cost for the third year estimated at USD 6,400,000. This gives total estimated cost for the first three
a years
of USD 12,800,000.
10. The Further Process
the institute into being, will develop and change in
comes response
to demands placed it. The only phase that should be defined at the
on outset the general thrust and the priorities of the first few formative
On the other hand these initial steps are crucial for the character years. of the organization. The Commission therefore need to outline in
sees a broad terms how the first period of the institutes establishment.
sees
The Commission recommends that the Swedish Government should issue invitations to exploratory meeting the of which would
an purpose
be to take the initiative a step further in a more formal manner. Invitations should be addressed to bodies that have indicated a willingness to discuss the matter further when approached by the Commission in its rounds of Consultation.
The understanding should be that the bodies participating in the
meeting would be prepared to make a formal commitment, reasonably satisfied with the outcome. To considerable extent the meeting could
a probably be expected to take the form of negotiations on the central issues relating to the institute the meeting should on the need
- agree
for body of kind such the mandate and tasks, statutes,
a new some - as
and budget. organization
Interim Board
The meeting should result negotiated document that could form the
in a basis for setting interim board for the institute assuming the
up an - as Commission has to believe, that there support for institute.
reason an
The interim board should be vested with authority by the
sponsors
of the institute to work out in detail the institute’s statutes, mandate,
organization, etc. and to begin recruiting key staff.
Staffing
The interim board should give high priority to recruiting the institute’s
early in its work.
Secretary-General
The full staff of the institute should be recruited in stages.
personnel acquired the basis of experienced generally preferable, are on
needs far possible, and with view to complementing officers
as as a already in Not the best of plans foresee all requirements
place. even can and less the competence and profile that recruitee
even particular a brings to the job.
recruitments could, apart from obvious administrative
Early some
be key for the data bank, and
people, personnel responsible surveys analyses.
A vital for recruitment at the outset would also be staff to work
area
guidelines and rules.
on norms,
Annex 1
Acknowledgements
The Commission wishes to its profound gratitude to a great
express
number of governments, parliamentarians, representatives of various
international, regional and national organisations and experts
to many and individuals, who have kindly given the Commission ample time, suggestions, ideas and comments.
The following list includes some, maybe most, of these contact
points. listed in categories. At the government level talks
They are some have been with cabinet ministers, with diplomats and other
some officials. Government contacts at Various levels are recorded by the name of the country.. In the case of other categories some names are listed but with the knowledge that, unfortunately, be omitted.
many may
Please rest assured, however, that the Commission grateful to all, mentioned or not.
In Sweden the Commission has worked with secretariat and
a an
Advisory Group. The Advisory Group has consisted of Mr. Axel
Andersson, MP, Mr. Karl-Göran Biörsmark, MP, Professor Axel Hadenius, Mr. Thomas Hammarberg, former of
Secretary-General
Amnesty International and the Swedish Save the Children, Mr. Jan
Hult, electoral expert, Mr. Gerald Nagler, former of
Secretary-General
Helsinki Watch, Ms. Annika Söder, Counsellor at the Ministry for Foreign Affairs and Mr. Christian Åhlund, Lawyer and advisor
on human rights issues. The Secretariat has been formed by Ambassador
Bengt Säve-Söderbergh, Chairman, Ambassador Lars-Olof Edström,
First Per Örnéus and Ms. Ann Mari Schmidt, Senior Clerical
Secretary
Officer.
Governments
In various forms the Commission has had the privilege to consult with
representatives of sixty Governments. They listed here in
some are
alphabetical order: Algeria, Australia, Austria, Bangladesh, Belgium, Bolivia, Botswana,
Burkina Faso, Burundi, Canada, Chile, Denmark, Ecuador, Egypt,
Estonia, Ethiopia, Finland, France, Germany, Guatemala, Honduras,
Hungary, India, Indonesia, Japan, Kazakhstan, Kenya, Kyrgyzstan,
Latvia, Lesotho, Libya, Madagascar, Mexico, Mozambique, Namibia,
Netherlands, Nicaragua, Nigeria, Norway, Pakistan, Poland, Romania,
Russia, Senegal, Slovenia, Sri Lanka, Sudan, Switzerland, Tanzania,
Annex 1 Thailand, Tunisia, Uganda, United Kingdom, United States of America, Uruguay, Venezuela, Zambia and Zimbabwe.
The Commission has visited number of the countries listed above,
a
to meet with government representatives. In other cases representatives
have visited Stockholm to discuss with the Commission. The Commission has also had the of participating in seminars and
privilege
conferences and officials. In
arranged by governments government
of this the Commission would like to thank the governments of
respect
Austria, Canada, Germany, Namibia and Venezuela.
International and regional organizations
African Development Bank
Mr Babacar N Diaye, President Mr Gedamu, Vice President
Tekalign
Arab Fund for Economic and Social Development Mr Abdlatif A1-Hamad, Chairman of the Board
Asian Development Bank
Mr Kimimasa Tarumizu, President Mr Peter McCawly, Executive Director, Australia
The Commission of the European Community Mr Peter Pooley, Director-General, DG VIII
Mr Dieter Frisch, Ex Director-General, DG VIII
Mr Ed Kronenburg, Director Mr Hans Smida, Director, DG VIII Mr Denis Corboy, Political Advisor
The Commonwealth Secretariat Chief Emeka Anyaoku,
Secretary-General Mr Anthony Siaguru, Dep. Secretary-General
Mr Max Gaylard, Director
Council of Europe
Mr John Hartland, Counsellor, Strasbourg
Conference Security and Cooperation in Europe, CSCE
on Mr Luchino Cortese, Director, ODIHR, Warsaw Mr Jack Zetkulic, Deputy Director, ODIHR, Warsaw Mr Pentti Väänänen, Deputy Director, Secretariat of CSCE
Parliamentary Assembly, Copenhagen
European Bank for Reconstruction and Development Mr Anders Ljung, Vice President for Finance
Ms Sylvia Jay, Director of the Political Department
Annex 1 The European Parliament Mr André Chairman, the Development Committee, Brussels
Saby,
Mr Brian Rose, Counsellor, Luxemburg
International Monetary Fund, IMF Mr Michel Camdessus, Managing Director
