The Question

Question submitted by Helena Catt, member of the ACE Practitioners’ Network

I am compiling a report that showcases examples of actions introduced by Election Management Bodies in developing democracies with an aim of encouraging electoral participation of female voters, candidates and as EMB staff at all levels.

We hope to cover the following areas:

• the registration process
• the polling process, including security
• voter education and information
• internal staffing policies and actions, including appointment of Commissioners.
• statements in strategic plan, vision statement
• Gender mainstreaming mechanisms
• Enforcement of candidate gender quotas by EMB
• Data collection and reporting that allows or shows gender position

 From material on iKnow and ACE I have examples from: 

• Separate polling booths or stations in Lebanon, Jordan, Pakistan and Yemen

• Palestine procedure for women wearing a veil

• South Africa 1994 election various education and training programmes

• Issues around family voting in Macedonia

• Morocco 2002 education and media work

• Use of radio, song and film to counter illiteracy in Malawi, Afghanistan, Mali, Kenya

• Women only registration teams in Afghanistan

• Timor L’Este 2001 legislated gender quotas in staffing

• Candidate gender quotas in place

I would appreciate information on other examples or suggestions on countries or specific elections to investigate.

Summary of responses

Two replies cite the Kenyan Independent Electoral and Boundaries Commission Bill from 2011 and its stipulation that “not more than two-thirds of the members of elective public bodies shall be of the same gender.” One expert reports that this provision is now the rule of thumb for almost all state appointments in Kenya and that further measures are being planned to ensure that this is indeed the case in reality.

The Electoral Commission of Pakistan recently oversaw an updating of the voter register and particular emphasis is said to have been placed on the registration of women. This emphasis was passed from the electoral commission down to district, regional and provincial commissioners. It is also noted that Pakistan uses separate polling stations or separate polling booths for women, in order to encourage participation.

Nepal is also given as an example, with a gender quota in the 2008 Constituent Assembly elections ensuring 33 per cent of the assembly seats are occupied by women. This emphasis on encouraging female participation in the electoral process was also reflected in the electoral commission’s voter education drive of 2008 and its five year strategy from 2009.

The internal rules of the National Election Committee of Cambodia stipulate that at least one in seven of its staff at the provincial level must be women, one in five at the commune level and one in six of the officials at polling stations.

The Tanzanian EMB’s consultation and collaboration with civil society in encouraging women’s participation is another example, the focus being on civic and voter education.

Examples of related ACE Articles and Resources

Encyclopaedia:

·         Electoral Management: Gender Balance Responsibilities

·         Procedures for Recruitment of EMB Staff

Support and Advice:

·         Consolidated reply: Gender Mainstreaming of the Electoral Administration 

External Resources

·         Kenya: The Independent Electoral and Boundaries Commission Bill, 2011

·         The Constitution of Kenya: Revised edition 2010

·         Innovation for Successful Societies: Elections 

·         Elections in Bangladesh, 2006-2009, UNDP

Names of contributors

1.       Carl Dundas

2.       Jennifer Widner

3.       Reuben Chemitei

4.       Khalid Waheed

5.       Koul Panha

6.       Amon Emmanuel Chaligha

7.       Peter Eicher

I believe that your list might be enriched by researching the new Kenyan Constitutional provisions (Articles 81-92, 2010) dealing with elections, as well as the Independent Electoral Commission Act 2011, sections 24(b), [the Commission shall observe the following principles]... 'not more than two-thirds of the members of elective public bodies shall be of the same gender'; and (c) 'fair representation of persons with disabilities and other persons or groups with special needs'.

I hadn''t seen the gender focus in the early question.  For cases about EMB institution building and participation, see http://www.princeton.edu/successfulsocieties   Ghana, South Africa, Lesotho, Northern Ireland, India, and others.  Guyana, Nigeria to appear soon.

I would agree with fellow facilitator Carl Dundas of showcase examples that are found in the New Kenyan Constitution. Consult the chapters on representation (Article 81-92) and in particular the  Independent Electoral Commission Act 2011 which you can readily get on the web. the rule 'not more than two-thirds of the members of ......... shall be of the same gender' is now the rule of the thumb in almost any state appointment in Kenya. And because there is still significant levels of gender disparity in favor of males, the Kenyan cabinet is currently proposing changes to ensure the rule becomes a reality. This will involve 'topping up' the dis pared gender, certainly women after elections. Today, rarely an electoral job advert is complete with the statement 'women are encouraged to apply'.

With these EMB need a thorough sensitization to the females to participate.

Election Management Bodies in developing democracies with an aim of encouraging electoral participation of female voters.

It is very important now a days to introduce reforms in electoral systems,EMBs mandates and gender responsive policies towards democratic values specially in developing democracies. 

