ENHANCING LEGAL AND ELECTORAL CAPACITY … | P a g e I. EXECUTIVE SUMMARY Throughout 2013, the UNDP project ‘Enhancing Legal and Electoral Capacity for Tomorrow, Phase II’ (ELECT

ENHANCING LEGAL AND ELECTORAL CAPACITY FOR TOMORROW

Phase II (2012-2015)

ELECT II 2013 ANNUAL PROJECT PROGRESS REPORT

DONORS

Australia Canada Denmark

EU France Germany

Italy Japan** Netherlands

Norway Republic of Korea* Sweden

Turkey* United Kingdom United States of America

* Continued support from ELECT I budget

** Japan signed an agreement with UNDP to support the electoral process and the IEC, contributing

to the ELECT II objectives outside the basket fund.

PROJECT INFORMATION

Project ID: 00063078 Duration: January 2012 – December 2015 ANDS Component: Governance, Rule of Law, and Human Rights Contributing to NPP: National Governance cluster:

o “National Transparency and Accountability Program” (component 3.7. oversight mechanism for elections);

o “National Law and Justice for All Program” (legal reform of the electoral framework);

o “National Human Rights and Civic Responsibilities Program” (component 3.2 increased effectiveness of IEC and ECC).

Human Resources cluster: o “National Action Plan for Women of Afghanistan” (NAPWA) (component 5:

Public Education and Awareness Raising). CPAP Component: Outcome 4: The state and non-state institutions are better able to promote democratic participation and be accountable to the public UNDP Strategic Plan Component: Democratic Governance Total Budget: US $ 338,157,793 Annual Work Plan 2013: US $ 75,207,100 Implementing Partner: Independent Election Commission of Afghanistan (IEC) Chief Technical Advisor: Deryck Fritz Programme Specialist - Elections, UNDP Country Office: Mir Nadia Nivin Project Planning, Monitoring and Reporting Specialist: Filip Warnants

PHOTO COVER PAGE: Female first time voters registering at a voter registration centre in Bamyan

(August 2013) – Photo by ELECT II

ACRONYMS

AGCHO Afghan Geodesy and Cartography Head Office ANA Afghan National Army ANSF Afghan National Security Forces AWP Annual Work Plan CD Capacity Development CDA Capacity Development Assessment CDAP Capacity Development Action Plan CEO Chief Electoral Officer CoC Code of Conduct CSC Civil Service Commission CSO Civil Society Organization DIM Direct Implementation Modality DFC District Field Coordinator DSRSG Deputy Special Representative of the Secretary General EDR Electoral Dispute Resolution ELECT / II Enhancing Legal and Electoral Capacity for Tomorrow / II ERD External Relations Department FEFA Free and Fair Election Foundation of Afghanistan GIROA Government of the Islamic Republic of Afghanistan GIS Geographic Information System GU Gender Unit IEC Independent Election Commission IECC Independent Electoral Complaint Commission IFES International Foundation for Electoral Systems ISAF International Security Assistance Force FEFA Free and Fair Election Forum of Afghanistan GARMIN Grants Agreement and Risk Management MoCIT Ministry of Communications and IT MoD Ministry of Defence MoF Ministry of Finance MoH Ministry of Haj MoI Ministry of Interior MoJ Ministry of Justice MoU Memorandum of Understanding MoWA Ministry of Women Affairs M&E Monitoring and Evaluation NAM Needs Assessment Mission NID National ID NIM National Implementation Modality NGO Non-Governmental Organization PEO Provincial Electoral Officer PERO Provincial External Relation Officer PO Public Outreach POD Public Outreach Department PPSU Policy and Program Support Unit PSA Public Service Announcement QA Quality Assurance SC Security Council SNTV Single Non-Transferrable Vote SOPs Standard Operating Procedures SRSG Special Representative of the Secretary-General TEFA Transparent Election Foundation of Afghanistan TMAF Tokyo Mutual Accountability Framework ToT Training of Trainers T&CB Training and Capacity Building T&CBD Training and Capacity Building Department UN United Nations UNAMA United Nations Assistance Mission in Afghanistan UNDP United Nations Development Programme VR Voter Registration

TABLE OF CONTENTS I. EXECUTIVE SUMMARY .................................................................................................................... 1

II. CONTEXT AND BACKGROUND....................................................................................................... 10

III. RESULTS..................................................................................................................................... 14

OUTPUT 1: Sustainability of the IEC is enhanced via the development of both its

institutional and staff capacities .............................................................................................. 14

1.1 Organizational and Staff Capacity .................................................................................... 14

1.2 Legal framework, regulations and Codes of Conduct ................................................. 18

1.3 Physical infrastructure and security ................................................................................ 21

1.4 Gender mainstreaming ........................................................................................................ 24

EXPENSES FOR THE YEAR .............................................................................................................. 24

OUTPUT 2: A sustainable, long-term approach to voter registration in Afghanistan,

which also promotes maximum participation of eligible citizens in the 2014 and

2015 elections, is developed and implemented ................................................................... 28

2.1. Voter Registration ................................................................................................................ 29

2.2. e-Tazkira synergies .............................................................................................................. 34


OUTPUT 3: The IEC’s engagement and informational outreach with key

stakeholders and the electorate is enhanced ...................................................................... 37

3.1 Public Outreach ..................................................................................................................... 38

3.2 External Relations ................................................................................................................. 44

3.3 Candidate Registration ........................................................................................................ 47

3.4 Gender mainstreaming and women’s outreach ............................................................ 50


OUTPUT 4: The IEC’s operational management functions and the project support

services are provided in a transparent, efficient and effective manner ........................ 54

4.1 IEC’s Operational functions................................................................................................ 54

4.2 ELECT II project resources management ....................................................................... 56

4.3 ELECT II direct operations support .................................................................................. 57


OUTPUT 5: The conduct of polling, counting and results management operations by

the IEC is improved ..................................................................................................................... 60

5.1. Electoral Operations ............................................................................................................ 61

5.2 Results management ............................................................................................................ 62

5.3 Polling centre verification ................................................................................................... 63


OUTPUT 6: The electoral dispute resolution mechanisms of the electoral process

are enhanced ................................................................................................................................. 65

6.1 IECC .......................................................................................................................................... 66


OUTPUT 7: The integrity of the electoral process is enhanced through a fully-

supported media regulatory body ........................................................................................... 69

7.1. Media Commission .............................................................................................................. 69


IV. GENDER SPECIFIC RESULTS ....................................................................................................... 73

a. IEC Gender Strategy and Institutional Gender Mainstreaming ................................ 74

b. IEC’s efforts on promoting women to participate in candidate nomination ........ 74

c. Female participation in the Voter Registration ............................................................ 76

d. UN Joint Guidelines for Enhancing the Role of Women in Countries Emerging

from Conflict or Political Transition ........................................................................................ 77

V. PARTNERSHIPS .............................................................................................................................. 79

VI. RISKS .......................................................................................................................................... 81

VII. ISSUES ....................................................................................................................................... 82

VIII. LESSONS LEARNED .................................................................................................................... 85

IX. FUTURE PLANS .......................................................................................................................... 93

X. ANNEXES ....................................................................................................................................... 95

A. Annex 1: Financial Table ........................................................................................................... 95

B. Annex 2: Expenses by Output ................................................................................................... 95

C. Annex 3: Expenses by Donor ..................................................................................................... 95

D. Annex 4: Risk Log ...................................................................................................................... 95

E. Annex 5: Issue Log ..................................................................................................................... 95

F. Annex 6: IEC Training and Capacity Building programmes in 2013 .......................................... 95

G. Annex 7: IEC Standard Operating Procedures developed in 2013............................................ 95

H. Annex 8: ELECT II Capacity Development approached and efforts to IEC (2012-2013) ........... 95

I. Annex 9: 2013 provincial Voter Registration ‘top-up’ details ................................................... 95

J. Annex 10: Candidate Nomination details ................................................................................. 95

K. Annex 11: Key dates IECC establishment .................................................................................. 95

L. Annex 12: ELECT II project M&E verification methodologies (2014) ........................................ 95

M. Annex 13: Key dates IEC 2014 Elections Operational Plan ...................................................... 95

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I. EXECUTIVE SUMMARY

Throughout 2013, the UNDP project ‘Enhancing Legal and Electoral Capacity for

Tomorrow, Phase II’ (ELECT II) has targeted its support to the electoral process in

Afghanistan with a clear focus on the 2014 horizon, a crucial year in terms of both

political and security transition. As a result, 2013 can be characterized as a

momentous year, resulting in an improved foundation for the conduct of the 5 April,

2014 Presidential and Provincial Council elections.

Achievements that could potentially underscore more credible and inclusive elections

include: an improved legal and regulatory framework; a new nine-member Board of

Commissioners of the Independent Election Commission (IEC) appointed according

to more inclusive procedures; and the establishment of a permanent five-member

Independent Electoral Complaints Commission (IECC)1. Along with the issuance of

an electoral timeline well in advance of the 2014 elections, these developments have

charted a course for electoral preparations whereby the Government of the Islamic

Republic of Afghanistan (GIRoA) has been increasingly aligning itself with electoral

commitments agreed with international partners in the context of the Tokyo Mutual

Agreement Framework (TMAF). As such, the successful conduct of the 2014

elections is a key milestone, and would represent the first peaceful transition of

power in Afghanistan.

In 2013, UNDP, the IEC and donor partners achieved a collective vision for a revised

Project Document, which transformed ELECT II from a solely capacity building role

to incorporate direct electoral support. From its inception in January 2012, ELECT II

will now run until December 2015, and includes electoral support for the conduct of

the: 2014 Presidential and Provincial Council elections; 2015 Wolesi Jirga (Lower

House) elections; and possibly District Council elections. The revised Project

Document continues to underscore the ‘Afghanisation’ of the electoral process,

whereby elections are fully Afghan-led and managed.

ELECT II therefore adjusted itself to perform, in addition to an institutional and staff

capacity development role, an integral electoral support function. ELECT II was re-

structured to meet its enhanced mandate, including deployment of a limited field

presence in eight regional capitals. In 2013, ELECT II assisted the IEC with: the

conduct of the voter registration ‘top-up’ exercise; candidate registration;

development of public outreach and stakeholder engagement activities; technical

planning and preparations for the 2014 elections; establishment of the IEC Media

1 On 17 and 20 July 2013, respectively, President Karzai signed the Law on the Structure, Duties and Authorities

of the IEC and IECC, further called the ‘Structures Law’ and the revised Electoral Law and; on 27 July 2013, the President appointed the nine new Commissioners of the IEC, while the appointment of five Commissioners of the IECC on 16 September 2013 marked the establishment of a permanent electoral complaints body.

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Commission; and gender mainstreaming. ELECT II furthermore assisted the IEC

with implementing the project’s financial support mechanisms according to a national

implementation modality (NIM), taking into account on-budget requirements versus

time-bound election preparations. As foreseen in the Project Document revision,

UNDP entered into sub-contracting agreements with UNOPS and the International

Foundation for Electoral Systems (IFES) to provide operational and advisory support

to the newly established IECC.

Voter Registration:

While the year commenced with the

rejection by the GIRoA on 2 January

2013 of the IEC’s second VR plan to

revalidate all previously issued VR

cards (after already having reserved its

support for a full registration exercise of

new voters)2, consensus was reached

amongst partners on a third IEC VR

plan that envisaged a ‘top-up’ exercise

only. The IEC’s two initial plans were

not uniformly accepted, including

amongst some donor partners, and the

GIRoA ultimately rejected the proposal

in favor of a longer-term solution: the national

electronic ID card (e-tazkira) intended as multi-

purpose identification. The ‘top-up’ voter registration

compromise concluded the protracted discussions

between the IEC, the government, and international

partners, which had characterized much of 2012. The

IEC’s VR “top-up” exercise which commenced on 26

May 2013 is limited to: newly eligible/first-time voters;

returnees; voters who moved constituencies; and

those with damaged or lost cards. All previously

distributed VR cards continue to be valid; together

with e-tazkira cards once they are issued. This reality

also altered the scope of Output 2 during the

project document revision in the first half of

2013, moving away from the envisaged

qualitative establishment of a uniform voter

registry towards a longer-term approach of a

voter register to be derived in the future from an

2 Decision of the Council of Ministers on 17 September 2012 and the Clarification Letter of the Office of

Administrative Affairs on 2 January 2013.

Voter registration (Bamyan, 22 August 2013) Photo by ELECT II

IEC CEO Ziaulhaq Amarkhil and ELECT II CTA Deryck Fritz inspecting the new printed voter registration books. (Photo credit: UNDP ELECT II)

41 provincial and 395 district voter

registration centres facilitated in

2013 the registration of 3.4 million

Afghan voters, of whom 1.2 million

are women

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electronic civil registry – to be established by the Ministries of Interior and

Communications and IT.

The IEC VR ‘top-up’ campaign projected an improved IEC capacity for electoral

administration, and moved the institution beyond its inter-election capacity

consolidation phase and into the pre-electoral operational phase. On 26 May, the

IEC initiated the VR (Phase I) establishing 41 registration centers (with separate

male and female facilities) distributed amongst the 34 provincial capitals, and

scheduled to remain open until two weeks prior to polling day. From 27 July until 10

November, the IEC implemented VR (phase II), expanding its VR efforts to districts

by opening 395 additional centres. The VR ‘top-up’ exercise can be regarded as a

notable success for the IEC as: it facilitated the right to vote for eligible Afghan

voters; and it demonstrated improved capacity for complex logistical and operational

undertakings. By the end of 2013, the IEC had almost registered 3.4 million people

(35% women), surpassing initial

projections. The IEC was successful in

opening VR centres in 99% of districts3.

In October and November 2013, the

IEC extended the VR even beyond

district centres by deploying mobile teams to more remote populated areas. ELECT

II provided support to the IEC in a wide range of aspects, from assistance to

conceptual and implementation planning, including enhanced security features on

the VR cards; to providing logistical support to the IEC’s field operations; and support

to procurement of VR materials.

Candidate Registration: From 16 September until 6 October, the IEC undertook the

candidate registration process. After internal verification by the IEC, and adjudication of

complaints by the IECC, the IEC announced on 25 November the registration of 11

presidential candidates and their vice-presidential nominees, as well as 2,713 provincial

council candidates (308

women) to contest the 458

provincial council seats, to

be allocated nationwide

(20% reserved for

women).4 From a technical

and operational

3 Of the 399 planned district registration centres, only four could not be opened at all due to security

constraints: Nawa (Ghazni), Kakar (Zabul), and Baghrana nd Deh-e-shu (Helmand). There were in addition substantial security issues in Alasai (Kapisa), Naka (Paktika), Khogyani (Ghazni), and Waygal and Kamdesh (Nuristan), leading to a delayed or interrupted opening of voter registration centres but not completely undermining the process. 4 On 26 January 2014, the IECC disqualified 25 provincial extra council candidates for failing to meet the

required minimum age of 25 years old. The IECC indicated that further investigation regarding candidates’ requirements is ongoing.

Candidate nomination at the IEC Media Center (Kabul, 06 October 2013) – Photo by ELECT II

2,713 Provincial Council candidates, of whom

308 are women, were nominated in November

2013 to contest for 458 provincial council seats

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perspective, the candidate registration process can be regarded as an overall success.

Together with the VR exercise, it enhanced coordination between IEC HQ and

provincial offices, and solutions were found for distinct operational challenges. The

process, however, emphasized the need for close coordination between the IEC and

IECC on joint timeline planning, as well as the importance of transparent decision-

making at key stages of the electoral

process. The IEC assisted the IECC

with collecting and retrieving the

complaints in the provinces for

submission to the IECC in Kabul.

ELECT II assisted the IEC with design and review of candidate nomination procedures

and forms, as well as with incorporating a significant gender-perspective throughout the

process, not least supporting the IEC efforts to encourage greater women’s registration

through concrete incentives.

Public outreach and stakeholder engagement: Both the VR “top-up” campaign and

the candidate nomination period were accompanied by an integrated public outreach

campaign; spearheaded by ‘indirect’ initiatives including informative TV and radio public

service announcements (PSA), billboards, pole signs and flyers, and underpinned by

‘direct’ face-to-face community interaction through the deployment of 864 civic and voter

educators at district level. An estimated 16.7 million listeners and 2.7 viewers have been

reached repetitively over an on-going period of more than six months through radio and

TV PSAs, respectively. Furthermore, the IEC conducted national and provincial

seminars promoting inclusive elections,

emphasizing women’s participation, conducted

with community and religious leaders, and

women’s and youth networks. The IEC

engaged with tens of thousands of people

directly through these multiple provincial

seminars and face-to-face meetings. In

addition, from mid-July, the IEC launched a

60-operator Voter Information - Call Centre to

respond to election-related queries from the

general public, and by the end of 2013 more than 700,000 calls had been received.

ELECT II played a prominent role in assisting the IEC with planning its public outreach

strategy for the VR exercise and candidate registration, as well as with its overall civic

and voter education campaign for the 2014 elections. ELECT II also supported the IEC

with the design and procurement of public outreach materials; and is arranging

contracting for third party monitoring to follow proper implementation of public outreach

activities in 2014.

Women’s Engagement and Participation: A key focus of ELECT II is to assist the IEC

in promoting women’s participation in the electoral process. This includes contributing a

gender perspective to all IEC planning, procedures, regulations; public outreach and

IEC meeting with stakeholders on public outreach (Kabul, 05 July 2013) – Photo by ELECT II

11 IEC public service announcements reached

circa 17 million radio listeners and almost 3

million television viewers throughout 2013

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stakeholder activities; and internal IEC policy and personnel procedures. The IEC

pursued a three-pronged approach to engaging women in the VR process by: planning

separate VR registration stations (440) for women

operated by female staff; conducting a range of

public outreach activities, including radio and TV

Public Service Announcements encouraging

women’s participation; as well as national and

multiple provincial stakeholder meetings with

community and religious leaders, as well as

women’s and youth networks, highlighting

women’s participation.

The IEC expressed concern over the initial low

level of women’s participation in both the VR and candidate nomination processes, and

undertook pro-active steps to further engage women. These included: provincial

seminars with a primary focus on women’s participation; and the conduct of IEC-

convened ‘Gender and Elections’ coordination meetings with governmental and non-

governmental partners. As a result, the IEC determined to: establish separate female

mobile registration teams to move to more accessible or suitable locations for women.

This resulted in the registration of almost 1.2 million women as voters by end of 2013, or

nearly 35%, exceeding expectations. In terms of candidate nomination, one woman

registered herself as a presidential candidate5, but failed to meet the criteria. In addition,

the IEC decided to fully reimburse provincial council female candidates for their

registration deposit, regardless of

their election result. Consequently,

324 women were registered as

provincial council candidates, of

which 308 were nominated after

the verification and adjudication

process.

IECC: An adjudication mechanism capable of providing effective, timely and

enforceable remedies is central to a credible election process. As such, UNDP pursued

sub-contracting arrangements with UNOPS (operational support) and IFES (advisory

support) for funding through ELECT II. ELECT II also engaged an election dispute

resolution expert to assist UNDP Country Office to launch IECC-intended assistance.

After passage of the electoral legislation which established the IECC as a permanent

five-member commission in July, and the presidential appointment of the five

commissioners in September, ELECT II supported the IEC to implement a

Memorandum of Understanding between the IEC and IECC, whereby the IEC pledged

5 As of closing of the candidate nomination period on 6 October, the IEC had registered 27 presidential

candidates, of which 1 women and 56 first and second vice-presidential nominees, of which 9 women. After the verification and adjudication process of the presidential candidates, only 1 woman remained in the running as second vice-presidential nominee.

In 2013, more than 100 provincial and national IEC

stakeholder consultations engaged tens of thousands

community and religious leaders, government

officials, women, young voters, political actors,

observers, journalists and other stakeholders

IEC Gender and Elections Coordination Meeting (Kabul, 25 September 2013) Photo by ELECT II

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to provide the IECC with initial ‘start-up’ assistance. Despite the late passage of the law

and subsequent appointment of the commissioners, UNOPS and IFES supported from

the fourth quarter of 2013 the IECC to be established and functional. Both institutions

provide continuous operational and advisory assistance to the IECC to enable it to

deliver on its mandate. In October and November, pending the establishment of IECC

provincial offices, IEC’s provincial offices received and forwarded candidate nomination-

related complaints to IECC in Kabul based on a joint understanding that includes

positive collaboration and coordination between both electoral bodies.

IEC Media Commission: On 4 December 2013, the IEC appointed the five-member

Media Commission, after a consultative screening process. The timely establishment of

the IEC Media Commission will permit the IEC to monitor equitable media access and

coverage during the Presidential campaign (2 February – 2 April 2014) and the

Provincial Council campaign (2 March – 2 April). ELECT II prepared a Concept Paper

advising the IEC on the establishment of the Media Commission, based on

consultations with the IEC and other stakeholders, including media representatives. Key

recommendations were accepted, including the five-member composition comprised of

qualified commissioners with the necessary professional authority to effectively advise

the IEC on media regulatory matters. ELECT II also assisted the Media Commission in

developing the IEC’s regulation on media coverage,

underscoring transparency and equitable treatment with

regard to print and broadcast media and paid political

advertising. ELECT II also initiated procurement of a

third-party media monitoring entity, to provide regular

reports to the IEC Media Commission on candidates’

access to media.

Electoral planning: ELECT II contributed significantly to the timely development of

planning documents for the upcoming elections, such as the: Election Operations Plan

for the 2014 elections; Security and Fraud Mitigation Plans; Gender Strategy and Action

Plan; Public Outreach Strategy; Media Commission Concept Paper; and Election

Procurement Plan. These planning documents not only serve as a guideline for the

upcoming elections, but also as an institutional memory for the preparation and conduct

of future elections. To enhance logistical management and proper assets tracking,

ELECT II introduced an electronic assets tracking software to the IEC. To assist the IEC

with electoral planning and implementation, ELECT II recruited 24 international advisors

who were deployed to eight regional capitals in three-person teams (electoral, logistics

and security specialist). Furthermore, ELECT II advised the IEC on the development

and revision of regulations and procedures, as well as self-regulatory Codes of

Conduct, in line with the new legal framework. In 2013, ELECT II further supported the

IEC in conducting coordination meetings with the Ministry of Interior (MoI), the

Afghanistan National Security Forces (ANSF) and the International Security Assistance

Force (ISAF) to secure the VR ‘top-up’ campaign, and to undertake forward security

planning for polling centres. Regarding the latter, in April 2013 the IEC submitted a list

By the end of 2013 more

than 700,000 people had

called the IEC Voter

Information Call Centre –

established in July

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of 6,845 proposed polling centres to the MoI for security assessment. Initial feedback in

July 2013 indicated that security cannot be guaranteed for 258 of the polling centres

(3.7%). The assessment was to be be regularly updated until three months before the

elections6.