Inter-American Development Bank Mr Enrique V. Iglesias, President Dr Louis Emmerij, Advisor to the President
International Commission of Jurists Mr Adama Dieng,
Secretary-General
Inter-Parliamentary Union
Mr Pierre Cornillon,
Secretary-General
Mr Anders Jonsson, Deputy
Secretary-General
Organization for Economic Cooperation and Development
Development Assistance Committee, OECDDAC
Mr Alexander Love, President
M. Makota Tiniguchi, Deputy
Secretary-General
Organization of African Unity OAU
Mr Salim Ahmed Salim,
Secretary-General
Mr Etulo Mpwotsh Ngung, Director
Parlimentarians for Global Action Ms Silvia Hernandez, International President Hon. Mr Walter McLean, Chair, International Council Mr Julio Camino, Vice Chair, International Council
Sir David Steel, International Council
Mr Kennedy Graham,
Secretary-General
Society for International Development
Mr Maurice Williams, President
The World Bank Mr Sven Sandström, Deputy President Mr Edward Iaycox, Senior Vice President Mr Alex Shakow, Senior Vice President
Mr Sarwar Lateef, Chief, Operations Policy Department
Organizations in the electoral field
International Foundation for Electoral Systems, IFES, USA Mr Director i
Richard Soudriette,
Mr Jeff Fischer, Deputy Director
Annex 1 National Democratic Institute NDI, Washington, USA Mr Kenneth Wollack, President Mr Larry Garber, Senior Associate Mr Ned Mc Mahon, Senior Officer
International Republican Institute IRI Washington, USA Ms Meg Thompson, Vice President
Ms Mary Coughlin
Ms Julie Heitz
The Carter Center, USA Mr Stevens P. Tucker Mr Richard Joseph
Ms Dayle Spencer
Mr Robert Pastor
Elections Canada Mr Kingsley, Chief Electoral Officer
Jean-Pierre
Mr Ron Gould, Ass. Chief Executive Officer
Australian Electoral Commission Mr Brian Cox
Institute for General Election, Indonesia Mr Azhar Zainal
Electoral Reform Society, United Kingdom
Mr Michael Meadowcroft, Chairman
United nations
UN Centre for Human Rights, Geneva Mr Ibrahima Fall, Under
Secretary-General
Mr Antoine Blanca, Director-General
Mr Thomas McCarthy, Counsellor Mr Craig Mukhiber
UN Electoral Assistance Unit, New York Dr Horacio Boneo, Director, UNEAU
UNDP Mr Gustave Speth, Administrator Mr William Draper, Ex Administrator Mr Mahubub ul Haq, Special Advisor
Mr Timothy Rothermel, Director
Mr Gus Edgren, Ass. Administrator
Mr Hugh Cholmondeley, Chief Officer
Annex 1
Individuals
Ms Maria-Goretti Agaleoue Adoua, MP, Burkina Faso
Mr Martti Ahtisaari, United Nations, Geneva Mr Amakoe Toto Ajavon, MP, Togo Mr Jorge Alcocer, MP, Mexico Mr Jose Maria Soria Arch, MP, Argentina Mr Oscar Arias, former President of Costa Rica
Ms Pheobe Muga Asiyo, MP, Kenya
Dr Yusuf Bangura, United Nations Research Institute for Social
Development, Geneva
Professor Jagdish Bhagwati, Columbia University, New York, USA
Dr Richard E. Bissell, Overseas Development Council, USA
Reverend Allan Boesak, South Africa Hon. Mr Ed Broadbent, President, the International Centre for Human Rights and Democratic Development, Canada
Hon. Mr Donald Buchanan, MP, Jamaica
Mr Eduardo Calmell del Solar, MP, Peru Mr David Campos, Mexico Ms Nicole Catala, MP, France
Mr Victor Moreno Catena, Under-Secretary, Ministry of the Interior,
Spain
Mr Pedro Cateriano, MP, Peru
Mr Richard Cazenave, MP, France
Mr Juan Octavio Ceballos, MP, the Dominican Republic Reverend Frank Chikane, General Secretary, South African
Council of Churches
Mr Erskine Childers, former UN official, New York
Mr Valdir Colatto, MP, Brazil Mr Barber B. Conable, former President of the World Bank, USA
Mr Stoney Cooks, Director, African-American Institute, USA
Ms Maja Daruwala, the Ford Foundation, India
Mr Basil Davidson, United Kingdom Professor Emmanuel Decaux, Université de Paris, France Mr Luc Dhoore, MP, Belgium Mr Milagros Diaz, MP, the Dominican Republic Mr Robert Dossou, MP, Benin Dr Ronald Dreyer, Switzerland
Professor Krzysztof Drzewicki, University of Gdansk, Poland
Ms Peggy Dulaney, Synergos Institute, USA
Mr Carlos Gonzalez Duran, MP, Mexico
Mr Rawle C. Eastrnond, MP, Barbados
Mr Tyrore Estwick, MP, Barbados
Mr German Ferres, MP, Venezuela
Mr Joseph Fignole Jean Louis, MP, Haiti
Annex 1 Mr Mario Boyd Galindo, MP, Panama
Ms Ana Lucina Garcia, MP, Venezuela
Mr Laurent MP, Cote dIvoire
Gbagbo,
Professor Konrad Ginther, University of Graz, Austria Ms Grace Githu, former Chair, National Election Monitoring
lawyer, Unit, Kenya
Mr Eudoro González, MP, Venezuela Mr Branislav Gosovic, Ex. Director, South Centre, Switzerland Mr John W. Graham, Organization of American States, OAS Ms Elisabeth Grotschmann, MP, Germany Mr Gary Guiteau, MP, Haiti
Mr Michel Hansenne, Director-General, ILO Dr Graham Hassall, University of Melbourne, Australia
Dr Ingomar Hauchler, MP, Germany
Ms Wakako Hironaka, MP, Japan
Professor Ryokichi Hirono, Seikei University, Tokyo, Japan
Dr Uwe Holz, MP, Germany
Mr Bernando Horande, MP, Venezuela
Mr Dudley Horner, Deputy Director, University of Cape Town,
South Africa
Professor Göran of Florida, Gainesville, USA
Hydén, University
Professor Kuniko Inoguchi, Sophia University, Tokyo, Japan
Mr Jose Rodriguez Iturbe, MP, Venezuela
Dr Peter Jankowitsch, MP, Austria Mr Idriss Jazairy, former President, International Fund for Agricultural
Development
Hon. Mr Anthony Johnson, MP, Jamaica
Lord Frank Judd, MP, United Kingdom
Mr Lamin Juwara, MP, Gambia
Mr Janis Jürkans, Latvian Support Foundation, Latvia
Ms Maria Kamm, MP, Tanzania Ms Hounda Kanoun, MP, Tunisia
Ms Chalufaya Kapwepe, MP, Zambia
H.E. Prince Sadruddin Aga Khan, former UNHCR, Switzerland
Dr Malamine Kourouma, Secretary General,
Comité Africain Droit et Développement, Senegal
pour
Ms Manae Kubota, MP, Japan
Dr Carol Lancaster, Director, Georgetown University, Washington,
D.C. USA Mr Kango Lare-Lantone, MP, Togo
Mr Paul LaRose-Edwards, Canada
Mr Neville Linton, former Commonwealth Secretariat, United Kingdom
Mr Francois Loeb, MP, Switzerland
Annex 1 Mr Juan Carlos Maqueda, MP, Argentina Mr Hector Perez Marcano, MP, Venezuela Mr Jose Antonio Martinez, MP, Venezuela Mr Melkert, MP, Netherlands Mr Moacir Micheletto, MP, Brazil
Mr ]ean—Claude Mignon, MP, France
Mr Ricardo Monreal, MP, Mexico Mr Lesedie Mothibamele, MP, Botswana Professor Leopold Mureithi, Development Bank of Southern Africa, South Africa Mr Bennie Mwiinga, MP, Zambia
Mr Lourdes Flores Nano, MP, Peru Dr Beyers Naudé, former Secretary General, South African Council of Churches, South Africa Mr Winright Ken Ngondo, MP, Zambia Ms Prisca Nyambe, Vice—chair, Zambian Association of Lawyers
General Olusegun Obasanjo, former President, Nigeria
