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Table of contents
The observers may be joined by additional election experts with specific expertise such as legal framework for elections, voter registration, boundary delimitation, gender, media, or other areas described below in section 3. Most EOMs have one or a small number of individuals to serve as the delegation leader chief of mission, chief observer or other designation and principal spokesperson for the mission.
The leader s may conduct multiple visits to the country before during and after the election but are seldom present on a full-time basis.
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They meet with national political and civic leaders, and present public findings of the EOM. The public assessment of EOMs generally pertains to the electoral process only and not to the outcome of the voting. As observers and not supervisors of the electoral process, their judgments are not legally binding on election authorities.
Take, for example, the right to vote from the Universal Declaration of Human Rights: "The will of the people shall be the basis of the authority of government; this will shall be expressed in periodic and genuine elections which shall be by universal and equal suffrage and shall be held by secret vote or by equivalent free voting procedures.
In this way, the right to vote thus achieves the status of a universal principle as it is supported many times over by multiple sources of international and national law. The list of legal obligations enshrined in international public law is extensive, including not only the fundamental freedoms e.
While international benchmarks are helpful, those of multilateral and regional organizations may be more persuasive to member states and hold greater detail about the national means to achieve those principles. Regional commitments may in turn help to sustain sub-regional or other institutional expressions of democratic rights and obligations. The Charter affirms that democracy is and should be the common form of government for all countries of the Americas, and it represents a collective commitment to maintaining and strengthening the democratic system in the region.
Many regions of the world have adopted democratic obligations for themselves, bolstering the overall regime of international public law e. Moving from the general to the specific is an obvious challenge for this approach. In other words, the rights need to be applied to the procedural steps in the electoral process in order to arrive at a measure of how well the state obligations have been met.
Specific indicators need to be developed so that an observer can link the general principle e. As noted above, the use of a procedural definition of elections provides a methodical and chronological template against which one can measure electoral quality. It is listed separately here as not all EOMs who adopt this approach will necessarily ground their assessment in a rights-based approach.
The breakdown of an election into its constituent parts has proved useful not only for election administrators who must match human, financial and logistical resources to each part of an election but also to election observers who can develop checklists to evaluate the conduct of each element. Although some categorizations may vary, a list of key areas to be taken into consideration in this evaluation could include:.
Cross-cutting themes such as gender can also be applied throughout a procedural assessment, say for example, applying a gender analysis to the EMB itself and how it conducts its operations. Besides a recount there are other means to verify the integrity of the counting and tabulation process. Most PVTs rely on capturing the results from a statistically significant, randomly selected sample of polling places.
Indeed, an EMB could also use its own vote count verification tools to check on the integrity of their polling station procedures and officials. A technical assessment sometimes called limited EOM, study mission, expert panel, etc. These teams may apply one or more of the methodologies used by EOMs e. Many of the themes of a technical assessment may also be a component of a broader EOM or a technical assistance provider to the election working in that particular area for example, developing civic education materials and facilitating public workshops.
It is likely that a technical team will provide in-depth and detailed assessment with a limited scope of inquiry. For example, the EU Electoral Assessment Team to Libya in used the following criteria during its assessment of the electoral process:. The technical assessment team may receive accreditation as election observers but it is important for all types of these missions to explain their limited mandate and refrain from commenting on the overall electoral process.
Should a technical or expert team be deployed to a country where the organization is conducting other activities e. UN Women deploys a gender assessment mission to a country where UNDP is also conducting other election assistance it is important for such missions to explain the intent and scope of their mission to avoid the perception of a conflict of interest. Unlike election observation missions, some technical teams may choose not to make their findings public, rendering close examination of their methodology more difficult.
Examples of technical or thematic focus in measuring electoral quality links to methodologies for the assessment include:. See also Chad Vickery, ed. A Vote Count Verification Committee sets the acceptable variance rate between the machine and hand counts as well as early ballots advance voting by mail.
This section will provide a summary analysis of the approaches to measuring election quality described in the previous section and assess them based on a set of common questions. As with the review of approaches to measuring election quality this will not be an exhaustive assessment but will highlight several key elements to consider for all approaches.
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Figure 3 classifies the approaches according to their strength as measures of electoral quality and their scope of inquiry. Table 1 provides a summary comparison of the approaches to measuring electoral quality described above against the following key points:. Opinion polls of all types have value in that they report on a range of perceptions on important issues related to democracy and electoral quality.