IEC Capacity Building: In line with

the principle of ‘Afghanisation‘, a key

objective of ELECT II is long-term

IEC sustainability, and enhancing

IEC capacity to organize elections in

a credible, professional and

successful manner with decreasing

international support. ELECT II is

assisting the IEC with capacity

enhancement efforts targeted at

individual staff, organizational and

institutional levels.

Staff Development: The fact that ELECT II personnel are embedded in the IEC structure

provides for a direct transfer of knowledge and skills. In

addition, ELECT II supports the IEC’s training and

capacity building programmes for permanent and

temporary staff members. In 2013, around 600 IEC

participants (22% women) benefitted from trainings

(including educational grants). In addition, IEC trained

more than 5,600 temporary staff (33% female), with

regard to conduct of the VR ‘top-up’ campaign, as well as preparing 864 civic/voter

educators prior to deployment. An in-depth Capacity Needs Assessment and resulting

Capacity Development Action Plan was finalized, enabling a customized revision of

training opportunities for IEC staff, as well as a focus on organizational capacity

development. Organizational development: ELECT II assisted the IEC in the

improvement of strategic and operational/departmental plans, enhancement of intra-

and interdepartmental communications and

coordination; and strengthening of procedures,

guidelines and systems. The Capacity Needs

Assessment identified the need to further

harmonise internal Standard Operating Procedures

(i.e. Finance, Human Resources, Procurement,

Logistics, and Assets Management) with

government rules and regulations and for consistency with the National Implementation

Modality (NIM). ELECT II assisted the IEC with the development of a number of

6 On 18 February 2014, the IEC confirmed the final list with maximum 6,775 polling centres, representing

21,663 polling stations, of which 8,958 are for women. Depending on security developments, the ultimate number of opened polling centres could be further reduced.

ELECT II asset tracking system training (Kabul, 26 August 2013) - Photo by ELECT II

In 2013, the IEC trained more than

5,600 permanent and temporary

staff members (33% women) to

facilitate the VR ‘top-up’ and

increase awareness

More than 660 IEC staff (22%

female) benefitted directly in

2013 from ELECT II -

supported IEC trainings and

capacity development

programmes

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standard operating procedures (SOP). Moreover, ELECT II initiated in the last part of

2013 capacity assistance and engagement with the newly appointed Commission. In

addition, ELECT II continued to enhance the IEC’s physical infrastructure by: upgrading

security reinforcements at HQ and in the provinces; finalizing the construction of a

training centre, relocating and reinforcing the data server room at IEC HQ; and initiated

construction of 12 new provincial offices and warehouses to be finished by 2014/2015.

IEC Financial Sustainability: In 2013,

ELECT II assisted the IEC with its first ever

national budget submission for 2014 to the

Ministry of Finance (MoF). This could be

seen as a first step to ensure the IEC’s

sustainability, particularly with regard to its

running costs and trainings7. Furthermore,

ELECT II assisted the IEC with the

opening of a separate bank account in the

name of the IEC. This is step forward for

properly enabling the National Implementation Modality (NIM). In late 2013, a Micro

Capacity Assessment was initiated to determine the risk assessment for different types

of payment modalities, envisaging a combination of financial management tools as NIM

advances to the IEC and direct payments by UNDP, leading to long-term capacity

building of the IEC in terms of financial processes and a more sustainable national

approach of the process. ELECT II, under the leadership of the UNDP Country Office,

assisted the IEC with discussions with the Director-General of the Budget Office to

regulate the salary structure of IEC staff as per accordance with Afghan Law.

Electoral Security: Electoral security issues affected the IEC directly in 2013, with the

murder of the IEC Provincial Election Officer (PEO) for Kunduz, Mr. Amanullah Aman

on 18 September. ELECT II expresses its sincere condolences to the IEC and to

Engineer Aman’s family. Also in September, several IEC district VR staff were abducted

in Faryab, but were fortunately released unharmed in

December. The UN Special Representative of the

Secretary-General Ján Kubiš condemned on different

occasions electoral-related violence and security

incidents, and called upon “all concerned to ensure the

peaceful completion of the electoral process” as it is

“the fundamental right [of every Afghan citizen] to

express [his/her] democratic will and to vote in an

atmosphere free of intimidation and violence”8.

7 On 15 January 2014, the Wolesi Jirga approved the national budget for the IEC and IECC for 2014, respectively

US $4,087,000 and $1,786,000. 8http://unama.unmissions.org/Default.aspx?tabid=12254&ctl=Details&mid=15756&ItemID=37668&language=

en-US

IEC Provincial Electoral Officer of Kunduz was killed in a targeted assassination on 18 September 2013

IEC constructing its new training centre (2013) Photo by ELECT II

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Looking Forward: With the assistance of ELECT II, the IEC enters 2014 with an

improved electoral framework and enhanced professional capacity to conduct the 5

April Presidential and Provincial Council elections. However, in order to maximize these

advantages to the benefit of a more credible, inclusive and democratic electoral

process, it is essential that the Constitutionally-mandated independence of the IEC is

fully respected. The IEC Board of Commissioners and Secretariat have been vested

with the highest responsibility of ensuring the right to vote for all eligible voters, and

seeing that each individual’s vote, including those of women, are honestly counted,

aggregated and translated into final results that reflect the will of the Afghan people.

Likewise, the IECC also has a key role in ensuring an opportunity for voters and

electoral contestants to seek judicial relief, and ensure election results in accordance

with the law. Even though neither the IEC, nor the IECC, have responsibility for security

challenges or the broader political environment during the electoral process, they can

ensure the highest integrity and professional standards within their respective

mandates. By doing so, they can ensure that the competition for political office is

conducted in line with the law. This will be greatly facilitated by structured coordination

and a collegial approach by both institutions, for the common good of the electoral

process. Ultimately elected office is about serving the public interest, and a peaceful

transition of power will surely serve the national interest to the highest degree, and

usher in a new chapter for Afghanistan’s future political life and development.

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II. CONTEXT AND BACKGROUND

Afghanisation of the electoral process and the role of the United Nations

The passage of the two electoral laws as well as the inauguration of the new

Commissioners of IEC and IECC underscore the ‘Afghanisation’ of the electoral

process. The upcoming elections are Afghan-managed, Afghan-led and Afghan

owned. The role of the United Nations is to support the efforts of Afghan electoral

authorities to prepare and conduct credible elections, with an emphasis on

sustainability, integrity and inclusiveness. On 19 March 2013, the United Nations

Security Council (UNSC) unanimously extended the mandate of the United Nations

Assistance Mission in Afghanistan until 19 March 2014, which includes a specific

focus on elections. UNSC resolution 2096 emphasizes “support, at the request of the

Afghan authorities, the organization of future Afghan elections, including the 2014

presidential and provincial council elections, as

well as to strengthen, in support of the

Government of Afghanistan’s efforts, the

sustainability, integrity and inclusiveness of the

electoral process […]; and provide capacity

building and technical assistance to the Afghan

institutions involved in this process”9. Against this

background, the UN fielded in January 2013 the

second phase of a Needs Assessment Mission

(NAM) that assessed the parameters of possible

election support for the upcoming Presidential and

Provincial Council elections in 2014 and Wolesi

Jirga elections (Lower House of Parliament) in

2015.

On 1 July 2013, Mr. Jan Eliasson, UN Deputy Secretary-General, during his visit to

the IEC, welcomed the upcoming extension of the

ELECT II project, and underscored the

importance of electoral preparations in

anticipation of the 2014 Presidential and

Provincial Council elections. On 19 September

2013, in his briefing to the UN Security Council,

Special Representative of the Secretary-General

(SRSG) Ján Kubiš referred to the importance of

the ‘constitutional transfer of power’ in

Afghanistan in 2014, and noted progress on the

legal framework and the electoral preparations.

9 http://www.un.org/News/Press/docs/2013/sc10943.doc.htm

UN Deputy Secretary General, Jan Eliasson, meeting former IEC Chairman Manawi (1 July 2013) – Photo by ELECT II

UN Special Representative of the Secretary General, Ján Kubiš briefing the UN Security Council on 19 September 2013 on Afghanistan. Photo by UNAMA

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ELECT II project document extension: The ELECT II project is the technical

instrument of the UN to provide support to the electoral process in Afghanistan.

Linked to the outcome of the UN Needs Assessment Mission, NAM, as well as the

renewed mandate for a UN role to support the electoral process in Afghanistan,

UNDP undertook a project document revision in 2013 that extended ELECT II

beyond its initial capacity development scope (2012-2013), to include electoral

support for the 2014 / 2015 elections. The project extension assessment was also

linked to a ‘mid-term’ review in the first quarter of 2013 of the initial ELECT II project.

Endorsed by the Project Board on 12 June 2013, and signed between UNDP and the

IEC on 27 August after the establishment of the new Commission, the revised

ELECT II Project Document

includes seven outputs to

deliver electoral support to the

conduct of the 2014 Presidential

and Provincial Council elections

and the 2015 Wolesi Jirga and

(possibly) District Council

elections, while simultaneously

envisaging sustainable capacity

development to the IEC and

IECC. On 6 September, donor

partners pledged their support

to the funding of these elections through ELECT II. The shift from inter-elections

capacity building to direct electoral support for the preparation and conduct of the

2014 and 2015 elections does not detract from the technical support role that ELECT

II plays in achieving the following seven envisaged outputs, further elaborated in this

report. On 28 November, ELECT II held an internal review workshop to address

project progress, challenges and recommendations.

Output 1 Sustainability of the IEC is enhanced via both its institutional and staff

capacity development;

Output 2 A sustainable, long-term approach to voter registration in Afghanistan,

which also promotes maximum participation of eligible citizens in the

2014 and 2015 elections, is developed and implemented;

Output 3 The IEC’s engagement and informational outreach with key stakeholders, including the electorate, is enhanced;

Output 4 The IEC’s operational management functions, and the project support services, are strengthened;

Output 5 The conduct of key electoral operations for the 2014 and 2015 elections by the IEC is improved;

Output 6 The electoral dispute resolution mechanism is enhanced; Output 7 The media regulatory mechanism for the electoral process is

enhanced.

ELECT II project document signing ceremony (Kabul, 27 August 2013) ELECT II photo

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Legislative reform of the electoral framework: 2013 marked the conclusion of

protracted legislative reform discussions on the electoral framework. On 17 July

2013, President Karzai signed the Law on Structure, Duties and Authorities of the

IEC/IECC (Structures Law), submitted by a Joint Committee of the Wolesi Jirga

(Lower House) and Meshrano Jirga (Upper House) on 13 July. The IEC is now a

nine-member commission selected for a period of six years, with the Chair, Deputy

Chair and Secretary selected by the commission membership for a three-year period

(maximum two terms). The IECC is now a permanent commission comprised of five

members appointed for a period of six years, with no international representatives,

as had previously been the case. The legislation also foresees a more consultative

appointment process of IEC and IECC Commissioners, with the President making

final appointments based on a list of nominees submitted by the respective IEC and

IECC Selection Committees. In 2012, ELECT II had provided assistance to the IEC

when drafting a first version of the

new Electoral Law, underscoring

universal principles and international

practices.

On 20 July 2013, President Karzai

signed the Electoral Law submitted

by the parliamentary Joint Committee

of the Wolesi and Meshrano Jirgas

on 15 July. Significantly, the new

legislation includes: Single Non-

Transferable Vote (SNTV) for Wolesi

Jirga and all council elections; Out-of-Country voting only if possible (refugees,

diplomatic missions); 20% reserved seats for women in Provincial Councils (reduced

from 25%); no reserved seat for Hindus/Sikhs in the Wolesi Jirga10; ten Kuchi seats

(seven designated constituencies for Kuchi males and three for most voted females

nationwide); vote counting to be conducted at polling stations; election complaints

adjudicated by a permanent IECC; IEC to announce and publish final results after

completion of the vote count and adjudication of complaints; and elaborated

provisions for international/domestic observers. Unlike previously, the law does not

contain provisions regarding postponement, deferment or suspension of elections.

The campaign period for presidential candidates is reduced to 60 days, and for the

Wolesi Jirga and provincial councils to 30 days; and new campaign finance

thresholds are established (presidential candidates 10 million AFN, Wolesi Jirga 1

million AFN, provincial councils 500,000 AFN).

10

A subsequent Presidential Decree envisages one reserved seat for a Hindu/Sikh representative but this Decree was rejected by the Wolesi Jirga. A Joint Committee of the Wolesi and Meshrano Jirga will further discuss the matter.

ELECT II senior management (from left to right: Gerald Mitchell, Daniel Hinchcliff, Deryck Fritz, Oskar Lehner, Azhar Malik) – Photo by ELECT II

13 | P a g e

IEC and IECC Commissioners: The passage of both laws called for the

appointment and establishment of a new Board of Commissioners for both the IEC

and IECC respectively. According to the Structures Law, the six-person Selection

Committee comprises the: Chairs of Wolesi and Meshrano Jirgas; Chief Justice of

Supreme Court; Head of Independent Commission for Oversight of Implementation

of Constitution; Head of Afghan Independent Human Rights Commission; and one

CSO representative.11 The Selection Committee short-listed, through an open

application process, 27 potential nominees for IEC Commissioners and 15 for IECC

Commissioners, which were sent to President Karzai for his final decision. On 29

July 2013, President Karzai selected the following nine IEC Commissioners to

replace the previous Commission: Ahmad Yousuf Nuristani (Chairman), Abdul

Rahman Hotaki Abdurrahman (Deputy Chair), Gulalai Asakzai Azizullah (Secretary),

Sharifa Zurmati Wardak, Sarir Ahmad Barmak, Laila Ahrari, Hussain Gurziwani,

Suleiman Hamid, and Mohammed Aziz Bakhtiari. In terms of gender, the new

Commission consists of three women and six men, exceeding the legal quota for a

minimum of two female Commissioners. In terms of ethnicity, it comprises three

Pashtuns, one Tajik, one Hazara, one Uzbek, one Sadat, one Aymaq, and one

Nuristani. Furthermore, on 5 August 2013, incumbent IEC Chief Electoral Officer

(CEO), Ziaulhaq Amarkhil, was officially re-appointed by President Karzai.

On 16 September 2013, President Karzai appointed the five Commissioners of the

IECC for a six-year term: Abdul Saatar Sadaat (Chairman), Rida Azimi (Deputy),

Nadir Mohseni (Secretary and Spokesperson), Azizullah Aryafar and Paighambar

Qul Doghan. The Commission is ethnically composed of one Pashtun, two Tajik, one

Hazara and one Turkmen; and comprises one woman (Ms. Rida Azimi), a former

IEC Commissioner in 2011. Dr. Mohammad Ali Setegh is Secretary General of the

Secretariat.

11

Civil Society Organizations failed to reach a consensus for a candidate to take up the civil society seat on the Selection Committee when it shortlisted 27 nominees to the President for appointment of IEC Commissioners in the end of July. For the selection of 15 nominees of IECC Commissioners more than a month later, it was ultimately agreed that the TEFA president would take the seat of Civil Society in the Selection Committee.

UN Special Representative of the Secretary General, Ján Kubiš, meeting the newly appointed IEC Chairman Mohammad Yousuf Nuristani (middle), IEC Deputy Chairman Abdurahman Hotaki (left) and Secretary Gulalai Asakzai (right). (Photo credit: UNDP ELECT II)

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On 4 December 2013, the IEC appointed the five Commissioners of its Media

Commission: Ms. Farida Nekzad (Chair), Hashmatullah Radfar (Deputy Chair), Iman

Mohammad Warymoch, Abdul Wakil Naibi and Najib Alla Askzai.

III. RESULTS

OUTPUT 1: Sustainability of the IEC is enhanced via the

development of both its institutional and staff capacities

As part of the ‘Afghanisation’ of the electoral process, a major objective of the

ELECT II project includes the enhancement of the IEC’s capacity to realize long-term

technical sustainability; in order for the IEC to be able to organize upcoming

elections in a credible, professional and successful manner with ever decreasing

external international support. Staff capacity development and organizational

strengthening, although reflected below in output 1, relates to efforts and activities

across all seven outputs, as every implicit sub-objective in the other six outputs also

encompasses an increased capacity development of the IEC. ELECT II advisors

contributing to outputs 2 to 6 pass on their knowledge and skills to their counterparts

by being embedded on a daily basis at the IEC; they assist the IEC formally and

informally with strengthening processes, procedures and practices; explore

sustainable ways of implementation of plans; and assist in proper hand-over and

archiving developed plans and guidelines, as part of a sustainable knowledge

sharing approach.

1.1 Organizational and Staff Capacity

Indicators 1.1.a. Perception of IEC staff towards working in the IEC Questions for a staff survey to measure staff perception were developed with ELECT II support at the end of 2013. The IEC plans to conduct the survey through an online platform in the first quarter of 2014. 1.1.b. The extent to which the IEC uses data management systems and trend analysis to inform its planning and communication ELECT II explored in 2013 the concept of developing an integrated Enterprise Resource Planning System for IEC management purposes. Vacancies for individual consultants as well as tenders for consulting companies to develop this system for the IEC did not result in suitable candidates to conduct the undertaking. ELECT II therefore decided to focus rather strongly on the deployment of an Archiving and Knowledge Management Advisor for the IEC, as well as the further expansion of an existing operations software -developed in 2012 for the IEC with ELECT II input - to further integrate finance, HR, IT and assets tracking in one system. To facilitate electoral operations, ELECT II initiated in 2013 the development of different software for specific purposes such as: recruitment of district field coordinators, tracking of sensitive electoral

15 | P a g e

materials (besides a general assets tracking system, implemented in 2012), tally processing, and E-Day reporting. 1.1.c. The extent to which institutional plans are developed and implemented After focus was given in 2012 on the IEC’s five-year Strategic Plan, ELECT II provided advice in 2013 to the IEC on the development and implementation of some 30 Standard Operating Procedures and departmental plans to strengthen the IEC’s organizational capacity. 1.1.d. Percentage of trained IEC staff who feel they are more effective in their jobs because of training and capacity development opportunities This component is part of the online survey the IEC is planning to conduct in the first part of 2014. (see above 1.1.a.) The Capacity Development Assessment that the IEC conducted in early 2013 with assistance from ELECT II identified gaps at both the individual as well as the organizational level. This assessment was used as a basis to further refine the training programs as well as the development of organizational procedures.

In general, ELECT II’s capacity development

support to the IEC encompasses both staff

development as well as capacity

enhancement at the organizational and

institutional level. A key step to ensure

enhanced organizational and staff capacity,

and to measure the progress in this regard,

was the conduct in early 2013 of an all-

inclusive capacity development assessment

(CDA) of IEC. Survey questionnaires for IEC

staff were prepared for the very specific

purpose of acquiring essential data. In addition, all ELECT II advisers assessed the

existing capacity in their respective counterpart departments, as well as identifying

prevailing gaps and needs. On 30 April, the IEC CDA report was finalized and

shared with donor partners. The report assessed both institutional and organizational

capacity development needs and corresponding challenges for the IEC. The key

findings point to a variety of competency and performance gaps in each of the

following respective levels. By the end of 2013, with the arrival of a new training and

capacity development advisor, ELECT II assisted the IEC with drafting a

questionnaire as part of an online survey. The survey, to be launched in the

beginning of 2014, will provide qualitative feedback on the impact of a wide range of

ELECT II capacity building efforts of the IEC. The results of the survey will be used

as a baseline to measure further capacity development progress at the end of 2014

and 2015.

Head of the IEC training and Capacity Building Department, Dr. Shahla Haque, conducting a ‘BRIDGE’ training on voter registration – Photo by IEC

16 | P a g e

a) Staff Capacity Development

In 2013, ELECT II continued to

support the IEC with a wide range

of capacity building efforts for

permanent and temporary staff.

Capacity-building is a cross-

departmental undertaking and

encompasses all ELECT II

advisory support to the IEC. A key

element in this respect has been

the embedding of the project within the IEC and the pairing of ELECT II advisors with

respective department heads. This concept provides the best transfer of knowledge

and skills and knowledge from international experts to IEC staff through on-the-job

training and advice. In addition, ELECT II finances and often directly assists the

IEC’s comprehensive training and capacity building programs for all permanent and

long-term temporary staff members. See annex 6-1 for an overview of staff

development trainings and programs conducted in 2013. In addition, ELECT II also

supported the IEC in 2013 with the conduct of direct electoral trainings, in particular

for the voter registration, for the thousands of short-term temporary staff (see annex

6-b). In 2013, most ELECT II capacity development efforts mainly target IEC staff at

the Secretariat and the provincial offices. With the appointment of the new

Commission mid-2013, ELECT II offered its assistance to also provide capacity

development programs to the Commissioners.

The 2013 IEC’s Capacity Development Assessment pointed to a variety of

competency and performance gaps

at the individual level, such as:

performance discrepancies are

mostly rooted in shortcomings with

regards to professional knowledge

and specialized skills of the

permanent staff and personnel. Due

to the nature of its work with peak

operational periods every three to

four years, the IEC is heavily dependent on temporary or project contractual

personnel. Low retention and high turn-over of staff adds to the challenges that the

IEC is facing. In response to the findings and recommendations of this CDA report,

ELECT II has supported the IEC with the development of a Capacity Development

Action Plan (CDAP), which became the basis of refined training programmes.