Mr Luis Enrique Oberto, MP, Venezuela Ms Karen Olsen Beck de Figueres, MP, Costa Rica Ms Maureen ONeil, President, the North South Institute, Canada Mr Pedro Antonio Angel Orellana, Director, Supreme Electoral Tribunal, El Salvador Mr Alexis Ortiz, MP, Venezuela Ms Rhona Ottolina, MP, Venezuela
Mr Paciano Padron, MP, Venezuela
Professor Norman D. Palmer, University of Pennsylvania, USA
Mr I.G. Patel, former Dep. Administrator UNDP, India Mr Isidro Morales Paul, President, Supreme Electoral Council, Venezuela Mr Telesforo Pedraza, MP, Colombia Dr Tanja Petovar, Norwegian Institute of Human Rights Mr Manuel Pinto, MP, Uganda
Mr Alan Philips, Chair Minority Rights Group, United Kingdom
Mr Manuel Carrillo Poblano, Director, International Affairs, Federal Electoral Institute, Mexico
Mr Cyril Ramaphosa, Secretary General, ANC, South Africa Sir Shridath S Ramphal, former Secretary General, the Commonwealth Secretariat, United Kingdom Hon. Selwyn Richardson, former Attorney General and Minister of National Security, Trinidad and Tobago Mr Juan Ignacio Garcia Rodriguez, Director, Electoral Service, Chile
Mr Saihou Sabally, MP, Gambia Dr Nafis Sadik, Executive Director, USG, UNFPA, USA Mr Marco Antonio Gonzalez Salazar, MP, Costa Rica
Annex 1 Mr Marco Ameglio Samudio, MP, Panama Ms Maria Therese Sandwidi, MP, Burkina Faso
Mr Pierre Sané, Amnesty International, United
Secretary-General
Kingdom Ms Marie-Angelique Savané, Regional Advisor, UNFPA, Senegal
Mr Peter Schideder, MP, Austria Mr Dieter Schloten, MP, Germany Mr Jan Nico Scholten, President, Association of West European Parliamentarians for Action against Apartheid Professor Victor Sergeyev, Russian Academy of Sciences, Moscow Mr John W. Sewell, President, Overseas Development Council, USA
Mr Maurice Strong, Canada, former Secretary General, UNCED,
Mr Yasuo Suzuki, Senior Editor, The Yomiuri Shimbun, Tokyo
Mr Mbemba Tambedu, MP, Gambia Mr Gustavo Tarre, MP, Venezuela
Mr Hans-Gynther Toetemeier, MP, Germany
Professor Stephen Toulmin, University of Southern California, Los
Angeles
Mr Marten van Traa, MP, Netherlands Ms Amy S Tsanga, Researcher, University of Oslo, Institute of Womens Law
Mr Edgar Ugalde, MP, Costa Rica Dr Brian Urquhart, former USG, UN
Mr Sergio Velasco, MP, Chile
Mr Peter Vollmer, MP, Switzerland
Professor ].].C. Voorhoeve, Netherlands Institute of International Relations Mr Michael Wamalwa, MP, Kenya
Professor Francis Wilson, University of Cape Town, South Africa
Mr José Woldenberg, MP, Mexico
Mr Ali Ben Yalhya, MP, Algeria
Dr Hugo de Zela, Cabinet Chief of the Secretary General,
The Organization of American States Mr Jorge Zermeno del Pan, MP, Mexico
Annex 2
MINISTRY FOR FOREIGN AFFAIRS International Electoral Institute Commission March 10, 1993
Summary and Conclusions of an
international Round Table on the
Feasibility
of an Independent Electoral Assistance
Institute, Geneva, 10-11 1993
February,
The Swedish Government has appointed a Commission to study the
feasibility of establishing an independent international institute for
electoral assistance. This Commission presented a position in
paper November 1992, which was distributed widely. The Commission was
pleased to receive great number of reactions, comments and proposals
a to this from the international community.
paper
In order to discuss its ideas in broader circle the Commission
a hosted Round Table in Geneva February 10-11, 1993 with the
a on
support of the Inter Parliamentary Union, Parliamentarians for Global
Action and The International Commission of Iurists. This Round Table brought together 50 with different constituencies and
persons
experiences. The discussants came from different bodies: NGO’s,
many
parliamentarians’ organisations, national parliaments, governments,
multinational and regional agencies. Some there concerned
were as
individuals. Those present spoke in their personal capacities without
necessarily committing their governments organizations.
or
Annex 2
The advice to the Commission that emerged from the Round Table be summarized in the following three points: can
1. There strong case for a new, independent networking was a and institute for electoral cooperation. In order to
professional
achieve credibility the institute should be global in character. By and the Commissions points in the background
large,
well taken.
papers were
The institute should concentrate what had been
initially on
called the normative and analytical role but should combine
this with element of observationverification and capacity
an
building.
5.0 Some link with the UN desirable, but sho uld be conceived was in such that did not the institute’s freedom
a way jeopardize of operational movement.
The Commission will continue its work along the lines now above. will further refine its ideas and consult with
presented
interested welcomes further comments
partners internationally.
and ideas. The Commission to finalize its task within some
plans
months from now.
Experiencies and
gaps
The Round Table discussed recent experiences of international
observance, assistance and cooperation regards elections. While as that much work has taken place, the discussion
recognizing good
reflected broad the speakers that there are a consensus among in the present practices. There strong demand for
shortcomings now a
effective electoral assistance and cooperation. Some of the even more
and weaknesses in the this demand being met internationally
gaps way
covered in the Round Table follows: were as
I There lack of accepted rules and guidelines
a internationally norms,
for the performance of election observance.
proper
Observer missions sent out ad hoc and at short notice. A are very shared observation that with few exceptions the widely was very the international electoral had their main line of actors on scene work elsewhere and that their involvement side-issue for was a
most of them; of the major deficiencies thus a dearth of
one was
professionalism.
There of the and integrity of the
a question legitimacy groups
Annex 2
composed for these tasks. This bears on the credibility of these
activities. Ultimately elections have to be owned by the people in
each country. would be preferable to have electoral assistance
activities carried out by more neutral, non-political organizations than the today. A closely related issue existing bodies
case was with modification of their mandates could take such tasks.
some on
I Little consideration has thus far been given to the long-term aspects
of securing and developing the institutional, legal and other structures that are an integral part of a functioning electoral process. Democracy cannot be created just by a ballot on election day.
