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Malawi Electoral Commission United Nations Development Programme
UNDP EMB PLACEMENT PROGRAMME
TO THE ELECTORAL COMMISSION OF ZAMBIA
FINAL REPORT
PREPARED BY
Henzily Munkhondya (Director of Electoral Services)
Samuel Sitolo (Senior Electoral Services Officer)
Fyson Magalasi (Electoral Services Officer)
Date: 30th October, 2015
Page 2 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
Table of Contents ACRONYMS ................................................................................................................................................... 4
BACKGROUND .............................................................................................................................................. 6
STRUCTURE OF THE ELECTORAL COMMISSION OF ZAMBIA ....................................................................... 7
EXPECTED OUTCOMES ................................................................................................................................. 9
1.0 INTRODUCTION TO THE ELECTORAL COMMISSION OF ZAMBIA AND ITS ELECTORAL SYSTEM .......... 9
1.1 Overview and the electoral system of Zambia ............................................................................. 9
2.0 THE ELECTORAL PROCESS (ELECTIONS DEPARTMENT) ................................................................. 10
2.1 Annual Work Plan ....................................................................................................................... 10
2.2 Planning for elections ................................................................................................................. 11
2.3 Post Electoral Activities Reviews ................................................................................................. 11
2.4 Recruitment and Training of Electoral Staff ................................................................................ 12
2.4.1 Temporary Field Staff .......................................................................................................... 12
2.4.2 Election Master Trainers ..................................................................................................... 12
2.4.3 District Election Trainers, Returning officers and Poll Clerks .............................................. 14
2.5 Stakeholders Training ................................................................................................................. 15
2.6 Training Manual and Aids ........................................................................................................... 15
2.7 Elections Logistics ....................................................................................................................... 15
2.7.1 Budget Development .......................................................................................................... 15
2.7.2 Procurement of electoral materials .................................................................................... 17
2.7.3 Materials distribution and retrievals .................................................................................. 18
2.8 Registration of Voters ................................................................................................................. 22
2.9 Inspection/Verification – Voters Roll .......................................................................................... 26
2.10 Nomination of Candidates .......................................................................................................... 26
2.11 Ballot Papers ............................................................................................................................... 28
2.11.1 Printing of Ballot Papers ..................................................................................................... 28
2.11.2 Integrity cost ....................................................................................................................... 28
2.11.3 Ballot Paper Verification ..................................................................................................... 30
2.12 Polling .......................................................................................................................................... 30
2.12.1 Poll staff .............................................................................................................................. 30
2.12.2 The Polling station ............................................................................................................... 30
2.12.3 Issuance of ballot papers at the polling Centre .................................................................. 32
Page 3 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
2.12.4 Counting of votes ................................................................................................................ 33
2.13 Results transmission ................................................................................................................... 33
2.14 Declaration of Presidential election results ................................................................................ 34
2.15 Storage of Ballot papers after voting .......................................................................................... 35
2.16 Political Party Campaign Financing ............................................................................................. 35
3.0 THE INFORMATION TECHNOLOGY DEPARTMENT......................................................................... 35
3.1 Biometric Voter Registration ...................................................................................................... 35
3.2 Inspection of the interim Voter Register .................................................................................... 36
3.3 Candidate nominations ............................................................................................................... 36
3.4 Accreditation of Observers ......................................................................................................... 37
3.5 Results management .................................................................................................................. 38
4.0 GEOGRAPHIC INFORMATION SYSTEMS AND DELIMITATION OF CONSTITUENCY AND WARD
BOUNDARIES .............................................................................................................................................. 38
4.1 Map Digitization .......................................................................................................................... 39
5.0 VOTER EDUCATION AND PUBLICITY DEPARTMENT ...................................................................... 41
5.1 National Voter Education Committee ......................................................................................... 41
5.2 District Voter Education Committee (DVEC) ............................................................................... 41
5.3 Voter Education Resource Centre ............................................................................................... 41
5.4 Stakeholder Engagement on Voter Education ............................................................................ 42
6.0 LEGAL DEPARTMENT ...................................................................................................................... 43
7.0 PROCUREMENT DEPARTMENT/SECTION ...................................................................................... 44
7.1 Procurement procedures ............................................................................................................ 44
7.2 Methods / types of procurement ............................................................................................... 45
8.0 FINANCE MANAGEMENT DEPARTMENT ....................................................................................... 46
8.1 Briefing of Council Finance teams during Electoral activities ..................................................... 47
9.0 INTERNAL AUDIT DEPARTMENT .................................................................................................... 48
9.1 Audit on payments ...................................................................................................................... 49
9.2 Auditing of district councils ......................................................................................................... 49
10.0 HUMAN RESOURCES & ADMINISTRATION .................................................................................... 50
10.1 Recruitment ................................................................................................................................ 50
11.0 FOR IMMEDIATE IMPLEMENTATION ............................................................................................. 51
12.0 CONCLUSION .................................................................................................................................. 53
Page 4 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
ACRONYMS ACB: Anti-Corruption Bureau AFIS: Automated Finger Printing Identification System
APO: Assistant Presiding Officer
ARO: Assistant Returning Officer
BVR: Biometric Voter Registration
CEO: Chief Elections Officer
CSO: Civil Society Organisations
CRO: Constituency Returning Officer
DEO: District Elections Officer
DEST: District Elections Supervisory Team
DET: District Elections Trainers
DVEC: District Voter Education Committee
ECZ: Electoral Commission of Zambia
EMB: Electoral Management Body
FBO: Faith Based Organization
GIS: Geographical Information Systems
HQ: Headquarters
ICT: Information and Communication Technology
IT: Information Technology
LGE: Local Government Elections
MEC: Malawi Electoral Commission
MSCE: Malawi School Certificate of Education
MT: Master Trainers
Page 5 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
NGO: Non-Governmental Organization
NRC: National Registration Card
OMR: Optical Mark Recognition
OPC: Office of the President and Cabinet
PEO: Provincial Elections Officer
PO: Presiding Officer
RO: Returning Officer
TC: Town Clerk
TPE: Tripartite Elections
UNDP: United Nations Development Programme
VERC: Voter Education Resource Centre
VRC: Voter Registration Card
WRO: Ward Returning Officer
ZPPA: Zambia Public Procurement Authority
Page 6 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
UNDP EMB PLACEMENT PROGRAMME FINAL REPORT ELECTORAL COMMISSION OF ZAMBIA – 14TH SEPTEMBER TO 1OTH OCTOBER, 2015
BACKGROUND As part of the efforts to build the capacity and develop the professional skills of
Malawi Electoral Commission personnel, a placement programme to sister
Electoral Management Bodies (EMBs) had been adopted under the UNDP Malawi
Electoral Cycle Support project. Under the placement programme arrangements,
senior staffs (Directors, Deputy Director and key senior officers) were to be placed
with sister EMBs for four weeks as an opportunity to be directly exposed to, and
learn from, alternative systems and processes that are applied within their
functional area.
This exposure is being undertaken with a view towards informing senior
managers’ efforts in self-assessing, designing and implementing enhancements
within their own functional area and assuming managerial ownership for those
efforts.
Basically the initiative is intended to strengthen the knowledge, capacity and
professional skills of members of staff by exposing them to the systems and
processes of high performing sister Electoral Management Bodies (EMBs) over the
course of stated period. The members of staff were attached to Zambia Electoral
Commission from 14th September to 11th October 2015. The staff that underwent
placement programme at Zambia Electoral Commission comprised of Director of
Electoral Services, Henzily Munkhondya; Senior Electoral Services Officer, Samuel
Sitolo and Electoral Services Officer, Fyson Magalasi.
The basis of choosing Zambia Electoral Commission emanated from the fact that
the political environment and the electoral systems for both countries is
synonymous and that Zambia’s electoral operation is a little more advanced than
that of Malawi.
The placement programme would also appear to be good opportunity for the
Malawi Electoral Commission to leverage its regional networks and relationships.
Page 7 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
In Zambia, the full responsibility of managing the Electoral process is vested in the
Electoral Commission of Zambia (ECZ), which was established in 1996 as an
independent and autonomous body. The establishment of the ECZ was done
through an amendment of the Constitution to provide for the creation of an
independent Electoral Commission under article 76. As stipulated in the article,
the Electoral Commission of Zambia is mandated to;
a. Supervise the registration of Voters
b. Conduct Presidential and Parliamentary elections; and
c. Review the boundary of the Constituencies into which Zambia is divided
for the purposes of elections to the National Assembly.
Further, in 1997 the Local Government Elections (amendment) Act No. 17 gave
powers to the Commission to conduct Local Government elections.
The establishment of the ECZ through the amendment of the Constitution is
further supported by the Electoral Commission Act No. 24 of 1996 which provides
for the composition of the ECZ and other matters connected to the running of the
institution.
Prior to the 1996 Constitution amendment, the Electoral and Local Government
Commissions were constituted on a part time basis for the conduct and
supervision of the Presidential, Parliamentary and Local Government Elections.