Banner of the Provincial Security Officers’ training (Kabul,

10 September 2013) photo by ELECT II

Training of the Call Centre staff at the IEC Media Centre (Kabul, 24 June 2013) – Photo by ELECT II

17 | P a g e

b) Organizational Capacity Development

Besides looking at the professional development of IEC staff members, in 2013,

ELECT II also looked into different aspects of IEC’s strengthening as an

organization. This comprises improvement of strategic and operational/departmental

plans, enhancing intra- and interdepartmental communications and coordination, as

well as strengthening procedures, guidelines and systems. Before the start of

ELECT II, the IEC did not have a strategic plan that outlines its vision, objectives and

approach. A recommendation that came out of ELECT (I)’s evaluation included the

need for enhancing the IEC’s cross-departmental communications and coordination.

Its organizational departmental structure used to operate as separate units fully ‘silo-

ed’ from each other. By pairing ELECT II advisors in each department and

enhancing both formal and informal cross-departmental communication channels

through e.g. establishing regular as well as topic-based joint meetings, ELECT II

managed in 2013 to further strengthening the IEC’s intra- and interdepartmental

communication and coordination, as well as departmental and issue-related

procedures, guidelines and systems.

The Capacity Development Needs Assessment from early 2013 (see above)

underscored organizational capacity gaps that include a certain lack of sufficient

policy guidelines, standard operating procedures, outdated or inadequate systems,

and unclear administrative and operational processes and procedures. These have

been mostly identified as non-training interventions. In 2013, ELECT II and the IEC

developed as a result of the Capacity Development Needs Assessment an action

plan. This Capacity Development Action Plan (CDAP) covers all the interventions to

bridge the gaps and discrepancies at institutional, organizational and individual level.

The IEC started with the implementation of the CDAP in July 2013. The CDAP

include components until December 2015. Important aspects of the CDAP included

the specification of non-training needs, such as the extensive development/revision

and implementation of Standard Operation Procedures (SOPs), a monitoring plan in

line with the Strategic Plan, or high-level policy advice; as well as the further fine-

tuning of different training needs. The CDAP identified in 2013 more than 30 areas

for SOPs to be developed and implemented, which are currently in different stages

of implementation. Annex 7 provides in detail an integrated training plan to be

undertaken at the level of the Commission, Senior Management, and the different

departments. See in Annex 8 also an overview of all IEC capacity development

activities conducted by ELECT II to date since the inception of the project.

c) Institutional Capacity Development:

Enhancing the capacity of its staff and improving its systems, planning and

implementation capacity are only two components of institutional sustainability. The

latter also requires a sound electoral legal and regulatory framework, physical

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infrastructure and financial resources and systems (see further below 1.2 and 1.3).

1.2 Legal framework, regulations and Codes of Conduct

A robust legal electoral framework, including the structure, authority and duties of the

electoral bodies is essential for

the IEC and IECC to function

as independent and

sustainable institutions and

focus on their mandate. In

2013, President and

Parliament approved a revised

Electoral Law as well as a new

Structures Law of the

IEC/IECC provided both

institutions with an improved

legal foundation upon which to deliver their electoral mandates. ELECT II assisted

the IEC during the (protracted) drafting process of the Electoral Law, with input and

advice in line with international best practices, and encouraged the IEC to conduct

consultations with stakeholders to promote inclusiveness when drafting the new

Electoral Law. This also included self-regulatory Codes of Conduct as well as the

revision and development of IEC electoral regulations and procedures in a more

consultative manner.

Indicator:

1.2.a. Number of Electoral regulations developed or revised in line with the electoral legal framework By the end of 2013, ELECT II assisted the IEC with the development or revision of 14 electoral regulations and 13 electoral procedures, guidelines or policies.

In 2013, ELECT II assisted the IEC with reviewing existing codes, regulations and

procedures in line with the new (electoral legislation) legal framework where

applicable, and included suggestions from past lessons learnt and best international

practices.

In 2013, the IEC revised and updated a number of regulations in line with the new

laws with assistance from ELECT II, as also shared with its content on the IEC

website in Dari, Pashto and English: http://iec.org.af/2012-06-21-06-19-

20/regulations-procedures

Regulation on Voter Registration

Regulation on Accrediting Political Parties, Independent Candidates,

Observer Organizations and Media

IEC consultation on the Code of Conduct for Political parties

(Kabul, 01 April 2013) ELECT II photo

http://iec.org.af/2012-06-21-06-19-20/regulations-procedures

http://iec.org.af/2012-06-21-06-19-20/regulations-procedures

19 | P a g e

Regulation on Registration of Candidates

Regulation on Election Campaign Period

Regulation on Managing Campaign Finance during 2014 Presidential and

Provincial Council Elections

Regulation on Polling

Regulation on Vote Counting

Regulation on Introducing New Vice Presidential Candidate In case of his/her

Death, Resignation or Refractory Disease which are Hindrances to his/her

Candidacy12

Regulation on Establishment of Media Commission

Regulation on Media Activities during Elections

Regulation on Temporary Electoral Staff Recruitment

Regulation on Special Guests’ Attendance at Different Electoral Processes

Regulation on Validity Time, Archiving and Destroying Sensitive Electoral

Materials

Regulation on Tallying, Announcement and Certification of Results (approved

in 2014)

In addition to the Regulations, the following procedures were also reviewed and

finalized in 2013, with ELECT II in a role of providing technical input:

DFC Recruitment Guideline for PEOs

DFC Guidelines Presidential & Provincial Council

IEC ERL Ballot Lottery Procedure

National Data and Tally Center Policy

Nomination - Vetting Procedures

Procedure FOP Counting of Large Ballot Papers

Procedures for Destruction of Sensitive Material

Procedures for Nomination of Presidential Candidates

Procedures for Nomination of Provincial Council Candidates

Procedures for Verification of List of Supporters

Polling and Counting Procedures

12

Specifics of the “Vice-President (VP) Candidates Regulation in case of Demise, Resignation, Sickness or Death”, passed by the Commission on 22 September by majority decision, include: a) Prior to 11 November, which is set as end-of-withdrawal period, a VP candidate can withdraw or be dismissed without restrictions. b) After 11 November, a presidential candidate cannot dismiss his/her VP candidate. In case of death, (severe) illness or resignation of a VP candidate, presidential candidates have to present a new VP candidate within 72 hours. A VP candidate who resigns after 11 November cannot be nominated anymore as VP for another presidential candidate. c) In case of death, (severe) illness or resignation of a VP candidate on Election Day or after announcement of results, the (newly elected) president shall appoint a new VP candidate, upon approval by the Wolesi Jirga. It is noteworthy to mention that the regulation only addresses resignation of VP candidates. A resigning presidential candidate could presumably join the ticket of another presidential candidate as a VP candidate.

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Under review and/or subject for formal approval by end of 2013:

Tally Center Operations and Procedures Manual

Audit and Recounts Procedures

Provincial Intake and Storage of Materials Procedures

Clearance and Audit Procedures

Procedures for Database Checking Mechanism for Verification of Candidate

Nomination Supporters List

Correction Procedures

ELECT II also assisted the IEC with review of forms for: Observer Accreditation;

Candidate Nomination Application; Political Party and Coalition Endorsement;

Symbols; Notice of Withdrawal of Nomination or Endorsement; Campaign Finance;

Supporter's Signatures; and others. In total, around 10 electoral regulations and

procedures, as well as more than 20 forms, were reviewed throughout 2013. To

further enhance the institutionalization process, ELECT II also advised the IEC to

introduce the concept of standardization of manuals, procedures, and forms, as well

as the re-introduction the notion of standardized terminology.

1.2.b. Codes of Conduct developed/revised in a consultative manner By the end of 2013, ELECT II assisted the IEC with the development of 6 electoral codes of conduct, emphasizing on the consultative approach with stakeholders.

For all respective codes of conduct, the IEC solicited input and feedback through

different stakeholder consultations, including relevant ministries and government

entities. The IEC also held in early 2013 stakeholder discussions with party officials,

observer groups and media representatives to discuss respectively their codes of

conduct. The ethical code of conduct for electoral officers was extensively discussed

with staff in 2012, and also includes recommendations of the IFES Afghanistan

Electoral Integrity Assessment Report.

In 2013, the IEC finalized and approved the following codes of conduct:

Ethical Code of Conduct for electoral Officers (16 April);

Ethical Code of conduct for temporary electoral workers (8 January);

Electoral Code of Conduct for Political Parties and Coalitions (16 April);

IEC consultation meeting on the Media Code of Conduct (Kabul, 27 March 2013) –Photo by ELECT II

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Electoral Code of Conduct for Candidates (16 April);

Electoral Code of Conduct for Media (16 April);

Electoral Code of Conduct for Observers (19 May)

In addition, the IEC drafted ethical codes of conduct for both Governmental

Authorities and Civil Servants, as well for Law Enforcement Entities. On 3 October

2013, based on the draft documents approved by the Commission, President Karzai

endorsed:

The Presidential Decree on the electoral Code of Conduct for Governmental

Authorities and Civil Servants, and

The Presidential Decree on electoral Code of Conduct for Law Enforcement

Entities

1.3 Physical infrastructure and security

Indicators

1.3.a. Number of IEC newly constructed well-functioning and secured provincial offices In 2013, ELECT II assisted the IEC with the finalization of security upgrades in 10 provinces, as well as the construction of provincial offices and warehouses in 5 provinces (in progress). Revised planning was done for 4 different provincial offices. 1.3.b. Number of additional permanent infrastructure construction works at HQ level In 2013, ELECT II assisted the IEC with its construction and/or refurbishment at its HQ of a training centre, and an additional warehouse, and a new server room; besides the undertaking of a wide range compound refurbishments and security upgrades. 1.3.c. The extent to which security at IEC premises (HQ/provinces) is established In 2013, ELECT II continued to enhance the IEC’s physical infrastructure by: upgrading security reinforcements at IEC HQ and in 10 provincial premises; finalizing the construction of a training centre, relocating and reinforcing the data server room at IEC HQ; and initiated construction of 12 new provincial offices and warehouses.

Part of the long-term sustainability plan for the IEC

is the ownership of safe and secure premises in

Kabul and the provinces. ELECT II, by deploying a

significant team of international and national

engineers, is closely involved with the different

quality assurance steps related to construction of

buildings. This includes all phases, from drawings

of the plans and development of thorough bidding

requirements, to field monitoring in conjunction with IEC engineers.

Construction of the IEC Training Centre (Kabul, March 2013) – Photo by ELECT II

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A major undertaking completed

in 2013 was the construction of

a training centre at HQ, which

can accommodate the training

of all IEC permanent staff as

well as the large numbers of

temporary staff that are

recruited in the upcoming periods for different electoral operations (such as Civic and

Voter Educators, District Field Coordinators, Polling Day Assistants, and others).

Also in 2013, ELECT II assisted the IEC with the re-establishment of a new IT server

room within HQ, which meets all technical and security requirements. Since this

room stores all essential data, the new room is fully reinforced. Furthermore at HQ,

ELECT II and IEC engineers continued with the upgrade of security walls and

entrance points for staff and visitors at its HQ. To improve the security of the IEC,

ELECT II assisted the IEC in the cooperation with

the Afghan National Police, which guards the

premises; the drafting of different security Standard

Operating Procedures; and the establishment of an

unarmed internal IEC guard force that was trained

and deployed.

In the provinces, proper (and secure) ownership of

premises is also a means towards IEC long-term

sustainability. Ownership of buildings eliminates the

cost of rent and therefore helps to achieve long-

term financial sustainability. This also eliminates

any actual or perceived conflict of interest with

landlords during sensitive electoral times.

Therefore, the project strongly supports the IEC

with acquiring its own land in the provinces to build

offices and warehouses. In 2013, ELECT II

supported the IEC with the construction planning

and bidding for provincial offices and/or warehouses in the provinces. In the first

Construction of the IEC Training Centre (Kabul, March 2013) – Photo by ELECT II

Reinforcement of IEC Data Server Room (Kabul, April 2013) Photo by ELECT II

23 | P a g e

phase, nine main provinces are targeted that serve as regional centres for adjacent

provinces. These provinces are Herat (office and warehouse construction), Daikundi

(office and warehouse), Paktya (office and warehouse), Khost (office and

warehouse), Jawjzan (office and warehouse), Balkh (office and warehouse),

Nangarhar (warehouse construction only), Bamyan (warehouse only) and Laghman

(warehouse only). Plans for construction of the Kabul Province regional office will be

part of a separate phase.

Construction achievements in 2013 include the security upgrade for 10 provinces:

Saripul, Jawzjan, Samangan, Bamyan, Daikundi, Uruzgan, Farah, Wardak,

Laghman, and Nangarhar. Construction works that are 100% completed at IEC HQ

include the training center; office and ‘K-span’ warehouse refurbishment; security

upgrade of the west wall of the IEC Compound; two reinforced concrete bunkers;

repair of fire damaged ‘K-span’ warehouse; fuel tank for generator house, and

generic compound repairs

The timeline for construction of provincial offices and warehouses has been

rescheduled in 2013 due to different technical, architectural and procurement

challenges. Instead of spring 2014, it is expected that the following constructions

from the first phase will be completed by end of 2014.

1) Herat (Office and Warehouse): construction well underway and on schedule

2) Laghman (Warehouse): construction commenced in November 2013

3) Nangarhar (Warehouse): construction commenced end of 2013.

4) Mazar (Office and Warehouse): Tender technical evaluation complete,

contractor approved, actual construction to start in 2014.

5) Jawzjan (Office and Warehouse): construction underway

6) Paktia (Office and Warehouse): delay; re-launch of bidding process; actual

construction to start in 2014 (awaiting improvement weather conditions).

7) Khost (Office and Warehouse): delay; new invitation to bidding had to be

launched by end of 2013; actual construction to start in 2014.

8) Laghman (Warehouse): construction commenced in November 2013

9) Daikundi (Office and Warehouse): delay; still in the stage of planning.

Invitation to bidding re-launched end of 2013

In the meantime, ELECT II is also assisting the IEC with construction plans for the

following locations as part of the second phase:

10) Bamyan (Warehouse): construction to be started after winter 2014

11) Farah (Office and warehouse): construction to be started after winter 2014

12) Wardak (Warehouse): construction to be started after winter 2014

Furthermore, ELECT II is supporting the IEC with different security upgrades and

adjustments of the premises in almost all other provinces. At the same time, with

ELECT II input on processes and procedures, the IEC established in 2013 an

unarmed internal guard force, strengthened security procedures, and initiated a

coordination platform with MoI, MoD and security forces.

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1.4 Gender mainstreaming

See the Chapter IV. Gender Specific results

EXPENSES FOR THE YEAR

During 2013, a total of USD 6,797,383 was spent for this output. For more details,

please see Annex 2.

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Below is a snapshot of where ELECT II is in relation to its annual targets

Table 1: Progress Update 2013 Output 1

2013 BASELINE 2013 ANNUAL TARGETS

2013 ACTUAL COMMENTS

Baseline 1.1.a: NA Baseline 1.1.b. no structural database system established in the past to institutionalize a systematic way electoral data Baseline 1.1.c: No Strategic Plan in place. Significant part of IEC’s operation lack internal SOPs. Baseline 1.1.d: individual staff development plans does not exist in 2011.

1.1.a: (2013): perception of staff towards the IEC on the specified dimensions increased from year to year 1.1.b: (2013) The database is developed and database populated 1.1.c (2013) SOPs for all relevant business areas prepared and implemented; 1.1.d. (2013): 70 % of the staff trained in 2013 feel that that they are more effective in their job because of the offered training and capacity building opportunities; (2013) Training tailored and modified according to assessments and survey

1.1.a IEC 2013 staff survey will be conducted in Q1 2014 1.1.b. ELECT II moved away from the concept of developing an integrated Enterprise Resource Planning system, but initiated in 2013 the concept of a knowledge management and archiving system for the IEC, in addition to reconsidering an expansion of a the existing software tool for operations support (developed for the IEC by ELECT II in 2011/2012) 1.1.c. Status of SOPs in CDAP – annex 7 1.1.d. Conduct of a Capacity Development Assessment and related CDAP, as a base for revision of 2013 IEC training plan.

In general – IEC Capacity Development efforts On Track 1.1. a. Implementation of staff survey moved forward to Q1 2014 given conflicting priorities due to election preparations 1.1. b. Knowledge and archiving system as well as revision of integrated operations management software will be the base to institutional database systems 1.1.c. SOP development and implementation on track 1.1.d. Regular staff training: on track – although diminished until Q4 2014 due to electoral operations and specific trainings (temp staff)

Baseline 1.2.a: all existing electoral regulations are applicable for revision in case of a new electoral legal framework

1.2.a: (2013): updating of electoral regulations and procedures with regard to the voter registration process (2013-2015): revision of

1.2.a/b. See list with all revised electoral regulations, procedures and codes of conduct

On Track

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Baseline 1.2.b: All relevant codes of conduct, regulations and procedures need revision.

electoral regulations and procedures for electoral operations related to 2014 and 2015 elections 1.2.b: (2013): codes of conduct for ethical/electoral Codes of Conducts for Electoral Officers, Observers, Media, Political Parties, Security Forces reviewed and finalized in a consultative manner

Baseline 1.3.a: The IEC owns five offices and warehouses in the provinces Baseline 1.3.b: At HQ, existing space for training and data centre is not useable anymore Baseline 1.3.c: Physical security of IEC premises weak at several provincial offices and need to be reviewed at HQ level; Weak security access SoPs; No IEC guard force exists. Access to IEC HQ controlled by ANP.

1.3.a: (2013): Construction of first batch (9) of provincial premises (offices and warehouses) completed for at least 70% 1.3.b: (2013-2014) Construction of the training centre, data centre and security upgrades to the IEC HQ undertaken.

1.3. COMPLETED (100%) in 2013: • Security upgrade for 10 provinces: Saripul, Jawzjan, Samangan, Bamyan, Daikundi, Orozgan, Farah, Wardak, laghman, and Nangharhar, • Training center • Office / K Span Warehouse Refurbishment" (Asset Warehouse) - • IEC Compound upgrade West Wall • 2 Reinforced Bunkers in IEC HQ • Repair of Fire Damaged K Span Warehouse in IEC Kabul Compound • Fuel Tank for Gen House IEC HQ • Repairs of Manholes at IEC HQ • Server room IEC HQ (90%) IN PROGRESS: [see details in narrative section] Construction Started: Herat, (Office and Warehouse), Laghman (Warehouse), Nangarhar (Warehouse), Jawzjan (Office and Warehouse), Laghman (Warehouse)

1.3.a/b revision of timeline and planning for construction of provincial offices and warehouses – new schedule: 12 provincial offices and warehouses ready by end of 2014. 1.3.c. On Track: Security remains a concern, despite progress made in 2013. Further close cooperation between IEC security and internal unarmed guard force, ANP protection, and UNDP/ELECT II security remains a must. Upgrades of security upgrades at IEC HQ ongoing progress.

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REVISED PLANNING: Mazar (Office and Warehouse), Paktia (Office and Warehouse), Khost (Office and Warehouse), Daikundi (Office and Warehouse) NEW: Added to schedule – construction to start in 2014:Bamyan (Warehouse), Farah (Office and warehouse), Wardak (Warehouse) 1.3: IEC Unarmed internal guard force established; strengthened SOPs; coordination platform IEC security, UNDP (ELECT II) security, ANP (armed protection) initiated / established

1.4 Gender Mainstreaming (See 3.4)

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OUTPUT 2: A sustainable, long-term approach to voter registration

in Afghanistan, which also promotes maximum participation of

eligible citizens in the 2014 and 2015 elections, is developed and

implemented

The right to vote is the most basic element of a democratic election system. From

the individual’s right to vote follows a duty of the election administration to facilitate

effective exercise of that right through the registration of voters. The 2013 voter

registration ‘top-up’ exercise has been the first major electoral operation for the IEC

and ELECT II, of the new electoral cycle for the 2014 and 2015 elections, with a

primary focus on registering newly eligible and first-time voters. ELECT II was

closely involved in the conceptual planning, as well as detailed operational planning,

Voter registration in a male centre in Bamyan (22 August 2013) Photo by ELECT II

Voter registration in a female centre in Bamyan (22 August 2013) Photo by ELECT II

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from procurement and packing of materials, to movement and tracking of materials.

The project also assisted the IEC with ensuring that gender-awareness was a key

element being incorporated into different aspects of the VR planning, including the

establishment of separate registration centres for women. ELECT II advisors further

supported the IEC with public outreach initiatives to inform voters of their rights and

encourage them to register, with a particular focus on women and youth.

2.1. Voter Registration

Indicators 2.1.a Number of new eligible voters enfranchised with voter ID cards

By the end of 2013, during the voter registration “top-up” exercise, more than 3.4 million voter ID cards had been issued, crossing the total envisaged minimum 2013-2014 target of 3 million new registrants.

2.1.b Percentage of women registered as new voters

Female registration turnout by the end of 2013 was around 34.5%, crossing the project’s minimum envisaged target of 30% female registrants.

While 2013 commenced with the rejection by the GIRoA on 2 January of the IEC’s

second VR plan to revalidate all previously issued VR cards (in addition to a full

registration exercise of new voters), consensus was soon reached amongst partners

on a third IEC VR plan that envisaged a ‘top-up’ exercise only. This concluded the

protracted discussions in 2012 between the IEC, the government and the

international community, whereby differences of opinion on this fundamental issue

resulted in a compromise for a ‘top-up’ exercise only. Existing voter registration

cards distributed earlier for previous elections remain valid. This reality also altered

the scope of Output 2 during the project document revision in the first half of 2013,

moving away from the envisaged qualitative establishment of a uniform voter registry

towards a longer-term approach of a voter register to be derived in the future from a

(to be established) electronic civil registry.

.

Earlier, in 2012, the IEC first and second planning envisaged a new nationwide voter

registration (and validation) campaign to enhance electoral integrity, thereby linking

registered voters to polling centers and serving as a foundation for a national-

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centralized voter registry. This approach was based on recommendations of a 2012

UNDP-sponsored feasibility study, and was intended to address recommendations

regarding past VR practices and concerns, including from domestic and international

election observers. The IEC’s initial plans were not uniformly accepted, including

amongst some donor partners, and the GIRoA ultimately rejected the proposal in

favor of a longer-term solution: the national electronic ID card (e-tazkira) intended as

multi-purpose identification.