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At the global level they may offer useful comparative insights and at the national level signal key areas of achievement or concern. Their specific value with regard to measuring electoral quality is relatively limited but they can serve as one of several tools that can capture important data about public perceptions. They may capture general public attitudes about democracy and the electoral process but also more specific feedback, for example, to a political party about how well their messages are being received by the public or indicate to an EMB that voter information is being disseminated and understood.
Global democracy indices provide a macro and comparative perspective on the broad questions of democracy and governance. They also offer the confidence associated with numerical scores and ranking even if those scoring systems rely on a great deal of qualitative and subjective analysis. While a score based on a numeric figure may provide the impression of a solid value, it should also be interrogated. An obvious challenge for any such framework is deciding on which factors to consider and how to weight them against the other factors included or excluded from the framework.
The number of indicators included in a democracy survey e. A second challenge is the level of detail captured by the index. A generalized democracy survey may include measures of fundamental human rights and political freedoms, but relatively few specific measures of electoral quality. National level democracy assessments hold more potential to provide in-depth measures of the strength of government institutions, the rule of law and operation of the judiciary, respect for individual political rights, the operation of civil society organizations and political parties and the like.
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However, it is possible but unlikely for a national democracy assessments whether conducted by intergovernmental organizations, national governments, or non-governmental organizations and scholars to offer detailed assessment of electoral quality or electoral actors. This may be a thematic area in which further work could occur. It is notable that democracy and elections are key elements of so many intergovernmental and regional organizations. In terms of electoral quality, the value of either their EOMs or other forms of periodic review and assessment they may conduct rests with the degree to which they follow a clear methodology and commit themselves to holding one another accountable through follow up on reform and implementation.
Post-election reviews by EMBs, election assistance providers, and national stakeholders hold a great deal more potential than is currently the case and if fully implemented by for example, not only the EMB but also the judiciary and other government structures they could serve as effective platforms for electoral reform. In the case of donors and election assistance providers, they can provide incentives for policy changes and improvements.
Certification is a tool used infrequently and only in special circumstances such as transitional elections in which an outside actor e.
The methodology for certification is thus highly contextualized and perhaps unsuited to broader generalization. It draws however on other existing methodologies used by other actors. Election observation is subject to many variables that may affect its ability to render a clear and compelling judgment about electoral quality.
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EOMs require financial backing to mount a long-term, multi-faceted, comprehensive election observation mission with a sufficient number of observers to provide good country coverage. There is a long and familiar list of criticisms of EOMs — too long to be detailed here — but it includes questions about the duration of missions, which parts of the electoral process they observe, what training is received by observers, how many observers are present and where they are deployed, what specific methodologies are used for data collection and analysis.
The absence of a common set of practices or consistently used measures and use of a common set of openly defined indicators for quality also complicate the picture. Even where multiple EOMs share a consensus judgment, the comparability of their reports may be weak. Many observer groups have responded with an effort to better systematize and to explain how they assess elections re: Declaration of Principles for International Election Observers and Code of Conduct for International Election Observers and Declaration of Global Principles for Non-partisan Election Observation and Monitoring by Citizen Organizations.
Establishing a more formal community of practice enhances the credibility and transparency of election observation methodology and allows for more informed examination of its practices and means to improve them. It provides a set of benchmarks that can be pointed to objectively but they can only be applied when clear lines are drawn that link obligations to national law, practice and implementation through careful data collection.
Most EOMs do not score or weight the different constituent parts of an election nor do they explicitly state that one element — voter registration, for example — is more important than another e. While EOMs will assign an informal relative value to the different elements of an election, their methodology has generally avoided assigning weighted or priority values to these elements nor have they provided overall scores.
While a checklist may help an observer to follow the voting procedures and allow the EOM to ensure all observers are reporting on the same elements, arriving at an overall evaluation of the conduct in an individual polling station as well as the election overall continues to rely on a balance of observation and judgment. The use of electronic checklists holds promise to enable EOMs to capture more data more quickly and to subject it to a range of analyses e.
Thematic assessment conducted within or outside an EOM can provide excellent focus and detail on key indicators of electoral quality and can prove to be a valuable tool for many electoral practitioners.