International interest and cooperation was ad hoc and terminated
on or soon after election day. Briefly, a case was made for giving attention to rather than, to short term projects.
processes as now,
The need for a new institute and its mandate
Given the deficiencies in terms of professionalism, mandates and a
long-term approach, how should a remedial role be defined
The Round Table’s predominant line of thinking, based experiences
on
and perceptions the participants, was that today there a
among demand for a facility centred on what was termed the normative aspect.
This rubric that comprised i.a. the development of guidelines and
was a
rules; the establishment of a databank and a clearinghouse for research,
analysis, documentation and information; the mounting of seminars
and conferences for exchange of experiencies; contacts with and sup-
port for civic rights organisations; and evaluation. Most speakers
welcomed such a facility and regarded this kind of work as constituting
institute’s initial centre of activity. No existing body identified an was
being specifically active in this and there entity that
as way was no was identified as a possible actor in this field.
In quarters there also an identifiable need for capacity many
building. The agenda not least of the countries in transtion
was
understood being in favour of facility that would help in butressing
as a
good through adressing the long-term issues of institutions
governance
and frameworks directly relevant to the electoral process. There also a need for mechanism whereby of the countries directly
a concerns
concerned could be focussed and brought to the attention of the world
community.
Support was also voiced for an institute active in the of
processes
observation, monitoring and capacity building, with special emphasis
on assistance to national electoral commissions and other appropriate
national bodies. There several different views what this role
were on
should be. A number of speakers, especially those coming from
parliamentarian bodies, felt a need for an institution that could assume
a more professional and coordinated role in dealing with the present
observation requests and assist them in this kind of work. The competence
Annex 2 of could be used in context in those important
parliamentarians a proper
efforts.
As noted before, several wished to give initial priority to
speakers
the normative and term role of institute, especially since there
long an
number of institutions short term missions for
are already a dispatching
election observance. The for institute to take the
challenge any new on
broad normative roles in the Commissions documents
as presented
and the shortcomings presented above. Some
to help remedy present as
felt the institute should also become involved in observer activities, but there risk of dichotomy and a fear that a broad
a an organisational
role could out and, in respects, into conflict operational ease some come with the normative and analytical side of the organisation. The understanding thus that there unmet needs in
general was were
the of electoral assistance and in the light of the
area cooperation,
broader The view that there utility in the context. prevailing was was Commissions going ahead with. the work has begun.
The that from the meeting that of
picture emerged was many
the needs and necessitated mandate that
were long-term a
would permit wider than that atpresentbeing envisaged;
a scope
the issues election day. legitimate, crucial
go beyond was
that the of the be recognized. Profes-
even, permanence process sionalism and would, following from this,
political neutrality
be essential for institute. This broader task
requirements a new
well be the future cutting edge of a new body.
might even
However, the immediate focus of institute should be more an direct and concrete.
The conclusion of the that serious effort
organisers a should be made the possible dangers of operational
to overcome and normative activities in the organisation that
existing same
several interventions stressed. Not all actors have the same of what institute should do. some of them, at
expectations an
active the would like to see things handled present on scene, in the field, this merits reflection and attention when
differently
the mandate for institute. Part of the justification for
forming an
institute to enter this particular part of the electoral field a new should be curb the should be able to
to present proliferation.
subsume current actors, at their request, and serve as a some
tool for them, coordinated with others.
A central should also be the agenda and the concern of the countries in transition. A prerequisite for
requirements
this would to be both extensive networks and collaboration seem from the regions and countries
centrally by personalities
concerned.
Annex 2
Networks, and statutes
organisation
On the side, the Round Table accepted the idea that
organisational an
institute, formed, should be networking organization. should a make of and in different organisations and
use expertise knowledge
constituencies in order to create professional and long term a more to the issues involved. The clearinghouse concept and
approach
networking should be as coro1laries.The Commission presented
seen documents with principles for the
some background proposals on
and its statutes. These documents did not give rise to a
organisation
lengthy discussion or objections.
to the UN
Relationship
Considerable attention to the question of link with the UN.
was paid a
held that such connection would be desirable for a new
was widely a
institutes legitimacy although not in itself enough to ensure an that could only from the quality and nature of the
acceptance come
institute’s work. At the time, emphasized that the own same was institute must remain free in relation to the UN in
envisaged politically order to be able to function anticipated. The link should preferably be
as
subtle and non-inhibiting.
Annex 2
ROUND TABLE MEETING
ON
INTERNATIONAL ELECTORAL ASSISTANCE
10-11 1993
February,
Geneva
FINAL LIST OF PARTICIPANTS
Annex 2
ÃHLUND,
