Education may seem to be a distance from the
traditional role of electoral management bodies to prepare for and undertake
the logistical requirements of an election but increasingly this is an active
area for such bodies because there is recognition of a direct linkage: “For an
election to be successful and democratic, voters must understand their rights
and responsibilities, and must be sufficiently knowledgeable and well informed
to cast ballots that are legally valid and to participate meaningfully in the
voting process.”[i] In post-conflict situations the challenges
and opportunities may be even starker. In fact, failing to provide the information necessary to participate in
elections in a way that is fulsome and timely, “may, by omission, constitute an unreasonable
restriction on the exercise of electoral related rights.”[ii]
When speaking of education in the context of electoral processes, two
related but different concepts emerge. First, there is the notion of “voter
education” which is most directly related to electoral management bodies
informing voters of how to go about all the technical aspects of an election
including being registered and voting. “Civic education” may be understood as a broader term intended to
increase the population’s knowledge of principles and features associated with
government, such as the political system.
The purpose of civic education and voter
education campaigns is often not purely informative, but aims also by
encouragement and incentive to increase overall engagement in the election and
voter turnout specifically, although some electoral laws formally prohibit such
purpose. It is essential that civic education and voter information campaigns
respect the principles of objectivity, transparency, equality, pluralism and
neutrality of electoral authorities. Some legal orders include an explicit
prohibition against using voter information and civic education campaigns to
direct voters towards a specific candidate or political party. In such a
framework, one of the functions of electoral administration bodies is to
regulate voter information and civic education campaigns carried out by the
government in order to prevent partiality, such as acts that may prejudice the
public interest or the regular function of public services.
As electoral processes are more and more
institutionalized and increasingly conducted in compliance with rules, voter
education becomes a more prominent task in the activities of the electoral
bodies. Voter education programs will target all voters but special attention
should be directed to historically marginalized or disadvantaged groups of
voters as, “Any special measures likely would not be considered discriminatory
because they support the fulfillment of the State’s duty to ensure the rights
of groups who suffer (or have historically suffered) discrimination.”[iii] As well, low turnout groups such as youth are
often specifically targeted.
A strong voter education program is critical to
ensuring the free participation of qualified voters in genuine elections. This initiative, however, “is most effective
when linked with a programme of civic education that puts the election into context
for voters and provides an explanation of the election’s purpose, the surrounding
issues, and their significance.”[iv] A main channel for civic education is the
school system beginning with pre-voting age youth and preparing them with
concepts that one day will have expression in the act of voting.
Informing and educating voters also implies greater
voter participation in electoral processes.
While voter turnout is a very complex phenomenon with many variables, as
Elections Canada reports on Canada’s Democracy Week 2012 Website, “Studies in Canada, the United States and Australia
demonstrate that civic education has a positive impact on key factors
associated with voter turnout, such as political knowledge, interest, attitudes,
civic participation and intent to vote.”[v]
Thus, education in the framework of a democratic culture becomes more and more
necessary. It requires building a political culture in which all members of a
community, from an early age should assimilate and be informed of democratic
values that citizens should share and spread. Therefore, in addition to the
educative role that ordinary social stakeholders, such as the family, schools
and meeting places can play, electoral authorities should play a significant
role.
It is, of course, important that as electoral management bodies
increasingly take on a role in civic and voter education that sufficient
funding is provided in order that programming will be adequate and sustained
over time. In some jurisdictions in
Canada, for example, funding for voter education is expressly provided for by a
direct draw on the treasury without need for an enabling vote. However, in all instances including budgeting
considerations, there is value in the efforts of electoral management bodies
being supported by like-minded initiatives by the public and private media, political parties, and non-governmental and
international organizations playing a vital role.[vi] Elections management bodies must take the
lead however, as they are uniquely qualified to provide technical, credible and
non-partisan voter information on a timely basis as it is needed.
One other way to encourage efficiency in this area is to share lessons
learned and best practices. On this
front, a major cross-national study on civic education, the Civic Education
Study (CIVICED), is currently being carried out under the auspices of
International IDEA and l'Université de Montréal, Canada and is targeted for
completion in 2012. The study draws upon
questionnaires completed by civic education specialists in over 35 countries in
order to compile a database to serve as a resource for researchers, policy
makers, educators and academics around the world.[vii]
Increasingly legal frameworks are recognizing the role of electoral management
bodies related to voter education. Not only do electoral authorities have the
technical competence to add value to
voter education but also there exists an inherent obligation to contribute to
such an important undertaking that may eventually be translated into political
participation.
[i] UN, Women & Elections, 56.
[ii] Patrick Merloe, Promoting Legal Frameworks for Democratic
Elections, 15.
[iii] DRI and The Carter Center, Strengthening International Law, 39.
[iv] UN, Women & Elections, 60.
[v] Elections Canada, “The Impact of
Civic Education on Voter Turnout.” Canada’s
Democracy Week 2012 Website.
[vi] UN, Women & Elections, 59.
[vii] Elections Canada, “The Impact of
Civic Education on Voter Turnout.”
