International observation
plays an important role in safeguarding election integrity. This role may be
compromised if election observers do not follow certain rules that should guide
their conduct during their mission.
International
Observers' Role in Maintaining Election Integrity
Serious and professional
international observation can help maintain election integrity in many ways:
- Disseminating
international standards and good practices: Electoral administrators, politicians and
national observers can learn to better understand international standards
for free and fair elections by engaging in liaison with international
observers and studying their reports. International observer missions also
provide electoral administrators the opportunity for comparative exchange of
professional knowledge with other experts, particularly on integrity
mechanisms.
- Deterring integrity
problems. The presence of international observers monitoring the election
process may help deter attempts to disrupt or tamper with the process.
There is a public perception in most countries that international
observers will be able to uncover fraud on election day.[1]
But,
in fact, this perception may be misplaced since international observers
have only limited data and may not understand the ”local” way of doing
things.
·
Detecting integrity problems. Experienced observers can detect problems or
questionable activities, and bring them to the attention of the election
management body and the public. International observers, like national ones, cannot
actually intervene in an electoral procedure, but may ask questions about its
conduct in an informational way. Early identification of issues in this manner
can allow a problem to be solved before it is too late.
·
Holding a fragile process together. In
situations of conflict or in countries in transition, the presence of
international observers can to some extent deter violence and intimidation.
Their ongoing presence may help reassure candidates, monitors and voters that
it is safe to participate. The presence of international observers may also
convince opposition politicians that competing in the election is preferable to
boycotting, or engaging in civil disobedience or disturbance.[2]
- Increasing the
credibility and legitimacy of the process. Through their reporting and analysis,
observers can uphold or denigrate the legitimacy of the electoral process
and its outcome. If their reports show that the election is proceeding
within acceptable parameters, this finding reinforces the acceptability of
the process and the legitimacy of the results.
- Developing the capacity
of national observers. If international observation is occurring simultaneously with
national observation, the example set by international observers can help
develop and improve the capacity of national observation efforts. For
example, international observers can provide a model to emulate concerning
how to set up a nationwide election observation effort, conduct a parallel
vote tabulation and assimilating field observation reports. They can also encourage national
observers, and perhaps inform them of standards and best practices
relevant to their activities.
- Relationship with
national observers. But it must be cautioned that
international observers should not actually coordinate with national
observers in terms of deployments or other aspects of their mission, since
that would potentially detract from the perceived independence of the
international observers and their accountability to the organization which
has authorized and supported their mission. Similarly, international observers
should not share non-public information concerning their activities or
impressions since that might compromise mission security and lead to
unauthorized disclosures of information.
Rules of Conduct for International Observers
To ensure the legitimacy of
their work, international observers have to follow internationally recognized
standards of conduct. Several organizations that specialize in international
observation have developed codes of conduct to guide such observers’ behaviour.
The main requirements for ethical and professional observation are as follows:[3]
- Respect the sovereignty
of the host country. To maintain the credibility and effectiveness of their election
observation mission, international observers must respect the laws of the
host country and the rules of its election management body. They must not attempt
to give instructions to electoral administrators or interfere with governance
of the country being observed. They must
also respect accreditation rules during their mission.
- Objectivity. To be effective,
international observation must be objective and non-partisan, and must
provide balanced reports. Objectivity protects the credibility of the
mission and helps maintain the integrity of the electoral process. When
observers do their work, they must be very careful not to show a
preference for any particular party or candidate lest they compromise the
objectivity required for preparing impartial reports.
- Non-interference in the
election process. International observers must not interfere with the work of
electoral administrators. Their mandate is not to supervise, correct
mistakes or resolve local conflicts, but only to observe, report and
assess.
- Accuracy. The reliability of the
observation and assessment depends on the accuracy with which
international observers report the facts. Many of the observers do not
have an opportunity to observe the entire electoral process; accordingly,
they must avoid generalizing on the basis of limited observations.
Observation reports should clearly indicate the basis for the information
presented, and not extrapolate beyond it.
- Avoid conflicts of
interest. Election observation should be kept strictly separate from technical
assistance for elections. International observers should not be engaged in
electoral assistance activities in the country where they are observing
(for example, assisting electoral administrators, developing electoral
legislation or training election staff). Professional and credible
assessment of an electoral process requires reasonable separation from the
administration being observed.
[1] Carothers, Thomas, “The Observers Observed,” Journal
of Democracy, 8(3), 1997, p. 19
[3] Bjornlund, Eric C., Beyond Free and Fair:
Monitoring Elections and Building Democracy, Washington,
D.C.: Woodrow Wilson
Center Press, 2004
