Elections require a lot of equipment, materials and services. Communications and computer
systems need to be purchased and installed. Millions of voter registration cards and ballots must
be printed. For election integrity purposes, these systems have to be secure and reliable. They
also involve a lot of money and provide opportunities for economic corruption.
Transparency
International's 1999 Bribe Payers Survey found that 33% of the respondents felt that corruption
was increasing. Of these, worsening public procurement practices were cited by 51% of the
respondents as one of the primary reasons. 118 Ensuring integrity in the procurement process is an important component of election integrity.
Integrity Problems
Some of the integrity problems that can arise from an inadequate or badly designed procurement
system:
- opportunities for graft. Dishonest firms can offer kick backs or other financial incentives for
procurement officers and others involved to win lucrative election contracts. This can result in
corrupted officials making personal financial gain off of procuring equipment and services that
might not meet the basic requirements;
- purchasing substandard equipment and materials because of personal financial incentives or
because the election management body is trying to conserve election budget money. Substandard
equipment could be unreliable and fail at a critical point, such as voting machines not functioning
on voting day;
- purchasing the wrong or inappropriate equipment and technology. This could be done out of
ignorance by having the wrong specifications or no specifications and picking something
inappropriate. Or it could be done for kickback or other personal financial incentives; and
- slow or late procurement which results in equipment that does not arrive by the time it is
needed. This can create problems in keeping to the electoral timetable.
Integrity Mechanisms
Many procurement problems that affect election integrity are avoidable. The following are some
of the mechanisms that can be used during the procurement phase to reduce integrity problems:
- Good planning. A detailed procurement plan with detailed policies and procedures is critical. Before developing the annual plan, procurement officers need to know exactly what is needed and when it needs to be on hand. Knowing how the items fit
into the larger picture election operations plan can facilitate planning as is having accurate specifications and standards for each
item to be purchased. Some systems use professional assistance in writing up technical specifications to ensure that they are correct and adequately detailed.
For example, a computer expert could write up the specifications for computers, or a
telecommunications expert could write up the specifications for a switchboard or phone system. For integrity purposes, this expert should not be anyone related to a prospective bidder on the contract. Procurement officers also need to know the dates by which the equipment is needed so they can factor in delivery and
installation time. For more on planning see Supplies - Strategic Planning and Supplies - Procurement.
- Competitive procurement. Most systems use competitive procurement to ensure integrity, with bids for items
over a certain amount (usually $25,000 or over depending on the system) solicited in
writing. The list of items required are usually advertised with firms invited to bid on the
procurement. The criteria for the selection of the winning bid is included in the request
for bids. Enough time is allowed for companies to develop their offer
and submit their bid, and the closing date is included in the advertisement. Closing dates to submit bids are supposed to be respected, with late bids rejected, with all bids reviewed and ranked by a committee according to how responsive the bids are to the
advertised request.
For awards involving substantial amount of funds, the opening of bids could be made in public.
Award of the contract is usually made to the most responsive bid. This judgement is based on factors such
as price, responsiveness of bidder to the request for proposal, the experience of the bidder,
availability of bidder staff with professional qualifications and technical abilities, and the results of
the bidders' external quality control reviews. All bidders usually receive written notice on the
determination of the award.
- Separate payment from procurement. Most systems do not use the same office which negotiates and awards the
contracts, as the office that pays the bills. This enables a separation of power
between payment and purchase, and provides a check on procurement by the finance office.
- Transparent procedures. Transparency in the procurement process can help reduce the opportunities for corruption. Conducting the competitive process in a manner
that gives it the most public exposure can help not only transparency but help ensure that the materials are purchased at the best price.
- Monitor the compliance of contractors. Including the procedures that will be used to monitor contract performance in the invitation to bid, and continuing to monitor after the award of the contract can help ensure compliance with the terms of the contract. This can also be accomplish by an audit of the contract at its completion.
- Ensure a good tracking and monitoring system of the procurement process. Tracking
procurement (from order to delivery) is an integral part of the good management practices undertaken by the procurement section of the election management body.
Monitoring of the procurement plan can also be undertaken by the internal control and supervisory
mechanisms within the election management body and the oversight agency.
- Review the procurement
plan to see if all the goods and services to be procured are reasonable and
justified. A review of the award process can ensure that competitive bidding was respected. A check on the equipment or services received can show whether they meet the specifications in
the contract and if they are being used for the purposes intended in the procurement plan.
For more on developing a competitive procurement system see Election Procurement, Open and Free (IFES).
Standards
Most items that are purchased have to meet minimum standards. This is especially important for
equipment that directly impacts on the integrity of the process. The standards usually include
security measures for printed Ballots and Voter Registration cards, and minimum standards for voting machines (see Voting Mechanisms).
These standards are listed in the request for bids and can be used as well as one of the determining factors in awarding a contract.
Standards are usually developed by the election management body, in coordination with the
manufacturers of the type of equipment being used, and government or independent testing
agencies. The degree of collaboration will depend on the system in each country. Standards
usually include technical specifications that are used as guidelines to ensure that the equipment
purchased is reliable and accurate. Standards also include testing procedures to ensure that
equipment meets the standards. Standards for items such as computers and mechanized voting
machines can cover both the hardware and software.