Christian Mr. CORNILLON. Pierre Mr. International Electoral Institute Commission Secretary General Box 220 l 6 Inter-Parliamentary Union lO4022 Stockholm Sweden P.O. Box 438
2| l Geneva I9 Switzerland Tel. 46 8 654 24 75 Fax 650 62 53 Tel. 4l 22 734 4I SO
Fax 7333| 4l ANDERSSON. Axel Mr.. MP Swedish Parliament DARUWALA. Maja Dhun Ms. IOO 2I Stockholm Sweden Program Officer
Rights and Social Justice Tel. 46 8 786 40 00 The Ford Foundation
55 Lodi Estate BJÖRSMARK. Karl-Göran Mr.. MP New Delhi
India
Swedish Parliament IOO 2l Stockholm Sweden Tel.6l 9441
Fax 46 27 l47 Tel. 46 8 786 40 00
DHOORE. Luc Mr., MP BONEO, Horacio Mr. AWEPA Head of the UN Electoral Assitance Unit Parliament of Belgium Department of Political Affairs Palais de Nation United Nations. Room S-37SOA Place de Nation 2 New York. N.Y. IOO 9 USAl l008 Brussels Belgium
Tel. l 2l2 963 87 37 Tel. 32 22 Sl l 32 49 Fax 963 29 79
DlENG, Adama Mr. CAMlNO. Julio Mr., MP Secretary General Vice-Chair. international Council International Commission ofjurists Parliamentarians for Global Action P.O. Box I60 2l l East 43rd Street l 2 l6 CoitrinGE Switzerland Suite l604 New York. N.Y. l00l7 USA Fax 4: 22 788 48 80
Tel. I 2l2 687 77 55 EDSTRÖM. Lars-Olof Mr. Fax 687 84 09 Ambassador
Ministry for Foreign Affairs CONABLE. Barber Mr. P.O.Box l6l2| P.O.Box 2 8l Stockholm Sweden Alexander N.Y. l4005 USA
Tel. 46 a 786 60 00 Tel.l 7|6S9l I233 Fax 723 76
CORBOY. Denis Mr. GITHU. Grace Ms. Political Advisor DG VlIl National Election Monitoring Unit European Commission P.O. Box 43874 200 Rue de Loi Nairobi Kenya l049 Brussels Belgium
Tel. 22 70 OS Fax 32 22 99 28 ‘ls Fax 22 2l 78
Annex 2
GRAHAM, Kennedy Mr. HUMMON. john Mr. Secretary General USAID Representative Parliamentarians for Global Action US Permanent Mission 2l I East 43rd Street I604 I l route de Pregny
- New York. N.Y. i0Ol7 USA I292 Chambésy Switzerland
Faxl 212 15370409 Tel. 41 22 749 44 02
HAMMARBERG. Thomas Mr. IRETON. Barrie Mr. UN Committee the Right: of the Child Under-Secretary
on Surbrunnsgatan 40 Overseas Development Administration I I348 Stockholm Sweden 94 Victoria Street
London SWl E SJL United Kingdom Tel. 45 8 6i2 30 94
Tel. 44 71 917 05 00 HARTLAND. John Mr. Fax 9l700l7 Counsellor to the President of the
Parliamentary Assembly of the IZZAT, Nadia Ms. Council of Europe First Secretary
67000 Strasbourg France Ministry for Foreign Affairs
P.O.Box l6l2l Tel. 33 88 4l Zl 22 Stockholm Sweden Fax 4I 278i
Tel. 46 8 786 60 00 HERNANDEZ. Silvia Ms. Fax 723 I I 76 Senator International President JOHNSON. David Mr Parliamentarians for Global Action Human Rights Officer Camara de Senadores UN Centre for Human Rights Xicotencatl 9 Palais des Nations Mexico. D.F. 060l8 Mexico |2I l Geneva 20 Switzerland
Tel. 52 s s3s 82 21 Tel. 41 22 907 12 34 Fax 54e 41 57
JOHNSSON. Anders Mr. HJELDE, Haakon Mr. Assistant Secretary General Ambassador inter-Parliamentary Union Special Advisor Human Rights P.O. Box 438
on Ministry of Foreign Affairs l2| I Geneva I9 Switzerland Postboks 8| l4 Oslo DEP Norway Tel. 41 22 734 41 so
Fax 733 41 Tel.-02 34 36 00 Fax 34 95 eo LARSEN. Jacob Esper Mr.
Ambassador HULT, jan Mr. Permanent Mission of Denmark Election Officer S6 rue de Moillebeau Bollmorav 35 |2I I Geneva I9 Switzerland
I3542 Tyresö Sweden
Tel. 41 22 733 29 17 Tel. 46 8 705 91 28 Fax 733 29 17
Annex 2
LEHNE, Hans Fredrik Mr. ÖRNEUS. Per Mr. Counsellor First Secretary Ministry of Foreign Affairs Ministry for Foreign Affairs Oslo DEP Norway P.O. Box l6l2|
Stockholm Sweden Tel. 02 34 36 00 Fax 34 95 ao Tel. 46 8 786 eo 00
Fax 723 I l 76 LIDEGAARD, Bo Mr. Head of Section PENNEGARD. Ann Marie Ms. Ministry of Foreign Affairs Counsellor Asiatisk Pads 2 Permament Mission of Sweden l448 Copenhagen Denmark 9-l I de Varembé
rue
l2l I Geneva 20 Switzerland Tel. 45 33 92 00 oo Fax 3: 54 os 33 Tel. 4| 22 734 36 00
MACKINNON. Philip Mr. FOLEY. Hans Mr. Director Directorate General for international Co- UN and Commonwealth Affairs operation Department of External Affair Policy Planning Section
Ottawa Canada Ministry of Foreign Affairs
P.O. Box 2006| Tel. 6l3 99279 93 2500 EB The Hague Fax 944 07 22 Netherlands
MAYER. Jean Mr. RAMPHAL. .Sir Shridath Consultant Chairman 24. rue de Geneve Commission on Global Governance OI 2 I 0 Ferney-Voltaire France Flat The Sutherlands
l88 Sutherland Ave. McCARTl-lY. Thomas Mr. London W9 IHR United Kingdom Centre for Human Rights Palais des Nations Tel. 44 7| 266 34 09 l2l l Geneva 20 Switzerland Fax 286 23 O2
Tel. 41 229l7394l RIVOLLIER. Michel Mr.
Consultant MOKHIBER. Craig Mr‘. 0l260 Hotonnes France Human Rights Officer UN Centre for Human Rights ROSE. John Bryan Mr. Palais des Nations Secretary l2l I Geneva 20 Switzerland Committee on Development and Co-
operation Tel. 4: 22 9:7 39 23 European Parliament
Plateau Kirchberg NAGLER. Gerald Mr. 2929 Luxembourg Luxembourg Chairman Swedish Helsinki Committee for Human Tel. 3S2 43 00l Rights Fax 43 00 49 00
Askrikegatan 7
l I557 Stockholm
Sweden
Tel. 46 662 24 47
Annex 2
ROTHERMEL. Timothy Mr. THALMANN, Anton Mr. Director Head of UN Section Division for Global and lnterregional Departement federal des affaires étnngeres
Programmes 3003 Berne Switzerland
UNDP One. United Nations Plan Tel. 4l 3lt6l 34 97 New York, N.Y. IOOI7 USA
THEUERMANN. Engelbert Mr. Fax l 2l2 906 S8 57 UNO-Abteilung
Ministry for Foreign Affairs ROTTENBURG. Fritz von Mr. Ballhausplatz 2 Minisuy for Foreign Affairs I0 I4 Vienna Austria Adenauer Allee 99 5300 Bonn I Germany Tel. 43 222 S3 IIS 33 09
hx S3 185 225 Fax 49 228 I7 37 85
VDURINEN. Anneli Ms. SAAVEDRA. Lourdes Ms. First Secretary Lafragua 3-3 Ministry of Foreign Affairs Mexico. D.F. 06030 Mexico P.O. Box I76
00l6l Helsinki Finland SÄVE-SÖDERBERGH. Bengt Mr. Chairman Tel. 4I SI international Electoral Institute Commission Fax I34l 68 00
Ministry for Foreign Affairs
P.O. Box I6I2I WOOLCOT. Peter Mr. Stockholm Sweden Director
Human Rights Section Tel. 46 8 786 60 00 Department of Foreign Affairs and Trade Fax 723 76 Parke:
ACT 26000 Canberra Australia
SORENSEN.jens Adser Mr.
Head of Department Tel.626l9| Parliament of Denmark Fax 26l3l|l Folketinget I290 Copenhagen Denmark ZETKULIC. Jack Mr.