As mentioned in the Secretary-General Report on Afghanistan of 5 March 2013, “the

e-tazkira effort is an important national process that must be supported by the

international community and may contribute to electoral preparations. With the use of

old voter registration cards and the top-up exercise expected to add additional cards

to the mix, and given that the project may not be completed by the 2014 elections, it

is unlikely that there will be significant improvements to voter identification for the

elections. Politically, the decision-making process on voter registration was

damaging to perceptions of the independence of the Independent Election

Commission. Recognition of and respect for the separation of powers and mandated

authority of the various institutions is vital”.13

The current VR “top-up” campaign only targets those citizens who: a) will be 18

years of age by 5 April, 2014; b) have recently returned to the country; c) have

moved from one electoral constituency to another; d) have lost or damaged their old

VR cards; and e) are eligible voters who have not obtained VR cards in the past. In

this respect, voters with an

eligible old voter ID card, as

well as those in possession

of a national electronic ID

card (e-tazkira), as relevant,

are not required to register

for the new VR card. This

approach is overall

consistent with a UN Needs

Assessment Mission (NAM),

concluded in January 2013,

which emphasized: a)

acceptability to stakeholders;

b) inclusiveness; and c)

technical feasibility.

In this respect on 26 May 2013, the IEC successfully commenced the first phase of

the “top-up” voter registration (VR) campaign at provincial level. According to its VR

13

http://www.un.org/en/ga/search/view_doc.asp?symbol=S/2013/133

Information and technology voter registration training on use of solar panels (Kabul, 23 June 2013) Photo by ELECT II

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operational plan, the IEC opened at least one VR centre in all provincial capitals;

with Kabul, Jalalabad, Kandahar, Herat, Mazar-i-Sharif, and Kunduz having more

than one VR centre. In total 41 VR provincial-level centres were opened, consisting

of 82 VR stations (41 for men and 41 for women). These VR centres will facilitate on-

going registration until two weeks prior to the 2014 elections.

On 27 July 2013, the IEC launched the second phase of the registration, expanding

operations from 41 provincial-level VR centres to an extra 395 district-level VR

centres (out of 399 districts). The opening of these district centres was a success,

with 381 opened from the first day (95%), including many districts that were

inaccessible to the IEC in 2010. Within a few weeks, the IEC was able to conduct

voter registration operations in all district centres except a few.14 On 17 September,

the IEC officially decided to extend the district level campaign for 45 days until 10

November. The participation of female voters in particular was a key focus and

reason for the expansion of the operation. The decision also widened the scope of

the campaign by deploying mobile registration centers from the district centres into

other populated but more remote district areas. Of all the 436 provincial and district

voter registration centres (41 provincial centres and 395 district centres), 353 were

identified to have mobile capacity. These mobile units were accompanied by

civic/voter educators, permitting direct transmission of voter registration and

candidate nomination information to eligible

voters and potential candidates. Furthermore,

where each voter registration centre used to

comprise one male and one female station, the

IEC added 64 extra stations, reinforcing several

voter registration centres with extra male or

female stations.

Based on estimates of the Central Statistics

Organization, the IEC envisaged that in total

around 4 million voters may be entitled to a new

VR card prior to the 5 April 2014 Presidential and Provincial Council elections. By the

end of 2013, during this “top-up” exercise, almost 3.4 million voter ID cards had been

issued. The IEC’s efforts to engage more women in the registration process, has

resulted in a notably improved trend in the number of women registering as voters as

the voter registration campaign progressed throughout 2013. In the initial months of

the VR campaign, the number of women registering hardly reached 20%. However,

after the district-level campaign, in particular when mobile teams were deployed,

14

Of the 399 planned district registration centres, only four could not be opened at all due to security constraints: Nawa (Ghazni), Kakar (Zabul), and Baghrana nd Deh-e-shu (Helmand). There were in addition substantial security issues in Alasai (Kapisa), Naka (Paktika), Khogyani (Ghazni), and Waygal and Kamdesh (Nuristan), leading to a delayed or interrupted opening of voter registration centres but not completely undermining the process.

Voter registration material demonstration (Kabul, 10 February 2013) – Photo by ELECT II

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female registration turnout reached almost 35%. (See Annex 9 for VR ‘top-up figures

per province)

ELECT II was closely involved in assisting the IEC with the planning of different

conceptual VR approaches, and once it became apparent that the IEC would only

conduct a VR ‘top-up’ exercise, ELECT II assisted the detailed VR operations plan to

meet this objective. ELECT II also assisted coordination with security forces for

protection and movement of materials when needed, as well as procurement and

packing of materials. ELECT II advised the IEC to improve the integrity of the new

VR cards through the inclusion of enhanced security features, such as: a registered

IEC hologram; the “guilloche” pattern which is difficult to reproduce; micro-text; and

other anti-fraud features. ELECT II also ensured that gender-sensitive perspectives

were considered and included in all plans, as well as during the implementation of

the campaign. ELECT II’s Gender Advisor was therefore closely involved in the

planning discussions related to voter registration. She also supported the efforts of

the IEC Gender Unit in this regard, and played a prominent role in engaging with

stakeholders on the issue. With the support of ELECT II, the IEC commenced a

series of Gender and Elections coordination meetings, during which the registration

of women voters was a key topic for discussion. (See below under the section

Gender). ELECT II also ensured that a strong gender aspect has been integrated in

all public outreach activities. (See below under the section Public Outreach.)

Voter Registration Observation

On 14 August and 26 August 2013, respectively, the accredited national electoral

observation organizations ‘Free and Fair

Election Forum of Afghanistan’ (FEFA)

and ‘Transparent Election Foundation of

Afghanistan’ (TEFA) released their first

monitoring reports reflecting their

observations of the first phase of the

voter registration process in the

provincial capitals from 26 May until 27

July. Key observations, reportedly

witnessed by both organizations, though

not always to the same degree, refer to:

1) insecurity that affected turnout and

sometimes the opening of certain VR

centres; 2) violation of VR procedures

in certain centres, in particular the

verification of valid identification documents and age; and 3) culturally not always the

Billboard calling upon young male and female voters to register (Bamyan, August 2013) – Photo by ELECT II

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most appropriate choice of location for female registration stations. According to their

observations, a main reason for the low level of women’s participation at the start of

the first phase, was due to the fact that registration sites for women had been

established in inappropriate locations far from women’s homes, in places mostly

frequented by men, or near security installations. Commuting to such sites is

culturally problematic in many areas, in addition to security considerations. In certain

cases, lack of female police in female VR sites was also reportedly a factor

discouraging women from registering.

Key recommendations for increased female participation, therefore, include more

women-specific public awareness programmes, maintaining security of female sites

by female police, and appropriate location of female sites in the context of Afghan

culture and traditions. Both observation organizations further recommend a more

thorough verification of valid identification cards and age; improved control

mechanisms to be instituted by the IEC to observe impartiality of staff; increased

efforts of security forces to preserve security at voter registration centres; and an

increased participation in the observation process by international partners.

The IEC viewed these observer reports as a meaningful and constructive

contribution to the process. Though the cases

of irregularities that are substantiated need to

be addressed, in the overall perspective, the

number of shortcomings would appear to be of

an isolated nature, rather than systematic. In

response to concerns that sometimes voter

registration cards had been distributed to

people without possession of a national ID card,

the IEC cited the fact that many Afghans,

especially in rural areas, do not always possess

proper documentation papers. Informal ways of

validation of identity, nationality and age, in line

with IEC procedures and verified by IEC staff,

can in some cases be the only solution to give

every eligible Afghan the right to vote. The lack

of proper identification documents have been a

problem faced in all previous registration

rounds, starting from 2003. The IEC has paid close attention to this, but a lack of

documentation also implies that community identification can be acceptable as well.

Under-aged registration has also been an issue in the past. In line with the electoral

law, IEC officials have been instructed to issue cards also to young voters who are

currently not yet 18 but will be by 5 April 2014, the scheduled day for polling.

Voter registration (Kunduz, 26 May 2013) – Photo by ELECT II

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Regarding female participation, with the assistance of ELECT II, the IEC conducted

its own trend analysis to take. It did take different measures and actions to better

engage women in the process, as mentioned before. The IEC has further enhanced

its monitoring plan for both the registration process, as well the civic/voter education

exercise.

2.2. e-Tazkira synergies

Indicator: the extent to which the IEC engages in on-going dialogue with MoI to

ensure that the e-Tazkira long-term database can also serve as a long-term

solution for the generation of a VR database.

In 2013, the IEC convened meetings with MoI, MoCIT, and MoI, focusing on a Memorandum of Understanding to integrate the electronic national ID card (e-tazkira) as a valid voter identification document, as relevant. All parties involved are currently awaiting the establishment by Parliament of the legal framework around the e-tazkira.

A major outcome of the VR discussions in 2012 between the IEC and ELECT II, and

the GIRoA and international partners, was that priority would be given to the

establishment of a multi-purpose electronic national ID card (e-tazkira) by the

Ministry of Interior and Ministry of Communications and Technology. This approach

was favored over a new nation-wide voter registration exercise. The e-tazkira project

instead, would produce in the mid-term to longer-term, a sustainable civil registry

from which a voter registry subsequently could be extracted.

In this respect, the IEC has been engaged in on-going dialogue with the Ministry of

Interior (MoI) and the Ministry of Communications and IT (MoCIT), to ensure the

appropriate and necessary synergies are in place to enable the e-tazkira database

as a long-term solution whereby the voter registry would be extracted from the civil

registry. This will require a system for regularly updating the civil registry and

transferring the data to the IEC, in terms of removing deceased persons from the

civil registry, and recording events such as marriages, change of name, change of

address, etc., if the voter register is to also be maintained accurately. Ultimately, the

IEC will still have the legal responsibility to ensure that any future extract of the civil

registry will serve as an accurate and updated extract for the purposes of the voter

registry, thereby ensuring the right to vote of all eligible Afghan voters.

In June 2013, the IEC convened a meeting with MoI, MoCIT, and the Ministry of

Finance (MoF). The meeting focused on the development of a Memorandum of

Understanding (MoU) between the IEC, MoI, MoF, and MoCIT. The IEC agreed to a

pilot of the electronic national ID card (e-tazkira) project for Kabul province,

conducted by MoI, whereby the e-tazkira would be a valid voter identification

document to the degree it was issued. To this end, all parties were looking forward to

the Parliament establishing the legal framework around the e-tazkira. Until the end of

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2013, there had not yet been any consensus between the Wolesi and Meshrano

Jirga on a draft Law, in particular on the question of inclusion of ethnicity in the

database. Therefore, by the end of 2013, it appeared that such a pilot of the e-tazkira

in Kabul province would be unrealistic in terms of the upcoming 2014 elections.

However, the IEC committed to accepting the e-tazkira, in addition to all IEC–issued

voter registration cards, as a valid voting card in future elections, as relevant

depending on progress. Furthermore, it was agreed that in the longer-term, once the

e-tazkira is issued in other provinces, it shall be used as a standard voting card in

lieu of all VR cards previously issued by the IEC. The IEC also agrees it will work in

full coordination with the MoI. The IEC intends to sign the MoU once the legal

framework of the e-tazkira is in place.

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During 2013, a total of USD 20,608,171 was spent for this output. For more details,

please see Annex 2.



2013 BASELINE

2013 ANNUAL TARGETS


Baseline 2.1.a: 500,000 new voter ID cards were issued during the 2009/10 top-up exercise; only conducted at provincial capital level and following a wide-scale registration campaign in 2008 that issued 4.5 million VR cards. Baseline 2.1.b: previous voter registration campaigns appeared to have unreliable percentages of women

2.1.a: (2013) 1.5 million new voters are enfranchised with new VR cards 2.1.b. (2013): 30 % of the newly registered voters are women

2.1.a. At the end of 2013, almost 3.4million people registered – far overreaching the annual target and already meeting the implicit general target for this VR ‘top-up”. The IEC was able to open 41 VR centres in 34 provincial capitals and addition to 395 VR centres of 399 districts, including deployment of mobile teams to reach further out. 2.1.b. At the end of 2013, female VR turnout almost reached 35%, after a hesitant start (<15% May/June - 20% July/August - 30% September – 30-35% October-December). IEC enhanced its external relations and public outreach efforts to engage women conducted (civic educators, provincial consultations, voter information call centre, etc.), in particular during the district level VR ‘top-up’

On track: limited VR top-up remain ongoing in 2014 in 41 provincial centres until 2 weeks prior to E-day. Physical verification of all forms initiated at IEC HQ

Baseline 2.2: to be defined once the e-tazkira project is established and implemented

2.2: (2013) to be defined upon establishing e-tazkira registration project

2.2Meeting in June 2013 between IEC, MoI, MoCIT, and MoF that produced a draft MoU between all four agencies to pilot e-Tazkira in Kabul upon legal framework in place

Awaiting approval legal framework around e-tazkira

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OUTPUT 3: The IEC’s engagement and informational outreach with

key stakeholders and the electorate is enhanced

Sufficient voter information and civic education is necessary to ensure voters are

fully informed of their rights and responsibilities as voters. Outreach initiatives can

also ensure that voters have at least a basic understanding of the overall political

process, and offices and institutions to be elected to ultimately serve the public

interest. Significantly, ELECT II is supporting the IEC with the development and

implementation of an integrated three-pronged information and public-engagement

campaign being implemented through three IEC focal points: the Public Outreach

Department; the External Relations Department; and the Gender Unit.

IEC billboard posted nationwide in July 2013 to encourage male and female first time voter to register.

During 2013, the IEC’s information and public engagement campaign essentially

focused on legal and regulatory reform issues, voter registration and candidate

nomination. Attention was also given to laying a foundation for the public information

initiatives for the upcoming electoral campaign and polling period. Informational and

motivational messages were delivered through broadcast media, underpinned by the

deployment of 864 voter educators deployed at district level around the country, as

well as a series of nationwide provincial seminars on electoral participation, with a

particular focus on women’s participation.

In addition, in order to better inform the informational and outreach campaign, the

IEC designed and implemented (with ELECT II support), a public opinion survey and

stakeholder assessment implemented during the second half of 2013. This also gave

IEC’s a greater understanding of the Afghan electorate’s knowledge and perceptions

of the electoral process in order to fine-tune its messaging campaign and to better

address certain segments of the electorate (women, youth, minorities, disabled).

The IEC also commenced a series of stakeholder consultations in 2013, starting in

July with a high-level consultation on public outreach initiatives, which included a

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range of senior governmental, diverse non-governmental actors and media

representatives. These coordination meetings continued periodically at the working

level, with a focus on civil society networks, political party / candidate representatives

and national security agencies on electoral security issues. The IEC has emphasized

that effective election-related informational campaigns cannot be delivered

exclusively by the IEC, and has called upon civil society and other partners to assist

in distributing its messages, to further amplify its informational and motivational

campaign for credible, inclusive and democratic elections.

3.1 Public Outreach

Indicators 3.1.a: Means of different public outreach methods developed and implemented by the IEC In 2013, with significant ELECT II support, the IEC developed a public outreach strategy for the voter registration ‘top-up’ campaign, the candidate registration process, and the upcoming elections, which includes the following components: 10 radio and TV PSAs (in Dari and Pashto); the establishment of a voter information call centre; nationwide posting of 500 billboards and 5,000 pole signs; the conduct of some 100 seminars, workshops and consultation sessions with a wide range of stakeholders (including religious leaders, women networks, etc.) at the national, regional, provincial and district level; the deployment of 864 civic and voter educators to conduct face-to-face meetings; the distribution of some 1,000,000+ printed materials; the use of social media; and gender specific programmes – including, but not limited, the establishment of a Gender and Elections Coordination Group.

3.1.b: Number of public outreach activities that specifically target women In 2013, with ELECT II input, the IEC conducted 5 High Level Gender and Elections Coordination meetings at national level; 8 regional workshops with youth and 34 provincial youth meetings on gender; and 34 provincial stakeholder seminars community/leaders and mullahs with where also women’s participation was addressed, including a full day meeting with influential women and women’s networks. In all other IEC stakeholder meetings, seminars or workshops, significant attention was given to gender sensitive issues. 241 female civic and voter educators focused on women-specific face-to-face meetings, while the IEC also developed a radio and TV PSA, as well as printed materials (200,000), specifically encouraging women’s participation in the electoral process. 3.1.c: Number of participants reached through direct public outreach activities The 34 provincial seminars conducted with community/leaders and mullahs (day1) and women (day2) addressed between 150-300 participants per day per province. Likewise, the 8 regional workshops with youth and 34 provincial youth meetings on gender were reaching out to 50 to 200 young people per meeting per day. Some 500,000+ people called Call Centre in 2013, of which

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circa 10% were women; 864 Civic Educators deployed for face-to-face interactions; estimated to have reached out to thousands of people. 3.1.d: Number of participants reached through indirect public outreach activities Approx. 2.7 million and 16.7 million people were recurrently reached through 10 TV and radio PSAs, respectively.

In 2013, ELECT II assisted the IEC with

the development and finalization of a

Public Outreach strategy for the voter

registration ‘top-up’ exercise, focused on

developing targeted messaging through

direct and indirect approaches and

media, and with a special focus on

women and youth. The Public Outreach

strategy is based on the following

principles: improved quality of outreach

materials, including TV and radio public

service announcements (PSAs); IEC

brand development, visual identity (logo),

and slogan (“Rayey Shumah Eyenday Shumah” or “Your Vote Your Future”).

In order to better inform

the informational and

outreach campaign, the

IEC designed and

implemented with ELECT

II support, a public opinion

survey and stakeholder

assessment implemented

during the second half of

2013. This also gave IEC’s

a greater understanding of

the Afghan electorate’s knowledge and perceptions of the electoral process in order

to fine-tune its messaging campaign and to better address certain segments of the

electorate (women, youth, minorities, disabled).

Public Outreach comprises direct and indirect methodologies. Direct approaches

include: civic and voter educators conducting face-to-face informational sessions,

primarily at district level; community-based seminars and consultations with voters

at provincial level; and the establishment of an IEC Voter Information - Call Centre.

Indirect public outreach methods included: TV and radio PSAs, installation of

billboards and pole signs around the country, and the distribution of other

IEC public outreach materials (Bamyan, 23 August 2013) Photo by ELECT II

IEC public outreach materials (Bamyan, 23 August 2013) Photo by ELECT II

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informational printed materials (posters, leaflets and brochures). In addition to more

traditional forms of media, the IEC also incorporated some new media approaches

into its public outreach campaign including social internet forums.

The IEC also gave special attention to a series of provincial seminars on electoral

participation in the democratic process. These community-based IEC initiatives

engaged community and religious leaders, as well as women’s and youth networks,

primarily underscoring the importance of women’s participation in the electoral

process as voters, candidates, elections administrators and election observers. A

sub-theme focused on the fact that women’s participation in civic and political life is

consistent with Afghanistan’s cultural norms and religious principles. Some of these

seminars also had a special emphasis on youth participation, particularly in the

context of the IEC’s ‘top-up’ voter registration efforts aimed primarily and first-time

and newly registered voters.

a. Direct Public Outreach

1. Provincial seminars

In a specific effort to achieve significant female participation, the IEC initiated 17

local seminars that were held early in 2013 in Kabul province with religious leaders

and women groups, and the IEC expanded this concept to all the provinces in the

second half of the year with a round of provincial seminars on inclusive elections.

These two-pronged provincial seminars included a day with community and religious

leaders, and one with influential/youth women’s networks respectively. Both

seminars were well attended (up to 300 participants per day), and aimed to increase

electoral awareness and engagement, in particular of women. In most instances,

high level officials, including the provincial governors, heads of provincial councils,

governors, mullahs, female provincial council members, and heads of local offices of

the Ministry of Women Affairs were in attendance. Each seminar featured working

groups, where participants brainstormed and discussed how the message of

elections and their importance could be best spread through different mechanisms.

The seminars also received wide attention in local and national media, enhancing

the IEC’s outreach efforts. Main topics of discussions included:

• participants motivation to become multipliers in spreading the election

message;

• importance of female participation;

• outreach as a national process;

• importance of elections, importance of participation;

• technical details on the registration process, criteria, eligibility;

• candidate nomination.

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Also in Kabul, the IEC Kabul Provincial Office, with assistance of ELECT II,

conducted a two-day public outreach workshop (16-17 September) for the elders,

community leaders, female activists, female organizations, female leaders and

religious readers. The aim of the workshop was to get support to inform people on

the up-coming electoral process, and the importance of their participation in the

political process of the country.

In December, the IEC further conducted regional seminars with youth in 7 regional

centres: Kabul, Kandahar, Herat, Paktia, Jalalabad, Kunduz, Bamyan, and Mazar.

These seminars focused on the roles and

responsibilities of youth in the upcoming elections.

Approximately 400 male and female students attended

each seminar, while media attention was given to

coverage of the seminars. They were conducted in

close coordination with the Ministry of Information and

its Culture’s Youth Affairs section.

Meanwhile nationwide gender-focused youth seminars

were conducted in all provinces in late 2013, on 4-5

December, with a particular focus on young women’s

participation in the electoral process, as voters,

candidates, election administrators and observers. The

model for the seminars was also two back-to-back one

day seminars, focused on women’s groups and

networks one day, and separately a second day

focusing on men’s sensitization to women’s electoral

participation with community and religious leaders.

2. Voter Information Call Center

Since the launch of the IEC’s Voter Information Call Centre in mid-2013, until the end

of the year, the Call Center received more than 700,000 calls from the public at

large, with questions on the electoral process,

of which around 10% were from women. The

Call Centre responds to voter queries every

day from 7 am to 8pm. The IEC has been

reviewing measures to further promote

women’s utilization of the call centre, including

more targeted airing of the PSAs giving

information about the Call Center and how to

access it.

Photo: IEC Voter Information Call Centre (August 2013) Photo credit: IEC

IEC leaflet distributed by civic and voter educators to encourage men and women to participate in the voter registration (2013)- Picture by IEC

https://www.facebook.com/photo.php?v=614719458550891

42 | P a g e

3. Civic and Voter Educators

In 2013, the IEC deployed for the VR campaign 864 (623 male and 241 female) Civic

and Voter Educators in all districts. They were trained and monitored by 76

Provincial Trainers (33 females), and conducted direct face-to-face community-

based meetings, mostly at district level, for the transfer of voter education

information and corresponding materials (leaflets, brochures and factsheets). These

Civic and Voter Educators also facilitated IEC provincial seminars. For the elections,

the IEC will almost double the number of civic educators in 2014.

