by Anonymous
posted to the newsgroup: soc.culture.caribbean
January 2, 1998
GUYANAGATE wishes, in the interest of transparency, to share with the
international community the full original text of the pertinent section
of the report of the Commonwealth Observer Group which is reflected in a
Stabroek News report of 1st January 1998.
COVER:
ADVANCE COPY
The General and
Regional Elections
in Guyana
15 December 1997
The Report of the Commonwealth Observer Group
(Commonwealth LOGO)
Commonwealth Secretariat
TEXT -- PAGE 25:
The first step in the process was the separation of the Voter
Identification Cards from ballots. This was a time-consuming process as,
in many cases, the cards had slipped between the folds of the ballot and
several checks had to be made to ensure that they had all been removed.
The Presiding Officer and Counting Assistant then separated ballots for
the general election from those for the regional election. Ballots for
the general election were counted first and presiding officers were
scrupulous in showing party agents, poll clerks and observers every
ballot opened before placing them on the correct pile. Rejected ballots
were also meticulously checked and displayed and marked accordingly.
The count was generally orderly and we were impressed with the
professionalism of the election officials and the conduct of the party
agents. The presence of observers was acknowledged and we encountered no
difficulty in observing the count. We were further impressed by the
spirit of co-operation among all those present.
After each count we attended, the Presiding Officer verified the election
results with those in attendance and entered them into an official
Statement of Poll. The Presiding Officer then signed this document and
requested the signatures of Polling Agents and in some cases, those of
the Observers.
The ballots and all election materials were placed in separately sealed
envelopes which were then locked, sealed and signed by several people.
The Statement of Poll, which is the legal document for the official
tallying of results by the Elections Commission, was sent in a separately
sealed envelope with the ballot box to the District Offices of the
Elections Commission and thereafter to the Commission's Headquarters in
Georgetown. In one case, one Observer reported that the envelope with the
singed Statement of Poll was placed in the ballot box.
The transit period from polling station to the Commission's Headquarters
was in some cases expected to be well over 24 hours. However, where
possible - and this was the case in most places - the results were either
telephoned or radioed into the head office of the Commission
We found the process of counting to be unnecessarily slow and tedious. In
some cases, it took more than three hours to count less than 200 ballots.
At some polling stations the lack of proper lighting was a contributing
factor, while in many centres it was mostly the necessary procedures that
made the count last long. On the whole, in spite of the shortfalls, and
the obvious exhaustion of all concerned, the counting was concluded to
the satisfaction of all parties.
However, it would appear that the procedures with respect to handling the
Statement of Poll were not followed completely in some polling stations,
notably in Region 4. For instance, some Statements of Poll were locked in
the ballot boxes instead of being sent in a separately sealed envelope;
while other Statements of Poll did not have the required validating
signatures.
Overall, however, we were impressed with the spirit of the polling staff
and their determination to perform their tasks professionally. A notice
in the polling station in one region sums up this attitude: "we are
working towards a free, fair historical transparent and effective
election. We can, we must, we will."
TEXT -- PAGE 26:
Tallying
Here the problems began. Early election results were first received by
telephone and radio, where possible on Monday evening, followed by the
ballot boxes and Statements of Poll. This process continued through
Friday 19 December. The procedure adopted by the Commission was that all
duly signed Statements of Poll would be fed into the computer. This
commenced on Monday and the Commission was able to announce some initial
results.
The database system initially appeared to be reliable. Problems arose,
however, because a significant number of Statements of Poll were unsigned
or were absent. Or, as we had occasionally observed, they had not been
sent in the designated envelopes provided separately, but had been
enclosed in sealed ballot boxes. These Statements of Poll could not be
fed into the computer and thus could not be reflected in the tally and
reported. The problem was particularly acute in Region 4 which is the
largest region and includes Georgetown, accounting for some 200,000
electors.
By late Tuesday the Commission realised that the breakdown in the process
was causing a severe delay in the declaration of results. At this point
the Elections Commission made a decision to address these problems by
involving the political parties in a new process to verify the results
from the poll in the presence of observers. The party representatives
were requested to meet at the Commission at 8 a.m. on Wednesday 17
December and to bring in their tally sheets for reconciliation with the
information that the Commission had received. Out of these the official
results would be declared. This process of verification contributed to
the unavoidable delay in the declaration of the results, which still
remained incomplete three days after polling.
