Introduction
In addition to the aspects of procurement detailed in this section, planning should include budget
estimates and payment schedules, a critical path of all activities, staffing and training plans,
delivery schedules, identification of key milestones and risks, and contingency plans. Planning
should establish realistic time lines for all activities. The time required for particular activities
will obviously vary tremendously in different countries, according to factors such as the source
of supplies and mode of shipment.
Sources of Supply
Priority should be given to identifying local sources of supply and encouraging local production
of election materials. Depending upon the capacity of the electoral manager's staff and the
sophistication of suppliers within a particular country, regional production of some elections
materials may be possible. In Canada, for example, printing of ballots to specifications is carried
out at a regional level - see Ballot Paper Printing Instructions - Canada.
Where procurement on the international market is necessary, reputable suppliers with experience
in election material supply should be sought wherever possible. In assessing the need to procure
internationally, security of sensitive materials may be a consideration. For example, it may
enhance security to procure special paper and/or print ballots outside of the country.
In general, cost effective material supply is achieved by:
- lining up suitable sources of supplies and equipment well in advance of expected elections;
- using local, in-country sources for as much electoral material as possible;
- avoiding international funding which obliges an election commission to procure in specific
countries or from specific suppliers.
Definition of Needs
For planning purposes, it is generally useful to group materials in the following three main
categories:
Specifications
Vague or incomplete specifications lead to costly delays and may result in failure of material
performance at the polling station level.
Local conditions, including climate, the season in which an election is to take place, the
experience and qualifications of polling station staff, literacy levels of voters, and the
acceptability of materials to the voting public, will affect the choice of materials and the
requirement to test them in advance. It is important to specify clearly features such as
waterproofing, durability, and exposure to heat.
If specifications are too general, international suppliers may misinterpret, or substitute unsuitable
items that do not perform in local conditions. It is wise to obtain actual samples of all materials
prior to confirming orders; however, this generally takes 3-4 weeks.
It may also be necessary to test the physical properties of some materials, to ensure their
performance in specific conditions. The need for advance testing can be reduced by selecting
proven products with a track record of use in similar environments. Establishing contact with
other election commissions and managers and exchanging information on materials are
recommended.
Packaging by suppliers should also be specified, particularly for sensitive materials. For
example, if each polling station will require 1000 ballots, these should be supplied in books of
50-100, wrapped and boxed in sets of 500-1000, with the numbering sequence clearly labelled on
both the individual books and the box sets. Attention to this level of detail will simplify the
assembly of supply kits, increase the efficiency of material supply and facilitate material tracking
- see Supplies - Distribution.
Packaging of fragile materials and the requirement for training and technical support for complex
equipment should also be specified clearly.
For sample specifications intended to illustrate the appropriate level of detail for effective
procurement, see Ballot Pencils and Ink Specs - Canada.
Security Features
Selection of appropriate security features for election materials is a crucial aspect of
procurement.
Although safe storage and transparent procedures are also important, ultimately the most critical
requirement is that any tampering of sensitive materials should be immediately apparent. For this
reason, the use of padlocks on ballot boxes is not recommended, regardless of the quality of the
locks or the procedures used to control the keys.
The most effective security features for election materials are:
- tamper-proof seals;
- special printing of ballots;
- sequentially numbering for sensitive documents and seals;
- tamper-proof, security envelopes for storage and transport of sensitive materials such as
registration lists, ballots, and tabulated results.
Security paper with special features, such as watermarks, is also an option, but many countries
avoid the high costs of these papers by use of other security features and processes. For example,
some countries mark all ballot papers with a perforating machine at the point of issue.
For voter registration, some key security features and materials are:
- security paper and special printing of registration cards, including for example, a water
mark;
- photographic identification and finger printing;
- tamper-proof lamination of cards.
Specifications and Validation of Complex Systems
Complex, automated systems for voting and tabulation of votes should be selected with great
care. In the event that computerised systems or electronic equipment are selected, it is very
important to ensure that manual, back-up processes are available in case of equipment failure or
power cuts.
The complexity of equipment chosen will also depend on the ability of, and time available for,
poll officials to learn to operate the equipment. The use of systems that are too complex may
lower confidence in the voting process. All those involved in the election process, including
political parties and candidates, must have a clear understanding of how the equipment works, in
order to feel confident in the results produced. Training and informing all participants in the
election process of what equipment is used, how it works and the security checks is important.
Estimating Quantities
Overall quantities are estimated on the basis of the number of potential voters. A contingency
should be applied to reflect an appropriate degree of confidence in census data or registration
lists and other demographic data. Allowance needs to be made in the case of ballots or other key
forms for spoilage.
General supplies are those non-sensitive materials required both at the central level and at voter
registration or polling stations. These may include notebooks, pens and pencils, pencil
sharpeners, paper clips, staplers, scissors, laminates, banners, voting screens and tape. The
quantity of general supplies required will be based on an estimate of needs at the central level,
and the size and number of registration or polling stations. A contingency (up to 5%) should be
added to allow for shipping damages or human error in the assembly of supply kits.
Sensitive materials include ballots, ballot boxes, security inks, registration cards, security seals,
tamper-proof envelopes, and the forms used to track material distribution and recovery. The
addition of these materials to supply kits must be tightly controlled and will normally be
facilitated by pre-packaging and sequential numbering of these materials. Losses at assembly
should not be tolerated.
Tendering and Contracting
Whether an election commission or manager is procuring all materials directly, or using the
services of procurement agents, the objectives of tendering will be to obtain the best prices and
delivery terms possible for all materials; to commit suppliers to very clear terms of manufacture
and delivery; and to minimise risks.
Tender calls should solicit price and delivery for an estimated total quantity but also make
provision for the supply of training materials, additional quantities of materials that may be
required, and participation of key suppliers in training or testing of materials and equipment.
Risks associated with supplier performance and delivery can be minimised by obtaining
references and requiring suppliers to purchase bonds. A bid bond guarantees that the bidder will
accept a purchase contract if it is offered, or pay the extra costs incurred by the buyer in selecting
another supplier. A performance bond guarantees that materials will be supplied according to
specification and delivered on time.
Although financial compensation is of limited value to an election commission if delivery of
materials is late, the main purpose of obtaining references and requiring bid and performance
bonds is to eliminate suppliers who are not serious or do not have experience in supplying
elections.
Contract payment terms linked to proof of manufacture and shipping, with a holdback against
final delivery, will also encourage contract compliance.
Import Procedures
Make sure advice is obtained about import procedures.
- Keep the appropriate government department informed about incoming goods and obtain
appropriate clearances and exemptions.
- Use the services of a good customs broker.
- Make sure one staff member (at least) knows the procedures to be followed with customs
forms and import certification.
- Make sure there is a contact who can be approached for help in the case of a problem with
import of materials.
For further information see 'vee01e01' and Delivering Voting Site Resources.