The two Commissions operated in liaison with the elections office which was
under the office of the Vice President. Upon the enactment of the Electoral
Commission Act No. 24 of 1996, the Elections Office was delinked from the Vice
President and members of staff were transferred to Electoral Commission of
Zambia.
STRUCTURE OF THE ELECTORAL COMMISSION OF ZAMBIA The ECZ is comprised of the Commission, the executive management,
management, departments, Provincial staff and council / district staff as per the
structure below.
Page 8 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
D/DIRECTOR
(IT)
COMMISSION
SECRETARY
SECRETARY
DIRECTOR
SYSTEMS
MANAGER
OPERATIONS
MANAGER
MANAGER
LEGAL
LEGAL COUNSEL
SOFTWARE
DEVELOPERS
DATABASE
ADMINISTRA
TOR
GIS
ENGINEERS
NETWORK
ENGINEER
ICT SUPPORT
ENGINEER
ICT SUPPORT
OFFICERS
ICT
SUPPORTASS
ISTANTS
D/DIRECTOR FINANCE
CHIEF
ACCOUNTA
NT
FINANCE
MANAGER
STORES
CONTRO
LLER
ACCOUNT
S CLERK
ACCOU
NTS
CLERK
HUMAN RESOURCE& ADMIN
MANAGER
SNR ADMIN.
OFFICER
ADMIN.OFFICE
R
ASST. ADMIN
OFFICERS
REGISTRY
OFFICER
REGISTRY
CLERKS
ASST.
LIBRARIA
N
TRANSPORT OFFICER
HEAD
DRIVER
MECHANICAL
FOREMAN
MECHANICS
DRIVERS
OFFICE
ASSISTANTS
HORTCUTURIST
PUBLIC RELATIONS MANAGER
SNR PUBLIC RELATIONS
OFFICER
PUBLIC
RELATIONS
OFFICER
HEAD
PROCUREMEN
T
PROCUREMENT
OFFICERS
ASST.
PROCUREMEN
T
OFFICER
STORES
OFFICER
D/DIRECTOR (E)
MANAGER (E)
AUDIT
MANA
GER
INTERNAL
AUDITORS
PRINCIPAL
ELECTORAL
OFFICERS
ELECTORAL
OFFICER
ASSISTANT
ELECTORAL
OFFICERS
DOMESTIC
SERVANTS
SENIOR
ELECTORAL
OFFICERS
MAINTENAN
CE OFFICER
SECRETARI
AL
PERSONNE
L
ASS.INTERNAL
AUDITORS
ASST.
STORES
OFFICERS
D/DIREC
TOR (VE)
MANAG
ER (VE)
Jocelyn
Mubita
PRINCIPAL
VE
OFFICERS
FRONT OFFICE
ASSISTANT
SECURITY GUARD
Vacant
OFFICEASSISTANTS
SANITARY
VOTER ED
OFFICER
ASST. ACCOUNTANT
ASST.
ACCOUN
TANT
ACCOU
NTANT
ACCOU
NTANT
Page 9 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
EXPECTED OUTCOMES i. The placement programme seeks to establish relevant benchmarks for the
MEC’s functional areas, undertaken by the line managers and senior staff
attached to Electoral Commission of Zambia.
ii. Members of staff attached to Electoral Commission of Zambia be exposed to
the systems and processes in a similar institutional context to generate lessons
and ideas on how to strengthen the Malawi Electoral Commission.
iii. Recommendations stemming from this placement will be subject to peer
review and managerial prioritization.
iv. The attached staff will be responsible for developing associated capacity
building plans, and have ownership over their implementation, within the
prioritization of institutional resources.
v. The placement programme would also appear to be a good opportunity for
the Malawi Electoral Commission to leverage its regional network and
relationship with Electoral Commission of Zambia.
1.0 INTRODUCTION TO THE ELECTORAL COMMISSION OF ZAMBIA AND ITS ELECTORAL SYSTEM
1.1 Overview and the electoral system of Zambia
The Electoral Commission of Zambia (ECZ) is established under Section 76 of the
Republic of Zambia constitution and is responsible for the general direction of and
the supervision over the conduct of parliamentary, presidential and Local
Government Elections in Zambia. It is also responsible for reviewing the
boundaries of the constituencies into which Zambia is divided for the purposes of
elections to the National Assembly.
Zambia like Malawi follows the First-Past-the-Post (FPTP) or single-member
plurality system. The principal tenets of this system are many and varied. First, a
country is divided into relatively equal constituencies from which only one
representative is chosen to occupy a parliamentary seat on behalf of that
constituency. By using this election system, the country is divided into
Page 10 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
geographically defined constituencies (currently 150) each of which is
represented by one seat in parliament. In this system, a winner takes it all.
Zambia has a permanent voter register since 2005. Major registration exercise
conducted in 2009 -2010 and 2015 -2016. The registration process is continuous
and was enforced into law in 2001.
Zambia has 103 districts and 150 constituencies, 1624 wards, 7700 polling
districts / polling stations. Meanwhile a bill was tabled to increase the number of
constituencies by 6 because of the issue of overlapping boundaries. Current
registration exercise will be conducted from 14th September to 11th November
2015 but will still proceed up to March next year in the districts in readiness for
TPE in 2016. In the Constituencies, the registration is conducted in phases (mobile
registration) within the constituencies and all constituencies are open at the same
time. This is done as one way of minimizing the negative perceptions from
stakeholders as well as minimizing logistics hiccups and costs.
The registration will be conducted in four phases within the constituencies.
Alongside this registration the Electoral Commission of Zambia was also preparing
for by elections in two constituencies and nine wards whose polling was slated for
24th September 2015.
2.0 THE ELECTORAL PROCESS (ELECTIONS DEPARTMENT)
2.1 Annual Work Plan
At ECZ, the development of their Annual Work plan is made in such a way that it
speaks or tied to the Strategic Plan of the Commission. Further the plan feeds into
the Commission`s Annual Budget. Through Strategic Objectives, activities are
lined up for implementation and each activity is tied to time frame within which it
has to be accomplished. The activity is further allocated resources and someone
responsible for its implementation, monitoring and evaluation.
Page 11 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
2.2 Planning for elections
Planning for elections follows the Electoral Cycle approach. An election planning is
segmented into 3 major components as budget, procurement and training.
Planning starts in good time with review meetings on each and every activity the
ECZ carried out in previous elections (delimitation, training, registration,
nomination and polling). The process involves gathering suggestions and
recommendations from all departments at the Head Office and field structures.
Recommendations are forwarded to the Commission for consideration so that
they could be incorporated into the master plan including the master budget for
the next elections.
Hence, immediately after an election has been conducted, the ECZ goes into the
following activities to start planning for the subsequent elections:
2.3 Post Electoral Activities Reviews
The ECZ embarks on rigorous reviews to see how elections were conducted and
draw recommendations from the ended elections in order to improve on future
elections. These reviews are conducted both at HQ level and Field reviews in
Provinces and Councils. Stakeholders submit what worked and what did not work
and propose recommendations to improve on what did not work. This covers all
electoral processes.
Lessons learnt
That planning for elections follows an Electoral Cycle Approach where immediately after elections there is a comprehensive review of all electoral activities at national, provincial and Council levels involving all key electoral stakeholders
Page 12 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
2.4 Recruitment and Training of Electoral Staff
2.4.1 Temporary Field Staff
For general elections, positions are advertised then interested people meeting
requirements apply. Those shortlisted are called for interviews. The short listing is
based on those who previously worked during elections as poll staff. In this
regard, those with experience in conducting elections are advised to attach copies
of their certificates issued by ECZ after completing similar previous training when
applying.
During by elections, interviews are not held but ECZ draws names from the
database of poll workers whose performance was satisfactory in the preceding
electoral activities of similar nature
Those shortlisted are put on open notice boards for the general public to vet the
names before they are confirmed for recruitment.
The recruitment process of all temporal electoral staff and their requirements is
contained in the Election Officer`s Handbook. Apart from the established staff of
the Commission, the following are also recruited on temporal/part time basis to
assist in the conduct of elections:
2.4.2 Election Master Trainers
ECZ advertises the vacancies for the positions and those interested and with
relevant qualifications apply. These are part time electoral officers recruited by
the Commission and take them through intensive training on all the electoral
processes. At the end of the training, they are tested for certification in order to
assess their competence. Those who perform well in the tests are given the job.
Most of these are former Secondary School teachers or those retired officers
who played a pivotal role in the conduct of elections during the time of their
employment who were either Returning Officers or District Election Officers.
These Master Trainers then train Provincial Elections Officers and District Election
Trainers. ECZ uses/ engages Master Trainers in its training related to electoral
activities to impart knowledge and skills to all stakeholders in elections.
