This question is posted by ACE on behalf of Thomas Cormier, IDEA Myanmar 

We are engaging with the Union Election Commission (UEC) of Myanmar to explore a variety of issues related to electoral observation (domestic, international and party agent) throughout the electoral cycle.  

The emphasis will be to highlight the potential benefits of observation in terms of increased confidence in the electoral process, enhanced citizen engagement, acceptance of results, improved electoral management, more effective complaints processes and strengthened electoral frameworks.  

Through facilitating a process of experience-sharing among ASEAN countries, we will build a comparative set of regulations governing electoral observation that promote openness and access to the electoral process, adherence to standards, cost-effectiveness, and ease of administration among other things.  This information will be shared with the UEC and domestic stakeholders with an interest in observation ahead of a dialogue and consultation with the UEC on drafting observation regulations that draw on international and regional good practices.  
 

For this purpose, we are looking for:

1. Examples of regulations that govern various aspects of electoral observation including accreditation, access to observe the various aspects of electoral cycle, specific regulations on observing polling, counting, tabulation, results and appeals processes.  
2. In particular on accreditation, we are looking for information about centralized or decentralized accreditation, whether organizations are accredited, or individual observers. The primary focus of our efforts will be domestic observation, but we are also interested in examining regulations governing international observation and political party agent observation.
3. We would also be interested in learning from the experiences of others in facilitating or assisting the drafting of regulations regarding observation with EMBs.

Any and all input will be much appreciated.

Summary of Responses

Practitioners’ Network (PN) members cited regulations governing different aspects of observation, with many providing examples of such legislation around the world. Members also shared a range of online resources suggesting how EMBs, governments and international organizations regulate domestic and international observation activities.

Members mentioned legal frameworks (mainly electoral laws) governing accreditation and observation in the following countries:

• Iraq (Independent High Electoral Commission’s regulations for the Iraqi Parliamentary Elections, 2013)
• Senegal  (see electoral code of 2012)
• Croatia
• Cameroon 
• Bangladesh 
• Georgia (see election code of 2012)

Several members cited handbooks and domestic codes of conduct produced by EMBs for observers. Among these examples were the Georgian Central Election Commission’s (CEC) Handbook For Observers, Afghanistan’s Independent Election Commission’s (IEC) Code of Conduct for Observers, and the Election Commission of India’s General Observers Handbook. Members also suggested looking at the Mexican Instituto Nacionale Electoral’s accreditation form and the Kosovo Central Election Commission’s (CEC) webpage on election observation.

A few members also cited international best practices for election observers, embodied in the Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organizations (Global Network of Domestic Election Monitors),  the Declaration of Principles for International Election Observation and Code of Conduct for International Election Observers (Carter Center), the Venice Commission’s Code of Good Practice in Electoral Matters , The Inter-Parliamentary Union’s Declaration on Criteria for Free and Fair Elections,  and the Bangkok Declaration on Free and Fair Elections.

Furthermore, PN members from organizations working in elections and democracy shared significant insights. For example on the subject of accreditation, one PN member working at the National Democratic Institute (NDI) suggested that centralized organizational accreditation (as opposed to election commissions reviewing individual observer applications) promotes a more efficient and streamlined process that ensures consistent criteria for all observer groups applying. Another member from the Carter Center added that it is possible to use a decentralized procedure for individual accreditation, for domestic observer groups.  Members generally agreed that to minimize confusion regulations should govern domestic and international observers differently, despite both groups having the same rights and obligations.

Lastly, one PN member from International IDEA shared findings from a study on 162 countries suggesting election observers can challenge/appeal election results in the following countries: Azerbaijan, Bosnia and Herzegovina, Georgia, Kosovo, Kyrgyzstan, Lithuania, Russian Federation, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan.

External Resources:

• Handbook For Observers (Georgian Central Election Commission)

• Code of Conduct for Observers (Afghan Independent Election Commission)

• Solicitud de Acreditación de las Actividades del Proceso Electoral Federal de 2011-2012 (Instituto Nacional Electoral)

• Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organizations  (Global Network of Domestic Election Monitors)

• Declaration of Principles for International Election Observation and Code of Conduct for International Election Observers (The Carter Center)

• Code of Good Practice in Electoral Matters (Venice Commission)

• Declaration on Criteria for Free and Fair Elections (Inter-Parliamentary Union)

• Bangkok Declaration on Free and Fair Elections

Internal Resources:

• General Observers Handbook (Election Commission of India)

Contributing Members

• Rosario Pavese
• Jacky Sutton
• Kunzang Wangdi
• Abdurashid Solijonov
• Sadou Lady Bawa
• Abdul Alim
• Ababacar Fall
• Urusla Kaczmarek
• Alessandro Parziale
• Michael McNulty
• Vanja Skoric
• Rahul Sharma
• Victor Hugo Ajila

Dear Thomas,

I have studied electoral observation regulations in America Latina, as I work coordinating electoral observations. I have a paper I can send to you, but it is in Spanish, does that work for you? 

