2000 Report of the PIANZEA Network Workshop

8 – 10 February 2000
Brisbane, Australia

Opening Remarks

Mr Bob Longland, the Australian Electoral Officer for Queensland opened the Pacific Islands, Australia and New Zealand Electoral Administrators' (PIANZEA) Network Workshop and welcomed delegates.

The Chairman of the Fiji Electoral Commission, Mr Hector Hatch, in his opening remarks, noted that the overall objectives of this workshop were (1) to foster communication and encourage co-operation between electoral bodies within the Pacific region; and (2) to identify and address good governance issues within the region.

He added that these two objectives flow on from the objective of the inaugural conference in 1997 which was to establish a network that would encourage the exchange of information, expansion of knowledge, mutual support and address challenges on electoral issues in the Pacific countries. The PIANZEA Network was formed in 1997 to facilitate this aim. Being involved in such a network provides immeasurable benefits and assistance to electoral administrators. During the 1999 National Elections, the Fiji Electoral Commission benefited from the assistance provided by other network members. It is important that networking occurs in between major electoral events in each of the member countries, and not just at workshops and meetings.

Each country participating in the workshop has their own thoughts of the priorities and challenges facing the Pacific in the coming years, whether it be ensuring an electoral administration that serves the people in the conduct of free and fair elections, implementing electoral reform, or countries continuing to network and assist one another. Mr Hatch thanked Mr Longland, the Australian Electoral Commission (AEC), the Australian Government, and the Australian people for the encouragement, assistance and good will shown to the Pacific.

Mr Longland commented that one of the opportunities of this workshop is for all PIANZEA members to reinvigorate themselves to meet the challenge of continuing to build a close association and maintain the 'Pacific Spirit' that helped created the Network. Without the active participation of members both at this workshop and beyond, it cannot survive. Mr Longland thanked the International Institute for Democracy and Electoral Assistance (International IDEA) and in particular, the Australian Agency for International Development (AusAID) for its continued support of the network and in particular this workshop.

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KEY ISSUES FACING ELECTORAL ADMINISTRATORS IN THE PACIFIC

The first session focused on the key issues facing electoral administrators in the Pacific. This session attracted considerable discussion and resulted in the following four major issues being identified as significant to participants:

1. Funding of political parties and campaign funding: The common objective sought is transparency, accountability and full disclosure so that the voters can make their own assessment about whether the parties are being fair in the conduct of elections. The means by which this objective is achieved will, however, differ from one jurisdiction to the other.
2. The impact of new technology, particularly the Internet, on elections: Participants were interested in the impact of the Internet on campaign funding (e.g. how it is policed and monitored), and on the dissemination of information, particularly by candidates, which may be misleading or defamatory (e.g. how do electoral administrators monitor information on the Internet and how do they respond when they find inappropriate or inaccurate material). It was noted that the use of the Internet to conduct campaign activity has the potential to significantly influence the outcome of elections. It also has the capacity to reach large numbers of people at very minimal cost. However, at present, the laws and regulations in PIANZEA member countries on the use of the Internet by political parties and candidates are minimal, or do not exist at all.
3. Training of electoral officials: How might the professional development of staff best be achieved? There was a suggestion for 'custom made' training to be developed for the Pacific countries. This issue was further discussed in a later session.
4. The independence and tenure of senior electoral administrators: This includes the side issue of the fact that funding is normally controlled by governments, which impacts on the independence of electoral administrators when undertaking their responsibilities.

Free and Fair Elections

A free and fair election is a goal that all democratic nations strive for. However, the concept of free and fair elections is difficult to define and hence, evaluate. There are common features which characterise fairness and freedom including freedom of speech, assembly and movement; universal suffrage; transparency; impartiality; laws and regulations governing the electoral process; equal access and opportunity; and secrecy of the ballot.

It was argued that the following four conditions need to be fulfilled for a free and fair election: (1) clear rules laid down by the law; (2) a neutral administration which provides information and equitable means; (3) monitoring of the electoral process and electoral disputes dealt with by the judiciary; and (4) transparent financing of elections.

The development of acceptable guidelines or checklists for evaluating elections would facilitate better comprehension of these important concepts. However, each country should be assessed with regard to its own specific situation. There are a number of important factors that should be taken into account when making the assessment including security, equal suffrage, illiteracy, staff professionalism, voter participation, and finance.