Page 13 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
Advantages of engaging Master Trainers
i. Training commences in all districts at once.
ii. Stakeholders have confidence and trust in Master Trainers. The confidence
comes in as the trainers are not permanently from the Commission but
from the Councils/Communities
iii. The Commission utilizes their teaching skills and abilities to impart
knowledge to the poll staff. In the long run this has comparative advantage
– as the trainers have prolonged and intense experience in electoral
training.
iv. It builds staff confidence experience and skills hence participants’ have
confidence and trust in Master Trainers due to expertise in elections field.
v. These MT are readily available whenever there is a need to engage them in
an activity.
vi. Operations at the Head Office are not disrupted for the reason that other
members of staff are in the field conducting training sessions rather they go
at a time just to monitor.
vii. It is cost effective as the Master Trainers are located in their respective
districts.
viii. It brings distinctive recognition to the Commission’s programmes and
services
ix. It ensures sustainable professional development for staff.
x. It provides continuity in the implementation of best practices
xi. It promotes professional development by identifying staff who meet entry
qualifications to receive master trainer certification.
Lesson learnt
The use of Master Trainers as electoral trainers is beneficial. Stakeholders have confidence and trust in Master Trainers. The confidence comes in as the trainers are not permanently from the Commission but from the Councils/Communities. Master trainers train District Elections Trainers and ROs.
Page 14 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
Recommendation
It is recommended if MEC should adopt the system of using Master Trainers
and district training teams in order to realize the advantages stipulated above.
2.4.3 District Election Trainers, Returning officers and Poll Clerks
After training, the Master Trainers go to Provinces where they train District
Election Trainers, Returning officers and Poll Clerks drawn from various district
councils. All categories of staff go through test and only successful ones are
picked then a database for staffs is kept for use during elections. From each
Council, Town Clerks become District Elections Officers and at Provincial level,
they become Provincial Election Officers. During Voter Registration, Returning
Officers become Registration Supervisors
All details of Master Trainers, District Election Trainers, Returning Officers and
Assistant Returning Officers are kept in a database for future use. The field
training teams are utilized in both registration and polling exercises.
MECs scenario on recruitment of election staff
The Commission advertises and interested people apply. Short listing is based on
those with experience in electoral work. The Commission however does not issue
certificates to those who previously worked/trained in electoral activities. Vetting
is done through checking with the database.
Recommendation on recruitment and Training
It is recommended that:
The Commission should start issuing certificates to those people who undergo
training/work during elections so that when applying for the proceeding
electoral activities they should be attaching copies of such certificates as
evidence that they have experience in electoral work.
In the training process, tests should be conducted to assess competence of the
trainees. Those who perform unsatisfactorily should be dropped immediately.
This should be communicated to trainees in their invitation letters that being
recruited it’s not automatic but rather dependent on their performance during
training
Page 15 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
There should be ample time between the training and actual work so that the
Commission is able to replace those dropped in time through the same
process.
A minimum of three days on training so that there is enough time to go
through different election related cases and adequate assessment of
participants.
2.5 Stakeholders Training
The Voter Education and Legal Departments are involved in training stakeholders
(Political parties, security officers, traditional leaders, youths, Faith Based
Organizations and NGOs) on electoral matters so that they are conversant with
the electoral system, processes and procedures. In councils, these are
trained/briefed by the District Elections Officer and his/team.
2.6 Training Manual and Aids
Prior to elections, training needs are identified. Where need be, consultants are
engaged to help with the development of training materials, aids, manuals
relevant for different categories of staff and stakeholders to be trained.
Currently ECZ is on a project to engage at least two consultants to develop
training manuals and aids relevant to all categories of trainees in election
processes to be used for the 2016 Tripartite Elections.
Recommendation
It is strongly recommended that MEC should be using the consultants in
electoral materials development and production of electoral manuals. This
will ease the workload on the staff to concentrate on other key issues.
2.7 Elections Logistics
Elections Logistics encompass three major areas as follows:
2.7.1 Budget Development
The master budget is prepared by consolidating departmental budgets and
district budgets in consideration of approved recommendations from review
Page 16 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
meetings. The budget is segmented into district budgets well in advance and
submitted in time to Government for funding consideration.
Budget for elections is developed and submitted to government two years before
the election year. This allows enough time for scrutiny and clarification of the
master budget. Budget for 2016 elections was submitted in 2014.It is a
consolidation of departmental submissions supervised by the operations
department. It is looked at as a project budget since elections are treated as a
project.
Development Partners choose their areas of interest to assist and communicate
to the Commission through the Government.
Government honors the budget in full and on implementation, Government
releases funds in 3 installments; 40%, 40% then 20% in the course of project
implementation. However if there is a need for supplementary budget, it is also
submitted to Government for consideration.
Elections budget is protected and the conduct of elections is regarded as one of
the priority areas for Government; as such the project is fully supported.
2.7.1.1 Elections budget for districts
Money meant for elections activities in districts is sent to districts where District
Elections Officers (Town Clerks/District Commissioners) take charge of the
budgets and at the end of each activity they liquidate it to ECZ.
For the field activities funds are given to the Supervisors (Returning Officers) to go
and pay their staff and bring back signed copies to District Elections Officers for
liquidation to ECZ.
For the field staff, they are paid half of their honoraria as they go to the field and
the other half is paid at the end of the exercise after fully accounting for the
equipment they used in the field. Value of items lost is recovered from the
remaining half of payments.
This works well because of the trust Government has in the Commission as a
result of prudence in financial management policies. A strong bond of trust also
exists between the Councils and the Commission.
Page 17 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
MEC Scenario
Electoral funds are controlled centrally by the Head Office. The Commission tried
to decentralize disbursement of electoral funds to councils but it did not work as
no financial returns came from the councils due to lack of integrity and
commitment in financial management by council staff.
Recommendation
It is recommended that MEC should have a protected budget. Council budgets
to be prepared by councils spearheaded by DEST, then scrutinized at Head
Office to come up with a consolidated main elections budget. The councils to
defend their election budget before consolidation. This will enhance
participation of councils in the electoral activities.
It is also recommended that MEC should strengthen capacity of its staff in
councils so that they are able to handle electoral funds at that level.
2.7.2 Procurement of electoral materials
After submission of a Budget, a procurement plan is developed and also
submitted to government .This outlines all procurements when and what is to be
procured. To do procurement, the Commission conducts a materials needs
assessment so that those available and those that could be re used are not
procured. Only those not available in stock but required for use are procured.
2.7.2.1 Distribution Planning
Requisition for the procurement of materials is entirely done by the user
department based on the stock balances, recommendations for new
specifications. Material & Equipment form is a check list which assists in
assessment of material requirement as it tracks down the stock balances. With
the material equipment form it is also possible to determine the quantities of
material up to stream level.
The terrain, closeness and geographical features play a role in materials planning.
This is because in some areas, they need water transport while in others they
need to airlift the materials. There is a database for the mode of transport in each
district. ECZ relies on councils to distribute and retrieve materials.
Page 18 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
Recommendations
It is strongly recommended that MEC adopts the materials planning and
distribution software which ECZ uses which was developed by a UNDP
consultant
It is further recommended that a database for the terrain and geographical
features of the country is maintained so that it becomes easier to effectively
plan for the distribution and retrieval of materials using the right type /mode
of transport
2.7.3 Materials distribution and retrievals
In distribution planning, ECZ considers factors such as: distance, accessibility and
geographical terrain. The Commission has in its database information regarding
areas with their specific transport needs. The Commission relies much on councils
to provide the information. The information assists in route planning and
scheduling. Distribution of materials starts with those areas which are very far
and those that require switch of transport modes due to geographical terrain.
Boats and airplanes are hired to distribute materials in the swampy areas.
To ensure that materials reach destination in time and in good condition, drivers
are given delivery note prepared in triplicate to be signed by council stores clerks
signifying receipt of the materials in right quantities and good order. One copy is
kept by the stores clerk, another is filed at the head office and the third copy filed
in the Stores department.
After elections reusable materials and ballot papers are taken back to the main
warehouse for safe keeping. Ballot papers are kept for a period of four years
before destruction.
MEC Scenario
All election materials are kept at the Head Office/Regional Offices and packing is
done at the Head Office. This mounts unnecessary pressure to the Commission
during general elections as materials for the whole country are packed by few
Page 19 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
staff within a short period of time. This also affects distribution of the same to
polling centres.
Recommendation
It is recommended that MEC should have permanent building infrastructures
in all councils so that District Councils are empowered to safely keep and pack
election materials (non sensitive). This could be started well in advance
presumably a month or two before the polling.
This will ease the pressure at the Head Office and result into distribution
efficiency.
2.7.3.1 Transportation of election materials
The Elections Department carries out need assessment on transport and come up
with the required number of vehicles, boats and planes. This is determined by
nature of operation to be carried out and the terrain.
The Electoral Commission of Zambia owns 30 trucks and 70 Land cruisers
specifically for operations. This is in addition to utility vehicles allocated to
Commissioners and Executive Management.
In case of shortfalls the Commission is authorized to hire as long as they follow
procedures and the line budget without jeopardizing the operations. At council
level if there is a shortfall in vehicles, the Commission is informed and approval is
granted for them to hire. The hiring is done through the Council Tendering
Committee instituted by ECZ. The process takes only a day in order to ensure
efficiency in meeting deadlines. For instance, during the recent by elections
conducted on 24th September, 2015 in two constituencies, the Commission hired
103 vehicles just to ensure that transportation of field staff and materials is done
smoothly without hiccups.