Deputy Director Tel. 45 33 9| 0377 CSCE Office for Democratic Institutions and
Human Rights STEEL. Sir David. MP Krucza 36Wspolna 6 House of Commons 00-522 Warsaw Poland London SWIA 0AA United Kingdom
Tel. 48 2 625 4| 50 TeI. 44 7I 2I9 46 89 Fax 625 43 57
SUTTER. Peter Mr. Head Peace Unit Departement federal des affaires etrangeres
3003 Berne Switzerland
Tel. 4|3|6l3497
Annex 3
Cost of Elections in Countries in Transition
to Democracy
Ron Gould, Elections Canada
by
The of this to attempt to highlight number of the
objective paper a
factors which influence the cost of elections, and subsequently to discuss of electoral assistance these relate to and
some aspects as
influence the cost of elections. This intended to provide only a
paper
brief overview for discussion purposes.
From the outset, decisions which made with respect to the
are
essential elements of any electoral process can significantly impact on
the cost of that election. For example, system of proportional represen-
a tation based national constituency will be significantly less costly
on one than based number of regional constituencies. follows
a system on a
that electoral system whereby representatives are elected
a majoritarian
from hundreds of small constituencies will be even more costly.
perhaps
One of the costs involved the extent to which
significant concerns
districts of constituencies have to be geographically defined,
regions,
and mapping activities carried out in order to determine the boundaries
of the to be elected. the requirements for
representatives Similarly,
different ballots opposed national numerous constituency as to one ballot few ballots, will also directly affect the costs of the
or a regional
election.
The determination of the registration system to be used in relation to
documents often of the major of
existing identity one expenses
elections in countries in transition to democracy. would obviously be much less to current identity documents where these are
costly use appropriate and acceptable, than to introduce a new country-wide
voter registration system, and voter identification
computer-based or
cards. the electoral environment in
registration Obviously specific
Annex 3 certain registration system, but careful
cases may require a costly new a
of the optimum registration in each specific situation
analysis process
could result in reduced electoral costs. Related to the
significantly
registration system itself are the input requirements such as identity
documents and the and number of electoral lists if that are
type any
required.
The nature and extent of voter and political education another
which the cost of the elections. This will be
aspect can impact on
affected by the number of languages spoken in the country,
significantly
the number and extent of the extent of the
political party sophistication,
familiarity of the with multi-party elections and with the
population
electoral itself, and of the levels of literacy and illiteracy
process course, in the country.
Obviously the design and types of voting materials and the
specific
voting will have major impact the costs of the election. For
process a on
decision ultraviolet ink and battery-powered fluorescent
example, a to use
to check the ink will be expensive than using
lamps significantly more
indelible inks against individuals voting than once.
as security more
The design and construction of ballot boxes from extremely
can vary
metal boxes to moderate-cost plastic ballotboxes to extremely
expensive
cardboard boxes. The ballot itself be
inexpensive corrugated can a very item the system requires huge quantities of coloured or
costly paper
and multi-colour printing. These
extremely high-security papers or
few of how decisions with respect to election
are just a examples
materials significantly impact election costs.
can on
There physical factors which will have a significant impact on
are cost, the size and of the country concerned, the
including geography
and communication systems and the season of
existing transportation
the in which elections to be held. In this latter instance, a
year are
country decides, because of the of the situation to carry out an
urgency
election in rainy in winter, this will be much more costly
season or a election than held in the in where
was dry season or summer
and communication problems normally much less.
transportation are
There also the aspect of the poll and the voting system
physical
which will often have significant impact the number of polling
a on officials needed and the costs of their meals, salaries, equipment, etc.
the security situation in the country will have cost implications
Obviously,
for the election. The above examples, not intended to be exhaustive,
are but to of the costly elements which
are designed highlight some more
be controllable to extent at the point when initial decisions are may some made with respect to the election.
The international be in position to valuable
community may a play a
role in countries in transition to democracy to focus of
assisting some
these electoral considerations, with View to reducing unnecessary
a electoral costs. I would hasten to underline that fact that essential this be done in context of the geographical, social and
always a political,
other situations of that particular country and in the electoral interest of the to the cost-reduction elements as
country as opposed focussing on
in their However, not infrequently countries in
objectives own right.
Annex 3
transition to democracy design electoral systems using inappropriate
models from other countries because of their lack of experience, or
attempt to modify system which may have been appropriate for one-
a elections but major for multiparty elections.
party causes problems
International coordinated basis often be constructive as
input on a can a well cost-saving contribution. as a In possible for international input into cost-
considering avenues
effective electoral Ibelieve there other avenues which are processes, are somewhat interrelated.
The first the of international election consultant
concerns use
either individuals team which might be identified by an
as or as a such the proposed Institute, expert resources who could
organization as
provide advice and alternatives to countries in transition to democracy, at the point in time when basic electoral decisions were being
especially
discussed such during the drafting of the electoral law itself.
that this kind of Consultation take place very early, not only
important
considering the decisions to be taken with respect to a electoral system and related costs, but also recognizing that in majority of cases, a
whatever and related costs with to the
system are implemented respect
first election, these will often continue to apply to many subsequent
elections, but whereas the election elections be subsidized
early or may
the international community, eventually the democracy itself
by new
will have 100% of the costs of the electoral system has to carry
designed.
. In addition to the role electoral assistance and encouraging
played by
the most cost-effective electoral considerations, by not only working with the electoral authorities in the countries concerned but
closely
, also, where international election consultants havebeen actively working with the in their advice and guidance with
particular country, seeking
to the most effective and, hopefully, cost-effective areas for
respect
donor In general terms, would that coordinated
support. appear
be much more cost-effective than individual
donor-support can initiatives. coordinated donor-support the possibilities of Through
donor another avoided, duplication of effort
playing one against are
be eliminated, and where much stronger influence be can necessary can exerted.
for elections not necessarily totally concentrated
Donor-support
the electoral itself. In donor-
on supporting responsible body some cases
focus only on outside such as non-govemment organizations.
groups
However, of the focus of the donor nation with
regardless or groups,
to electoral support, in order to achieve cost-effective assistance,
respect
not only coordination and cooperation amongst donors advantageous,
but also to assist influence the
carefully earmarking support or even
cost-effective worth consideration. For example, funds
most options
be made available for the of indelible inks for
might purchase
identification but not for ultraviolet inks and the required purposes related sensitive issue the question of whether funds
lamps. A more
should be allocated for voter education to an election purposes
without having some
organization or non-governmental organization
Annex 3
information with to the specific publication and its
specific respect
effectiveness. This where consultation and advice from
possible
international election specialists well local NGOs election
as as or officials will be most useful. This approach would avoid problems in the
with donors have funds for voter education which have
past provided resulted in publications being produced which were not completely non-partisan, being produced prematurely with incorrect publications or
information, which then had to be supplemented with
or incomplete further publications later; and publications which were never distributed
to the electors.
The objective in all of the above to attempt to tread delicate
a very
between cost-effective coordinated donor assistance to
path providing
those involved in the electoral in countries in transition to
process
democracy, while at the time encouraging independence of action
same
the part of the local election authorities and NGOs. on
would that possible of reaching these goals might
appear one way be foreign organizations such the proposed Institute develop a roster
of respected and impartial international electoral advisers or consultants
who could then be selected the basis of their specific acceptability to
on
particular country, and to the donor nations involved with that a
who could then act broker between the country and its
country, as a
NGOs consent with respect to electoral elements and activities and their costs, and with the donor nations with respect to prioritizing electoral activities for which donor support has been requested.