The integrity of the administration of the election is a vital factor for the legitimacy of the election and thus the role of electoral administrators is of utmost importance. It was commented that elections will only be free and fair if the Electoral Office obeys the laws and that eligible voters are registered and vote once only.

The question was asked: 'in whose opinion is the election free and fair?' It was suggested that the real test is whether the public sees and believes that the election was free and fair, and trusts the processes in place. Evaluating an election can be as simple as asking the opinion of the 'person in the street' or your local taxi driver!

The discussion raised a number of important issues including the following:

1. The cost involved in conducting an election: It was agreed that financial resources do have an impact on free and fair elections. There are no agreed international standards on what is involved in the cost of elections. It was suggested that either a reputable international organisation or the PIANZEA network itself develop a set of criteria or benchmarks that can be used to estimate the cost of running a free and fair election.
2. The use of resources by the incumbent government: It was agreed that during the election campaign, the party in office has an advantage in relation to the use of government resources. Most countries have laws and regulations controlling the use of government resources, however, some abuse still occurs. In some cases to have a 'level playing field' so that parties can compete on an equal basis, may mean reducing the resources available to the incumbent government.

ENHANCING THE PROFESSIONALISM OF ELECTORAL ADMINISTRATORS

This session sought to examine the importance of professionalism in the running of an electoral process. As elections determine who wins political power and who governs the country, in essence, they serve the purpose of a conflict management mechanism.

The quality of professionalism can be defined by five essential characteristics: (1) a calling (commitment to democratic ideals); (2) expertise (specialised knowledge and skills); (3) authority (control and/or influence in field); (4) ideology (code of ethics, rallying practices); and (5) organisation (consciousness and contact).

A clear trend in international electoral practice is the increased professionalism and specialisation in administration. To increase professionalism requires a focus on three areas: people, methodology, and technology. The current trend in international business practice, and this should apply equally to electoral practice, is to focus increasingly on developing the full potential of the human capital. The Administration and Cost of Elections (ACE) project focuses substantially on the other two areas, namely methodology and technology.

The Graduate Certificate and Diploma in Electoral Governance being offered by Griffith University is about building professional capacity for sustainable democracy. The aim is to extend the knowledge, skills and effectiveness of people engaged in electoral governance.

The AEC has also embarked on an initiative aimed at providing a short course of study to enhance and expand the skills and understanding of participants in relation to electoral administration and management. The course will involve participants from countries in the Pacific, South-East Asia and Southern Africa regions.

The participants were divided into discussion groups to consider five issues relating to professionalism. Below is a consolidated summary of their discussions:

1. What makes electoral administration a profession?: The unique nature of the electoral process as well as the public perception makes electoral administration a profession. Other defining attributes include permanence, accountability, accuracy, personal integrity, dedication to democratic principles, and competencies and skills.
2. Major obstacles to professionalism in your own organisation: A number of obstacles were mentioned including permanency of electoral management bodies (part-time nature in some countries); the perception of whether it is a career or a one-off event; staff recruitment policies (job descriptions are inadequate); funding imperatives and insufficient budget allocation (governments must understand the amount of resources required for professionalism); no generic training course currently available; entrenched culture; no succession planning; high turnover of staff (loss of institutional memory and capacity); lack of political understanding of the role/importance of administrators; lack of independence; lack of commitment to training at management level; and you only get one shot at it to get it right.
3. The issue of staff and people: There are three "C's" in the electoral administration workforce – core staff, casual staff, consultants. Some of the attributes that core staff should have include good project management and planning skills; communication skills; some knowledge of electoral law; and an ability to work under pressure, make decisions, be flexible and visionary.
4. The issue of methodology and technology: Planning is the key – know what you want, when you want it, and how much it will cost. Advancements in technology have provided numerous benefits and advantages in relation to certain electoral activities, e.g., registration and maintaining the electoral roll.
5. How can this network help to improve professionalism?: A number of suggestions were proposed including the sharing of best practices and procedures; improving communication within the network; holding smaller workshops and meetings in various nations; and members conducting assessments to identify areas of improvement within a particular country.

Electoral Reform: Implementing New Electoral Systems

This session focused on the recent electoral reform that has taken place, or is about to, in some of the member countries. It was pointed out that when considering reform, it is important to maintain the integrity of the electoral machinery and system and ensure that the end result is a free and fair election.