The process of hiring is not for vehicles only but also for boats and planes for the
inaccessible centres.
MEC Scenario
The Electoral Services Directorate does the transport needs assessment to come
up with number of vehicles, boats and planes required for the operations.
Page 20 of 53 UNDP EMB Placement Programme Final Report - To the Electoral Commission of Zambia
The Commission owns 3 trucks and one 16 seater minibus on pool. This is in
addition to 10 vehicles allocated to Commissioners, 10 to Management and 3 to
Regional Elections Officers.
This situation is very pathetic as it leaves the Commission with no vehicle for
operations.
Contrary to the status, the Commission is not allowed to hire vehicles for its
operations. Mobilization of election vehicles is done by Government instituted
Election Transport Task Force led by the OPC which does not fully appreciates
what is involved in elections operational matters. Coupled with this, Government
is not able to fully meet the transport demands for the Commission. This leaves
the Commission with inadequate transport crippling the operations of electoral
activities.
Recommendation
Delivery of credible elections will remain a dream if MEC continues to be
inadequately funded. It is therefore recommended that:
Government should fund the Commission adequately so that it acquires more
vehicles for its operations. The current status on transport transpires that the
Commission cannot manage to conduct by election in one ward.
The Commission should be allowed to hire vehicles for its operations. Since
most Government Departments are not willing to release their vehicles.
2.7.3.2 Warehouse Facility
ECZ built its own central warehouse where elections materials are kept. This is
also utilized as a delivery point for all supplies before they are distributed in bulk
to councils after having quantified them according to district centre’s
requirement. During general elections, inspection and verification of ballot papers
by Returning officers and Assistant Returning Officers is done at the same main
warehouse.
In addition to the main warehouse in Lusaka, ECZ has warehouses in councils.
These warehouses are either rented or given to ECZ by Government Departments
in councils for use during elections. These warehouses are manned by Council
Stores Clerk. Police Officers are assigned to guard the warehouses in councils.
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Where government departments at council level are unable to provide
warehouses for ECZ, the EMB rents from private offices to act as warehouses
Recommendation
It is strongly recommended that MEC identifies buildings in Districts to be used
as Warehouses during election period so that all non sensitive materials are
sent in districts in good time for the council staff to do the packaging there for
eventual distribution to centers in each district.
2.7.3.3 Materials Logistics Module Software
The ECZ with assistance from UNDP engaged a consultant who developed a tailor
made software which links Elections Department, Finance Department,
Procurement Section and Stores Section in materials management. The software
captures data such as names of districts, constituencies and polling stations. It
also captures number of voters per station. With this, the system calculates
number of streams per polling station and material requirement per stream
according to the recommended check list. Government is therefore advised on
which procurement are to start and funds are released in that order starting with
major procurements.
2.7.3.4 Packaging and packing of materials and material management
in councils
The ECZ has in place Town clerk, Stores officer, Director of finance, Cashier and
driver in district councils to look after all election materials and account for them
after each electoral process is over. In the absence of full accountability of
materials, they are not paid.
Packaging and packing is done at the council. At district level they are then
packaged according to centre requirement in strict compliance to Materials check
list which accompanies the materials from Electoral Headquarters.
ECZ ensures that a council is provided in bulk with adequate materials for the
elections. ECZ sends materials (non sensitive) to councils six months before the
polling date to enable them have adequate time to pack materials and in case
there are breakages or shortfall they are addressed in time.
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Lesson Learnt:
Construction of spacious purpose built warehouse
Packaging of materials in bulk to councils
Drivers’ compliance to distribution system
Use of rented Warehouses in councils to keep elections materials
Election Materials strict accountability by Council staff failure to which they
are not paid allowances
Recommendation
It is strongly recommended that MEC adopts the same approach to ease
warehousing problems
2.8 Registration of Voters
Registration is done using Biometric Voter Registration (BVR) system. This is
where details of registrants are captured electronically at the registration centre.
At the centre there are only two officers namely the operator of the equipment
and a Police Officer.
The registrant presents him/herself to the registration officer with documents or
evidence of his/her eligibility to register. The officer takes the photo and enters
the personal details including the polling centre one will cast his/her vote on the
polling day. Then the operator prints the card and shows to the registrant for
confirmation of details. Then the card is laminated.
The process takes a minimum of 3 minutes and a maximum of 10 minutes to be
completed. The equipment kit comprises of a laptop, processor with a built in
camera, a portable rechargeable power bank and a portable printer.
The Constituency Returning Officers also known as Registration Supervisors
collect the data around all registration centres in flash discs for consolidation at
constituency and the council levels. This is done on weekly basis. Data from all
councils is then sent to the Head Office consolidation at national level at the end
of the exercise. This is for the production of voters roll.
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Registration is carried out at the District council and in the outskirts (field
registration). Field registration is done in phases (Mobile registration) in the
centres within constituencies in the council. A phase takes a period of 14 days
however the whole exercise takes 60 days in ECZ’s context. Registration teams
move within the constituencies up until the council is fully covered. This means
that registration is carried out national wide within the stipulated period.
There is no registration prior to by elections after the National Voters Register has
been certified. For example, during the 24th September by election, they were still
using 2011 voter register for the by elections as those newly registered are not
yet consolidated into the National Register.
Logistically the movement of teams within the constituency in councils is easier
and cost effective.
The Biometric Voter Registration system has the following advantages among
others:
a. It is cost effective as:
Number of field registration staff could be reduced to 2 per centre ( BEO –
Operator and Police Officer)
The quantity of materials required in terms of stationery is also reduced as
system only needs A4 paper, lamination porches and plain folders. No need
for OMR forms, part A & B boxes
Data entry is immediately done at the centre hence no need for temporary
data entry clerks.
Teams are able to rotate within the constituencies/councils thereby no
need for hiring of buses at the end of every phase.
No need for warehouse space for part A and B forms as this information is
backed up electronically.
No burden of transporting the part As to polling stations.
b. It is efficient as the process takes less than 10 minutes to completely register a
voter thereby allowing less queuing time for registrants.
c. Human error is eradicated as the system provides checks and balances as data
is being entered.
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d. Contrary to the current manual system, the operator is required to have in
additional to MSCE at least a certificate in computer studies hence level of
competence is raised resulting in high quality output.
e. During data consolidation all double registrations are detected easily;
depending on the Commission’s decision, these could be prosecuted as the
law requires; and these are put on exclusion list so that they are barred from
voting.
f. The BVR equipment produces different reports instantly thereby make it easier
to monitor progress.
g. It is flexible as a voter is able to register from any place and advise the
registration officer to post him/her to the centre where she /he wants to cast
her vote.
h. With BVR it is very much possible to carry out registration country wide within
the specified period as registration teams could be rotating within the councils
thereby minimizing speculations on the criteria used in choosing
areas/regions/councils to start from.
i. It is possible to time the registration exercise so that it is undertaken outside
rain season.
j. In the absence of National Identity Cards it is possible to programme the
system so that it uses our usual identity documents.
k. The system is user friendly as the kits could be customized to suit user needs
such as accreditation and results transmission.
MEC Scenario
Registration is done manually involving a minimum of 8 officers at a centre. After
the details have been captured manually on the forms they are delivered to the
ICT Directorate as they move between phases for data entry into the system for
the production of voters roll.
Registration is done in phases by districts starting from the Southern Region
through Central Region to the Northern Region.
Eligible voters are required to register at the centre where they will cast their
votes.
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Disadvantages of OMR Registration system
The system has the following disadvantages:
It involves more staff at the registration centre. Logistically it is cumbersome to transfer teams from one district to another It requires use of more materials It requires more staff for data capturing in the ICT Directorate resulting in
having up to three shifts One is to register where he/she will cast his/her vote. Human error compromises the quality output in production of reports and
records. Training of voter registration staff becomes a challenge considering the
number of people involved.
Lesson Learnt
Biometric system (the simplicity of the BVR operation)
Registration Phases within councils (all constituencies opened at once)
All parts of the country are open at once using mobile registration
There is only two staff at each registration Centre- the equipment operator
and the security offer (cost effective)
High level of competence displayed by staff at a Centre
That one can register anywhere in the country as long as he/she has relevant
documentations to back ones eligibility
Absence of party agents at a registration Centre( showing that stakeholders
have confidence in the ECZ
Simplicity in the operation of the BVR machine
Production of registration statistics copies to stakeholders that enhance
stakeholders’ confidence in the electoral process.
Recommendation
In line with MEC’s Strategic Plan Pillar No.3, Strategic Goal No.4 with a specific
objective of having an accurate, current and relevant voters’ register in place
by 2017 (pg 34), it is recommended that MEC should switch to Biometric Voter
Registration system so as to benefit from technological innovations as sister
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EMBs are doing. If possible this could start in the next registration towards
2019 general elections.