Hi Thomas, I worked with the Iraq electoral commission for UN and IFES in helping with the accreditation, regulation and monitoring of national and international observers, political entity agents and media. Regulations are on the IHEC website: http://www.ihec.iq/en/index.php/p-a-o-m.html 

Hope this helps, Jacky

visit our website www.election-bhutan.org.bt

We are currently conducting global research of electoral dispute resolutions systems and procedures. So far we collected data for 162 countries; we found that in following 11 countries election observers can challenge/appeal the election results:

Azerbaijan

Bosnia and Herzegovina

Georgia

Kosovo

Kyrgystan

Lithuania

Russian Federation

Tajikistan

Turkmenistan

Ukraine

Uzbekistan

The data is based on the text of national legislation. 

Au Cameroun les observateurs électoraux tant nationaux qu'internationaux sont accrédites par le Ministère de l'Administration Territoriale et de la décentralisation. La coordination des activités des observateurs accrédités est coordonnée par le Directeur Général des élections.

S'agissant des partis politiques ils sont représentés dans les  différentes commissions mises en place par Elections Cameroon des inscriptions jusqu'au recensement général des votes: les commissions de révision des listes électorales (articles 50, 51, 52 de la loi numéro 2012/001 du 19 avril 2012 portant code électoral, modifiée et complétée par la loi numéro 2012/017 du 21 décembre 2012); les commissions  de contrôle de l’établissement et de distribution des cartes électorales (article 53 du code électoral); les commissions locales de vote (article 54); Chaque candidat, liste de candidats ou parti politique peut designer trois représentants par arrondissement, lesquels ont libre accès dans tous les bureaux de vote de l'arrondissement. ils ne peuvent être expulses qu'en cas de désordre provoque par eux ( article 59 du code électoral);les commissions départementales de supervision (article 63 du code électoral); la commission nationale de recensement général des votes (article 68); les commissions communales de supervision chargée de la centralisation, de la vérification des décomptes des votes, elle proclame les résultats des élections municipales (articles 191-192-193 du code électoral); les commissions régionales de supervision pour l’élection des sénateurs (articles 235-237 de la loi électorale). Le Cameroun compte 10 régions, 52 départements,360 communes. l'association des partis politiques, des organisations de la société civile, de l'administration, de la justice,des médias ,des chefs traditionnels et religieux a la vie  électorale nous a permis d'organiser des élections transparentes et crédibles au Cameroun  

Bangladesh allows both international and domestic observers as well as candidates' agents to stay in the polling booths.

For the domestic observations, the organisations intend to observe elections have to be enlisted with the EMB. After declaration of the election schedule, the organisations have to submit an observation plan containing the number of observers and the name of the constituencies. The central EMB sends the application to the concerned returning officers and the accreditation cards are issued at the constituency level.

For international observers, any foreign nationals can apply with a copy of his/her passport and two copies of photograph. The accreditation cards for international observers are issued from the central level.

As per electoral legal framework of Bangladesh a candidate can appoint one agent in each polling booths; the agent needs approval from the returning officer.

l'observation électorale au Sénégal a commencé en l'an 2000, elle a été motivé par les contestations récurrentes qui ont jalonné le processus électoral depuis les années 1963 du fait du parti unique de fait qui y existait. à partir de 1974, malgré une ouverture démocratique timide, les contestations sur la non transparence des élections ont toujours continué et se sont même aggravé à partir de 1981 qui a marqué l'ouverture démocratique intégrale. Ce n’est qu'à partir de 1999 que certaines organisations de la société civile ont commencé à observer les élections pour en garantir la transparence aidé en cela par la mise en place d'un observatoire nationale des élections d'abord, ensuite d'une commission électorale nationale autonome et l'adoption d'un code électorale consensuel. Cela a permis deux alternance démocratique en 2000 et en 2012. Cependant, l'observation électoral n'était pas encadrée par un dispositif juridique. Ce n'est qu'à partir de Mai 2012 qu'un décret présidentiel est venu réglementer l'observation électorale sans en faire une obligation pour le gouvernement. En effet le décret précise que : "le gouvernement peut inviter des organisations nationales ou internationales, gouvernementales ou non gouvernementales à observer l'élection présidentielle, les élections législatives, l'élection des sénateurs, les élections régionales, municipales et rurales et les référendums".

En ce qui concerne le processus d'accréditation, le décret précise que "Toute organisation ou tout organisme, de même que tout particulier intéressé par le processus électoral peut également demander une accréditation pour observer les élections aussi bien à l'intérieur du pays qu'à l'étranger".

