I.
Introduction
Election observation has emerged as “one of
the most tangible and significant dimensions of democratic development around
the globe”. Increasingly,
national election management bodies in Africa
are also beginning to embrace the role of election observers in the electoral
process as partners for ensuring free, fair and credible elections. Election
observer groups contribute to the integrity of the electoral process in several
ways. They help mitigate conflict around elections by providing independent
assessments of the process, encourage civic participation in elections, and
also ensure the transparency of the electoral process. These roles are
underscored in the Guidelines for African Union Electoral Observation and
Monitoring Missions (AU Observer Guidelines) and the Independent National
Electoral Commission Guidelines for Election Observation (INEC Observer
Guidelines).
This piece reflects on two cardinal roles of
election observers. First, is the role to observe elections, collate facts,
analyze them and disseminate information to a broad spectrum of end-users. How
they perform this function impacts significantly on the perception and ultimate
credibility accorded to the electoral process. Objectivity, independence and
impartiality remain guiding principles here. The second function relates to
their role to share reports on their activities and findings, and how this facilitates
improvements in the functions of the election management body by highlighting
challenges and pointing the way forward in strengthening the election process.
II.
Defining Terms
Some ambiguity has often
shrouded the meaning of certain electoral terms and the responsibilities
inherent in those roles. Of particular interest here are the terms election
observers and monitors. Observer groups tend to use them interchangeably,
without giving attention to the specific connotation of each term. The AU
Observer Guidelines posits that election observation “involves gathering information and
making an informed judgement”, whereas monitoring “involves the authority to
observe an election process and to intervene in that process if relevant laws
or standard procedures are being violated or ignored.”
The INEC Observer Guidelines provide a more
elaborate definition of these terms. It posits that election observation is:
the process whereby elections in a particular
country or locality are observed against set standards by an independent and
impartial body of observers with the aim of identifying whether the elections
conform to accepted guarantees of democratic participation, identifying flaws
and challenges, and also making recommendations on how the process can be improved
in the future.
The INEC Observer Guidelines further describes
an election monitor as “an integral part of election management structure and
has a role in the administration of the election.” In Nigeria, this
role is exclusively reserved for INEC and its duly authorized personnel. The INEC
Observer Guidelines recognizes both local and international observers and describes
an observer as a “person sponsored by an organisation and accredited by INEC to
observe elections within guidelines established by INEC.”
III.
Information Dissemination
Election observation allows
groups to gather first hand information of the process, events and developments
throughout the electoral process. The AU Observer Guidelines provides that “election
assessment involves on-spot,
preliminary evaluation of the conditions within which elections will take
place.” Observer groups play key roles in information dissemination during
elections. These roles differ slightly depending on the phase of the electoral
process. We shall examine them in three phases – before, during and post
elections. The peculiarities of each phase inform the methodology employed.
Before Election: This is
when election observer groups conduct research, studies, analysis and
assessments to provide background materials and information on the dynamics of
the election. Every election has peculiarities that define it. Observer groups have
a responsibility to also educate and enlighten the populace. They can help
people sieve through the many layers of issues around the elections and
identify what really matters. They can also keep the people informed about
developments, changes in the legal/political framework and foster civic
engagement through television discussions, radio messages, newspaper adverts
and other social media platforms such as blogs, Facebook, Twitter, YouTube etc.
They also produce materials such as policy briefs, security threat assessments
and other advocacy materials targeted at more specific institutions and groups
such as INEC, Police, Political parties and international partners. An example here
is the Pre-Election Security Threat Assessment produced by CLEEN Foundation.
During Elections: This is
when observer groups perform their most critical function - to observe the
elections and report on events as they happen. In previous years, this later
element of immediate reporting was missing. However, with the availability of
mobile smart phones, sms packages and various social media platforms, it is
possible and indeed imperative to provide real time articulation of issues,
report of incidents and management of developments in the field. Since the
April 2011 elections, this form of reporting has been used in interfacing with
the Civil Society Election Situation room, INEC Situation room and the Police and
has contributed in providing real time response to issues as it happens.