2.9 Inspection/Verification – Voters Roll
Inspection/verification of voters’ roll is conducted in 14 days whereby voters are
encouraged to go and verify their names in the register so that if there are
mistakes they should be corrected before the polling. In order to encourage
voters to go and verify their details, every voter who verifies his/her name in the
voter register is given a slip as evidence for verification of their details. ECZ is only
liable to those who turned out to verify their names in case of mistake/error
discovered on the polling day.
MEC Scenario
During general elections inspection of voters’ roll is done in 7 days. However no
slip is issued to a voter as evidence that he/she inspected the register.
Lesson Learnt
That those who have turned up for inspection exercise have their Voter IDs pasted with a sticker as evidence that they turned up for inspection. Those who didn’t turn up cannot blame the EMB for any irregularity pertaining to their details on the voting day as they did not report for inspection
Recommendation
In order to encourage voters to turn up for the exercise it is recommended to
review the law and introduce the system of issuing slips for those who inspect
the registers. This will also reduce number of cases pertaining to voter register
on the polling as MEC will only be liable to those who had verified.
2.10 Nomination of Candidates
Aspirants collect nomination forms from the Constituency Returning Officers in
their respective councils within the specified time in accordance with their
Electoral Act.
On the day of presentation, all aspirants bring their nominators in person before
the Returning Officers. The nominators are required to bring the Voter
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Registration Card and National Registration Card. The voter cards are verified by
the Commission before nominators append their signatures on the nomination
forms.
The physical presence of nominators assists in prevention of one person
nominating more than one candidate.
The numbers of nominators required are as follows:
MEC Scenario
Aspirants collect nomination forms from the Returning Officers and nominators
indicate their voter registration ID details and append their signatures on the
nomination forms within the specified time in accordance the Electoral Act.
On the day of presentation, nominators are not physically present at the
presentation but their details are verified.
The numbers of nominators required are as per the table below:
Seat Nominators President Elections Not less than 10 per district
Member of Parliament Elections Not less than 10 from within Constituency Local Government Elections Not less 10 from within the ward
Under MEC’s setup, there is a possibility of one person nominating more than
one. If a nominator is disqualified it becomes difficult to find a replacement within
the immediate possible time.
Lesson Learnt
Availability of nominators in person at the presentation day( enhancing
analysis process).
Seat Nominators President Elections 200 from anywhere within the country
Member of Parliament Elections 9 from within the Constituency Local Government Elections 9 from within the ward
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The use of the biometric equipment for the nomination process, including
verification of electors
Candidates may stand for nomination even if they are not registered voters
That analysis of the nomination form is done during the day presentation of
the Nomination forms
Those nominators for the presidential candidates can come from anywhere
That the Chief Justice is the Returning Officer for presidential candidates
A candidate is supposed to have at least two representatives for nomination
process.
Recommendation
It is recommended to have the physical presence of the nominators at
presentation venue for verification.
2.11 Ballot Papers
2.11.1 Printing of Ballot Papers
A ballot paper is tied to a voter. ECZ prints its ballot papers in South Africa. The
quantity requirement per station is determined by number of registered voters at
a polling Centre rounded to the next unit and this is what is submitted to a
printer.
No extra ballot papers are printed. Those authorized to vote elsewhere will just
vote for the president only. Their ballot papers would be covered from the
rounded figure but also those who may fail turn up since from experience turn up
has never been 100%. In practice those to vote elsewhere are not more than five
people per centre.
In rare cases where a polling station runs out of presidential ballot papers those
to vote elsewhere are referred to the nearest polling station to cast their votes.
2.11.2 Integrity cost
Stakeholders are involved in all stages of electoral process. ECZ engages the all
stakeholders to monitor the printing, packaging and dispatch of ballot papers
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from the printer in South Africa to Zambia. These are police officers, political
party representatives, Faith Based Organizations and Anti-Corruption Bureau.
The Commission meets all the expenses associated with this exercise as the
budget provides for it.
After printing, stakeholders are also involved in verification process to be sure
that there are no mistakes and shortages which takes place at the main
warehouse.
Upon delivering the same to councils, stakeholders are at liberty to re-verify the
ballot papers.
Because of full involvement of electoral stake holders at all levels and at the
expense of the ECZ, stakeholders become very reasonable and moderate in
handling electoral issues. In some cases, if issues arise against the Commission,
they are in the fore front defending the EZC.
MEC Scenario
Stakeholders are not fully incorporated into the electoral system and processes
whereby if they are to get involved they do it at their own cost.
Lessons Learnt:
That stakeholders accompany the Commission to oversee the printing process
at the Commission`s budget.
The exact number of ballot papers equivalent to registered voters is printed.
There is ballot paper verification exercise at ECZ by all stakeholders before
delivery to councils.
The Printing of ballot papers on a relatively small size paper (cost effective).
Recommendation
It is recommended that MEC should include full participation of stakeholders
in its budget in all activities especially Political Parties in order to fill the gap
between the Commission and stakeholders. A policy could be formulated to
include the Secretary Generals of Political Parties in all crucial stages of
elections.
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2.11.3 Ballot Paper Verification
After printing, ballot papers are taken to the main warehouse for verification.
District Elections Officers, Returning Officers and Assistant Returning Officers are
invited to come and verify ballot papers for their respective constituencies.
The process ensures that mistakes and shortages are detected in time before
finally delivering ballot papers to the respective Centre’s.
2.12 Polling
2.12.1 Poll staff
Apart from the Commission and Secretariat, elections are run by:
1. Town Clerks / District Commissioners who during the time of elections become
District Elections Officers.
2. Master Trainers
3. Constituency Returning Officers and two Assistant Returning Officers
4. District Elections Trainers
5. Presiding Officers
6. Assistant Presiding Officers where a Polling Station has more than one stream.
Threshold for a stream is 800 voters
7. Poll Clerks (3 per stream): Identification, Inking and Ballot Paper Issuer
8. Usher
9. One Security Officer per stream.
2.12.2 The Polling station
The polling station is marked restricted area with a reflective tape at a radius of
200 meters. Posters depicting a sample of the actual ballot paper, indicating
details of candidates contesting are pasted in the booths and around the Polling
Station.
Polling Stations are opened at 06:00 hours and closed at 18:00 hours in the
presence of one accredited local monitor for each contestant at a time. At both
occasions, the Presiding Officer will declare the centre having officially opened or
closed. A gen set and lantern lamps are provided at a Polling Station for lighting.
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Deployment is done two days before the polling day to allow for adequate setting
time.
All monitors from political parties that contested for Presidential seat are
provided with copies of National Voters Register to use at the polling station for
their reference. As the identification clerk calls out the name they also check in
their registers. If they find the name faster than the clerk they will call out the
page and roll number so that they save time.
The identification clerk calls out the voters roll and page number then the voters
NRC and VRC numbers so that they all confirm the eligibility of the voter. After
confirmation, the identification Clerk and the monitors tick the voter register
against the voter. The Inking Clerks marks the right hand thumb nail of the voter
with indelible marker. The Ballot Paper Issuer writes identification cards’ numbers
on counterfoil then the stamps at the back of the ballot paper confirming its
authenticity before handing it over to the voter.
MEC Scenario
The voting procedure is the same as ECZ only that:
Monitors do not have a copy of voters’ register
Voters dip their fingers in indelible ink.
Monitors are not deployed where they registered.
Polling stations are restricted areas with a radius of 100 meters and not
marked with a reflective tape. Security Officers are deployed 2 per centre.
Lesson Learnt
Packaging and distribution of materials done at council level
Accreditation of monitors using the biometric equipment
Verification of ballot papers by all stakeholders done at EMB HQ
Use of indelible marker
Availability of voter registers to political parties during polling at no cost on
those who have fielded Presidential candidates. The others are given the Voter
Registers at a relatively low cost.
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Declaration of opening and closing of the centre is uniformly done throughout
the country in all the centres.
Recommendation
Subject to availability of resources it is recommended that:
Political parties contesting for Presidential seat be given national voters
register but contribution cost should be attached for the printing.
Political Parties and independent candidates should be advised to deploy their
monitors where they register.
Security Officers to be deployed 1 per stream because it is cost effective.
However this should be negotiated at highest level.
Use of indelible markers should be adopted to replace indelible ink. This will
do away with use of paper towel and gloves. It will also leave the tables clean
as found (need to be included in the electoral law review).
Use of reflective tape to mark the restricted area should be adopted.
Declaration of opening and closing of a centre to be uniformly done
2.12.3 Issuance of ballot papers at the polling Centre
Ballot papers are not transferable between centres regardless of being in the
same ward for LGE and constituency for MP. Political parties and Independent
candidates are advised to deploy their monitors where they registered so that
they vote easily.
During tripartite / general elections, voters are given all three ballot papers at
once. The ink clerk after inking he/she issues one ballot paper (presidential) the
actual ballot paper issuer clerk issues the other two ballot papers (National
Assembly and Local Government). The voter now proceeds to the booth to make
and mark his/her choice thereafter to the ballot boxes. To ensure that voters cast
their votes in correct boxes, one clerk is assigned to guide the voters to cast their
votes in the correct boxes without congesting the polling Centres. The lids for
ballot boxes and the ballot papers have different colors corresponding to
respective elections.