4. Mobile theatres

In 2013, the IEC initiated preparations to establish mobile theatre groups to further

reach out in 2014 to voters, in particular illiterate people, in the weeks before the

elections. The mobile theatre scripts will emphasize the importance of elections in

the democratic process, from a practical perspective of a voter’s ability to influence

his or her future. ELECT II initiated procurement assistance to the IEC.

b. Indirect Public Outreach

1. Radio and TV Public Service Announcements (PSA)

In 2013, the IEC has launched a series of

radio and TV PSA’s in both Dari and

Pashto to reach out to a large segment of

the electorate, including a) messages on

the commencement of voter registration

(May); b) voter registration eligibility

criteria (June); c) launch of the second

phase of the VR district level top-up

campaign (July), d) the importance of

women’s participation in the electoral

processes (July/August); e) the voter information Call Centre (August-ongoing), f) the

announcement of the candidate nomination period (September), g) the continuation

of the VR at provincial level (December – ongoing), h) the mandate of the IEC

(December-ongoing), i) challenges period for candidate nomination (October-

November); j) IEC mandate, and k) motivational messages for women and youth

(December – ongoing).

The following samples of TV PSAs can be viewed online:

http://www.youtube.com/watch?v=7FTsEF7ELS8 (Start of the VR: Dari)

http://www.youtube.com/watch?v=Tz-xl0PRAbI (Eligibility Criteria: Pashto)

http://www.youtube.com/watch?v=8aDb-qzGjtE (Women’s participation: Dari)

http://www.youtube.com/watch?v=ZNgJkCiuvEA (women’s participation: Pashto)

Filming of PSA (Kabul, 08 October 2013) – Photo by ELECT II

http://www.youtube.com/watch?v=7FTsEF7ELS8

http://www.youtube.com/watch?v=Tz-xl0PRAbI

http://www.youtube.com/watch?v=8aDb-qzGjtE

http://www.youtube.com/watch?v=ZNgJkCiuvEA

43 | P a g e

http://www.youtube.com/watch?v=hA-T2IamnlU (VR districts: Pashto)

http://www.youtube.com/watch?v=ZdD2PmxOFAM (Voter Info Call Centre: Dari)

http://www.youtube.com/watch?v=zqGl-IZLfTA (Voter Info Call Centre: Pashto)

http://www.youtube.com/watch?v=c1gRJO3K2pI (Candidate Nomination: Pashto)

http://www.youtube.com/watch?v=7Mw131J4Ve8 (IEC mandate: Pashto)

http://www.youtube.com/watch?v=OcaNGghROG4 (IEC mandate: Dari)

http://www.youtube.com/watch?v=TvPzxVt6vbI (IEC VR extension: Pashto)

http://www.youtube.com/watch?v=cjIrCfSRmkI (IEC VR extension: Dari)

http://www.youtube.com/watch?v=VX19RLmt55s (IEC CN challenges period: Pashto)

http://www.youtube.com/watch?v=rVk-7tS5htc (IEC CN challenges period: Dari)

Photo 1: The making of IEC TV PSA on women’s participation for VR (July 2013) – Photo by ELECT II

Photo 2: IEC TV PSA announcing the candidate nomination period (September 2013)

These PSAs have been broadcast on 11 TV stations and 30 Radio stations across

the country, reaching out to most of the citizens in urban areas. More than 80% of

the TV PSAs have been broadcast in prime time, while radio PSA’s were broadcast

several times a day in all time slots. It is estimated that the TV PSAs reached out to

approximately 45% of the target population, or 2.7 million people. The number of

people covered by the radio station broadcasts is approximately 16.7 million.

2. Billboards and pole signs

To promote the voter registration ‘top-up’ campaign, 500 billboards and 5,000 pole

signs were established in all provincial capitals in 2013. ELECT II assisted the IEC

with the design, development and procurement of billboards and pole signs. In 2014,

the number of billboards will increase to 851 new billboards and 10,000 new pole-

signs to be installed nationwide.

3. Social Media

The IEC also reaches out to stakeholders and the public at large through social

media forums, such as facebook and

youtube.

IEC Facebook page informing followers on

the Candidate Nomination Process: https://www.facebook.com/photo.php?v=61581469844136

7&set=vb.346663142023192&type=2&theater

http://www.youtube.com/watch?v=hA-T2IamnlU

http://www.youtube.com/watch?v=ZdD2PmxOFAM

http://www.youtube.com/watch?v=zqGl-IZLfTA

http://www.youtube.com/watch?v=c1gRJO3K2pI

http://www.youtube.com/watch?v=7Mw131J4Ve8

http://www.youtube.com/watch?v=OcaNGghROG4

http://www.youtube.com/watch?v=TvPzxVt6vbI

http://www.youtube.com/watch?v=cjIrCfSRmkI

http://www.youtube.com/watch?v=VX19RLmt55s

http://www.youtube.com/watch?v=rVk-7tS5htc

https://www.facebook.com/photo.php?v=615814698441367&set=vb.346663142023192&type=2&theater

https://www.facebook.com/photo.php?v=615814698441367&set=vb.346663142023192&type=2&theater

44 | P a g e

3.2 External Relations

In line with the IEC’s strategic plan (2012 – 2016), ELECT II is working closely with

the External Relations

department to increase its

capacity in promoting a

comprehensive and

structured two-way

dialogue with key

stakeholders, such as

candidates and their

agents, political parties,

civil society organizations

and media representatives.

The end objective is a more

meaningful participation of

relevant electoral

stakeholders throughout

different planning and operational phases of the electoral process. The IEC has been

supported by ELECT II to internalize and institutionalize the concept that an effective

external relations strategy means more than holding the occasional press

conference or organizing workshops for partners. A successful external relations

strategy must be dynamic, and contains well-structured and pro-active initiatives to

engage electoral stakeholders, and promote a sense of broad ownership of the

elections process. To this end, the IEC External Relations Department assisted the

design and implementation of a stakeholder assessment, to better understand

informational needs and perceptions of the electoral process by key stakeholders in

the run-up to the 2014 elections.

Indicators:

3.2.a: number of consultative dialogues, including and across the country, that take place with all key stakeholders on relevant electoral issues and plans Besides the some 100 workshops and stakeholder meetings nationwide with

community leaders, local religious figures, women, youth and networks

(mentioned above in the public outreach chapter), the IEC further conducted

in 2013 at its HQ in Kabul around ten meetings with high level stakeholders,

including government representatives, on Security, Gender, and Public

Outreach.

3.2.b: number of consultative dialogues that include gender elements All of the above mentioned, seminars and stakeholder meetings include gender component, from security meetings (on the topic of separate female registration/voting stations and the related issue of female body searchers) to

Consultation with Political Parties on the electoral Code of Conduct for Political Parties and Coalitions - Photo by ELECT II

45 | P a g e

public outreach events (on the topic women’s engagement during the VR, candidate registration, and participation in the elections).

3.2.c: number of consultative dialogues with women groups on a wide range of electoral issues and processes In 2013, with ELECT II input, the IEC conducted 5 High-Level Gender and Elections Coordination meetings at national level; 8 regional workshops with youth (male and female) and 34 provincial youth meetings on gender (male and female separately); and 34 provincial stakeholder seminars with one day for influential women and women’s networks.

In 2013, the IEC conducted multiple stakeholder consultation sessions on voter

registration and candidate nomination, including but not limited to provincial

seminars (see: public outreach). The IEC also convened consultation sessions with

political parties, media, observers and other stakeholders to discuss self-regulatory

electoral codes of conduct (see output 1). The IEC kept up general public

awareness on the voter registration ‘top-up’ campaign, and its importance for

inclusive elections, through frequent press conferences - contributing to the wider

understanding of the electoral process by the general public. The IEC emphasized

frequently on the importance of a sound voter registration as a main tool to

guarantee well organized, accountable and transparent elections. To include national

key stakeholders in the debate, the IEC organized several consultation sessions on

this topic.

A significant external relations initiative through which the IEC was able to garner

broader public support for the electoral process was the engagement of religious

leaders, making them aware of the importance of free and inclusive elections for

Afghanistan’s future and soliciting their support. The IEC approach to community

engagement, on the right to vote and the dangers of electoral fraud, has been an

important conduit for planning credible elections. The particular role of the religious

leaders in Afghan society cannot be underestimated. Therefore, support from this

group is a significant factor. A workshop at the national level at the end of 2012

resulted in a renewed written commitment of religious leaders to the electoral

process, in line with a similar letter signed in 2008. In 2013, referring to the

commitment made by religious leaders in 2012, the IEC further engaged with local

stakeholders (community and religious leaders) on this matter at the local level, in

support of community engagement for inclusive elections.

Another significant external relations forum that was developed under the auspices

of the IEC is the ‘Gender and Elections Coordination’ meeting, which was

initiated in 2013 and which brings together a wide range of national and international

partners with similar objectives to promote women’s participation, and to this end to

develop mutually reinforcing cooperation and initiatives. In 2013, five such meetings

were conducted (for more details: see the chapter of gender). Furthermore, the IEC

organized multiple press conferences, stakeholder meetings and consultations

46 | P a g e

also on topics such as the newly established Commission, candidate nomination,

women’s participation, public outreach (High Level meeting), security (High Level

meeting) and other issues. These frequent stakeholder meetings play an important

role in the IEC’s attempt to inform and engage national and international partners to

support the conduct of credible elections.

Another key function of external relations is to underscore a transparent electoral

process through facilitation of international and domestic election observation efforts.

As such, on 10 September, the IEC forwarded invitations to international

observers, via the Ministry for Foreign Affairs, to the: Organization for Security and

Cooperation in Europe (OSCE); European Commission (EC); Asian Network for Free

Elections (ANFREL); and Asian Association of Electoral Authorities (AAEA). By end

of 2013, the IEC had issued more than 1,000 accreditation cards, mostly for

domestic observer - civil society initiatives, but also including journalists and other

stakeholders. This phase of observation was mainly focused on the voter registration

process, but also started to lay the foundations for observation of the ongoing

electoral process, culminating in the campaign, polling, and post-election periods. In

this context, it is expected that in 2014, the IEC is expected to accredit an estimated

100,000 observers, journalists, party-agents and other electoral stakeholders to

monitor the Presidential and Provincial Council elections.

The IEC also intends to continue to maintain very close donor relations. Through

the various forums such as the ELECT II Project Board Meetings, the Technical

Gender Coordination Group meeting at the IEC Media Centre (Kabul, 11 November 2013) – Photo by ELECT II

Left: ELECT II Technical Working Group (Kabul, 21 August 2013); Right: ELECT II Project Board Meeting (Kabul, 03 September 2013) – Photos by ELECT II

47 | P a g e

Working Group meetings, and other bilateral meetings, donor partners are kept

abreast of all immediate and relevant matters, and have an input on issues related to

the project. ELECT II donor partners, of which some contributed roll-over funding

from the preceding ELECT project (2006-2011) include: Australia, Canada,

Denmark, the European Union, France, Germany, Italy, Japan, the Netherlands,

Norway, Republic of Korea, Sweden, Turkey, the UK and the United States.

3.3 Candidate Registration

Indicator 3.3.a: establishment of vetting mechanism and procedures in advance of the launch of the candidate nomination process. As the new Electoral Law does not foresee the establishment of a vetting committee, the above mentioned indicator is not anymore relevant in advance of the launch the CN process. However, once registered, the IEC still verified the candidates’ registration and the IECC continued the adjudication of complaints and objections regarding certain candidates. Indicator 3.3.b: Percentage of provincial IEC offices that are ready in a timely manner to roll out the candidate nomination process on the agreed date All 34 IEC provincial offices were in a timely manner ready to roll out and process the provincial candidate nomination process. The provincial IEC offices also facilitated the collection of complaints for the IECC (due to lack of

IECC provincial offices), from where they were forwarded to the IECC in Kabul.

From 16 September until 6 October,

the IEC undertook the candidate

registration process, which was

largely coordinated by the IEC

External Relations Department with

support from the IT Department. After internal verification by the IEC, and

adjudication of complaints by the IECC, the IEC confirmed on 25 November the

registration of 11 presidential candidates and their vice-presidential nominees, as

well as 2,713 provincial council candidates (308 women).15 As stipulated in the

Electoral Law, candidates needed the endorsement of a minimum of 100,000

supporters from at least 20 provinces. Provincial Council candidates needed the

support from 200 to 600 supporters, depending on the size of the province. Due to

the fact that some voter registration data from previous elections could not be fully

verified, impacting upon the ability of the IEC to accurately cross-check supporters

lists, the IEC reportedly accepted a 30% deviation ‘tolerance level’ (40% for women)

from the established criteria for candidate nomination.

15

On 26 January 2014, the IECC disqualified 25 provincial extra council candidates for failing to meet the required minimum age of 25 years old. The IECC indicated that further investigation regarding candidates’ requirements is ongoing.

Verification of candidates list at the IEC data centre (Kabul, 08 October 2013) Photo by ELECT II

48 | P a g e

ELECT II assisted the IEC with design and review of candidate nomination

procedures and forms, as well as with

incorporating a significant gender-perspective

throughout the process, not least supporting

the IEC efforts to encourage greater women’s

registration through concrete incentives. This

included the IEC decision to reimburse female

provincial candidates their deposits, even if

they would not meet the minimum required

vote percentage (see below).

As of closure of the candidate registration process on 6 October, and prior to the

verification and complaints process and procedures, the IEC had initially registered

in total: 27 presidential candidates (one female presidential candidate and nine

female vice-presidential candidates); and 3,059 provincial council candidates (323

women). Annex 10-a displays the full list of presidential candidates and their vice-

presidential nominees, registered as of closure of the registration process16. The list

with the names of the 11 Presidential Candidates can be found on the IEC website:

http://iec.org.af/pdf/finallist13/presidential.pdf

For the Provincial Council elections, 3,059 candidates had initially registered

themselves at the IEC’s provincial offices, of which 323 were women. As per an IEC

resolution, and based on 2013 population estimates of the Central Statistics

Organization, in total 458 provincial council seats are allocated nationwide. Of these,

96 seats are reserved for women in line with the 20% quota as stipulated in the new

Electoral Law (reduced from 25% in the previous legislation). After IEC verification

and IECC adjudication,

2,713 provincial council

candidates were

confirmed. Annex 10-b

provides a summary of the

different verification and

adjudication statistics of

provincial council

candidates.

Picture: IEC website with voter registration information and an online application for Observers Accreditation (www.iec.org.af) (2013)

16

After the IEC confirmation of verification of the application requirements, the IEC announced on 22 October a list of 10 presidential candidates, with one candidate later being reinstated by the IECC on 19 November. The list with the names of the 11 Presidential Candidates can be found on the IEC website:

Verification of candidates list at the IEC data T=treatment centre (Kabul, 08 October 2013) – Photo by ELECT II

http://iec.org.af/pdf/finallist13/presidential.pdf

http://www.iec.org.af/

49 | P a g e

From a technical and operational perspective, the candidate registration process can

be regarded overall as a success. Together with the VR exercise, it enhanced

coordination between IEC HQ and provincial offices, and witnessed solutions for

distinct operational challenges. The process, however, emphasized the need for

close coordination between the IEC and IECC on joint timeline planning. It also

underscored the importance of transparency of electoral preparations at all times,

including observers’ access to Commission meetings at key stages of the electoral

process in line with legislation. The IEC assisted the IECC with collecting and

retrieving the complaints in the provinces for submission to the IECC in Kabul, due to

the fact that IECC provincial offices had not yet been established.

Women’s candidacy

Efforts to secure greater women’s participation in the electoral process, including as

candidates to elected office, underscore Afghanistan’s international commitments,

including as a signatory of the Convention on the Elimination of All Forms of

Discrimination against Women (CEDAW). However, the 2013 Electoral Law

stipulates 20 % reserved seats for women in Provincial Councils, decreased from

25%, which represents a setback. The total number of reserved seats for women has

therefore been reduced from 124 (2009) to 96 at present. As per an IEC regulation,

and based on 2013 population estimates of the Central Statistics Organization, in

total 458 provincial council seats are allocated nationwide.

Women’s participation as candidates, voters, election observers and electoral

officials is critical for democratic elections. Encouraging female candidates for the

2014 elections was not without challenges. In order to enhance female participation,

the IEC issued a regulation on 29 September, stating that female provincial

candidates will be fully refunded their financial

deposit, even if they do not reach the required

minimum votes (2% for Provincial Council

elections). The reimbursement of female

candidates’ deposit is supported by a DFID/TAF

programme. This message was also spread

through the Afghan Women’s Network. In the last

days of candidate registration, there was a

significant increase in women’s registration. A

week before the end of the registration, 9 provinces still did not have enough women

registered to reach the minimum number of female candidates according to seat

allocation quotas. By the closure of the registration period on 6 October, all

provinces had more female candidates registered than the allocated female quota.

The contest ratio for women is 3.5 candidates per (quota) seat, compared to 7.5 for

men. Women represent 11% of registered candidates (1% higher than 2009 and 3%

higher than 2005). Other outreach efforts included gender-focused seminars with

local elders, mullahs and influential women, targeted radio and TV public service

IEC ballot lottery (25 November 2013) – Photo by IEC

50 | P a g e

announcements, and voter educators in the field. (See further below on gender

specific results)

3.4 Gender mainstreaming and women’s outreach

See below: Chapter IV. Gender Specific Results

For progress according to indicators, see the snapshot table below.


During 2013, a total of USD 4,321,569 was spent for output 3. For more details,

please see Annex 2.

IEC Public Outreach Billboard to advertise ‘IEC Voters Information Call Centre ‘ (telephone number: 190) – Photo by IEC

51 | P a g e

The table below is a snapshot of where ELECT II is in relation to its annual targets


2013 BASELINE 2013 ANNUAL TARGETS


Baseline 3.1.a-d: Survey and

Stakeholder Assessment along

with secondary data obtained

from external stakeholder data

(i.e., Asia Foundation Survey,

Democracy International Survey,

and Altai’s Media Landscape

Study); Previous POD

mechanisms; and quality of

targeted messages and materials

3.1.a: development and

broadcast radio PSA, TV PSA,

radio drama, TV/radio round

table, call centre, sms, mobile

theatre, printed materials

3.1.b: Number of public

outreach activities that

specifically target women

3.1.c: Number of participants

reached through direct public

outreach activities

3.1.d.: Number of participants

reached through indirect public

outreach activities

3.1.a. 10 TV and radio PSAs (Dari and Pashto); some 100 regional,

provincial and district seminars; 500 billboards and 5,000 pole signs

placed nationwide; call centre established 16 July (500,000+ calls).

1,000,000s+ printed materials distributed by 864 Civic and Voter

Educators (including 200,000 specific for women); the conduct of

some 100 seminars, workshops and consultation sessions with a

wide range of stakeholders (including religious leaders, women

networks, etc.); the use of social media; and gender specific

programmes – including, but not limited, the establishment of a

Gender and Elections Coordination Group.

3.1.b: 34 provincial seminars with community/leaders and mullahs

(day1) and women (day2) with focus on women participation; as well

as 34 provincial youth seminars with gender perspective. 200,000

gender specific leaflets distributed.

3.1.c: 34 provincial seminars conducted with community/leaders and

mullahs (day1) and women (day2) (between 150-300 participants per

day per province). +500,000 people called Call Centre, circa 10%

women; 864 Civic Educators deployed for face-to-face interactions

3.1.d: approx. 2.7 million and 16.7 million people reached through 6

TV and radio PSA, respectively.

For 2014, as a lessons

learnt, with ELECT II

assistance the IEC hired a

third party group to

monitor the public

outreach activities as well

as the civic and voter

educators.

Baseline 3.2: zero – stakeholder

interactions were in the past

neither always systematically

structured not consultative.

3.2.a: (2012-2015) At least 10

consultative stakeholder

meetings a year with all relevant

partners, take place in Kabul

and at all the regional centres

(depending on the security).

3.2.a. Besides 34 Provincial stakeholder consultations (see 3.1), 4

High Level Coordination meetings were organized (Security/Public

Outreach), as well as 5 Gender and Election coordination meetings. 8

regional workshops with youth (students) and 34 provincial

workshops with youth with a specific gender perspective.

Stakeholder meetings

On track

52 | P a g e

3.2.b. (2012) At least half of all

the consultative stakeholder

meetings include a gender

component

3.2.c. (2012-2015) At least 3

stakeholder meetings with

women groups on annual basis

3.2.b. All 34 Provincial Stakeholder meetings addressed women

participation and included full day with women. Five meetings went

specifically about women and elections (Coordination Group). 8

regional workshops with youth and 34 provincial youth meetings on

gender. In all other meetings, significant attention was given to

gender sensitive issues.

3.2.c. High level Gender and Elections Coordination Group

established - 5 meetings in 2013.

Baseline 3.3.a: NA

Baseline 3.3.b: NA

3.3.a: (2013) establishing of the

vetting mechanism and

procedures by September 2013

3.3.b: (2013) All provincial IEC

offices (100%) are ready to roll

out the candidate nomination

process on 16 September 2013

3.3.a: Candidate Verification procedures developed in line with the

Electoral Law. IECC did adjudication of complaints and objections of

registered candidates for 2014 elections.

3.3.b: The IEC conducted timely and successfully the Presidential and

Provincial candidate registration process. IECC provincial offices not

ready (see below)

On track – IECC

challenges, see below

Baseline 3.4.a: April 2013: a.

fixed term staff+ long-term

temporary staff: a-b) 57 women

over 423 men (11%);

2010 elections: c) no baseline

data found; d) civic educators

31% women (besides 7%

Kuchis); DFC 19% (besides 6%

Kuchis); g, h, i) no baseline data

found.