KUNGL. BIBL.
1993 -11 3 0
-
STOCKHOLM
1993 Statens offentliga utredningar
Kronologisk förteckning
Styrnings- och samarbetsformer i biståndet. UD 35. Reaktion mot ungdomsbrott. Del A och B. Ju.
.
Kursplaner för grundskolan. U. 36. Lag om totalförsvarsplikt. Fö.
.
Ersättning för kvalitet och effektivitet. 37. Justitiekanslern. En översyn av JK:s arbetsuppgifter
.
Utformning av ett nytt resurstilldelningssystem m.m. Ju.
-
för grundläggande högskoleutbildning. U. 38. Hälso- och sjukvården i framtiden tre modeller.
—
Statligt stöd till rehabilitering av tortyrskadade S.
.
flyktingar m. fl. S. 39 En gräns för filmcensuren. Ku.
.
Bensodiazepiner beroendeframkallande psykofar- 40. Fri- och rättighetsfrågor. Del A och B. Ju.
. —
maka. S. 41. Folk- och bostadsräkning år 1990 och i framtiden.
Livsmedelshygien och småskalig livsmedelsproduk- Fi,
.
tion. Jo. 42. Försvarets högskolor. Fö.
Löneskillnader och lönediskriminering. 43. Politik mot arbetslöshet. A.
.
Om kvinnor och män arbetsmarknaden. Ku. 44 Översyn av tjänsteinkomstbeskattningen. Fi.
.
Löneskillnader och lönediskriminering. Om 45. Trosa bryter sig loss. Bytänkande eller demokratins
. kvinnor och män på arbetsmarknaden. Bilagedel. räddning. C.
Ku. 46. Vissa kyrkofrågor. C.
Postlag. K. 47. Konsekvenser av valmöjligheter inom skola, .
10. En ny datalag. Ju. barnomsorg, äldreomsorg och primärvård. C.
ll. Socialförsäkringsregister. S. 48. Kommunala verksamheter i egen förvaltning och i
12. Vårdhögskolor kommunala aktiebilag. En jämförande studie. C.
kvalitet utveckling huvudmannaskap. U. 49. Ett år med betalningsansvar. S.
- - - 13. Ökad konkurrens järnvägen. K. 50. Serveringsbestämmelser. S.
14 EG och våra grundlagar. Ju. 51. Naturupplevelser utan buller en kvalitet att värna.
. - 15. Svenska regler för internationell omfördelning av M.
olja vid en oljekris. N. 52. Ersättning vid arbetslöshet. A.
16. Nya villkor för ekonomi och politik ekonomi- 53. Kostnadsutjämning mellan kommuner. Fi.
kommissionens förslag. Fi. 54. Utvisning grund av brott. Ku.
Nya villkor för ekonomi och politik ekonomi- 55. Det allmännas skadeståndsansvar. Ju. . kommissionens förslag. Bilagor. Fi. 56. Kontrollen över export av strategiskt känsliga
17. Ägandet av radio och television i allmänhetens varor. UD.
tjänst. Ku. 57. Beskattning av fastigheter, del I
18. Acceptans Tolerans Delaktighet. M. Schablonintäkt eller fastighetsskatt Fi.
- 19. Kommunerna och miljöarbetet. M. 58. Effektivare ledning i statliga myndigheter. Fi.
20. Riksbanken och prisstabiliteten. Fi. 59. Ny marknadsföringslag. C.
21. Ökat personval. Ju. 60. Polisens rättsliga befogenheter. Ju.
22. Vad är ett statsråds arbete värt Fi. 61. Överföring av HIV-smitta genom läkemedlet
23 Kunskapens krona. U. Preconativ. S.
. 24. Utlänningslagen en partiell översyn. Ku. 62. Rättssäkerheten vid beskattningen. Fi.
- 25. Sociala åtgärder för jordbrukare. Jo. 63. Person och parti Studier i anslutning till
- 26 Handläggningen av vissa säkerhetsfrågor. Ju. Personvalskommitténs betänkande
. 27. Miljöbalk. Del l och 2. M. Ökat personval SOU 1993:21. Ju.
28. Bankstödsnämnden. Fi. Frågor för folkbildningen. U.
. 29. Fortsatt reformering av företagsbeskattningen. 65. Handlingsplan mot buller.
Del Fi. Handlingsplan mot buller. Bilagedel. M.
30. Rätten till bistånd inom socialtjänsten. S. 66. Lag om införande av miljöbalken. M.
31. Kommunernas roll på alkoholomrâdet och inom 67. Slutförvaring av använt kärnbränsle KASAMs
-
missbrukarvården. S. yttrande över SKBs FUD-program 92. M.
32 Ny anställningsskyddslag. A. 68. Elkonkurrens med nätmonopol. N.
. 33. Atgärder° för förbereda Sveriges jordbruk och 69. Revisorerna och EG. N.
att
livsmedelsindustri för EG. Jo. 70. Strategi för småföretagsutveckling. N.
34. Förarprövare. K. 71 Organisationernas bidrag. C.
.
Statens 1993
offentliga utredningar
Kronologisk förteckning
72. Att inhämta synpunkter från medborgarna Det
-
kommunala omröstningsinstitutet i tillämpning. C. 73. Radikala organisationsförändringar i kommuner
och landsting. C. 74. Kvalitetsmätning i kommunal verksamhet. C. 75. Vissa mervärdeskattefrågor Il, offentlig
-
verksamhet m.m. Fi. 76. Verkställighet av fängelsestraff Ju. 77. Kommunal tjänsteexport och internationellt
bistánd.C. 78. Miljöskadeförsäkringen i framtiden. M. 79. Handel och miljö mot en hållbar spelplan. M.
- 80. Statsförvaltningen och EG. Ju. 81. Översyn av arbetsmiljölagen. A. 82. Frivilligt socialt arbete. Kartläggning och
kunskapsöversikt. S. 83. Statistik och integritet, del l Skydd för uppgifter
-
till den statliga statistiken m.m. Fi. 84. Innovationer för Sverige. N. p 85. Ursprung och utbildning social snedrekrytering
-
till högre studier. U. 86. Amningsvänliga sjukhus för att skydda, stödja
-
och främja amning. S. 87. Beredskapslagring av olja. N. 88. Produktsäkerhetslagen och EG. C. 89. Massflykt till Sverige av asyl- och
hjälpsökande. Fö. 90. Lokal demokrati i utveckling. C. 9l. Socialtjänstens roll i samhällsplanering och
samhällsarbete. En kunskapsöversikt och ett
-
diskussionsunderlag. S. 92. Den centrala polisorganisationen. Ju. 93. Vårdens svåra val. S. 94. Anpassad kontroll av byggandet. M. 95. Ansvars- och uppgiftsfördelning inom det civila
försvaret. Fö. 96. Förändringar i lönegarantisystemet. A. 97. Västsverige och Skåne regioner i förändring. C.
