The credibility and legitimacy of electoral processes is inextricably linked to electoral integrity. The Global Commission on Democracy, Elections and Security identified five major challenges to the conduct of elections with integrity in its 2012 report:
- Building the rule of law to substantiate claims to human rights and electoral justice;
- Developing professional and competent electoral management bodies (EMBs) with full independence of action;
- Creating institutions and norms of multiparty competition and division of power;
- Removing barriers to universal and equal political participation; and
- Regulating political finance.
Each of these challenges requires a multidimensional response that combines political will, effective institutional design and effective mobilization, implementation and management in practice.
The organization and administration of multiparty democratic elections was not previously considered newsworthy. An election or direct democracy poll— such as a referendum—is, however, often the single largest activity that is ever organized in a country. It is a very complex administrative task, which is implemented in a politically charged atmosphere. When it is done well, it may attract little comment. When it is not done well, or when it is undermined, the effects can be catastrophic.
The administration of many electoral events, however, passed largely unnoticed, except by those directly affected, even though the losing political parties often challenged the conduct of the election and its results. From around the mid- 1980s, this began to change. The conduct of democratic elections began to be seen, and reported, as a central element of transitions from authoritarianism or conflict resolution. Elections came to be more closely scrutinized by political parties, the media, and international and citizen election observers.
Since the mid-1980s, there has also been an unprecedented commitment to electoral reforms around the world, driven by the realization in political and electoral administration circles that changing social environments required a rethink of electoral arrangements, by the critical attention of the media and election observers and by the emergence of global and regional organizations promoting democracy. As scrutiny of elections increased, from the early 1990s the lack of experience and the ‘knowledge gap’ in the technical know-how for election management was overtaken by a ‘credibility gap’ in many electoral institutions—a diminished public confidence in the integrity and diligence of their activities.
Public interest has more often been focused on reforming electoral systems to enhance representation. Yet reforms to the machinery for organizing and administering electoral events are of equal importance. These include a trend toward establishing autonomous electoral management bodies with wide-ranging powers and responsibilities, and the improvement of electoral organization in order to deliver higher-quality electoral services more effectively, while enhancing the freeness and fairness of electoral events.
As the administration of elections has received more scrutiny, it has also become more professional. Electoral managers have learned from experience—their own and that of non-electoral organizations—and have formed links and networks through which ideas and practices are shared and electoral standards may be raised. There are different organizational approaches to the design and conduct of elections, but there are many common themes and issues faced by all electoral administrators.
As electoral administration has developed through greater professionalism, it has had to respond to greater challenges. In addition to their tasks related to implementing election laws and managing electoral technicalities, some EMBs have assumed responsibilities in highly political areas, for example the oversight of political finance, the registration and oversight of political parties, the role and activities of the media during elections, and the promotion of political participation. In addition, the ingenuity of those who wish to undermine the integrity of elections means that electoral administrators can never rest on their laurels: protecting electoral integrity can require a continual leapfrog process for the EMB to keep ahead.
This Topic Area is intended to be a resource to directly support those who are responding to the challenge identified by the Global Commission to build professional, competent and fully independent EMBs. In doing so, it may also support those who are responding to the commission’s other four challenges. It seeks to bring together the knowledge and expertise that has been gathered worldwide about EMB roles and functions, and the organization, financing and management of election administration. It identifies examples of practices that have been successful and those that have been less successful. It recognizes that different models may be appropriate in different contexts, and does not in general seek to be normative or prescriptive beyond the basic characteristics sought in good electoral processes: freedom, fairness, equity, integrity, voting secrecy, transparency, effectiveness, sustainability, service- mindedness, efficiency, impartiality and accountability.
The prime objective in compiling this topic area has been to provide practical information in a form that is easily accessible and (to the greatest extent possible) free of theorizing and electoral or management jargon. It contains information that is useful not only to those establishing institutions involved in managing elections, those in newly established electoral institutions and those in emerging democracies. This Topic Area also offers a wide range of experiences and information on good practices for those interested in assessing performance and improving administration in well-established EMBs. Equally, it provides useful data to all who have an interest or stake in electoral administration—whether in governments, political parties, the media or civil society organizations, or as interested observers of political and electoral matters.