Baseline 3.4.b.: no gender

strategy in place

Baseline 3.4.c:

3.4.a: assistance to IEC for IEC female recruitment at HQ and provinces: - ratio fixed term staff + long-term permanent staff increased by 7% by end of 2013 - recruitment of at least 40% female VR trainers - recruitment of at least 40% female civic educators - recruitment of at least 30% female DFCs - recruitment of at least 25% female voter registration 3.4.b - development of Gender Strategy for electoral operations

3.4..a Recruitment new IEC fixed term and temporary staff:

Provincial IEC staff (270/1,339) (20%)

- 259/1,096 female permanent staff (5%)

- 11/243 female long-term temporary staff (24%)

Provincial IEC staff (specific functions – included in the group above)

(102/227) (45%)

- 35/83 female prov. training officers (42%)

- 33/76 female prov. public outreach (43%)

- 34/34 female prov. gender officers (100%)

- 0/34 female prov. external relations (0%)

IEC Field Staff (VR, civic educators, etc.) (1,774/5,187) (34%)

- 164/369 female provincial VR staff (44%)

- 1340/3555 female district VR staff (38%)

- 241/833 female VR civic educators (29%)

- 0/31 female Kuchi liaison officers (0%)

All VR centres have separated female stations operated by female

On track

53 | P a g e

(incl. VR); - implementing gender related VR activities - comprehensive gender TOT training for IEC VR staff; - Develop and distribution VR gender leaflet (200,000) 3.4.c - establishment Gender Elections Coordination group that meets at least 5 times a year; - at least 5 gender presentations in general stakeholder consultations on electoral issues (CSO, Political parties, Media, Gov) in line with Strategy; - consultations (34) with mullahs in all provinces, seminars with women voters in all provinces

staff only.

For the preparation of 2014 elections:

- recruitment initiated for 681/ 3,198 DFCs for 2014 elections (21 %)

- recruitment initiated for 473/1428 female electoral CVEs (33%)

IEC HQ (102/775) (13%)

- 30/190 female permanent staff (16%)

- 72/585 female long-term temporary staff (12%)

IEC HQ staff (specific functions – included in the group above)

(32/172) (18.6%)

- 11/62 female Call Centre operators (18%)

- 21/110 female data centre staff (19%)

3.4.b.

- Gender Strategy + Action Plan implemented

- radio/TV PSA on women’s participation

- gender specific voter education/inform.: prov/district distribution

of 200,000 gender VR leaflets

- Multiple workshops at national, provincial and district level (see

above 3.4.c.)

3.4.c.

- 5 Gender and Elections Coordination meetings conducted

(Aug/Sept)

- Enhanced communication of IEC to media, political parties, etc. to

engage women in process. Stakeholder meetings with Afghan

Women Networks

- Workshops

17 Kabul based seminars with community leaders/mullahs as well as

women groups, with specific focus on female participation in

electoral processes: 17 in Kabul (June/July); 34 in all provinces (Sept);

34 in all provinces with youth (Dec.)

54 | P a g e

OUTPUT 4: The IEC’s operational management functions and the

project support services are provided in a transparent, efficient and

effective manner

Output 4 relates to both the daily operational support for the IEC’s functioning that

ELECT II provides, as well as the management of the project’s own resources

mobilized to support the IEC. The former is broken down into services that - as per

agreement between UNDP and the IEC - ELECT II provides for the IEC, and funds that

ELECT II provides for the daily operations of the IEC that are managed directly by the

IEC.

This output has a three-pronged focus:

• Enhancing the operational capacity of the IEC through advisory support in the

areas such as Finance, Procurement, Human Resources, Administration, as well as

providing the financial means for the IEC’s operations;

• Proper management of ELECT II project resources;

• Providing support for electoral operations, in particular with regards to

procurement and translation services.

4.1 IEC’s Operational functions

Indicator 4.1: the auditor’s opinion on the IEC’s operational management

The IEC audit conducted by UNDP in 2013 for the year 2012 includes some

qualification comments, in particular related to advances. ELECT project is

assisting IEC to implement those audit recommendations. The IEC’s audit for

the year 2013 was not finalized at the time of release of this report. Furthermore,

a UNDP GARMIN report on on-budget modalities (Q2 2013) served as baseline

for UNDP/ELECT II NIM funds transmission. In addition, a Micro capacity

assessment of IEC was undertaken in Q-4, 2013 by external auditors to assess

IEC financial institutional capacity to consider IEC as NIM partner.

With support from ELECT II, for the first time IEC made a submission to the Ministry of

Finance in 2013 for $7.4 million USD for 2014. On 14 January 2014, the Wolesi Jirga

approved a national budget of US $4,087,000 USD for the IEC for the 2014 budgetary

year. For the IEC, this is an increase of more than $1.5 million USD compared to

previous years.

In terms of financial sustainability of the IEC, although IEC did not get its entire

requested budget, this represents increased government funding to the IEC and is

therefore deemed as the first step- i.e. that GoIRA is meeting an increased budget for

the daily running cost of the IEC. If this proceeds accordingly, the next step for the IEC

could be to request the MoF to fund for activities such as trainings and workshops that

take place between elections. The issue of increased government funding to the

55 | P a g e

electoral bodies also represents increased sustainability, in particular for post 2015

planning.

Another key area of support includes the financial and operational support to the IEC in

undertaking their Operations. After a lot of effort from the technical support of UNDP

CO and ELECT II Advisors, the MoF agreed to establish a separate bank account in

the name of the IEC for the UNDP project funds transmission. In this regard, an official

communication was sent by the MoF to IEC in November, 2013. This will enable the

UNDP to provide quarterly advances. This is a tremendous step forward towards

strengthening National Implementation Modality (NIM).

One of the main supports provided by the project management unit is the institutional

capacity development of IEC in critical

areas of procurement, finance asset

and HR management. In 2013 and the

beginning of 2014, a Micro-Capacity

Assessment was conducted by the

UNDP Country Office of its

implementing partner, the IEC, across

various operational areas, to determine

the risk assessment for different type of

payment modalities. It is expected that

there will a combination of financial

management tools used, which will

include NIM advance to IEC, direct payment by UNDP based on the procurement

undertaken by IEC, reimbursements, and also complex and sensitive procurements

undertaken by UNDP. This methodology will result in long-term capacity building of

IEC, and a more sustainable approach and national ownership of the process.

ELECT II is also assisting the IEC with the development of systems and procedures in

a coherent manner in line with NIM. During 2013, almost 30 SOPs were developed in

areas of finance, procurement, asset and HR management and trainings were also

organized for the IEC staff. An assets-tracking software was developed and installed,

and payroll management system trainings that were conducted for the HQ and

provincial staff of IEC. For 2014, a more integrated approach will be adopted to

develop an “Operational Manual” to ensure consistency and uniformity of the IEC with

all relevant laws, policies and procedures. This will be linked to quality assurance

mechanisms to ensure that there is not only consistency in its application, but also

regular updating. The IEC procurement, finance, asset and HR personnel will be

trained on these policies and procedures over the next year, including the respective

provincial staff.

Candidates taking the exam for IEC Officer for Procurement, Finance, and Administration – Photo ELECT II

56 | P a g e

Another major step in the direction of sustainability of electoral assistance would be to

eventually move increasingly towards “on-budget” modalities. Following Presidential

Decree 45, which essentially states that electoral assistance should move on-budget,

discussions took place in 2013 among donor partners, the Government of the Islamic

Republic of Afghanistan (GoIRA) and the UN. As these discussions are intended to be

forward looking, an informed analysis assessing the strengths and liabilities of moving

electoral assistance ‘on-budget’ was deemed desirable. UNDP therefore fielded a high-

level independent mission, termed as the Grants Agreement and Risk Management

(GARMIN) mission. The mission looked into the respective budget lines of the electoral

operations, and recommended certain budget lines that could possibly move on-

budget. However, the predominant factor depends on the negotiation and agreement

by the IEC and the Ministry of Finance (MoF) as to specific categories that may move

on-budget, and what percentage of the overall electoral budget that this will represent.

Based on the GARMIN report recommendations, discussions had begun between the

MoF and the IEC. Dialogues focused on possible cost categories and percentage that

could be transferred on-budget, keeping in mind the context of a compressed and time-

bound electoral process and constitutionally-mandated independence of the IEC.

However, with the beginning of the electoral season, these discussions have been

postponed between the two institutions. It is however expected that discussions will

resume, and the cost categories and percentages to be further developed for the 2015

elections.

Finally, at the end of 2013, ELECT II, under the lead of the UNDP Country Office,

assisted the IEC with discussions with the Director-General of the Budget Office to

regulate the salary structure of IEC staff as per accordance to the Afghan Law. Political

appointments, including IEC/IECC Commissioners and CEOs, are not allowed to

receive salary remunerations above their Government salary as per Afghan Law. All

other IEC tashkeel staff, not politically appointed, will receive their tashkeel salary and

a CBR allowance. The temporary IEC staff would then be placed on the National

Technical Allowance (NTA) scale. A later communication letter by the MoF in early

2014 informed that the implementation would be waved until post-election period.

4.2 ELECT II project resources management

Indicator 4.2: the extent to which the project itself is efficiently and effectively

managed

a) in terms of transparency: auditor’s opinion;

The 2012 Audit exercised for DIM part was conducted by OAI (in Q1-2 2013).

Auditors marked some areas as audit qualifications. ELECT is taking actions to

implement the audit recommendations.

b) delivery rate

90% budget execution (well above the 80% target)

57 | P a g e

(AWP Budget: 75,207,100 USD vs. Actual Expenses: 44,800,726 USD and

Commitments: 23,493,795 USD)

c) percentage of project outputs according to work plan:

Out of 37 indicators developed to monitor the project’s progress towards its

outputs; as of end of 2013, 29 project indicators are on track, 5 are behind initial

schedule, and 3 were not yet applicable. Delays according to initial plan include:

construction of provincial offices due to revised planning; (full) establishment of

the IECC, due to late passage of the required legal framework and subsequent

late appointment of Commissioners; and conduct of IEC internal staff survey

due to competing priorities.

d) the number of regular and documented project board meetings;

PBMs were held on 12 June, 2 September, and 11 December, besides virtual

meetings on 24 and 28 February 2013. TWG meetings were held: on 14

January 2013, 11 February 2013, 25 March 2013, 15 April 2013, 21 April 2013,

05 June 2013, 21 August 2013, 17 November 2013, and 2 December 2013.

e) quality of payments to the IEC

All IEC payments in 2013 were certified by ELECT II finance team according to

UNDP regulations and in line with UNDP-IEC agreement.

Internally, the project management unit facilitated the expansion of the project’s scope,

reflected in the recruitment in 2013 of a large number of new ELECT II staff members,

of which 24 new regional advisors; as well as in the project’s budget increase to almost

340 million USD. All units, from HR, to finance, procurement, assets management, IT,

dispatch, and administration contributed to the internal streamlining of processes to

enable advisors to focus on their technical role. At last, the translation unit provided in

2013 written translations in English, Dari of Pashto of more than 1,200 documents, in

addition to providing interpretation services.

4.3 ELECT II direct operations support

Indicator 4.3: Quality and timeliness of support services for electoral activities.

Electoral procurement plan developed in line with 2014 elections plan and AWP;

By end of 2013, the project

concluded procurement of USD 20.9

million while $56 million was in

process. ELECT II received

assistance from UNDP Procurement

Support Office in Copenhagen for all

international procurement.

In terms of direct electoral support,

ELECT II played a prominent role in

the procurement of electoral ELECT II staff testing and assisting IEC with bar code scanner for assets tracking purposes of electoral materials – Photo by ELECT II

58 | P a g e

materials for the VR as well as the upcoming elections. By end of 2013, the project

concluded procurement of USD 20.9 million while $56 million was in process. ELECT II

developed a 2014 elections timeline that outlines all various steps and procedures to

be undertaken to procure both international and domestic goods and services for the

2014 elections. ELECT II had all electoral items procured by the end of the year, in

order to further enable all logistical operations and movement of materials from

January onwards. It was decided that ELECT II international procurement would be

supervised by the UNDP Procurement Support Office in Copenhagen.



please see Annex 2.

Below is a snapshot of where Output 4 is in relation to its annual targets.

2013 BASELI

NE

2013 ANNUAL TARGETS 2013 ACTUAL COMME

NTS

Baseline

4.1:

qualified

auditor

report in

2011

4.1. The IEC has an unqualified

audit report

NIM audit exercise was undertaken in Q-2, 2013 for

the financial year 2012 by external auditors.

Auditors raised few observations and

recommendations. ELECT project is assisting IEC to

implement those audit recommendations.

UNDP GARMIN report on on-budget modalities (Q2

2013) as baseline for UNDP/ELECT II NIM funds

transmission

Micro capacity assessment of IEC was also

undertaken in Q-4, 2013 by external auditors to

assess IEC financial institutional capacity to

consider IEC as NIM partner.

UNDP and

ELECT II is

assisting

the IEC

with

sharpening

its financial

procedures

, as well

working

closely

together

with MoF

regarding

modalities

of funds

transmissio

n

Baseline

4.2: NA

4.2. a) unqualified project audit

report rating; b) at least 80%

project budget execution; c) 100%

compliance with monitoring,

evaluation and reporting plans; d)

minimum of quarterly

documented project board

meetings (including virtual PBs); e)

certification of payments to the

IEC.

ELECT II Project Document revision and extension

approved by donor partners on 6 June and signed

by UNDP and IEC on 27 August. Donor pledging on

3 September.

a) 2012 Audit exercised for DIM part was

conducted by OAI (in Q1-2 2013). Auditors marked

some areas as audit qualifications. ELECT is taking

actions to implement the audit recommendations.

b) delivery rate (>80%)

90% budget execution (AWP Budget: 75,207,100

USD vs. Actual Expenses: 44,800,726 USD and

On track

59 | P a g e

Commitments: 23,493,795 USD)

c) compliance with M&E plans: out of 37 indicators

developed to monitor the project’s progress

towards its outputs; as of end of 2013, 29 project

indicators are on track, 5 are behind initial

schedule, and 3 were not yet applicable.

d) PBM on 12 June, 2 Sept, 11 Dec. – virtual

meetings on 24+ 28 Feb. // TWG: on 14 January

2013, 11 February 2013, 25 March 2013, 15 April

2013, 21 April 2013, 05 June 2013, 21 August 2013,

17 November 2013, and 11 December 2013.

e) All IEC payments in 2013 were certified by

UNDP/ELECT II finance team

Baseline

4.3: NA

4.3 support services for electoral

activities (2013 VR; 2014 elections;

2015 elections) is provided timely

and qualitatively

Electoral procurement plan developed

2014 budget and AWP 2014 further

drafted/elaborated

On track

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OUTPUT 5: The conduct of polling, counting and results

management operations by the IEC is improved

Output 5 encompasses ELECT II’s direct electoral assistance role: to assist the IEC

with the conduct of the 2014 Presidential and Provincial Council elections and the 2015

Wolesi Jirga and (possibly) District Council elections. The effectiveness of achieving

this output, and the extent to which the 2014 and 2015 elections are prepared and

conducted in a credible, transparent and accountable manner, will determine to a

considerable extent the success of the overall electoral assistance dimension of the

project. The upcoming elections are fully Afghan-led and Afghan-managed, and it is

essential to underscore the decreasing role of the international community in this

electoral cycle17. However, ELECT II still plays a key technical advisory and operational

support role. To assist the IEC with electoral planning and implementation, in 2013, the

project recruited 24 international advisors for deployment to the country’s eight main

regions, with each three-person regional team containing an international electoral,

logistics and security specialist.

In 2013, ELECT II advisors were heavily involved in assisting the IEC with the drafting

and elaboration of the IEC Concept of Election

Operations, the electoral timeline for the 2014

elections, the 2014 Election Operations Plan, the

IEC Fraud Mitigation Plan, the Election Security

Plan, and other election-operational annexes.

ELECT II is further providing input to the IEC to

further enhance its polling and counting procedures,

the delivery and retrieval of materials, and the

tallying process. ELECT II input is based on lessons

learnt and international best practices. Also in 2013,

ELECT II started the development of different

software applications and databases to assist the

IEC with tracking materials, management of the (this

time) transparent tampered evident bags (TEBs),

and incorporating the tally results. Another software has been developed to improve

short-listing and recruitment of temporary staff18, such as the data centre operators and

district field coordinators. Furthermore, to enhance logistical management and proper

assets tracking, ELECT II introduced an electronic assets tracking software at the IEC.

17

Whereas the 2004 elections conducted by the Joint Electoral Management Body counted on more than 500 international advisors, the 2009 Presidential and Provincial Council elections on 160+ advisors and the 2010 Wolesi Jirga elections on 85 international advisors, the current project envisages a maximum of 60 international staff to assist the IEC. 18

The IEC is using the recruitment software to assess blacklisted candidates from previous elections, in total around 11,000 persons.

IEC CEO Ziaulhaq Amarkhil provides an update on electoral preparations at a Press Conference (January 2013) – Photo by ELECT II

61 | P a g e

When providing input or advice to the IEC on all the above matters, ELECT II advisors,

whether in the areas of field operations, procedures, gender, logistics, assets

management, procurement, IT, GIS, or operational security, were strongly engaged

with their respective counterparts in the IEC in order to enhance the IEC’s long-term

capacity development for the conduct of future elections. The current established

electoral plans, notes, guidelines, procedures, practices and processes do not only

serve as a building blocks for the upcoming elections, but are at the same time part of

the institutional memory the IEC is consolidating for the preparation and conduct of all

future elections.

5.1. Electoral Operations

Indicator 5.1: the success of the conduct of the 2014 and 2015 elections,

measured by qualitative assessment in observer reports; and by statistical

reporting and procedural and administrative error reduction

On 30 July, the outgoing Commission formally approved the 2014 Election Operational

Plan, which was reviewed for consistency with the new Electoral Law, and resulted in

shortening of the Political Campaign period (2 months for Presidential elections and 1

month for the Provincial Council elections).

The Plan was drafted and shared with donors and other relevant stakeholders in April

2013, and feedback was incorporated as

relevant. The plan includes a timetable with

key election-related planning dates leading up

to the Presidential and Provincial Council

elections of 5 April 2014, as well as key dates

in the election process subsequent to polling

day. This includes the date of a presidential

inauguration estimated on 22 May 2014, or

alternatively contingency for a run-off on 28

May 2014. The timetable also included the

establishment of the IECC and the IEC Media

Commission, as well as the candidate

nomination and the political campaign

periods. See annex 6 for the comprehensive operational timeline for the 2014

Presidential and Provincial Council Elections. It should be noted that the timetable was

issued in October 2012, nearly one and a half years prior to the election day, facilitating

electoral planning and transparency of the process.

The Election Operational Plan is built on the principles of integrity and inclusiveness.

With ELECT II advice, the IEC aims to enhance the integrity of the elections by

IEC staff loading electoral (voter registration) materials – Photo by Elect II

62 | P a g e

improving the recruitment and oversight process of (temporary) polling station staff19;

enhanced training, monitoring and observation; public outreach to secure community

ownership and stakeholder engagement; formalizing strong relations with the IECC;

and developing a comprehensive fraud control plan that analyses every aspect of the

process to ensure maximum fraud mitigation. The IEC elaborated in 2013 the Election

Operations plan based on feedback from partners and lessons learnt from internal IEC

past experiences, as well as incorporating the IEC Fraud Mitigation Strategy20 and

additional anti-fraud measures, and a 2014 elections procurement plan. As a

component of the Election Operations Plan, a Security Concept of Operations has also

been developed to facilitate optimal cooperation and coordination between the IEC and

the security forces. While the IEC has cooperated on security planning for the

elections, the Ministry of Interior has ultimate responsibility for electoral security.

ELECT II input, including the in 2013 recruited field advisors, provided significant

assistance to the IEC’s Field Operations Department, in particular logistics planning,

movement plans, and polling centres and stations assessment planning.

5.2 Results management

Indicator 5.2: the quality of the results management strategy and the extent to

which the results management implementation adheres to the strategy.

In 2013, ELECT II assisted the IEC with looking into different measures to improve the

elections results management process. In this respect, ELECT II advisors started to

provide input to the drafting of

regulations, procedures and policy

documents, related to: polling and

counting procedures; the vote

tally; and audit and recount

procedures. In addition, ELECT II

assisted the IEC with the

development of software to

manage a centralized tally

database. However, besides the

importance of a technically sound

results management process from

polling - to counting - to the tally

stage, it will be essential for the

IEC to also develop a timely results management communication strategy that

determines how preliminary/progressive results, final uncertified results and final

certified results will be communicated and by whom. In this respect, a clear MoU

19

11,000 former IEC polling workers have been blacklisted in the past for not delivering their responsibilities in a professional and impartial manner. This list can now be cross-checked in the database software. 20

Incorporating recommendations of the IFES Afghanistan Electoral Integrity Assessment Report from early in 2013

IEC Chairman Nuristani and CEO Ziaulhaq exhibiting voting ink samples (9 December 2013) – Photo by ELECT II

63 | P a g e

between the IEC and IECC should also be outlined, reflecting a clear understanding of

the roles and responsibilities of both electoral bodies in line with their respective

mandates.

5.3 Polling centre verification

Indicator 5.3.a: percentage of polling centres physically verified and with GIS

mapped

With ELECT II assistance, the IEC was able to map 98%.5 polling centres by GIS;

with 69% specified to exact building-level geo-codes and 29% mapped on village

level. The GIS codes of the remaining 1.5% PCs (103) need to be reassessed.21

To promote inclusiveness and ensure

voting rights, the IEC Operational Plan

envisages the operation of around 7,000

polling centres across the country.

Security-wise, the IEC shared a list of

6,845 polling centres with the security

forces in April, 2013. In initial feedback in

July 2013, the MoI (which is responsible

for overall electoral security), indicated

that security cannot be guaranteed for

258 polling centres (3.7%). Depending

on security developments, the ultimate

number of opened polling centres will be determined shortly before polling day. It is the

first time that (nearly) all polling centers are GEO-located on maps.22

The ELECT II GIS advisor assisted the IEC with the continued geo-coding of polling

centres. A crucial element in this process is the availability of data from the Afghan

Geodesy and Cartography Head Office (AGCHO). In addition, ELECT II assisted the

IEC with different analysis, such as the production of an average snowfall map for the

month of April when the upcoming elections are scheduled, or (Roshan) cellphone

coverage of polling centres (less than 45%). In addition, ELECT II facilitated a new GIS

training for IEC staff, and assisted with further verification and classification of the

polling centre data base.