A number of electoral reforms have take place in Vanuatu since 1997, most of them relating to the number of seats and constituencies in Parliament. In New Zealand, the Electoral Commission has now conducted two national elections under the new mixed member proportional electoral system. Papua New Guinea is currently undergoing major electoral reform with the assistance of AusAID and the AEC following reports submitted to Parliament by various agencies. In Australia, there are going to be changes to the enrolment procedures where someone enrolling for the first time will have to produce an original form of identification and find a witness from a particular group.

It was agreed that electoral reform can be a complex process and thus the stakeholders should be consulted widely about the potential change. The importance of planning was emphasised, e.g. the use of a project management plan, as well as staff training, and using appropriate technology. It was also mentioned that Network members could share information about the various reforms that have taken place, which will assist others as they undertake electoral reform.

Information and Education

Electoral information can be divided into information provided during an electoral event and that provided in between electoral events (usually civic education). It was agreed that it is the responsibility of the electoral administration to provide voter and electoral information, however this tends to predominantly occur during the election period.

There were differing opinions in relation to providing civic education as part of the school curriculum. One view was that children have enough to learn at school, and should not have to study additional subjects. It was argued though, that schools could be used to teach children about democracy and their civic duties and rights, and it is hoped that what they learn at a young age will transpire into electoral participation once they are adults. An additional benefit is that the children can take the information home, and it is hoped that the adults in their family will be better informed about the electoral process.

A number of techniques to disseminate electoral information are used by electoral administrators. Most countries rely heavily on electronic and print media (TV, radio, and newspapers) which are very expensive. Direct face-to-face strategies such as meetings and briefings have been used to encourage registration as well as to provide information. It was pointed out that it is more difficult to mobilise the vote in mature and established democracies than in emerging democracies, e.g. the long queues of people wanting to vote in the 1994 South African elections is a good example.

Where resources are limited, there is a need to rely on innovative practices such as using candidates and the Internet to disseminate information. However, it is important that electoral administrators educate the candidates and political parties so that they understand and have the correct information, e.g. the provision of a candidate's manual will help to ensure this. The Internet is being used more frequently, especially in relation to establishing election web-sites to provide voter information as well as for the transmission of results.

KEY ISSUES FACING ELECTORAL ADMINISTRATORS IN THE PACIFIC IN THE NEXT TWO YEARS

The aim of this session was to discuss in more detail the six key issues that the participants had identified during the workshop as issues to be dealt with in the next two years. The participants were divided into three groups, with each group discussing two key issues. Below is a summary of the discussion of the key issues:

1. Active planning for electoral events: We want to avoid being reactive and facing change in an ad hoc way. How can election planning be improved? What can the network and/or Pacific countries in general do to improve planning e.g. checklists, time-lines, strategies to obtain and manage finances.

   • A planning cycle should be used for elections, as past experience is important in planning.
   • Debrief meetings held after electoral events will assist to improve future performance.
   • Countries with more formal project plans should share these with smaller nations in the Pacific (participants expressed their willingness to share documents with each other).
   • In the next workshop, a session on project planning would be useful, as it is an aspect that all administrators deal with.

2. Training of electoral staff: (n.b. not polling officials). What plans can be developed to improve the training of electoral staff in the Pacific region e.g. specific PIANZEA region training? Professional courses? What can the network do to help?

   • Various training initiatives such as the Electoral Governance course at Griffith University and the AEC's Electoral Administration course will enhance the professionalism and skills of electoral staff.
   • Importance of management skills in the conduct of elections.
   • There are numerous guidelines developed for the technical aspects of running elections.

3. Improving the PIANZEA network's profile in the region: In what ways could this be achieved? What could the network do and/or what could individual countries generally do to improve how the network is perceived and to give it stronger credentials within the network countries and externally? e.g. each country to prepare reports for their government to explain the network's role?

   • Bring to the attention of government, media, NGOs what PIANZEA is, what it's made up of and its achievements. This can be done through a generic media kit that includes standard information on the network.
   • Consideration can be given to channel information to the ministers who attend the Pacific forum meetings.
   • Newsletter – expand and target the distribution list (ministers, politicians, media, NGOs). All nations should provide relevant contact details to the PIANZEA Secretariat. Information and input is needed from all members.
   • Parliamentary briefings or 'road shows' – 2 or 3 PIANZEA members visiting various Pacific countries to explain the network in more detail.
   • Website currently hosted on the AEC website – email links with other countries' websites.
   • Hold seminars on particular topics. This could be done at a sub-regional level (Micronesia, Polynesia, French-speaking countries, etc.).
   • PIANZEA is one of the few networks that doesn't have a logo. Suggestion was to have Alistair Legge design a logo (ideas from other members are most welcome) and then obtain the consensus of all members.