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In case of General Elections, a Polling Station erects more than three booths in
order to ease congestion. Officers on duty casting their ballots away from their
polling stations are only allowed to vote for the president unless if it is in the
same constituency.
Recommendations
It is recommended that ballot papers for all the elections be issued out to a
voter at once.
That more ballot booths be used to ease congestion.
That ballot papers of different distinct colors per elections to be printed so
that voters can easily differentiate them.
That a ballot box guide be introduced to avoid casting a wrong ballot paper
into a wrong box.
That in the event of a ballot paper having been cast in a wrong box, it should
not be declared as null and void but put it in the right box so that it can be
counted together with others as a valid vote.
2.12.4 Counting of votes
Counting of votes is done immediately after the last person casts his/her vote. In
the course of counting, if ballot paper is found in a wrong ballot box, it is taken to
the right category of election and counted as a valid. Stakeholders are well
informed of resolutions in such circumstances during counting. There are no
disputes over such ballot papers.
All necessary forms pertaining to results are filled by the Presiding Officers and
countersigned by accredited monitors. A copy of results is displayed at the polling
Centre.
2.13 Results transmission
The Presiding Officer delivers the polling station results to the Returning Officer at
the constituency totaling Centre. The Returning Officer aggregates all results from
his/her constituency.
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If the Station has more than one stream, the stream results are added up into a
station result. Each stream has an Assistant Presiding Officer who supervises the
stream.
The Returning Officer announces the results and declares the winner for National
Assembly and Local Government elections only. He further sends the results
direct to National Totaling Centre and ECZ Head Office electronically using the
Biometric Registration kit. Besides the CRO there is IT staff from the ECZ who
sends each station result to ECZ HQ.
Lesson Learnt.
Transmission of results using the biometric equipment and SMS`s
The PO also accounts for all elections materials before he/she gets paid the
allowances
2.14 Declaration of Presidential election results
The Chief Justice is the Returning Officer for the presidential election since the
country is regarded as one constituency. Results are tallied as they come from
different constituencies and announced by the Chairperson of the Commission
with the assistance of Director of Elections (CEO).
After the verification and totaling, the Chief Justice resumes the position of
Returning Officer to declare the winner. All results are printed at the National
Totaling Centre and distributed to stakeholders willing to have a copy of it.
Thereafter the Chief Justice relieves himself from the position of Returning Officer
back to usual position of Chief Justice in order to carry out the swearing in
ceremony of the new president.
The law stipulates that the swearing in to be carried out within 48 hours after
declaration of results.
Lessons Learnt:
Declaration of constituency and ward results by the Returning Officer
Declaration of results of Presidential results by the Chief Justice
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2.15 Storage of Ballot papers after voting
Ballot papers are kept in tamper proof envelopes in order to release ballot boxes
for other uses like By Elections. Ballot papers are disposed off after four years to a
company that is hired by ECZ to shred off the ballots papers. ECZ pays the
company.
2.16 Political Party Campaign Financing
Political Parties find their own means of financing their activities including
campaign. They are also not required to disclose their source of income neither
being accountable to any authority.
3.0 THE INFORMATION TECHNOLOGY DEPARTMENT
The IT Department provides support services to the Operational Department on
the following functions:
1. GIS and Delimitation
2. Biometric Voter Registration
3. Inspection of the interim voter`s Register
4. Candidate nomination
5. Accreditation of Observers
6. Elections Results Management
3.1 Biometric Voter Registration
Up to 2005, the ECZ conducted Voter Registration using OMR forms which was
basically manually operated (equivalent to the current Voter Registration system
used in Malawi). In 2010, the ECZ embarked on a major Voter Registration in
preparation for 2011 General Elections using the Biometric Voter Registration
system. The system used car batteries and inverters to provide power to the
Digital Registration Kits.
In the 2015 Registration drive, ECZ procured improved version of the 2010
equipment with an improved camera, printer in addition to power bank and Gen
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sets instead of using car batteries. When a power bank is fully charged, it lasts 8
hours. In the year 2015, 2200 equipment were bought, 2000 of which are in the
field and 200 are backup in case of breakdown. Before taking them to the field for
use, field officers are taken through a rigorous training exercise which takes 5
days. On the 6th day they are subjected to a test and only those who are
successful take the machines to the field.
Before commencing registration on a daily basis, the field staff test runs the
machines on all the provided functionalities e.g. the laptop, camera, printer,
finger print leader (AFIS), signature pad, USB drive and camera light. The BVR
machine also has fields for all forms of disabilities that applicants have. Maps for
all polling Districts and polling stations are also preloaded on the laptop to assist
the field officer to check the catchment areas for registration stations.
In the course of registration, data is periodically backed up to avoid loss of data
due to loss of power or breakdown of equipment.
At the end of a registration phase (mobile period) data is put in USBs for
collection by Council staff and sent to ECZ HQ for register compilation. During
registration, a registrant can register at any registration centre in the country but
should indicate where he/she will vote on the polling day
When compiling the register, his/her name will be reflected at the centre where
one will vote.
3.2 Inspection of the interim Voter Register
During inspection, all kits are sent out to the field. Since quantity of kits is fewer
than the number of centres, one kit services four centres (as we do in Malawi). No
transfers are allowed during inspection and By Elections. This is the time when
people go to centres to verify if their details are available in the register.
3.3 Candidate nominations
The same Biometric Equipment used for registration is used for candidate
nominations. Candidates are given hard copies for them to fill in the required
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details and bring them along with their electors to the Returning Officer where
the IT staff will enter those details in the Kit
Nominators are registered voters in the Ward/ Constituency where their
candidate comes from. However, the candidate can stand even if he/she is not a
registered voter. Nine nominators from the Constituency/Ward are required to
nominate the Member of Parliament or local government candidate.
For President 200 nominators without indicating where they come from as the
whole country is a constituency
A non refundable nomination fee for each election type is payable as prescribed
by the Commission. Returning Officer for Presidential candidate is the Chief
Justice while in Councils there are CROs and WRO who receive nominations for
Parliamentary candidate and Local Government candidate.
Each candidate is required to have two agents to transact business for the
candidate. They too have to be registered voters
For Independent Candidates, symbols are provided by the ECZ. The Kit is
customized to have details of all nominators entered before the nomination is
accepted. The Kit also generated a number of reports relevant to nomination
exercise. At the end of a successful nomination, a ballot paper template is
generated in readiness for the printing of ballot papers.
3.4 Accreditation of Observers
The BVR Kit is also used for the accreditation of observers. Observers are given
printed cards with their photos on it to enable them getting identified during
election observation.
The accreditation process is decentralized with international observers being
accredited at ECZ designated place in Lusaka while local observers are accredited
in their various councils .However the process of accreditation remains the same.
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Before a card is issued, observers are required to read and understand the codes
of conduct form and sign them as an oath for them to swear that they will abide
by the codes of conduct in doing observation
Lessons learnt
Observers sign a code of conduct to regulate their observation
3.5 Results management
After counting of results, the PO records the proceedings of the results on the
relevant forms then brings copies to Constituency Tally Centre where the CRO
aggregates them into Constituency/Ward results and declaration of the results is
done by the CRO.
As results are coming in from Polling Stations to Constituency Tally Centre, there
is at each Tally Centre a Results Management Kit operated by IT Officer from ECZ
who transmits the same information to National Tally Centre/ ECZ HQ. The results
are encrypted as they are being sent then they get decrypted one they reach ECZ
HQ
Hard copies of the results are also faxed to ECZ. For Presidential results, once all
results have come and verified, the Chief Justice is the one who announces the
Presidential results
4.0 GEOGRAPHIC INFORMATION SYSTEMS AND DELIMITATION OF CONSTITUENCY AND WARD BOUNDARIES
GIS section is under IT department in the ECZ setup. ECZ is mandated to
demarcate wards and polling districts as per its statutory act. The ECZ is not
mandated to demarcate constituency boundaries as it is mentioned in the
constitution as such Parliament amends it first before delimitation.
Boundaries of Polling Districts are clearly indicated on the map and every
registration officer has an electronic copy and hard copy of map showing
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boundaries of the constituency, wards, polling districts and polling stations so as
to guide registrants properly in case of misdirection.
From 1996 to 2004 ECZ maps were produced externally by engaging experts from
National Statistical Office and Department of Survey who were also printing the
same in mass.
In 2005, a Delimitation Section was established at ECZ with two officers and two
plotters so that maps could be timely edited, updated and produced as a need
arises.
Geographical Information System uses a combination of software versions which
are purchased or freely downloaded such as Google Maps in order to produce
high quality maps with adequate and relevant information.
4.1 Map Digitization
It took 5 years to digitize the maps so as to have an electronic version in their
database. This makes it easier to merge maps with other Government
Departments data without overlapping.
In 2005, delimitation of wards and polling districts was carried out in consultation
with all stakeholders through delimitation sittings. During these consultative
meetings ECZ produced background maps for discussion.