Les missions d'observation doivent pour être accréditées, fournir un certain nombre de pièces et adresser une demande au Ministre chargé des élections ou au Ministre des Affaires Étrangères

Une commission regroupant le Ministère chargée des Élections, le Ministère des Affaires Étrangères et la Commission Électorale Nationale Autonome examine les demandes. L'accréditation des observateurs relève du pouvoir discrétionnaire de l'administration électorale. Le décret fixe également les droits et devoirs attachés à la qualité d'observateur.

En cas de manquement aux obligations liées à l'observation électorale, le gouvernement peut, à tout moment, retirer l'accréditation soit provisoirement, soit définitivement.

Pour le reste, les conditions de surveillance du processus électoral depuis l'inscription sur les listes électorales jusqu'à la proclamation des résultats sont consignés dans le code électoral et sont du ressort des partis politiques qui l’exercent par l'intermédiaire de leurs représentants.

ABABACAR FALL

EXPERT ÉLECTORAL

DAKAR/SÉNÉGAL

The Central Election Commission of Georgia allows both domestic and international organizations to register as accredited observation missions, but makes some important distinctions between the two types. Each international organization may field two observers per polling station and a translator if needed; domestic organizations may only field one observer per polling station. Domestic organizations must have been registered as legal entities chartered to monitor elections or human rights issues at least one year before polling day to be eligible; no such time requirement exists for international organizations, but they must also be chartered for related activities. The CEC registers each individual observer and that observer wears an ID that is color coded to indicate whether he/she is from a domestic or international organization.

There are other differences. The Commission has produced a handbook for observers (PDF, English) that covers these in greater detail: http://electionreforms.ge/files/library/284.pdf

Hi Thomas, 

Usually observers should have the right to witness all aspects of the electoral process. However observers have to abide by the rules and regulations described in the pertinent national legislation (electoral law or other bylaws), and in some cases, also by a specific code of conduct established by the EMB or of their own organisation. In any case they should never interfere or obstruct the electoral cycle and maintain all times their impartiality and neutrality. 

Generally individuals can be accredited only if they are part of an organization, but in some countries, such as Mexico, single individuals can also receive an official accreditation to observe. In the first case mentioned, and the most common, the organization has to be accredited first and the individuals after. It is common practice to accredit organizations centrally although in some, namely in large countries and especially for domestic groups, it is possible to use a decentralized procedure for individual accreditation.   

Although domestic and international observers are playing the same role and have the same rights and obligations, they are different in nature: the first ones are citizens of the country while the others are foreigners. Therefore international groups generally need a formal invitation from the hosting government (Government, MFA or EMB or a combination of them) that is normally followed by Memorandum of Understanding between the two parts, which establishes in detail the rights and obligations that all parts, the organization and its observers and the hosting institutions, will abide by.

Political entities play a different role. They represent their candidate’s and play and active part in the electoral process. However they also need to be accredited to have their party agents inside polling centres and stations and their accreditation procedure is similar to the one used for observers. It really depends on the country regulation: in some countries, the relevant parties can have their representatives being part of the polling staff committee and of the EMB itself, while in other countries party representatives are just allowed to witness the electoral process. So, in the case of Myanmar, it depends on their legislation and particular set up.  

Apart from these categories journalist should also be eligible to be accredited by the EMBs to cover electoral events.

There are many examples that you can find on EMBs websites worldwide, such as the Instituto Federal Electoral from Mexico (http://ife.org.mx/docs/IFE-v2/ProcesosElectorales/ProcesoElectoral2011-2012/Proceso2012_docs/Observadores2012-FormatoRegistro.pdf) or the Central Election Commission from Kosovo (http://www.kqz-ks.org/en/election-observation) or the Code of Conduct for Observers of the Afghan Independent Election Commission (http://www.iec.org.af/pdf/code_of_conduct/english/observers_code_of_conduct.pdf). Also have a look to Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organisations ( http://www.gndem.org/declaration-of-global-principles ) and to the Declaration of Principals and Code of Conduct for International Election Observers (http://www.cartercenter.org/resources/pdfs/peace/democracy/des/declaration_code_english_revised.pdf ). 

I’m sure you can find many other useful examples and find the one that better fits to the EMB you are supporting.

Best

Alessandro

This response is posted by ACE on behalf of the Malaysian Commonwealth Studies Centre.

The Indian Election  Commission's website gives details of Election Observers. The gist of it is that positioning, training & instructions on procedures are meticulously done. The Observers are of two kinds : General regarding compliance by stakeholders, & Expenditure Observers on campaign Expenditure. We deploy only senior Government officers ( not from the concerned state or province) who can be proceeded against violations

Re: EMBs India is probably the only country which is provided for in the Constitution of India .The judiciary cannot intervene from the date of announcement of Election Schedule till the announcement of the result. Results can be challenged in the court after the declaration of result. Thirdly the Chief Election Commissioner can be removed only by impeachment like the Supreme Court Judge. The Supreme Court has by interpretation of the constitutional provision for conducting free & fair elections has recognised wide powers where there is legislative vacuum.