4. Cost of elections – benchmarks: Can the network develop benchmarks for the funding of election operations? What would this mean in practice? What should be included when costing elections? How could they be developed?

   • Need to develop a common set of variables or benchmarks that can be used to cost an election. This could be done by PIANZEA members as a group and then offer it to the rest of the world. Proposal from the AEC to use the three Graduate Administrative Assistants within its organisation to work on this project (requires approval from the AEC Executive). The other option is to have each country develop their own costing methodology based on the cost components used in their country and then share the information with others.
   • 'Surplus dumping' – e.g. if change computer equipment, make it available to other members (n.b. possible freight/cost issues to consider). The available equipment could be listed on the website.
   • Develop a database/list of suppliers of electoral equipment – who they are, what they manufacture, how much it costs, what the quality of the product and service is like. Suggestion from AEC regarding bulk supply of various materials, if smaller nations would like to become part of the larger order from Australia and New Zealand as the unit cost decreases when large supplies are ordered.
   • Develop a project/business plan listing all the suggested projects from the PIANZEA workshop. This can be taken back to each individual country as a reflection on what was discussed and what the network has agreed to do.

5. Impact of technology: particularly the Internet. Includes the role of the media in disseminating information. How can the network or Pacific countries generally manage the growing impact of technology on electoral activities?

   • All network members aspire to have their own websites which are linked to one another. The websites would include information and education material, forms and results. It would allow a consistent message to be provided as 'we' know the business best. The risks to consider are to ensure that they are secure and people have equal access. For it to succeed, funds will be required for the relevant information technology equipment and software, however, some costs could be offset by the closure/reduction of large tally rooms.
   • One possible problem is controlling the content of external sites. This could be resolved by working more closely with the legislators, as current legislation does not cover usage of the Internet. The public concern regarding freedom of speech is a challenge that needs to be resolved as people are sceptical of information being disseminated through the Internet. However, the strength is that electoral administrators have a long history of controlled printed and broadcast media.
   • What can PIANZEA do? Share details of existing websites and current technologies. The strength of the network can only be enhanced by using the newsletter to provide details of various web-site addresses. It will require funds to improve access to remote nations.
   • Electoral administrations that don't have access to the Internet are those of Kiribati, Solomon Islands, Tonga, Vanuatu, Niue and Wallis & Futuna.
6. Funding of campaigns: transparency, accountability, and disclosure.
   • The strategy is to have free and fair elections, and thus electoral administrators should work towards the ideals of full disclosure, transparency and accountability.
   • The action plan is to have PIANZEA develop a plan through collaborative and collective opinion on ways/rules to achieve the goals of disclosure, etc. The likely risks are political intervention, public indifference, and resistance to change. The strength is that there is a collective expertise amongst the PIANZEA members as well as international bodies and organisations, however it needs the full support of all network members to succeed.

Communication and Networking

The Warwick Declaration made in Fiji in 1997 declared a "…joint commitment to continue and maintain in the Pacific spirit, a close association of Pacific Electoral Administrators with a view to establishing a networking arrangement to facilitate and encourage the free flow of electoral information among member countries and to provide assistance where possible". It was noted that the transition period that started in Fiji in 1997 is over and it is now important to look forward to ensure that the PIANZEA network continues to achieve its goals.

Since the formation of the Network in 1997, there have been a number of significant achievements. The most important being that PIANZEA has established itself as a functioning network. There has also been active communication between members and useful bodies, e.g. non-governmental, inter-governmental and international organisations; the establishment of a PIANZEA homepage; a repository of electoral legislation and other relevant material used in the Pacific; and the provision of assistance for electoral reform and during elections.

Despite these achievements, there are challenges ahead for the PIANZEA Network. These include overcoming the language and distance barriers that exist within the region; obtaining continued funding to undertake various projects and hold future workshops and meetings; and improving communication by providing access to email and the Internet to all member countries.