This system was slow, being manual rather than computerised. A
declaration of results was further compromised because the Commission
failed to organise effectively or manage efficiently the tally process in
which the political parties had been invited to participate. The tally
sheets were not presented in a sequential order and this led to double
tallying of some polls. Often national and regional results were combined
by Presiding Officers as a total. The Commission did not identify these
errors until they were pointed out by party agents. In other instances
the national and regional tally sheets had become separated so that only
national or only regional votes could be tallied. At this point the
Commission was unable to produce the original ballot paper accounts or
ballot boxes.
There was a worrying disparity between the results that were agreed
between the Commission and party agents and those that were announced by
the Chairman of the Commission. We observed that the overall
administration of the tallying process by the Commission was not only not
transparent but very poor. This exacerbated concerns already expressed by
most party representatives.
At 10 p.m. on Wednesday 17 December some of the party representatives,
frustrated by the shortcomings in the tally procedures, insisted that the
count be halted. The Commission was asked to ensure that all the relevant
documentation be made available and a proper management system put in
place before they were prepared to resume the tally.
TEXT -- PAGE 27:
On Thursday morning, 18 December, the tally resumed with the
participation of the party representative and continued, with some
breaks, until 3 a.m. on Friday morning. The delays continued to
exacerbate the uncertainty and rumour-mongering rife on the streets.
During the process of verifying the results, we observed that the overall
administration of the Commission with respect to the entire tallying
process was poor. This further added to the concerns already held by some
party representatives .
The protracted period of verification, during which the Commission
announced election results piecemeal, created an environment which was
exploited by both major political parties to declare victory prematurely.
The role played by the EAB in the tallying process was commendable. Its
participation in this process particularly in Region 4, allowed the
Elections Commission to use their Statements of Poll to assist in the
resolution of disputed poll results. They were regularly appealed to as a
reference point for mediation/negotiations. Regrettably, this did not
resolve the problems that arose, which grew progressively worse
culminating in the PNC announcing that it would not accept the results.
It demanded a recount of the votes in Region 4, where the problems were
concentrated.
Our Group, concerned at the rising tension mandated the Chairman to
consult other Observer delegations and as a result a series of meetings
were held between the groups. This series of meetings resulted in a
proposal for a joint visit to the Commission to be formally updated by
the chairman on the cause and nature of the problem. The Heads of the
Observer Groups then decided that it might be useful to make personal
contact with the leaders of both main political parties. This was
achieved and separate meetings were held with the leaders at 8.30 p.m. on
Thursday with the ruling party and 6.30 p.m. with the minority leader.
It was reported that shortly before these meetings a street demonstration
resulted in tear gas and shots being fired. It was reported that 11
people had been wounded some of whom were hospitalised.
Both leaders expressed their deep concern at the tense atmosphere in the
capital and communicated their earnest desire that the observer groups
remain in the country to see the process to its conclusion and to assist
in calming and reassuring the populace.
The main political parties had both already publicly claimed victory. The
leaders of the Observer teams urged both leaders to do their utmost to
control their supporters and not to make inflammatory statements. As a
result, both leaders agreed to name a liaison official to facilitate
communication between the two parties.
The leader of the ruling party, in response to the suggestion of the
Heads of Observer Groups, said that she would be prepared to meet the
leader of the minority party to make a joint appeal to the county. The
proposal was never discussed with the opposition leader.
The leader of the ruling party explained their claim to victory by
producing a document which indicated that they had achieved their tally -
200,000 plus votes - and thus would be the majority party.
Correspondingly, the leader of the minority party produced evidence to
TEXT -- PAGE 28:
support his position that there were discrepancies in the computer
compilation of the results, and he indicated that unless there was an
impartial investigation into the matter he could not accept the results.
The minority leader announced at a press conference on Friday morning
that his party would not accept the results of the elections and, based
on his party's suspicion of nationwide fraud, would be challenging the
same in the courts. Further, the party would demand that the results of
each ballot box would be verified, comparing the totals obtained by the
Elections Commission with those obtained from party agents countrywide.
Any announcement of winners or losers, should not be reported until an
investigation of the entire process was undertaken. This action was based
on his party's suspicion of nationwide fraud.
A fear was expressed that, because totals of the data spreadsheets did
not add up accurately and did not tally with the party representatives'
numbers, there had been manual overwriting of the totals in the computer
system.
Announcement of Election Results
The Chairman of the Elections Commission announced on Friday 19 December,
close to midday, that the PPP/Civic party, on the basis of the results
received thus far had the largest number of votes. On the basis of the
Commission's projection, having regard to the number of votes counted,
the number received by the PNC and the number received by the PPP/Civic,
even if all the remaining votes went to the PNC it could not achieve a
majority. In accordance with the Constitution he therefore declared the
winning party and its leader as the President of Guyana, although all the
votes had not yet been tallied.