More details in the website & my book "The Miracle of Democracy  India's Amazing Journey" published by Harper Collins 2008.

To be conduct their work credibly and effectively, citizen (domestic) election observers must be able to freely access all aspects of the election process, gather information on that process without interference and share an accurate assessment of that process with the government and the public without fear of reprisal. The Venice Commission Code of Good Conduct in Electoral Matters (here) reflects the growing international consensus on these points, stating that “both national and international observers should be given the widest possible opportunity to participate in an election observation exercise” (Section II 3.2). In addition, several other international documents address this issue, including:

• The Inter-Parliamentary Union Declaration on Criteria for Free and Fair Elections (here), which Burma has signed, includes a commitment to “take all necessary and appropriate measures to ensure the transparency of the entire electoral process including, for example, through the presence of party agents and duly accredited observers" (Article 4.7);  

• The Declaration of Global Principles for Nonpartisan Election Observation and Monitoring by Citizen Organizations (here)—endorsed by over 225 citizen observer groups around the world and supported by 16 major international and intergovernmental organizations, including the United Nations Secretariat, the European Union and NDI—outlines conditions that should be present for election observation to be successful (Article 18), among them the observers’ right to organize, move and express opinion without undue influence or interference by a government; and

• The Bangkok Declaration on Free and Fair Elections (here), endorsed by election management bodies and nonpartisan citizen election observation groups throughout Asia, outlines that electoral management bodies should "ensure that all well-trained and non-partisan observer groups are permitted to observe all stages of election processes" (Article 18.1) and that "EMBs should set out clear rules for timely accreditation of domestic and international observers and apply them fairly and consistently" (Article 18.2).

With these points in mind, legal guidelines regulating observers should strive to protect and promote the roles and rights of observers while introducing only the necessary administrative procedures required to maintain order in the election process. The legal framework should provide clear and precise criteria for registration and accreditation of observers, and specify circumstances under which accreditation can be revoked; outline the rights of observers to observe all aspects of the election process in the pre-election, election-day and post- election periods, including the counting and tabulation processes, to obtain access to relevant documents, and to issue public statements, analysis and recommendations; and delineate the responsibilities of observers to respect the roles of impartial election authorities at all levels and to avoid interference in the administration of the elections.

With regard to the level at which observer accreditation takes place, based on NDI’s experience, centralized, organizational accreditation is the preferred method and leads to a much simpler, streamlined process. Centralizing accreditation helps ensure consistency in how criteria are applied to all aspects of the process including processing and assessing applications, issuing accreditation documents, and addressing questions or challenges to accredited observers. Accreditation at the organizational level is recommended to facilitate the ability of those accredited to organize effective observation efforts. When election commissions can accept or reject each individual observer's application, the ability of an observer group to develop and implement an observation methodology and deployment plan can be compromised.

NDI has provided assistance and input during the drafting process in a number of countries, often in collaboration with or in support of local nonpartisan civil society organizations. NDI would be happy to provide more detailed information on specific aspects of those experiences and, if you are interested, could coordinate this through our office in Burma.

Hi Thomas, Croatia has an elaborate legal framework and practice for election observation, mainly due to constant advocacy of election monitoring organization (GONG), so let me know if you'd like to hear some examples on specific dilemmas - I can give you some practical input coming from GONG. Unfortunately, there is no English version of the newest regulation. Make sure observers have legal right to submit complaints regarding EMB or EB work, which has to be inserted as a part of the official election material. Possibility for accrediting the organization only is a MUST - otherwise, you're up for all sorts of logistical issues and quarrels with the EMBs.

Best, Vanja Skoric

Dear Sir

Kindly refer to your email dated 4th April, 2014 seeking guidelines for observers.  In this connection, I am to inform that the “Handbook for Observers 2014” is available on Commission’s website www.eci.nic.in under subtitle ‘ Handbooks’.   

Regards,

Rahul Sharma 

Under Secretary (Media & International Co-operation)

Election Commission of India, New Delhi.

Tel/Fax - 011-23052070

Estimado Tomás: En América Latina es muy importante la experiencia de la Organización de Estados Americanos OEA, en organizar misiones de observación electoral. Por eso le adjunto algunos materiales que le pueden servir de ayuda para su trabajo.

Saludos cordiales

Víctor Hugo Ajila

Tribunal Contencioso Electoral

Quito - Ecuador

Adjuntos otros documentos.