What can ALL members do to continue to advance the goals of the network? That was the question put to participants and resulted in the following suggestions:

1. Input from all members: It was noted that some countries have not taken an active participation in the Network. One way of contributing is through the newsletter as it is a formal networking tool. It was suggested that each country provide a quarterly report of activities that will then be included in the newsletter or distributed separately to all countries.
2. Utilising the experience of all countries: It was recognised that Australia and New Zealand are heavily relied upon by the smaller nations due to their experience and knowledge, and depth of resources. However, other Pacific nations also have experience and knowledge that should be utilised.
3. Working on joint projects: For example, the cost of elections (benchmarking) project which is to be a combined effort of all members, it is hoped, will enhance the profile and credibility of the PIANZEA network.
4. Access to and use of technology: The first task is to ensure all countries have access to email and the Internet. Once this is achieved, the use of email and chat rooms will assist in finding out what is happening in the region as well as being able to share information and documents with one another.
5. Holding of PIANZEA workshops: It was noted that forums such as these workshops that bring together representatives from the various countries is itself networking. All participants agreed that these workshops should continue to take place on a regular basis.

The issue of transferring the PIANZEA Secretariat to another country after this workshop was raised by the AEC, as this was one of the objectives resulting from the 1997 conference. Many of the smaller nations expressed gratitude and thanks to the AEC for hosting the Secretariat and would like Australia to continue with the role as they simply do not have the resources to undertake the Secretariat. New Zealand, while unable to assume the responsibility for the Secretariat due to changes occurring in the country, did offer to assist wherever possible. Thus, the AEC is both pleased and honoured to continue to host the Secretariat.

Conclusion and Action Plans

This session attempted to summarise the main issues that were raised throughout the workshop. They included the following:

1. Active planning: It is imperative that electoral tasks are performed correctly the first time, so significant resources should be devoted to planning. All tasks should be identified to the lowest level so that a detailed checklist or electoral planner can be developed. This will need to be monitored throughout the electoral process and reviewed at the completion.
2. Development of a PIANZEA business plan: It was proposed that the AEC as the Network Secretariat develop a PIANZEA business plan addressing in particular the six key areas identified at the Workshop and the goals/activities to be achieved in the next two years. (A note of caution was expressed about the network not being too ambitious in its list of projects as this can lead to failure through lack of time and resources. The preferred option is to focus on a few issues at a time). The broad business plan would then be forwarded to all members for their comments and for them to develop their own individual plans. The advantage of drawing up a plan is that projects can be prioritised, and it can be used to obtain funding from various sources. For the business plan to succeed, it requires the commitment of all Network members as they would have to report on the progress of achieving the goals and activities. The concept of the AEC developing a business plan was highly supported by other participants. The issue on whether the plan should include country profiles of each of the members was discussed but it was agreed that in the first instance it should be restricted to a PIANZEA business plan.
3. Training of electoral staff: It was recognised that the running of an electoral event is a project management task, and thus relevant training should be provided. Training initiatives such as the Electoral Governance course at Griffith University and the AEC's short course in electoral administration are a step forward. The AEC course will require significant funding and requires the commitment and interest from all network members to assist in obtaining the necessary funds. Many of the participants expressed their support for the course.
4. Establishment of benchmarks for determining the cost of elections: It is important to define the parameters that will be included in the costing. It was agreed that this would be the first project to be done as a joint effort by the PIANZEA network. The offer by the AEC to use the services of its Graduate Administrative Assistants, if possible, was supported. The New Zealand Electoral Commission offered to provide assistance to this project.
5. Impact of technology: The benefits of all members having access to the Internet and email was reiterated. It should be a priority to assist those countries without Internet and/or email access to get it as soon as possible.
6. Election material and equipment: The larger nations (Australia and New Zealand) are to consider the possibility of providing smaller nations with surplus stock or including them on their bulk order. A catalogue listing all suppliers would be of great use within the region.
7. Campaign funding: Where campaign funding is a concern, it should be addressed in the individual country's business plan.

It was resolved that recommendations 1-7 be accepted.

Closing Remarks

Much gratitude and thanks was expressed to AusAID and International IDEA for its continued support, to all participants for their contributions, to the interpreters, to the AEC Queensland Head Office for their assistance, and to all staff of the AEC's Research and International Services Section for their efforts in organising and ensuring a successful workshop.