Independent observers play an
important part in maintaining election integrity. Whether domestic or
international, these observers are supposed to monitor the process objectively.
Since their interest is to ensure that elections are fair and above-board, they
should not take a position on political issues in the election issues. As
independent observers, they must also provide objective reporting on the
electoral process.
Observing an election involves
closely monitoring the process, collecting information on its aspects and
making an overall assessment. International IDEA has identified several systemic
advantages of including independent observers, including:
- legitimizing the election process;
- building confidence;
- improving the prospects
for democratization;
- enhancing the electoral process; and
- reducing or preventing conflict.[1]
National Observation
A wide variety of NGOs and
other organized civil society groups act as national monitors. Active monitoring
by national observers provides feedback to electoral administrators and policy
makers about problems encountered. This allows for corrections to be made
during the process, when there is still time to act. In this connection, active
monitoring (which can involve preparation of interim reports during the
electoral process) can be more effective in maintaining election integrity than
passive monitoring, which simply produces a report after the process is over,
without much interaction with electoral administrators. Impartial national
observers can thus promote free and fair elections. They may perform the
following tasks:
- Detect and deter
integrity problems by closely monitoring the process, and draw attention
to any irregularity or integrity problem observed;
- Increase transparency by
publicly reporting on the process, identifying problems and assessing
their impact on the election results;
- Assess the integrity of
the election. In newer democracies, this may mean assessing whether
elections were “acceptable”, “competitive” or “free and fair,” and whether
the results reflect the will of the voters. (In older democracies,
domestic monitoring tends to focus on how money from interest groups
influences the quality of the electoral campaign, rather than how elections
are conducted.); and
- Recommend procedural or
policy changes to improve election integrity.
International
Observation
International observers serve
as monitors in countries that receive international donor assistance for
elections, and countries undergoing a democratic transition. International
observation is performed by many different organizations, particularly by
international organizations (such as the Commonwealth, Organization of American
States, Organization for Security and Cooperation in Europe, and the African
Union and ECOWAS); and international NGOs (such as IFES, and International IDEA
and The Carter Center), with support from national and supranational donor
agencies.
The UN does not engage in
election observation unless it is mandated to do so by the General Assembly or
the Security Council. It has become rare for the UN to engage in observation:
the most recent observation mandate was carried out in 2001. Observation is
distinct from UN mandates to “certify” or to “verify” an election, but the
latter two are equally rare. The organization does, however, sometimes provide logistical
support for international election observers or other support for national
observer groups.[2]
International observation can
perform the following functions:
- Identify problems and
bring them to the attention of the election management or policy-making
body.
- Ensure action to rectify
and follow up on problems, and see that this action is a condition for
donor funding.
- Issue observation reports
that help contribute to the transparency and legitimacy of the process.
- Help bolster voter
confidence, thereby increasing the number of eligible voters who register
and cast ballots.
- Facilitate the work of national
monitors by asking the hard questions that they may hesitate to ask,
recognizing that national monitors may only enquire about matters under
observation and not attempt to intervene in the process.
- Provide reassurance to national
monitors facing intimidation or other security problems, although the
relative safety of international observers due to their status may not
extend to national observers.
- Through their presence
and attentiveness, act as a deterrent to those wishing to subvert the
system; but it should always be recognized that even the most extensive
international observation cannot possibly prevent all fraud, including at
polling stations and counting centers.
However, international
observation that is not impartial or balanced can itself create integrity
problems.
[1] International
Institute for Democracy and Electoral Assistance, Code of Conduct for the
Ethical and Professional Observation of Elections, 1997
[2] See UN Focal Point
for Electoral Assistance, Electoral Assistance Division, Department of
Political and Security Council Affairs, Policy
Directive: UN Support to International Election Observers, Ref. FP/03/2012 (29
June 2012); UN Focal Point for
Electoral Assistance, Electoral Assistance Division, Department of Political
and Security Council Affairs, Policy
Directive: Principles and Types of Electoral Assistance, Ref. FP/01/2012 (11
May 2012)