We were informed that some opposition parties had already gone to the
High Court of Guyana to ask for and injunction to prevent the
continuation of the tally of the votes and to ask that the ballots from
all over the country be recounted.
As these events were transpiring, particularly the threat of an
injunction which might halt the process, our group was concerned as to
how best we might see our mission to it end. We considered that this
might entail a small representative number of us remaining in the country
or returning at a later date should that become necessary.
During the morning of 19 December we awaited further developments. In the
afternoon, in light of the announcement by the Chairman of the Elections
Commission that the PPP/C had received the largest number of votes, the
Presidential candidate for the PPP/C was sworn in as President.
TEXT -- PAGE 29:
SUMMARY OF CONCLUSIONS AND OBSERVATIONS
We formed our Conclusions and Observations while examining most aspects
of the election process during the Guyana General and Regional Elections
in accordance with our Terms of Reference which state among other things
that the Group "would . . . be free to propose to the authorities
concerned such action on institutional, procedural and other matters as
would assist the holding of such elections".
Conclusions
Up until the closing of the poll the following conditions existed for the
people of Guyana to freely express their will:
- the good sense of the Guyanese people - in addition to the appeal
by the Elections Commission, party leaders and the leaders of the various
bodies - contributed to a peaceful election on polling day;
- the high turnout at the polls was an indication of the confidence held
by voters in their ability to freely exercise their choice;
- in most parts of Guyana political parties were able to campaign freely
without major threat of intimidation or violence;
- the security arrangements for the poll were good;
- the secrecy of the ballot was assured;
- the arrangements for provision of materials and staff for polling
stations were adequate;
- with some exceptions, the procedures were well understood and followed;
- election officers were co-operative, helpful and willing to share
information;
- whilst there were shortcomings, most were not significant enough to
affect the integrity of the electoral process on polling day;
- party agents behaved responsibly and there was a great deal of
co-operation between them on polling day, which was an important
contribution to the electoral process;
- we hope that the important role in the process played by local observers
will be strengthened in the future;
- the presence of the international observers was well received by
the political parties, the Commission and the voters and, we would like
to think, contributed to increased confidence in the electoral process;
TEXT -- PAGE 30:
- the participation of women at all levels of the electoral process
needs special mention and they should be particularly commended for their
role as Presiding Officers in many of the polling places;
- the Elections Commission should be congratulated on its preparations for
the elections;
- all political parties in general should be commended for their adherence
to the Code of Conduct;
- the voters should be congratulated for the orderly and disciplined
manner in which they conducted themselves on polling day.
However, there were a number of shortcomings. These included:
- the tallying process was inadequately handled, which contributed to the
problems that subsequently arose;
- the procedure at the close of poll was not accurately adhered to: this
included failure by many presiding officers to sign their return;%ÿ0D
- in some cases presiding officers their results returns in ballot
boxes instead of placing them in envelopes to be delivered separately to
the Deputy Returning Officer;
- the Elections Commission had no clearly defined mechanism for
communicating its decisions on the results to the political parties and
the general public;
- the computer database for processing the tallying and the results left
much to be desired;
- contrary to clearly prescribed procedures in the manual for election
officials, measures were not taken to ensure that the voting of particular
communities could not be easily identified.
We believe that these shortcomings contributed to the diminished
credibility of the election results that were being announced by the
Commission;
Observations
- We hope that the Inter-Party Committee on Constitutional Reform, or its
successor committee, will include electoral reform in its work;
- important and earnest consideration should be given to the future
role of the Elections Commission: it may be useful to consider the
creation of a permanent institution, which might be responsible for the
management, organisation and conduct of elections;
TEXT -- PAGE 31:
- in view of the many difficulties still posed by the Voter
Identification Card system, which prevented a number of citizens from
voting, further efforts to rectify these should be undertaken;
- the Elections Commission may wish to consider a method for cross
matching to ensure that prior to polling day, Voter Identification Cards
and registers carry the same names;
- all parties should take a greater part in encouraging their supporters
to register and collect Voter Identification Cards;
- the Elections Commission should devise a more efficient means of
communicating decisions earlier to those areas which are inaccessible or
have no telecommunications links;
- a formula should be devised to ensure equitable use of the public media
by all political parties;
- improved mechanisms should be developed to speed up the count without
loss of fairness or accuracy;
- measures should be put in place and implemented to ensure a
secure means of transmission of the results an transfer of ballot boxes
to the office of the Elections Commission, following the close of poll
and count;
- the Elections Commission may wish to reconsider the separate declaration
of the results of the Disciplined Forces Poll;
- urgent consideration should be given to ensuring that mechanisms are put
in place for transparent and expeditious verification of results.
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