The Question

This question is posed on behalf of an academic from the University of Birmingham. 

I am researching international experiences of supporting electoral law enforcement and entities that impose related sanctions, particularly in "post-conflict", or "fragile" states. Therefore I am looking for examples of best practice, both regarding support to departments within Electoral Management Bodies (EMBs), as well as electoral compliance units outside EMB organizations. In short, my questions are:

• What examples are there of support to EMB and non-EMB actors for enforcing the electoral law and imposing sanctions, particularly in post-conflict/fragile states?
• What examples are there of literature and best practice available on this topic?

 
Summary of Responses
Members of the Practitioners’ Network (PN) identified several examples where Electoral Management Bodies (EMBs) and non-EMB actors have received support to enforce electoral law and impose sanctions in post-conflict states. One PN member identified five cases where ad hoc electoral justice bodies were created with the support of the international community as part of post-conflict transition processes. These cases included: 

• Cambodia in 1993;
• Bosnia and Herzegovina in 1996;
• Timor-Leste in 2001;
• Afghanistan in 2005; and
• Nepal in 2008.

In addition, the Election Complaints and Appeals Sub-Commission in Kosovo was highlighted as an example similar to those cited above. More information about examples can be found in Electoral Justice: The International IDEA Handbook and in the IFES Guidelines for Understanding and Adjudicating, and Resolving Disputes in Elections. One respondent further emphasized that cooperation between EMBs and electoral dispute resolution bodies in fragile states is particularly important.

Members also put forward the Burundian example, where the National Independent Electoral Commission, with support from the international development partners of Burundi, developed proposed amendments to strengthen the electoral law which was in force during the elections in 2010, including amendments dealing with sanctions and dispute resolution. 

Examples of Related ACE Articles and Resources

External Resources

Names of Contributors

The upcoming 3rd version of the Electoral Integrity topic area in the ACE Project On-line Encyclopedia will contain more commentary and case materials on these and related matters.

- Dr Daniel Finn, Consultant, International Law & Public Affairs

Comme base de justification de la prise des sanctions visant à la consolidation de la loi électorale, se référer à la volonté des OGE, organes de gestion des élections, à respecter  à la lettre :

1 - Les Instruments juridiques internationaux, notamment la Déclaration universelle des droits de l'Homme, 1948 (article 21); et le PIDCP, Pacte international sur les droits civils et politiques.

2 - Les textes juridiques communs aux élections et les textes juridiques spécifiques aux opérations.

Pour les exemples de bonnes pratiques électorales, cf :  

- Concevoir la gestion électoral, Manuel d'IDEA/International, 2006;

- Administration électorale et monde arabe, PNUD, 2011 (en attaché);

- Rapports des observateurs des élections;

- Rapports des OGE.

Dans la Region de la SADC, il existe "les Principes de Gestion, de Surveillance et d'Observation des Elections dans la pays de la SADC" cela pourrait aider.

I've had experience both in EMBs and in EDRBs (electoral dispute resolution bodies) in fragile states.  The level of support for the work of EDRBs very much depends on both the legal framework and the personalities involved in the electoral process.  I have seen elections where the EMB provides significant support to and cooperates with the EDRB, but I have also seen elections where the EMB attempts to hide information from the EDRB and does everything it can to thwart the work of the EDRB.  The latter situations rarely turn out well for anyone.  

Christine NDAYISHIMIYE du Burundi

Les deux questions sont très pertinentes, comment en effet appliquer la loi quand les sanctions n'ont pas de place? Mon pays le Burundi est en train de consolider la paix retrouvée après plus d'un décenie de guerre civile . Lors des dernières élections (communales, présidentilelles, législatives, senatoriales) de 2010, le code électorale qui avait été voté à la hâte était très lacunaire surtout en rapport avec les sanctions. Comme La Commission Electorale est maintenant permenante, elle a profité de cette période qui la sépare des prochaines élections prévues pour 2015 pour faire une série de propositions d'amendement du code électoral au Législateur Buurndais. Concernant les sanctions, les propositions faites insistent plutôt sur les sanctions administratives qui semblent plus contraignates que les sanctions pénales; une autre proposition est en rapport avec un tribunal spécialisé en matière électorale qui serait chargé de vider le contentieux électorale.

Dans l'entretemps, cet exercice qui vise l'amélioration du cadre légal est soutenu par les partenaires du Burundi. C'est dans ce cadre qu'une réunion organisée par le Gouvernement avec le soutien des Nations Unies et rassemblant toutes les formations politiques a insisté sur l'amendement du code électoral avant décembre 2013, toujours avec l'objectif de mieux se préparer aux éléctions de 2015; si non pour les normes qui visent les bonnes pratiques reconnues internationalement, elles peuvent être trouvés dans les instruments de base ci haut donnés par les colluègues.

The International IDEA Electoral Justice Handbook (http://www.idea.int/publications/electoral_justice/) lists Cambodia (1993), Bosnia and Herzegovina (1996), Timor-Leste (2001), Afghanistan (2005) and Nepal (2008) as cases where ad hoc electoral justice bodies were created as part of the post-conflict transition. The Election Complaints and Appeals Sub-Commission in Kosovo is a similar example.

The IFES Guidelines for Understanding and Adjudicating, and Resolving Disputes in Elections (http://www.ifes.org/~/media/Files/Publications/Books/2011/GUARDE_final_publication.pdf) includes experiences with such bodies.

The Burundi National Independent Electoral commission has been recognized by the law to be permanent from 2010. It doesn't have a strong election administration experience. All previous elections have been held by non permanent bodies. Burundi getting out of monopartism to multipartism, from dictatorship to democracy, from the war to the peace, the international donors have been providing the EMB both with technical and financial assistance from the beginning to the end of electoral process.

The initiatives of electoral law drafting, its' improvement  have been taken jointly by the government and the partners for development. It is true, no one can operate on himself, there is a need of external eye for the smooth running of the operation.

All over the world, the ruling parties always try to legislate in their favor and the pressure groups or international community tries to give technical assistance to conform the law to the recognized international standards.

For Burundi, the international community assists also the civil society organizations, all stakeholders in training, observation and monitoring of elections at all stages. Conflict resolution mechanisms must find a place within the law,  with a clear procedure. 

The Burundi electoral act involves all stakeholders in the composition of the organs of the EMB from the top to the bottom. All social sensitivities are taken into account even in the institutions issued from the electoral process.

Now Burundi is willing to amend the electoral legal framework for the 2015 electoral process. It is backed by the international community.  A road-map is already agreed on  by all election stakeholders.

In brief, everybody is concerned by the electoral law from the drafting to its implementation at all stages of electoral process and its' dynamic after elections. The quotas of  each ethnic group, gender etc are determined in the law (Constitution and electoral law). Any one sees his peers or relatives in the institutions. It brings peace and stability in the country.

Julius Bucumi

Inspector of Justice, Burundi.