However, the possibility of abusing this should
not be overlooked. In some elections, varied degrees of falsehood and
speculative messages were disseminated, especially through social media. Some people
have suggested that we gag social media so it does not undermine the electoral
process. We do not support censorship of the various social media platforms, rather
we encourage INEC and the Police to engage social media by maintaining a
presence on social media during elections and ensuring that it serves as the
platform for verifying and disseminating information. It can achieve this
through active collaboration with observer groups in the field during elections
and with Information Technology savvy groups such as Enough is Enough, Nigeria (EiE).
In reporting incidents during elections,
observer groups should ensure that they avoid inflammatory, biased and speculative
reports or statements. Every incident report must be verified before it is
published. Specific details as to the incident, location and actors are very
important. Observers should not just say, for instance, that a local government
is burning. If there are real issues anywhere, they should get the correct
polling unit number, ward and local government area. This helps the relevant agency
to identify and locate the place as quickly as possible and address the
challenge.
They also have a responsibility not to
prejudge the outcome of the election or make partisan and sweeping statements
that undermine the integrity of the process. This is significant because
observer groups play crucial roles in managing tensions during elections and
should not take positions that might inform or inflame conflict.
Post Election: This is
the feedback stage on the progress and challenges of the process. Civil society
groups often prepare reports on the findings of their observers. They also
address press conferences. However, it is also significant to organize forums
where INEC, the Police and observer groups can review the electoral process.
This helps to identify mistakes made and lessons learnt. It also serves to highlight
what worked, what didn’t, what should be corrected and what should be
strengthened. Strategies going forward can also be developed at this stage.
IV.
Reporting
Strictly speaking, observer groups have a
responsibility to report to their various networks and organisations (and
donors) but not necessarily to INEC. However, it is expedient to share
observation reports with INEC, at least as a feedback on the election, in
acknowledgement of INEC accrediting them for the exercise and especially to
provide suggestions on what can be done better to improve the administration of
elections in Nigeria.
In providing this report, five key points are noteworthy here.
First, the background and context within which
the election was held is significant and should be reflected in the report. Second,
observer groups should explain their methodology; what they did, with whom,
why, how. Action pictures can be useful here. It is also important to include a
sentence or two about their organisation.
Third, reports should always have a clear
objective, either to inform, correct or criticize. In preparing the report,
observer groups should also always bear in mind their target audience/institution
and the language of the report should reflect this. Fourth, content is
important. The use of clear, unambiguous words is encouraged. Generalizations
are should be avoided. The report should stick to the facts and not venture
into hearsay. Verify everything. Any analysis provided should be objective. It
is also good to mention the challenges faced while observing the election. This
tempers the report so it does not read like the thesis of an omniscient body - the
all seeing eye of elections.
Fifth, an election observation report is only
half done without recommendations. As noted earlier, the INEC Observer
Guidelines’ definition of election observation includes “making recommendations
on how the process can be improved in the future”. The recommendations should be
specific and forward looking. They should address specific institutions and
propose solutions to identified issues.
By performing these roles, election observers
provide significant support towards improving the administration of elections
in Nigeria.
They also help to build confidence in our democratic experiment by ensuring that
the people vote, their votes are counted, and their votes count!
Program Manager, CLEEN
Foundation, Abuja.
chinedu.nwagu@cleen.org. This article is based on a presentation made at a meeting of the Nigeria Civil Society Election Situation Room
on Domestic Election Observation
in Nigeria: Taking Stock and
Planning for Future Elections on 30 January 2013, in Abuja, Nigeria.
Declaration
Of Global Principles For Non-Partisan Election Observation And Monitoring By
Citizen Organizations And Code Of Conduct For Non-Partisan Citizen Election
Observers And Monitors Commemorated April 3, 2012, At The United Nations, New
York, Initiated By The Global Network
Of Domestic Election Monitors (GNDEM), 1
The Afrobarometer is a
comparative series of public attitude surveys, covering up to 35 African 
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