21

GIS assessment percentage for the final polling centre list of maximum 6,775 polling centres (PC) confirmed by the IEC in mid-February 2014. 22

On 11 January 2014, the MoI shared with the IEC its final security assessment of the 6,845 proposed polling centres, of which it indicated 6,431 can be secured for polling day. The remaining 414 insecure centres (or 6%), located in 15 provinces, are taken off the list. The IEC submitted in the meantime in January 2014 an additional list of 323 polling centres for verification. On 18 February 2014, the IEC confirmed the final list with maximum 6,775 polling centres, representing 21,663 polling stations, of which 8,958 are for women. Depending on security developments, the ultimate number of opened polling centres could be further reduced.

IEC Deputy CEO and Chief of Operations, Jawed Hababi, informing stakeholders on the Results Forms (protocols) – Photo by ELECT II

64 | P a g e

Indicator 5.3.b: the extent to which the IEC is engaged in the government

boundary delimitation policy

NA in 2013

Discussion and consultations with respective government agencies on district

boundaries have to be initiated after the presidential/provincial council elections, in

order enable possible district council elections in 2015.


During 2013, a total of USD 120,415 was spent for output 5. For more details, please

see Annex 2.



2013 BASELINE

2013 ANNUAL TARGETS


Baseline 5.1: qualitative statements in the observer reports of the 2009 Presidential and 2010 Parliamentary elections, respectively

5.1: (2013) timely and qualitative implementation of the electoral operations plan according to timeline and procedures

On 30 July, the outgoing Commission approved the Election Operational Plan. In September, the IEC revised the electoral timeline (initially approved already a year earlier on 31 October 2012), in line with the new Electoral Law and the shortened Campaign Period. ELECT II developed Procurement plan for the 2014 elections In addition, logistic planning developed to move electoral materials from suppliers to IEC HQ (customs clearing needed for foreign procured goods), from IEC HQ to IEC provincial offices, from provincial offices to polling centre locations. Development of fraud mitigation strategy and implementation of specific measures during process of recruitment, packing, movement, counting and tallying.

On track

Baseline 5.2: poor result management

5.2: (2013) development of a results management strategy that includes

An ELECT II Results Management software specialist assisted the IEC

On track: software completed Q1 2014

65 | P a g e

strategy during 2009 and 2010 elections

proper results certification and communication mechanisms to release partial, temporary and certified/uncertified results after the Presidential and Provincial Council elections

with developing software to manage the tally data base system

IEC however need to focus in Q1 2014 also on communication policies regarding results announcement; as well as need for establishment coordination mechanism with IECC regarding final results announcement

Baseline 5.3.a: zero Baseline 5.3.b: No official district boundaries established

5.3.a: (2013) 100% of all polling centre locations mapped with GIS

98.5% of all polling centre locations mapped with GIS codes

Remaining 1.5% GIS mapping of polling centres faces difficulties due to incomplete or conflicting data . Further process also depending on AGCHO data b. discussion with respective government agencies on district boundaries needs to be taken up asap after the presidential/provincial council elections, in order enable district council elections in 2015

Electoral materials arriving at IEC HQ in preparation of the 2014 elections (December 2013) – photo by IEC

66 | P a g e

OUTPUT 6: The electoral dispute resolution mechanisms of the

electoral process are enhanced

In order to ensure a fair, transparent and accountable electoral process, it is paramount

that an electoral dispute resolution body is established in a timely manner, and capable

of receiving and adjudicating any challenges related to candidate nomination.

6.1 IECC

In this respect, the approval and endorsement of the Electoral Law and the Law on the

Structure, Duties and Authorities of the IEC and IECC opened the door to

establishment of the IECC as a permanent electoral dispute resolution body. After a

nomination process that was undertaken by a Selection Committee, as stipulated in the

Law, on 16 September, President

Karzai appointed the five

Commissioners of the IECC for a

six-year term: Abdul Saatar Sadaat

(Chairman), Rida Azimi (Deputy),

Nadir Mohseni (Secretary and

Spokesperson), Azizullah Aryafar

and Paighambar Qul Doghan. The

Commission is ethnically composed

of one Pashtun, two Tajik, one

Hazara and one Turkmen; and

comprises one woman (Ms. Rida

Azimi), who is a former IEC

Commissioner from 2011. Dr.

Mohammad Ali Setegh is Secretary General (CEO).

Indicator 6.1.a. timely establishment and full staffing at HQ and in the provinces

of an electoral dispute resolution body

The IECC has been established per Law in July 2013, and Commissioners were

appointed on 16 Sept 2013. The IECC requested UN(DP) support in October 2013.

UNOPS and IFES have been subcontracted by UNDP respectively in October and

November 2013. The IECC held its first TWG with donors on 29 Dec 2013. (see

Annex 11 for all relevant steps and dates of IECC establishment)

Since the appointment of the IECC Commissioners in September, 2013, the IECC

faced a compressed timeframe to become fully operational both at HQ and provincial

level to fulfill its mandate for the 5 April 2014 Presidential and Provincial Council

elections. A functional adjudication mechanism, capable of providing effective, timely

and enforceable remedies, is central to a credible election process; hence the

IECC Chairman Abdul Saatar Sadat and UN D-SRSG Nicholas Haysom at the IECC’s first Project Board Meeting (14 February 2014) – Photo by ELECT II

67 | P a g e

concerted efforts that have been underway to assist the establishment and functioning

of the IECC.

On 9 October 2013, in line with the extended ELECT II Project Document, UNDP and

donor partners reached consensus on the framework for delivery of UN assistance to

the IECC. In order to avoid any possible conflict of interest with the provision of

assistance to the IEC, the decision was taken to subcontract the technical assistance

and operational support to the IECC to IFES and UNOPS respectively. UNDP, through

ELECT II, subcontracted UNOPS for operational support and IFES for advisory

support. The agreement was concluded subsequent to a letter from the IECC to

UNAMA on 3 October, officially requesting support for “all aspects of the IECC’s work”,

and further requesting “assistance and resources to deliver and carry out the activities

to achieve its vision and mission”. On 14 October and 3 November, respectively,

subcontracting agreements were in place for UNOPS and IFES.

In anticipation of the effective implementation of UNOPS and IFES’ support, the IEC

assisted the IECC in expediting its establishment through a Memorandum of

Understanding signed on 2 October by the IEC and IECC Chairmen, including IT

support, the secondment of some staff and the option of co-location. It was also agreed

that the IECC could make use of IEC provincial offices to collect and forward

complaints on the candidate nomination process for adjudication by the IECC at the

central level. ELECT II facilitated the implementation of the IEC-IECC MoU on start-up

support.

In addition to the UN Support, the IECC has also received assistance from the

Government of Afghanistan. This was initially provided under the terms of four

presidential decrees issued on 23 September which mandated provision of: 20 million

Afghanis for initial establishment costs; armored vehicles; bodyguards; and office

space leased in Kabul until mid-January. The IEC has also provided initial support

under the terms of an operational MOU. Finally, the Wolesi Jirga approved on 14

January an operational and development budget totaling USD 1,786,000 million for

2014. Regarding staffing, on 23 December, the IECC Tashkeel structure was approved

by the Civil Service Commission. Actual recruitment is only taking place in 2014, as

well as the appointment of 102 Provincial Commissioners.23

Indicator 6.1.b. the extent to which regulations and operating procedures are

developed in a qualitative and timely manner

No systems, procedures and processes were already approved in 2013

Indicator 6.1.c. timely establishment of a coordination mechanism between the

IEC and the electoral dispute resolution mechanism to address electoral

complaints

23

President Karzai in fact confirmed the appointment of the 102 IECC Provincial Commissioners on 11 February, 2014.

68 | P a g e

An initial (and temporary) MoU between IEC and IECC was agreed regarding IEC

support to facilitate the IECC’s start-up, where the IECC could make use of IEC

provincial offices to collect complaints regarding candidate nomination phase.

Indicator 6.1.d. the extent of proper assets management of the electoral dispute

resolution body

UNOPS has been sub-contracted by UNDP in October to assist IECC with its

assets management

The three above mentioned indicators will become more relevant from 2014 onwards24.



please see Annex 2. Below is a snapshot of where ELECT II is in relation to its annual

targets


2013 BASELINE

2013 ANNUAL TARGETS


Baseline a.: no permanent IECC structure exists Baseline b,c,d: NA

6.1.a (2013) Electoral dispute resolution mechanism is fully established and staffed in all provincial offices and HQ by October 2013 6.1.b. (2013) Systems, procedures and processes developed/revised and implemented for filing, hearing and resolving complaints and appeals. Improvement of the triage system for dispute handling 6.1.c. (2013) initiation coordination mechanism IEC - IECC 6.1.d. start of assets management plan

6.1.a) IECC established per Law (July 2013). IECC Commissioners appointed (16 Sept 2013) IECC requesting UN(DP) support (Oct 2013) UNOPS/IFES subcontract by UNDP (Oct/Nov 2013) 1st TWG with donors on 29 Dec 2013 6.2.b) no systems, procedures and processes yet approved in 2013, neither 6.3.b) initial MoU between IEC and IECC agreed regarding IEC support to IECC start-up; IECC could make use of IEC provincial offices to collect complaints regarding candidate nomination phase. 6.1.d. UNOPS sub-contracted to assist IECC with assets management

IECC not yet fully and operational by end of 2013: -recruitment of staff in process in Q1 2014 At provincial level: - 102 Provincial IECC Commissioners not appointed in 2013 (only in Feb 2014) – temporary solution of colocation within IEC provincial offices where possible -development and approval of annual working plans, electoral regulations, procedures: in Q1 2014

24

In January 2014, the Management Arrangements for the IECC under the ELECT II project were finalized. On 15 January 2014, the interim Strategic and Operational Plan 2014 and 2014 IECC Planning Timeline were shared by the IECC with donors. On 4 February, procedures on filing and adjudication of election challenges and complaints were approved, as well as guidelines on archiving, on registration of challenges and complaints, on filling out complaint forms in polling stations, and on filing complaints on Election Day. In February 2014, the IEC and IECC are in the process of finalizing an MoU regarding the establishment of a coordination mechanism between both electoral bodies.

69 | P a g e

OUTPUT 7: The integrity of the electoral process is enhanced

through a fully-supported media regulatory body

7.1. Media Commission

Indicator 7.1.a timely establishment and fully staffing of media regulatory body

The Media Commission has been formally established on 4 December 2013,

recruitment process followed.

With the appointment of five-member Media Commission by the IEC on 4 December

2013, after a consultative screening process, the Media Commission was officially

established in accordance with Article 61 of the Electoral Law. This was well within the

90 day legal deadline prior to Election Day. The timely establishment of the IEC Media

Commission allows the IEC to monitor equitable media access and coverage during

the presidential campaign period from 2 February until 2 April 2014, and the provincial

campaign period from 2 March

until 2 April. The Media

Commission is also mandated to

witness a silence period 48 hours

before polling day on 5 April

2014, as well as the observance

by both presidential and provincial

council candidates and media to

refrain from public campaigning

before the start of the respective

campaign periods.

The IEC Media Commission mandate includes:

• Provide guidelines and issue Code of Conduct for media organizations to

ensure fair reporting of the electoral campaign, in compliance with the rules

established by IEC;

• Develop internal procedures (for IEC approval) for addressing media-related

complaints;

• Sensitize and inform media about rules and reporting standards for the electoral

campaign media coverage, as embodied in the Electoral Law and Codes of

Conduct;

• Monitor the reporting and fair broadcasting of the electoral campaigns by the

mass media;

• Verify the media comply with the electoral campaign and 48 hour silence period

regulations, as well as all relevant rules and Code of Conduct;

• Receive and address complaints for alleged breaches of fair reporting and

coverage of political campaign, and other violations of the Mass Media Code of

Conduct;

IEC Head of External Relations Department and the Chairperson of the Media Commission (08 December 2013) - Photo by ELECT II

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• Take appropriate measures in cases of violations, in line with its mandate, and

when necessary “Refer the offender person for prosecution to the relevant

authorities after approval of the Commission”.

The selection criteria for Media Commission members were set out by the IEC

regulation for its establishment, which emphasized educational and professional

qualifications in the media field. A Selection Committee, including media

representatives (both private and public sectors), shortlisted 13 eligible candidates,

from which the IEC Board of Commissioners appointed the five-member Media

Commission. The five members of the Media Commission includes: Ms. Fardia Nekzad

(Chair), Hashmatullah Radfar (Deputy Chair), Iman Mohammad Warymoch, Abdul

Wakil Naibi, and Najib Alla Askzai. The Chair and Deputy Chair were chosen through

an internal election amongst the five members.

ELECT II recruited an Elections and Media expert in July 2013, to advise the IEC on

the establishment and functioning of the IEC Media Commission. Subsequently,

ELECT II prepared a Concept Paper for the IEC on the ‘establishment of the Media

Commission’ based on consultations with the IEC and other stakeholders, including

media representatives. Key recommendations of the concept paper were largely

followed by the IEC, including the five-member composition which was maintained as

an effective model, and a composition based on highly qualified commissioners with

the necessary professional experience on media regulatory issues. Although the Media

Commission is established under the overall authority of the IEC, it should have the

necessary professional authority to effectively advise the IEC on media regulatory

matters, which in turn will enhance the overall credibility of the IEC. The concept paper

was produced based on consultations with the IEC and other electoral stakeholders,

including media representatives. To assist the IEC Media Commission to fulfill its

mandate, ELECT II initiated in late 2013 the process of procuring a third party media

monitoring service to provide the Media Commission with statistical reports measuring

equitable access for candidates to media and fair reporting. The recruitment process

for an ELECT II international media monitoring consultant, familiar with international

methodology for media monitoring, also commenced in late 2013.

Indicator 7.1.b. the extent to which regulations and operating procedures are

developed in a qualitative and timely manner

On 29 October 2013, the IEC approved the ‘Regulation on the establishment of

the Media Commission’. On 17 December, the IEC approved the ‘Regulation of

the media activities during the electoral campaign’ (revised on 14 January 2014)

ELECT II assisted the IEC with the development of the ‘Regulation on the

establishment of the Media Commission’ (October 2013), which details duties and

responsibility of the Media Commission, as well as criteria for the selection of its

members. This regulation was approved by the IEC on 29 October 2013, and was the

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basis to select the Media Commissioners in a timely manner through a consultative

process.

Following the establishment of the Media Commission on 4 December 2013, ELECT II

provided input on the ‘Regulation of the media activities during the electoral campaign’,

underscoring the importance of transparency and a level playing field regarding

broadcasting and publishing of paid political advertising during the campaign period.

This regulation was initially approved by the IEC on 17 December 2013. After

subsequent consultative meetings with media representatives in December, 2013, the

IEC adopted amendments on 14 January, 2014, in particular on the issue of media

coverage of candidates before the campaign period, as well as regarding the conduct

of opinion polls. The publication of opinion polls requires the Media Commission to

monitor accuracy and “credibility” of reports. For this purpose, the Media Commission

is required to develop a “mechanism” to ensure such monitoring. Furthermore, ELECT

II is further assisting the IEC on the development of the internal procedures for media-

related complaints and adjudication.25

In addition, ELECT II also initiated in 2013 a procurement process to contract a third-

party media monitoring entity which will provide regular statistical reports to the IEC

Media Commission on the respective presidential and provincial council candidates’

equitable media access for all candidates and fair media environment.

Indicator 7.1.c. timeliness of the release of the post-election Media Commission

report

N/A in 2013

The Media Commission is obliged to produce its media assessment report 45 days

after the elections.

25

The IEC approved on 9 February 2014 the internal procedure, drafted by the Media Commission, for adjudication of complaints related to media-violations. A complaint form was also issued and made available to all PEO and on the website. In accordance with the Electoral Law, any voter, citizen, candidate, political party or organization may address to the Media Commission complaints related to media misbehavior.

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During 2013, a total of USD 87,623 was spent for output 7. For more details, please

see Annex 2.



2013 BASELINE

2013 ANNUAL TARGETS


Baseline a.: 1 month before polling day Baseline b: NA Baseline c: 45 days after elections

7.1.a (2013) Media regulatory body fully established and staffed by 16 November (revised electoral timeline in line with the new Electoral Law and the shortened Campaign Period, initial establishment was foreseen on 17 October.) 7.1.b. (2013) Media monitoring systems, procedures and processes developed/revised and implemented 7.1.c: NA

7.1.a. Media Commission officially appointed and established on 4 December 2013. Elect II provided in September concept paper to IEC regarding establishment of the Media Commission and the consultative recruitment and appointment process and procedures for commissioners 7.1.b. Media Regulation developed and approved in December 2013; revised in January 2014 after informative consultation sessions with media representatives in December 2013

On Track 7.1.a: completed 7.1.2 : - revision of media regulation in January 2014 - Third party media monitoring established in Jan/Feb 2014 - Media monitoring procedures further developed/re vised in Q1 2014 7.1.c: after elections

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IV. GENDER SPECIFIC RESULTS

In terms of broadening democratic participation in the electoral process, women are a

top priority. In 2013, the IEC, with ELECT II assistance, incorporated gender issues in

its Strategic Plan, as well as its Public Outreach, External Relations, Voter Registration

and Candidate Nomination plans and activities. ELECT II also facilitated well-

functioning linkages between the different internal IEC entities – the Gender Unit and

the Public Outreach Gender Focal Point- to facilitate internal coordination to

institutionally mainstream gender issues.

In order to achieve significant female participation in the electoral process, the IEC,

with the support the ELECT II Gender Advisor, has also developed a Gender Strategy

and Action Plan for VR public outreach, both through indirect (TV/radio) and direct

activities (seminars, face-to-face interactions). One TV PSA specifically targets eligible

female voters, and another focuses on youth, including young women.

In addition, in order to promote women’s registration as voters in spring 2013, the IEC

instructed its provincial offices to meet with, and seek the support of: Governors,

Directorates of Women’s affairs, women’s councils and other organizations working on

women’s issues; provincial council members; Hajj Directorates; and principals of girls’

schools. In addition, Provincial Electoral Officers were also asked to analyze the trends

and potential influencing factors with regard to women’s participation in respective

provinces.

Furthermore, provincial-level

consultations took place in all

provinces with religious

leaders, CSOs, and influential

women and women’s

networks, with the aim of

encouraging women’s

participation in the VR process

and by extension in the

upcoming elections (see above

under public outreach).

A wide range of IEC gender mainstreaming activities and data, comprising comparison

to previous elections (and including maps, is available on the IEC website:

http://www.iec.org.af/2012-05-29-07-06-38/gender-mainstreaming

IEC Kabul Province consultation seminar with influential women and women networks (17 September 2013) Photo by ELECT II


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a. IEC Gender Strategy and Institutional Gender Mainstreaming

In 2013, ELECT II closely assisted the IEC with the development of a Gender Strategy

and related action plans that address gender needs within the institution, as well as

during electoral operations. The overall IEC Gender Strategy aims to provide a

strategic direction towards achieving the goal of gender equality in electoral processes,

and within the IEC structure itself. The IEC Gender Unit, with the support of ELECT II,

also looked into internal measures for strengthening and promoting gender

mainstreaming. The Gender Unit provided input, through a gender lens, to: the

development of the VR Operations Plan; the Elections Operational Plan; a number of

regulations to further elaborate upon the Electoral Law, including the regulations on

campaigning, campaign financing, and vote count. ELECT II also supported the IEC

with the conduct of several internal presentations and trainings in relation to the voter

registration “top-up” exercise and the candidate nomination campaign, from a gender

perspective. The IEC also recruited and trained 34 provincial gender officers, to give

attention to gender

issues in electoral

operations, and public

outreach and external

relations activities, and

are overseen by the

IEC Gender Unit in

Kabul.

Furthermore, although

ELECT II has no direct impact on IEC recruitment, it assists the IEC’s Gender Unit in

promoting female recruitment at the IEC’s HQ as well as its provincial offices. The

following table includes a gender breakdown of IEC HQ and provincial staff, with

distinction between IEC permanent staff and long-term temporary staff.

HQ Provincial Offices

Staff Category

Permanent Staff LT Temporary Staff Permanent Staff LT Temporary Staff

Total Female % Total Female % Total Female % Total Female %

Staff 76 11 14% 585 72 12% 130 6 5% 1096 259 24%

Ajeeran 38 2 5% 0 0 NA 113 5 4% 0 0 NA

Ajeeran Belmaqta 76 17 22% 0 0 NA 0 0 NA 0 0 NA

Grand Total 190 30 16% 585 72 12% 243 11 5% 1096 259 24%

Table: IEC staff gender breakdown, according to permanent and long-term temporary staff, at HQ and

provincial offices, respectively.

b. IEC’s efforts on promoting women to participate in candidate nomination

IEC gender coordination group meeting (Kabul, 11 November 2013) Photo by ELECT II

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The most prominent decision from the IEC that boosted women’s candidacy in the

candidate registration process was the reimbursement of the candidate deposit for

women. In view of the low number of female participation in 11 provinces, the IEC

decided that female provincial council candidates who do not win and/or fail to secure

2% of the valid vote, will receive a refund of their monetary candidate registration

deposit after the announcement of the results of the elections. (See also above in the

section of candidate nomination.) Overall, the IEC decisions on CN included i)

reimbursement of the deposits paid by PC female candidates, ii) support in publishing

posters (this is for both male and female presidential and provincial candidates), and iii)

training for PC candidates (both male and female) among other decisions were made

public by the IEC on the 28 September.

The IEC developed various outreach messages that were disseminated through

different mediums. TV and radio PSAs on candidate nomination and women’s

participation were broadcast through 7 TV channels and about 30 national and local

radios both in Dari and Pashto languages.

Provincial Seminars for religious leaders, and influential women and youth networks,

were organized separately in all provinces. A first round of nationwide provincial

seminars were conducted in mid-2013, with a specific session on women’s

participation in elections with a focus on female candidacy was conducted during the

seminars. Up to 300 participants attended the seminars in each province.