The process takes into consideration factors such as geographical features, area,
population distribution and communication among others.
In 2014, ECZ carried out a delimitation exercise to review boundaries of wards
and polling districts when the President created more districts. Delimitation
Teams were sent into the field with their computers capturing coordinates and
updating the maps instantly after the stakeholders’ sittings. New wards and
polling districts were generated at the earliest possible time with all relevant
details captured objectively.
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MEC Scenario
Malawi has 4 political regions, 35 councils, 462 wards and 4, 445 polling centres
polling districts.
Advantages of digital maps
It is easy to merge the map with data from other Government Departments.
It is customized/tailor made to the user.
It is easy to retrieve maps for reference.
It is easy to produce various types of reports
With Biometric Voter Registration system voters are properly directed to
right/nearest polling station from where they will cast their votes depending
on where they reside.
MEC Scenario Malawi has 4 political regions, 35 councils, 462 wards and 4, 445 polling centres polling districts. Lessons learnt
Tie a polling station to a polling district
RECOMMENDATION There is need to review the electoral laws to incorporate the concept of
polling district. This will enable voters to cast vote where they reside and
contribute directly to development of their areas. For example in Blantyre City
Council, Tax Office Polling Centre; for registration there is no problem if BVR is
introduced then it can be maintained as a registration centre. But for polling,
voters’ interest is on the President not the Member of Parliament or
Councilor. This is evidenced by a voter who resides in Chilobwe but casting a
vote at this centre meaning that he has voted for an MP or a Councilor who
will have no influence on development of where he resides.
The introduction of polling districts will also assist in the identification of
catchment area for the registration centre / Polling stations.
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5.0 VOTER EDUCATION AND PUBLICITY DEPARTMENT
There is a Voter Education Committee of the Commission which provides Voter
Education policies on how voter education should be issued out to stakeholders
The structure of Voter Education is as follows;
5.1 National Voter Education Committee
This committee is comprised of CSOs on Voter Education at National level, church
mother bodies ,Christian council of churches, evangelical fellowships ,Pentecostal
mother body, Zambia Police, ACB, Drug enforcement Commission, Zambia
National Information Services, Transparency International, Women`s lobby group
and caritas. Their major responsibility is the formulation of Voter Education
materials. ECZ has capacity challenge to train people on materials development.
5.2 District Voter Education Committee (DVEC)
Each Council has a DVEC coordinator. The TC is the secretary to DVEC. All national
members are also district members at that level.
In each Ward, 2 Voter Education facilitators are recruited
In 2011, District Voter Education Trainers were established. Two trainers at
district level were trained at Provincial level. When they went back to districts
they trained two Ward facilitators. This is done under the supervision of ECZ.
Publicity of Voter Education information is done through radio, TV programs,
drama, print media, leaflets and brochures (given to facilitators in wards). This is
supervised by DVEC.
5.3 Voter Education Resource Centre
The ECZ has a Voter Education Resource Centre which is a brainchild of Australia
Electoral Commission Resource Centre.
The centre is meant to enhance voter education and information dissemination to
various categories of citizens such as school going children from Primary to
Secondary School, Teachers, College / University Students, Researchers, Civil
Society, Faith Based Organisations, Politicians, Youth Organisations, individual
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members of the public, Zambians and non Zambians. It is also part of the
continued efforts by the Commission to provide continuous voter education.
The resource centre is fitted with modern interact information technology
equipment loaded with voter information and the register of voters. Information
on the operations of the Commission and Zambia’s Electoral Process is displayed
on the wall. Visitors to the centre watch a documentary on the history of
democracy in Zambia and will be provided with brochures and fliers with voter
education.
The centre offers a range of programmes designed to suit various ages and
interests. Individuals can choose from:
1. Candidate nomination
2. Voting day
3. Election Results management
4. Election observation and monitoring
5. Personalized or tailored programmes
A group of individuals or organizations can request for special presentations that
may suit their needs. For example, a political party may request for a presentation
on candidate nominations, while a group of election monitors may request for a
presentation on election observation / monitoring.
5.4 Stakeholder Engagement on Voter Education
The ECZ through the Voter Education Department sensitizes political parties and
Traditional Leaders to support Voter Education facilitators in Wards.
Schools are also engaged on Voter education by forming VE School Clubs. During
schools exhibitions, the Department of Voter Education also goes to showcase
what they have about voter education.
Lessons Learnt:
The establishment of a resource Centre and school programmes
Translation of voter education materials into Braille and sign language
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Involvement of the physically challenged persons in materials development
and production
Establishment of National Voter Education Committee
District Voter Education Committees (DVEC)
Stakeholder engagement on Voter Education
Engagement of Voter education facilitators in Wards
Efforts in building the image of the Commission
Embracing the media houses instead of fighting( being antagonistic)
The failure of road shows to attract would be voters as road shows only
attract the youths who are not of voting age
Engagement of consultants in development of publicity materials
Various ways of publicity campaign
Recommendation:
The team highly recommend for the establishment of Voter Education
Resource center. In Zambia it has proved to be beneficial to the Commission
and nation as a whole.
6.0 LEGAL DEPARTMENT
Electoral Commission of Zambia has a fully established legal unit to look into all
electoral litigations as expeditiously as possible so that the integrity of the
Commission is not diluted by unwarranted law suits. This is against the
background that hired lawyers sometimes drug legal issues.
MEC Scenario
The Commission does not have an established Legal Unit.
Lesson Learnt
Establishment of a Legal Department
Drafting of electoral laws
Speed in concluding electoral court cases
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Recommendation
It is recommended that MEC should have its own fully fledged Legal Unit to
look into electoral cases so that they are finalized within the shortest possible
time. This is in line with Strategic Plan Thematic Area No.2 Strategic Goal No.
2, Specific Objective 2 as stipulated on page 15.
7.0 PROCUREMENT DEPARTMENT/SECTION
ECZ has a Procurement Section manned by a Head with 3 subordinates (2
Procurement Officers and 1 Assistant Procurement Officer)
The section works in coordination with user departments, Finance and Stores.
During budgeting, the section is involved much with costing.
After consolidation of all departmental budgets into a master budget, the
Procurement Section draws its plan in consultation with all departments as the
first step towards implementation of the budget. In the plan they will indicate
general names of items, their specifications, quantity, expected date of delivery,
lead time, type of procurement method, expected time of initiating the
procurement process and the budget line of each item.
During implementation the section reminds user departments to initiate the
process for those items which are due on the plan to ensure that activities do not
miss targets. All elections related procurement is treated as project procurement.
7.1 Procurement procedures
User Departments prepare requisitions to Procurement Department on what they
want to procure
The user department raises a requisition with items properly specified. The
requisition goes to stores for verification of quantities against stock. This ensures
that only materials which are not in stock and shortfalls are purchased.
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The requisitions have to go through all approval stages. The Finance Department
also has to endorse that money for the requested items is available by checking in
the relevant Budget lines.
This requisition then comes to Procurement Office for procurement processes to
commence
7.2 Methods / types of procurement
ECZ uses four methods of procurement which are shopping, open tender,
selective tender and direct contract. This is done with guidelines from Zambia
Public Procurement Authority (ZPPA) through the Internal Procurement
Committee which has two consultants as independent decision makers so that
ECZ gets more value from the money to be spent. The procurement method
depends on the value of the items requested and technical specifications.
Upon identifying a supplier and contract finalized the user department is involved
in the management of the contract. Penalties are given to suppliers for late
deliveries and sub-standard supplies.
Upon delivery, Stores section inspects the consignment so as to confirm if it
conforms to the specifications requested. An inspection certificate is issued by
Stores Section accepting or rejecting the lot. This is to ensure that the
organization derives the maximum value from the money spent.
It is Procurement Section’s responsibility to carry out regular follow up on
suppliers so as to find out if they are facing challenges in meeting the deadlines,
and specifications. The user department is regularly updated on the same.
In extreme cases, orders are cancelled. The procurement contract has such
clauses for breach of delivery time as well as supplying substandard materials.
List of suppliers is updated on regular basis to ensure that only reliable suppliers
are maintained.
ECZ has a threshold of up to 50, 000 Zambian kwacha beyond which the approval
is required from ZPPA. For elections materials, procurement commences much
earlier so that there is no delay in supplying of materials by suppliers which could
have negative effect in the implementation of electoral activities.
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Lesson Learnt
Sun System software that coordinates Finance, Elections, Procurement and Stores
Management of contract by user department
Regular status updates
Penalties on untrustworthy suppliers
Composition of IPC (comprised of two external members)
8.0 FINANCE MANAGEMENT DEPARTMENT
The role of the department is financial management. During planning, the
department submits assumptions based on economic trends to all other
departments to enable them prepare budgets for their respective departments.
Budgets are discussed and consolidated to come up with master budget. These
are in two categories i.e. Elections Budget and ORT.
The Finance Department submits the budgets to Parliament and they are required
to defend the same.
Development Partners access the budget from the Treasury and pledge their
areas of support. From experience, Development Partners preference has been
capacity building. Funds for such areas are remitted direct to Treasury. The
budget is approved and funds remitted in full.