Discrimination arises in first instance when registration is not being carried out fairly and transparently. Many eligible persons are left out or they themselves do not take keen interest in voting registration or sometimes female voter can not get access to the registration process with a result that voter list so prepared looses credibility. The voter list is a basic document for democracy and governance so the base requires credibility to lay credible foundation, otherwise entire process would be at stake. In most of the developing democracies the female voters ratio is little bit less than that of men folk.

Generally the voter registration is the responsibility of EMB where continuous or periodic registry exists and in other few countries civil registry  is in practice but the mandate/use of voter registration/roll rests with EMB, therefore,  it is the prime responsibility if an EMB to ensure inclusion of all in the list on equitable base.

Fair , transparent, error free ,complete and credible voter's list can lead to a fair and acceptable elections where all the segments of society, i.e; women,marginal groups and ethnic groups(Where exist) can participate and give results.

For all this voter's/civic education is of vital importance which gives strength to make the electoral process. 

As a matter of fact there are hurdles for women in participating and gender discrimination is observed in most of the developing democracies because of weak electoral system, lack of voter's education and violence which needs reforms.

In Pakistan  voter's list is being prepared a fresh and participation of women specially their enrollment is being ensured by EMB staff and District/Regional/Provincial Commissioners are emphasizing and carrying out field visits to ensure the registration of all sections of society.I being regional commissioner ,use to travel extensively all along in my jurisdiction stretched well over six Districts and personally ensure the registration fairly and transparently. 

In Pakistan we use to establish separate polling stations for women and separate polling booths in combined polling stations to ensure free and easy access of females in the electoral process.

In short women's full participation in electoral process can be ensured by voter's/civic education,compulsory voting,security measurements, free atmosphere and above all exercise of full powers by EMB to implement law.

 Strong,empowered and independent EMB can guarantee and encourage women's participation in electoral process right from registration to formation of parliament resulting to have governance of all , for all and including all.

Wonderful initiation.

I would suggest to focus in Nepal case also. Through the Constituent Assembly (CA) elections held in April 2008, Nepal had set an example of exemplary increment of women in parliament (CA) or from around 5% in the past to plus 33 percent. I will suggest to focus at least on the following areas:

• Nepal has adopted a strong policy (Constitution, legislation's and EC's guidelines) to ensure the greater representation of women in CA. Gender quota were allocated in the system.
  
• In 2009 Election Commission of Nepal has developed its 5 year strategy with its vision, mission, long term objectives and activities to improve the future elections. This document also could be helpful.
• Voters education strategy adopted in 2008 election will be helpful to analyze our strategy to encourage maximum women participation in electoral process.
• EC' also adopted to maximize women staff in electoral management.
• Have attached one of my recent brief note for further understanding in a very few/limited areas of quota, representation, etc.

In Cambodia there is a recruitment policy in the  EMB regulation that suggest to recruit and/or select at least one of woman among seven official of the provincial EMB, at least one of woman among five officials  of commune EMB and at least one of women among six officials  of the polling accounting station.  In the implementation of 2008 elections, a minority of women have governmental roles in organizing elections: 2 among 5 persons at the national EMB (or NEC) and 153 persons, equal to 17.79%, at the NEC’s office. There are few women at capital/provincial election commissions (C/PECs) (only 122 persons, or 10%) and commune/sangkat election commissions (C/SECs) (1,464, or 13.02%). Polling /counting officials have 29,551 women, equal to 32.29%. Only a few women are in positioned in decision making in terms of the elections: 17% are chairpersons.

In Tanzania women related civil society organizations are often consulted and encouraged to provide voter and civic education to encourage women to participate in the election process i.e. register, attend election campaign meetings, vote and even  participate as candidates. Most polling officials are women primary school teachers. Women who are local council directors save as returning officers and these are numerous.

Generally the electorate is involved, cultural groups, community radios, even places of worship such as churches and mosques are consulted and used to provide voter education regarding the registration process (when and where to register, eligibility etc.). After registration, the provisional register is returned to the registration centers for voters to verify their names etc. Political parties are given opportunity to post a party agent to witness the registration, voting as well the vote counting process. In this way, it is believed the process becomes more transparent.

I suggest you take a look at Bangladesh, where the Election Commission took a series of actions in 2007-2008 that resulted in greatly increased voter participation, as well as a vastly improved electoral process.   Actions included redoing the voter lists, providing an ID as an incentive for registration, entering into a partnership with civil society for voter education, increasing transparency within the election commission, welcoming observers, improving election security, and many other steps.  You can get the details in a UNDP publication, Elections in Bangladesh 2006-2009, Transforming Failure into Success, available at http://www.undp.org.bd/info/pub/election%20in%20bangladesh.pdf.