- 98. Partnerskap. Ju. 99. Kart- och fastighetsverksamhet i myndighet och
bolag. M. 100 Free and Fair elections and beyond. UD.
. -
1993 Statens offentligautredningar
Systematisk förteckning
Socialtjänstens roll i samhällsplanering och samhälls-
Justitiedepartementet
arbete. En kunskapsöversikt och ett diskussionsdatalag. [10] - En ny underlag. [91] EG och våra grundlagar. [14] Vårdens svåra val. [93] Ökat personval. [21]
Handläggningen av vissa säkerhetsfrågor. [26]
Kommunikationsdepartementet
Reaktion mot ungdomsbrott. Del A och B. [35] Postlag. [9] Justitiekanslem. En översyn av JK:s arbetsuppgifter Ökad konkurrens järnvägen. [13] m.m. [37] Förarprövare. [34] Fri- och rättighetsfrågor. Del A och B. [40]
Det allmännas skadeståndsansvar. [55]
Finansdepartementet
Polisens rättsliga befogenheter. [60]
och parti Studier i anslutning till Nya villkor för ekonomi och politik ekonomi- Person - - Personvalskommitténs betänkande kommisionens förslag. [16]
Ökat [63] Nya villkor för ekonomi och politik ekonomipersonval SOU 1993:21. -
Verkställighet fängelsestraff. [76] kommisionens förslag. Bilagor. [16] av statsförvaltningen och EG. [80] Riksbanken och prisstabiliteten. [20]
Den centrala polisorganisationen. [92] Vad är ett statsråds arbete värt [22]
Partnerskap. [98] Bankstödsnämnden. [28]
Fortsatt reformering av företagsbeskattningen.
Del 2. [29]
Utrikesdepartementet
Folk- och bostadsräkning år 1990 och i framtiden. [41] Styrnings- och samarbetsformer i biståndet. [l] Översyn av tjänsteinkomstbeskattningen. [44] Kontrollen över export av strategiskt känsliga varor. [56] Kostnadsutjämning mellan kommuner. [53] Free and Fair elections and beyond. [100] - Beskattning av fastigheter, del I
Schablonintäkt eller fastighetsskatt [57]
Försvarsdepartementet -
Effektivare ledning i statliga myndigheter. [58] Lag om totalförsvarsplikt. [36] Rättssäkerheten vid beskattningen. [62] Försvarets högskolor. [42] Vissa mervärdeskattefrågor lI, offentlig verksamhet Massflykt till Sverige av asyl- och hjälpsökande. [89] m.m. [75] Ansvars- och uppgiftsfördelning inom det civila Statistik och integritet, del 1 Skydd för uppgifter till försvaret. [95] den statliga statistiken m.m. [83]
Socialdepartementet
Utbildningsdepartementet
Statligt stöd till rehabilitering av tortyrskadade Kursplaner för grimdskolan. [2] flyktingar m. fl. [4] Ersättning för kvalitet och effektivitet. Bensodiazepiner beroendeframkallande psykofarmaka. — resurstilldelningssystem för Utformning av ett nytt [5] grundläggande högskoleutbildning. [3] Socialförsäkringsregister. [11] Vårdhögskolor Rätten till bistånd inom socialtjänsten. [30] kvalitet utveckling huvudmannaskap. [12] Kommunernas roll pâ alkoholomrâdet och inom - - - Kunskapens krona. [23] missbrukarvården. [31] Frågor för folkbildningen. [64] Hälso- och sjukvården i framtiden tre modeller. [38] - social snedrekrytering till Ursprung och utbildning Ett år med betalningsansvar. [49] högre studier. [85] Serveringsbestämmelser. [50]
Överföring av HIV-smitta genom läkemedlet
Jordbruksdepartementet
Preconativ. [61] Livsmedelshygien och småskalig livsmedelsproduktion. Frivilligt socialt arbete. Kartläggning och kunskaps-
översikt. [82] [6]
Sociala åtgärder för jordbrukare. [25] Amningsvänliga sjukhus för att skydda, stödja och - Åtgärder för att förbereda Sveriges jordbruk och främja amning. [86] livsmedelsindustri för EG. [33]
1993 Statens offentliga utredningar
Systematisk förteckning
Arbetsmarknadsdepartementet Miljö- och naturresursdepartementet
Ny anställningsskyddslag. [32] Acceptans Tolerans Delaktighet. [18] Politik mot arbetslöshet. [43] Kommunerna och miljöarbetet. [19] Ersättning vid arbetslöshet. [53] Miljöbalk. Del 1 och [27] Översyn av arbetsmiljölagen. [81] Naturupplevelser utan buller en kvalitet att värna.
- Förändringar i lönegarantisystemet. [96] [51]
Handlingsplan mot buller. Kulturdepartementet Handlingsplan mot buller. Bilagedel. [65] Löneskillnader och lönediskjiminering. Lag om införande av miljöbalken. [66] Om kvinnor och män på arbetsmarknaden. [7] Slutförvaring av använt kärnbränsle KASAMs
- Löneskillnader och lönediskriminering. Om kvinnor yttrande över SKBs FUD-program 92. [67] och män arbetsmarknaden. Bilagedel. [8] Miljöskadeförsäkringen i framtiden. [78] Ägandet radio och television i allmänhetens tjänst. Handel och miljö mot en hållbar spelplan. [79]
av - [17] Anpassad kontroll av byggandet. [94] Utlånningslagen partiell översyn. [24] Kart- och fastighetsverksamhet i myndighet och
- en En gräns för filmcensuren. [39] bolag. [99] Utvisning grund av brott. [54]
Näringsdepartementet
Svenska regler för internationell omfördelning av olja vid en oljekris. [15] Elkonkurrens med nätmonopol. [68] Revisorerna och EG. [69] Strategi för småföretagsutveckling. [70] Innovationer för Sverige. [84] Beredskapslagring av olja. [87]
Civildepartementet
Trosa bryter sig loss. Bytänkande eller demokratins räddning. [45] Vissa kyrkofrågor. [46] Konsekvenser av valmöjligheter inom skola, barnomsorg, äldreomsorg och primärvård. [47] Kommunala verksamheter i egen förvaltning och i kommunala aktiebilag. En jämförande studie. [48] Ny marknadsföringslag. [59] Organisationernas bidrag. [71] Att inhämta synpunkter från medborgarna Det
kommunala omröstningsinstitutet i tillämpning. [72] Radikala organisationsförändringar i kommuner och landsting. [73] Kvalitetsmätning i kommunal verksamhet. [74] Kommunal tjänsteexport och internationellt bistånd.[77] Produktsäkerhetslagen och EG. [88] Lokal demokrati i utveckling. [90] Västsverige och Skåne regioner i förändring. [97]
-