In case, Treasury does not release funds for elections then the Treasury becomes
answerable to the public.
In the course of budget implementation, the Commission where necessary is
allowed to submit a supplementary election budget to ensure that operations are
not disrupted due to lack of funds.
After approval of the budget, departments draw calendars of activities which also
assist the department in cash flow management.
All payments are prepared at the Head Office however during elections it is not
possible for the department to be physically available in all districts. This being
the case they use district council structures to implement programmes.
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All councils are advised to open a bank account specifically and dedicated to
elections’ funds. Bank charges for these accounts are paid by ECZ. The
Commission has the right to monitor all transactions in these accounts.
At the council, the Finance Officer is appointed as the controller of this account
and is held fully liable for any mismanagement. Then a cashier and stores clerk
are appointed as council finance team. These are entitled to monthly allowance
during elections. All these are supervised by the District Elections Officer who is a
council secretary.
8.1 Briefing of Council Finance teams during Electoral activities
All Council Finance Teams are invited to the Head Office to undergo training on
how the elections accounts should be managed.
During operations ECZ transfers fund directly into councils’ accounts. Councils are
given copies of budget to guide them in making payments. Each activity has its
own budget line. The Finance Officer is not allowed to vary the budget lines
without written approval from the Deputy Director Finance on recommendation
from the Director.
The Finance Officer is required to account for all the finances given to the council
within seven days after each activity. If this fails, ECZ instructs the bank to transfer
the balance back into its main account.
Internal Audit Department conducts checks and balances in all councils
immediately after an activity and any adverse variances on transactions are
recovered from the council’s team allowance.
In case of misappropriation, the Commission is able to prosecute the involved
officer through the Local Government Service Commission which is a mother body
of all council staff.
Challenges
Like any other support department, it has challenges and one of them is lack of
proper planning and coordination from other departments whereby they would
want payments to be effected at the shortest, period when in fact even banks are
closed.
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Lessons Learnt:
Budgeting and presentation of the same
Decentralization of payment systems where Council officers are given the
money to pay out and then liquidate the same
Coordination at council level
District Electoral Account during electoral activity
Government honors the budget in full
Elections budget is protected
9.0 INTERNAL AUDIT DEPARTMENT
ECZ has an Internal Audit Department manned by a Manager and four Internal
Auditors. The Department was established eight years ago. Prior to that, the
internal auditing was done by the Finance Department.
Types of Audit the Department undertakes
1. Pre Audit of payment
2. Post Audit of an activity
3. Financial audit
4. Performance audit
5. IT Audits on IT Systems
6. Special audit at request of management
The department reports to Audit Committee which comprises of four external
members drawn from Zambia Public Procurement Authority, the Accountancy
Board, and the Law Association of Zambia among others. The Chairperson of the
committee is elected from the members. However the Director (CEO) is an ex-
officio member. The committee reports to the Commissioners on a quarterly basis
who further forward the audit to Secretariat (Management)
External Audits are carried out by only Auditors from Accountant General’s office.
These collaborate with the Internal Auditors as their scope of audit is normally
based on the internal audit periodic reports.
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Basically the department’s function is to provide assurance services on systems,
policies and procedures put in place in the attainment of organizational objectives
as laid down in the Strategic Plan.
In addition to financial audit the department also does performance audit on all
departments in order to assess if their departmental plans and objectives are in
line with the organization’s strategic plan using balanced score card method then
advise on what can be done to seal the gaps identified. It works to see what value
the department can add to the commission using available resources.
The department is currently building its capacity to carry out performance audit
on Information Technology (IT) department.
9.1 Audit on payments
The department carries out critical pre-audits on all payments made at the Head
Office in order to minimize queries and risks. Post activity audits on all electoral
activities are carried out at district council level on all electoral activities taking
place in Councils.
9.2 Auditing of district councils
All district council members of staff engaged in electoral activities are properly
trained before elections on how to handle election related activities. Database
regarding the staff is regularly updated. This ensures that council staff is
conversant and responsible enough for the errands.
In case of malpractice the council staff is prosecuted through their respective
Provincial Authority.
In order to ensure efficiency and effectiveness in accountability council audits are
carried out immediately after every activity so that recoveries are done in time.
Where records are not tallying and the Auditor is beyond doubt that there is a
misappropriation/non accountability of funds the amount is recovered from all
council staff as a team through their monthly allowances.
On fuel accountability, the department does not only rely on receipts but also
other fuel utilization form. ECZ deposits the payment with the fuel suppliers. For
each activity, a separate cheque is issued and instructs the council to draw from
the specific filling station. During audit the records at the council are compared
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with the fuel supplier’s report. Councils are required not to vary funds on budget
lines as they carry out activities unless a clearance has been granted by the
Director of Elections in writing.
On materials, the department ensures that they are accounted for at each and
every stage as this has been one of the areas external auditors misrepresent
information thereby denting an organization’s reputation. The department
ensures that there is always proper documentation at every stage as materials
change hands during distribution and retrieval. Drivers are briefed on how to
distribute elections materials before activities start.
During distribution drivers are given delivery notes to be signed by district council
election officers confirming receipt and copies filed at the Head Office. This makes
drivers accountable for their role played in the activity.
If materials miss in the field, the cost of the missing items is surcharged on the
team involved. Where sums to be recovered are too huge, the Ministry of Local
Government to whom council staff is accountable as their employer is also
engaged to assist in the recoveries. Reconciliation is done at every stage/level.
Lesson Learnt:
Financial Pre audits
Performance audit
IT Systems audit
Composition of Audit Committee
10.0 HUMAN RESOURCES & ADMINISTRATION
The Department is headed by Human Resources Manager. This deals much with
recruitment, transport and training among others.
10.1 Recruitment
The general policy is for permanent staff to grow with the institution whereby
most of the posts are filled internally. However where the skills and capabilities
are lacking internally they source from outside.
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The department ensures that a right person is placed at a right position for
effective attainment of organizational goals and objectives.
Recruitment of field staff is done at council level through the District Elections
Officers. Vacant positions are advertised and interviews conducted. Those
successful their names are displayed on notice boards to allow the public vet
them before they are trained. Appointment depends on one’s performance
during training. Once appointed, the field staff report to the councils. In case of
disciplinary matters, they are resolved at the council level and the DEO reports
the outcome to ECZ HQ.
Lesson Learnt
Delegated authority to councils on recruitment of field staff
Enhancing skills retention; by prioritizing internal staff on vacant positions.
Transport management with the presence of a service bay to cater for minor
services and vehicle maintenance and routine checks
Availability of vehicles for electoral activities
Flexibility in hiring of vehicles to meet the shortfall
Management of fuel in councils by council staff
11.0 FOR IMMEDIATE IMPLEMENTATION The Registration hand book and Polling Procedure manuals to start with the
vision, mission and core values of the Commission.
Structure of the Commission should be spelt out clearly
Arrows for directing registrants/voters at the centre,
Route plan for deployment of staff and materials should be made available
during deployment.
Material accountability immediately after handing over results and before
staff get paid.
Marking of the polling area as out of bound with reflective tape.
Ball point pens should be those with a base and string so that they are just fix
in the booth. No need for strings.
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Ballot Papers
Sample of Ballot paper should be pasted in the polling booth during polling as
part of voter education and also enhancing transparency.
The size of the ballot paper to be revisited so as to efficiently make use of the
paper
Development of handbooks
Development of Elections Officer’s handbook Development of Electoral Regulations Demarcation
Demarcating of polling districts as catchment areas for polling station.
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12.0 CONCLUSION Generally the team has noted that there is political will in the management of
elections. This is evidenced by how the elections budget is funded for the running
of elections.
There is also close collaboration amongst various sections of the Commission. This
makes it easy for coordination in the implementation of electoral activities.
In view of the various lessons learnt in the entire electoral cycle, it is highly
recommended that for the improvement in the management of elections, this
programme should extend to other members of staff covering all directorates so
that we draw in a lot of expertise from this programme in order for us to enrich
our elections management skills. This if done will ultimately help in having
elections which are handled in a professional and credible manner as well as
ensuring that stakeholders have confidence and trust in the manner that Malawi
Electoral Commission handles its elections. This therefore calls for a wider range
of staff to be exposed to such placement programmes as a way of skills
enhancement in the management of elections.
It is further recommended that finances allowing, officers could also be availed to
Electoral Commission of Zambia for the practical nature in Management of
elections as most of what was learnt in the study visit was on a theoretical
approach as most of the time was spent with officers in their respective offices.
We are optimistic that management would agree with the team’s
recommendations and endeavor to implement them once the report has been
accepted and adopted
It can be concluded that the programme is of paramount importance to the
Commission especially taking into consideration the team’s direct involvement in
elections. With the lessons learnt and the experiential learning, the programme
has greatly broadened the experience for the team thereby enhancing the quality
and conduct of future elections.
The team therefore would like to thank the Executive management for the United
Nations Development Programme (Malawi) and Malawi Electoral Commission for
the opportunity accorded to them to participate in the programme.