ODIHR helps dispel the myths about election observation

Election observation has often been perceived as an activity carried out by long-established western democracies in countries in democratic transition. However, this is a misconception: not only do all 56 OSCE participating States have the right to send observers to the Organization's election observation missions, but the OSCE's Office for Democratic Institutions and Human Rights (ODIHR) is increasingly monitoring elections in a broader range of OSCE participating States.

A full-scale election observation mission typically includes long-term and short-term observers (STOs). "STOs are deployed in a country a few days before an election, and their main task is to observe election-day proceedings and provide data, which feeds into the overall assessment of an election," explains Gerald Mitchell, Head of the ODIHR Election Department.

"The information collected from STOs gives us a profile of what is happening throughout the respective country, and allows us to differentiate between isolated incidents and trends."

In 2001, the ODIHR set up a voluntary fund for enhancing the diversification of election observation missions. The fund assists 19 states in Central Asia, the Caucasus, Eastern and South-Eastern Europe which are not in a position to second observers regularly. To date, it has enabled over 1,000 short-term and long-term observers to participate in election missions, whose diversity is reflected in the fact that they regularly include observers from over 40 OSCE countries.

Supporting national training efforts

Recently, the ODIHR has received requests from participating States for assistance in training STOs. While the primary responsibility for training rests with the states themselves, the ODIHR recognizes that it can play a useful role in capacity-building efforts which in turn can enhance common professional standards for observers.

The ODIHR Election Department has for many years supported the training programmes of individual OSCE participating States, such as those in Austria, Germany, Norway and others, by sending ODIHR election advisers and experts to cover issues related to election observation. In 2005 and 2006, in co-operation with the OSCE Training Section in Vienna and the Russian Diplomatic Academy, the ODIHR trained 160 short-term observers from Russia, which is now sending increasing numbers of observers to missions.

"Increased diversity and participation not only helps to dispel some of the myths about election observation, but it also strengthens confidence and transparency in this activity by ensuring that the composition of missions more closely reflects the OSCE region as a whole," says ODIHR Director, Ambassador Christian Strohal.

"The final purpose of any observation remains to assist States in implementing their commitments to hold democratic elections."

In November 2006, the ODIHR organized its first election observation training course for countries eligible for the diversification fund. Through this training project, countries that have not traditionally sent observers will be able to build up a pool of trained candidates who can then be sent to election missions through the fund.

Nearly 40 participants from 15 states attended the two-day course, held at the OSCE Academy in Bishkek. Participants included representatives from foreign ministries, non-governmental organizations and national election commissions.

"When I first became involved in election observation, I had no idea of how systematic and complex it really is, especially at the international level," says Ecaterine Siradze-Delaunay from the Georgian local observer organization ISFED.

Improved understanding

"Attending this ODIHR course has improved my understanding of how election observation works, and how the work of international short-term observers fits into and adds to the whole observation mission."

As Nicolas Kaczorowski, Deputy Head of the ODIHR Elections Department, explains: "We start the training by explaining the principal objectives of election observation, and the background to the ODIHR election observation mandate.

"In other words, we look at the various international treaties such as the UN Universal Declaration of Human Rights and the International Covenant on Civil and Political Rights as well as OSCE election commitments such as the 1990 Copenhagen Document, and show how they provide clear criteria and standards for assessing elections."

Participants are then led through the structure of a mission, and shown how the data collected by STOs in the forms they fill out at polling-stations on election day provides the basis for the statistical analysis of observations.

Once the theory is explained, the focus turns to what this means in practice. One of the aspects covered in detail is the ODIHR's code of conduct for election observers. The 10-point code helps ensure the impartiality and professionalism of STOs, and violation of it can be grounds for dismissal from the mission.

Upholding the code of conduct for observers

It is useful for STOs to be prepared for potentially difficult situations and to know how to deal with them sensitively and in line with the code of conduct.

For example, STOs are allowed to give general information about the mission and the role of observers, but are not allowed to comment publicly on the substance of their individual observations. This is because the findings of a mission are not based on one individual's experience in one region, but on analysis of the data collected from all observers throughout the country.

"Knowing where the line is drawn can be difficult, so we use role-playing to practise handling a persistent journalist," explains trainer Delphine Blanchet, who has extensive experience as an election expert on both OSCE and European Union election missions.

"Another common problem is that polling station officials don't always understand the role of international observers. This means that STOs can have difficulty accessing polling stations, or else are seen as inspectors who should give their approval or advice on proceedings," says Blanchet.

"It is important that all STOs understand that non-interference is an essential characteristic of election observation and are able to explain their role effectively to others."

Following positive feedback from participants at this first training course, the ODIHR plans to make such courses a regular event. As more potential STOs receive training, and with the financial assistance available from the diversification fund, all OSCE states should be able to contribute observers to OSCE election observation missions.