These meetings were primarily modeled upon 17 seminars organized at district-level in

Kabul Province in early 2013, focusing on women’s participation. In this case, the

meetings were organized in cooperation of the Ministry of Hajj for the purpose of

enhancing the participation of women in the voter registration process, and all other

aspects of the electoral process. [This cooperation between the IEC and the Ministry of

Hajj also extended to the issuance of a ‘thutba’ – or religious declaration – that was

shared with all Imams nationwide

to be read in mosques

encouraging and accepting

women’s participation in

elections.] In addition, in

December, 2013, a second round

of nationwide provincial seminars

were again conducted, this time

aimed at youth networks and

emphasizing young women’s

participation in elections.

Since April 2013, the IEC has been organizing meetings of the ‘Gender and

Elections’ Coordination Group. This coordination group brings together a wide range

of national and international partners with similar objectives to promote women’s

Meeting of the IEC Gender and Elections Coordination Group (25 September 2013) with (acting) head Farida of IEC’s Gender Unit - Photo by IEC

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participation in the electoral process, and to this end to develop mutually reinforcing

cooperation initiatives. In 2013, the IEC organized five of these meetings. A major

achievement that was conceptualized in these meetings was the full reimbursement of

the candidate deposit for women, as one measure to address the initial low numbers of

female registration. Another outcome of the meetings includes coordination efforts to

support IEC in identifying potential female staff to be recruited in the electoral process.

c. Female participation in the Voter Registration

Given the cultural context and considerations, when planning the VR ‘top-up’ exercise,

the IEC estimated women’s registration was expected to be in the 30 % range. By the

end of 2013, the IEC indicated it registered almost 35% women. However, at the

beginning of the VR process, female turnout was very low. ELECT II supported the IEC

by taking different measures to enhance female registration, such as more suitable

and/or mobile female VR stations during the second phase.

The IEC has been consistently

monitoring women’s registration

figures in the current VR

processes. The first week’s

assessment on 2 June revealed

only 17 % of female registration,

in view of which, the IEC sent out

a Directive to the Provincial IEC

offices on 3rd June to organize

meetings with the offices of the

Provincial Governor and Ministry

of Women, encouraging

information dissemination on VR

targeting women. By the start of the district level voter registration, around 20 percent

of female voters were registered. The provinces with low female registration by the end

of first phase were Paktika, Logar, Nuristan, Panshir, Urozgan, Kandahar and

Nanghar, with less than 10 % female registration. These provinces are also highly

security sensitive, as well as being considered as more conservative. Zabul Province in

2013 has been able to register 17 % female voters, which is the highest female

registration figure for the province so far.

The major reasons for low participation of women are attributed to the security

situation, as well as deep rooted traditional and cultural beliefs that create barriers to

women’s participation. Also, women voters are more likely to register towards the end

of the process, and when the registration facilities are closer to home. The IEC

envisaged an increased number of female registrations after the implementation of

Female IEC staff attend a Voter Registration Training of Trainers session

(April-May 2013) - Photo by ELECT II

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second phase of VR, as it established registration centres and stations in District

Capitals in closer proximity to voters. To promote greater participation of voters, and

focusing on female registration, the IEC took some actions including extension of the

VR for one and a half months, and the deployment of mobile VR stations to better

reach out to women. As expected, the registration figure for females did increase from

September onwards, and by end of 2013, the level of women’s registration was almost

35%.

The IEC conducted its public outreach activities focusing on VR, and specific activities

were targeted at female voters. As noted, the IEC organized consultations with

Mullah’s on the importance of female participation in VR across all provinces, and in all

17 districts in Kabul. In addition, the IEC also organized seminars with influential men

and women in all provinces with the objective to ensure multiplier effect of information

dissemination through the influential leaders. Leaflets, as well as TV and Radio PSAs,

were also developed targeting female voters. In July, the Voter Information - Call

Centre was established to provide election related information, and both women and

men called to receive information form male and female operators. The IEC has called

upon the governmental and civil society representatives to support the IEC in its efforts

to promote women’s engagement in the electoral process, especially by mobilizing

their networks in provinces to spread messages on the importance of women’s

participation in elections.

Picture 1: IEC event held in Kabul for religious leaders, emphasizing women’s participation in elections - photo IEC

Picture 2: Women registering for a voter ID card at a Female voter registration centre in Bamyan (August 2013)

photo ELECT II

d. UN Joint Guidelines for Enhancing the Role of Women in Countries

Emerging from Conflict or Political Transition

ELECT II cooperated with UN Women in 2013 in reviewing the draft UN Joint Guidelines, thus contributing Afghan experience to these global guidelines.

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Snapshot: IEC female staff per province - source: http://www.iec.org.af/2012-05-29-07-06-38/gender-

mainstreaming

[For a clear image in pdf, refer to: http://www.iec.org.af/pdf/gender/gender-female-staff-chart.pdf]



http://www.iec.org.af/pdf/gender/gender-female-staff-chart.pdf

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V. PARTNERSHIPS

A. Implementation partner

The IEC is UNDP’s only implementing partner for the ELECT II project. However, the

revised ELECT II project document foresees also UNDP support to the IECC but within

the overall aegis of ELECT II and not as a separate implementing partner. To avoid

any real or alleged conflict of interest, assistance to the IECC was subcontracted by

the UNDP to UNOPS (administrative support) and to IFES (advisory/technical support),

with funding channeled through ELECT II.

B. International donor partners

ELECT II is currently funded by 14 international donor partners26 and intends to

maintain very close donor relations. Through the various forums such as the Project

Board meeting, the Technical Working Group and the ELECT II Donor Group, partners

are kept abreast of matters, and have an input on issues related to the project.

C. UN (UNAMA / UNWOMEN / UNOPS/ LOTFA)

On 19 March 2013, the UN Security Council extended the mandate of UNAMA for

another year through resolution 2096. The mandate foresees a specific section on

electoral support. The deputy SRSG is the co-chair of the ELECT II project board.

UNAMA and ELECT II are in regular discussion on electoral issues, in particular since

UNAMA plays a convening role with political stakeholders of the electoral process. In

addition, UNAMA also organizes coordination meetings on elections with the

international community in which ELECT II also participates.

ELECT II Project Board Meeting (3/9/2013): from left to right: IEC CEO Ziaulhaq Amarkhil, IEC Chair Yousuf Nuristani, UN Deputy SRSG Nicholas Haysom, UNDP Country Director Alvaro Rodrigues, and ELECT II STA Oskar Lehner. Photo by ELECT II

26

From an technical-administrative perspective, the Government of Japan supports the IEC through two separate project contribution, which however are implemented by ELECT II and directly serve ELECT II outputs.

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Synergies are also established between UNDP, UNWOMEN and UNOPS to support

and or implement different electoral initiatives. UNWOMEN is a partner in gender

mainstreaming and has played an active role in the Gender and Elections Coordination

Meetings. ELECT II representatives met with a UNWOMEN consultant visiting

Afghanistan in August to advise on an electoral support project for women,

complimentary to ELECT II, and offered their advice and suggestions. UNOPS is, as

mentioned above, one of the two partners UNDP is subcontracting to establish the

IECC. In addition, the UNDP Law and Order Trust Fund (LOTFA) working together

with the Ministry of Interior will facilitate the recruitment of an estimated 13,000 female

security body searchers during polling.

D. Civil society organizations and I/NGOs, government agencies, political

parties, observers and media

Together with the IEC, ELECT II closely works together with other national and

international partners to optimize the electoral process. In 2013, the IEC and ELECT II

were in close consultation with (electoral) civil society organizations and international

NGOs, government agencies, political parties, observers and media to discuss the

voter registration updates as well as the possibilities and modalities for observers

accreditation, in particular to inform them on electoral updates as well as to engage

them in public outreach, gender messaging and participation in electoral operations,

such as voter registration and candidate nomination. ELECT II participates regularly in

UNAMA-convened information sharing meetings with a range of international partners

working on electoral issues, as well as regularly attending meetings convened by

USAID with implementing partners.

In addition, as mentioned above, UNDP is subcontracted IFES to provide technical

assistance to the IECC. IFES also supported the ELECT II project in conceptualizing

and preparing of provincial seminars for influential women’s networks.

E. Afghan National Security Forces and ISAF/NATO

ELECT II, together with UNAMA, assisted the IEC in bringing together the Afghan

National Army (ANA), Ministry of Defense (MoD), the National Directorate of Security

(NDS), the Ministry of Interior (MoI) and ISAF/NATO to discuss the security aspects of

electoral operations, with the immediate focus being on voter registration security and

the possibility of air transport of materials to remote areas. When the logistical and

security preparation for the voter registration ‘top-up’ exercise intensified throughout

the second quarter, the frequency of meetings increased to multiple sessions a week

on different levels. In quarter three, MoI provided an initial feedback of its security

assessment of 6,845 polling centres, identified by the IEC for the next elections.

Ongoing coordination ultimately defined in February 2014 the maximum number of

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6,775 polling centres to be secured by ANSF on polling day.27

F. Other Afghan government partners (MoI, MoCIT, MoF)

The IEC is engaged with MoI and MoCIT to discuss linkages regarding the

implementation of the electronic national ID card (e-Tazkira). A Memorandum of

Understanding (MoU) between the IEC, MoI, MoF, and MoCIT has been prepared to

pilot the electronic national ID card (e-Tazkira) project for Kabul, and will be signed

once the legal framework of the e-Tazkira is in place. The IEC has committed to

accepting the e-Tazkira as a valid voting card in the forthcoming elections as relevant

depending upon e-Tazkira progress. Furthermore, it has agreed that in the longer-term,

once the e-Tazkira is issued, it shall be used as a standard voting card in lieu of all

previous VR cards issued by the IEC. The IEC also agrees it will work in full

coordination with the MoI on this issue.

The IEC is also in consultation with the MoF regarding the budget discussion that

relates to electoral assistance being ‘on’ and ‘off budget’ (i.e. being channeled through

the national treasury or otherwise) for electoral assistance.

VI. RISKS

In December 2013, together with a risks assessment specialist from the UNDP CO,

ELECT II revised its comprehensive project risk assessment according to the different

outputs. The revised assessment consisted of two steps: It consisted of two phases

according to the new UNDP risk formats, reflected in two different excel templates. The

first exercise, composing the risk score card, includes a list with all possible risks, and

scoring them on likelihood and impact (1 to 6). The second exercise, the risk event

card, zooms in on the most significant risks and includes mitigation measures,

likelihood and impact scores after mitigation, unintended outcomes, and monitoring. A

reassessment of each risk will be done a quarterly basis and incorporated in the project

quarterly progress report.

Part of the revised ELECT II Project Document includes a detailed and comprehensive

Risk Log for all activities per output. Relevant project risks are updated and spelled out

in detail in Annex 5.

Main risks to the project and possible issues to take care of include:

Deterioration of political and security situation

Weather circumstances affect electoral operations

Polling centres do not represent the actual distribution of the population resulting

in possible disenfranchisement of voting populations due to incorrect number or

27

The actual number of opened polling centres on E-Day will depend on security developments.

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location of polling centres.

Electoral malpractices (before, during, or after elections) and fraud

Independence of the IEC/IECC undermined due to political interference; non-

impartiality of IEC/IECC/Media Commission

Rather ineffective IECC due to delays in fully establishment and functioning

Incorrect or unstructured results release

Poor female participations

Low public awareness of electoral processes

IEC fails to recruit and/or promote qualified male and female polling staff

Delayed procurement and (transport) delivery of electoral goods, hindering

electoral operations within the electoral timeline

Competing (project) priorities of on the one had ensuring effective conduct of the

elections versus on the other hand requests to attend trainings and professional

development activities may result in the latter not being achieved for key staff or

key staff absences during critical operational periods.

The lack of training and development opportunities, fair salary structures,

effective performance management procedures and institutional belonging may

result in a high turnover of staff, and hence affecting the IEC's the technical and

operational capacity and sustainability, and overall resulting in a

Damaged credibility of the IEC and the electoral process.

The “top-up” voter registration is insufficient to establish an improved credible

voter registry and guarantee voting rights, including the risk of multiple voting

due to more (old and new) VR cards in circulation according to estimated voting

population

VII. ISSUES

Prominent already on-going issues, derived from the risk log, include:

a. Security

Security threats are not only a risk but also an ongoing issue, as it requires

constant mitigation planning and flexibility of staff moral to deal with it –

including difficulties for the project regarding recruitment and staff retention in

this environment.

b. Lack of a uniform voter registry

The lack of a uniform voter registry (and absence of an electronic ID card

system) did remove an extra safeguard to mitigate fraud. Together with ELECT

II support, the IEC decided to use not only indelible ink for voters and pilot the

use of UV ink to avoid multiple voting, as well as puncturing voter cards with a

puncture design uniquely for these elections. However, the absence of a uniform

voter registry and the inability to link voters with polling centres, makes it difficult

for the IEC to estimate the maximum number of possible voters per polling

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centre. Based on previous turnout figures, VR data and CSO estimates, the IEC

is planning to establish polling stations per 600 voters.

Visit to the IEC and the ELECT II team by UNDP Deputy-Director of the Regional Bureau of Asia and the Pacific, Nicholas Rosellini and UNDP Director of the Bureau of Management, Jens Wendell. [from left to right: Alvaro Rodrigues (UNDP Country Director), Jens Wendell, Nicholas Rosellini, Deryck Fritz (ELECT II CTA), Yuxue Xue (Deputy-Country Director) – photo by ELECT II]

c. IEC Public Outreach through local civil society groups

The IEC underperformed through the voter registration exercise to fully engage

with local civil society groups as a means to enhance public outreach. For the

2014 elections, the ELECT II has advised the IEC to improve this to conduct

more stakeholder coordination meetings, including the IEC’s decision to transfer

printed materials for distribution to civil society networks, as well as doubling the

number of CVEs.

d. Final polling centre list

At the end of 2013, the final polling centres list was not final yet, hampering

proper electoral, logistics and security planning. [On 18 February 2014, the

IECC confirmed that the maximum 6,775 polling centres will be opened.

However, this number could reduce due to security developments, making it

essential to properly track movement of sensitive electoral materials to only

actual opened polling centres.]

e. IECC

The late establishment of the IECC in 2013 requires close follow-up by all

partners involved assisting the electoral complaints body to be fully operational

at HQ and provincial level at a level where it can meets its mandate

f. IEC staff salary remunerations

At the end of 2013, ELECT II, under the lead of the UNDP Country Office,

assisted the IEC with discussions with the Director-General of the Budget Office

to regulate the salary structure of IEC staff as per accordance to the Afghan

Law. Political appointments, including IEC/IECC Commissioners and CEOs, are

not allowed to receive salary remunerations above their Government salary as

per Afghan Law. All other IEC tashkeel staff, not politically appointed, will

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receive their tashkeel salary and a CBR allowance. The temporary IEC staff

could then be placed on the National Technical Allowance (NTA) scale. A later

communication letter by the MoF in early 2014 informed that the implementation

would be waved until post-election period.

g. National Implementation Modality

Another major step in the direction of sustainability of electoral assistance would

be to eventually move increasingly towards “on-budget” modalities. Following

Presidential Decree 45, which essentially states that electoral assistance should

move on-budget, discussions took place in 2013 among donor partners, the

Government of the Islamic Republic of Afghanistan (GoIRA) and the UN. As

these discussions are intended to be forward looking, an informed analysis

assessing the strengths and liabilities of moving electoral assistance ‘on-budget’

was deemed desirable. UNDP therefore fielded a high-level independent

mission, termed as the Grants Agreement and Risk Management (GARMIN)

mission. The mission looked into the respective budget lines of the electoral

operations, and recommended certain budget lines that could possibly move on-

budget. Based on the GARMIN report recommendations, discussions had

begun between the MoF and the IEC. Discussions focused on possible cost

categories and percentage that could be transferred on-budget, keeping in mind

the context of a compressed and time-bound electoral process and

constitutionally-mandated independence of the IEC. With the beginning of the

electoral season, these discussions have been postponed but are expected to

resume, and the cost categories and percentages to be further developed for

the 2015 elections.

For more details, see Issues Log in annex 4.

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VIII. LESSONS LEARNED

As the end of 2013 represents the mid-way point in the extended ELECT II project,

which was originally due to finish in December

2013, but has now been extended to run until

December 2015, this is an opportune moment

to reflect on the first two years of project

delivery and lessons learnt. While ELECT II

was originally conceived as an inter-election

capacity development project, and has now

been revised to incorporate direct electoral

assistance to the 2014/15 elections, lessons

learned thus far could further improve

progress in achieving outputs as well as

enhancing electoral processes in general.

Efficiency of UN electoral support

Role and coordination between UNAMA, UNDP and ELECT II

The mid-term review of the initial ELECT II project in early 2013 stated that one of the

elements in the protracted discussions on VR between the project and its donors,

which resulted in misplaced expectations, related to some misunderstanding of the

roles of the UNDP CO and UNAMA in the process: “A clearer understanding of ELECT

II’s boundaries would be helped by a clearer understanding of the roles of other parts

of the UN system in Afghanistan, in particular the UNDP Country Office (CO) and the

United Nations Assistance Mission in Afghanistan (UNAMA), which has the political

mandate. These misplaced expectations, to the extent that they generate contradictory

pressures from donors onto the project, could actually undermine the more essential

and operational objectives of the project to which all stakeholders have agreed”28.

Learning from the experiences in 2012, the ELECT II Technical Working Group

sometimes became a forum for intensive discussions on aspects of electoral planning

with broad political implications beyond the project’s scope. Therefore, in 2013, the

UNAMA convened electoral informational sharing meetings provided a better forum for

discussion whereby topics could be addressed from a political perspective, with ELECT

II in a (guest) role to provide technical updates as relevant. This permits the ELECT II

Technical Working Group and Project Board Meetings to bring together the IEC,

ELECT II, UNDP CO, UNAMA and donor partners for a more focused technical review

of electoral developments and the IEC’s progress. In addition, the revised project

document now explicitly mentions the UNAMA D-SRSG role as the co-chair of the

28

Mid-Term Review Phase B Report “Enhancing Legal and Electoral Capacity for Tomorrow Phase II (ELECT II) 2012-2013”; 30 April 2013; Page 5-6

UNDP Country Director Alvaro Rodriguez addressing ELECT II staff at the project annual review workshop on 28 November 2013 – Photo by ELECT II

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ELECT II Project Board, enabling UNAMA to guide discussions in a manner that

acknowledges the technical imperatives of electoral planning and implementation, yet

maintaining a link to the broader political environment.

At the same time, with the appointment of an Elections Programme Specialist, the

UNDP CO also increased its involvement by providing programmatic support to the

project, particularly in a project assurance and donor relations capacity. UNDP CO

explicitly portrayed itself as the entity to be addressed by donor partners for all

programmatic matters, including funding and financial matters. Support from the

international community to the project is now programmatically managed through the

UNDP CO, valuable in e.g. highlighting funding gaps and providing a platform for

coordination of activities as the operational tempo has increased.

The framework in which UNAMA, UNDP CO and ELECT II play distinct but

complementary roles in support of the electoral process has appeared to be UNAMA

taking the lead in terms of political issues and facilitation, and the UNDP CO being the

programmatic focal entity for the project’s donor relations, it has allowed ELECT II to

focus specifically on its capacity building and technical assistance role, underscored by

a comparative best practices approach. Close coordination and communication

between all three entities, with a clear understanding of roles and responsibilities,

provided a solid basis for integrated electoral support by the UN in Afghanistan. This

has also furthered the UN’s ability to speak with one voice on electoral matters, to play

an effective supporting role with regard to upcoming elections while managing

expectations, and ultimately keeping a constant focus on the fact that the 2014

elections will be Afghan led and Afghan managed.29

‘Afghanisation’ of the electoral process, international basket funding to Afghan

electoral bodies, and ‘focused’ technical ELECT II support

ELECT II responded to several important paradigm shifts compared to its predecessor

ELECT, such as: 1) the concept of ‘Afghanisation’ - the transition context towards

decreased international support and presence after 2014; 2) a realistic, focused and

practical approach to electoral support; and 3) electoral support programming should

not be conceived as event-based, but rather according to a cyclical approach.

As a major lesson learned from the initial ELECT project, ELECT II’s mandate has

been defined as purely focusing on assisting the Afghan electoral bodies, and not

becoming distracted by direct engagement with the wider electoral stakeholder

community - including domestic observers, the media, political parties, police and civil

society. The broad range of activities that were included in the (revised) 2008 ELECT

29

In this context, it has been agreed that, from the UN’s side, only the SRSG and the D-SRSG (and the official designated UNAMA spokesperson) will speak in 2014 with media on the preparation, conduct and outcome of the presidential and provincial council elections and all related political considerations.

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project scope, ultimately diluted the original ELECT project’s focus, and detracted from

its core function of strengthening the electoral bodies in 2009 and 2010. 30

In sum, it has proven to be successful to streamline technical and financial support

from the international community to the IEC in a collective and well-coordinated effort.

The basis for the ELECT II project has been the wide consensus among IEC and donor

partners that international technical support to Afghan electoral authorities would be

most effectively maintained through a UNDP-managed basket fund and an associated

UNDP-led electoral assistance project. In addition, related to the principle of a ‘focused

approach’, it has been agreed that support to complementary activities beyond the

Afghan electoral bodies, should be pursued on a different basis outside the ELECT II

basket fund. In line with this approach, UNDP maintained a consistent line in 2013

during discussions of expanding ELECT II for the purposes of providing support to the

MoI and the MOCIT for the development of the e-tazkira project, noting that ELECT II

had not been designed with a civil registry expertise or dimension. The risk to project

effectiveness, through poorly designed and under-supervised subcontracts which were

not directly correlated to the core electoral expertise, was again taken into

consideration in order not to dilute the core rationale of the project.

Continued capacity building: the electoral cycle approach

As already identified as an important lesson learnt during the original ELECT project

(2006-2011), ongoing support to the IEC during the inter-election period, in terms of

capacity enhancement and ‘Afghanisation’ of the electoral process, would be crucial for

effective conduct of the 2014 and 2015 cycle of elections31. Electoral operations are

widely acknowledged as fundamental to the credibility of elections. However,

operations are only one component of a sound electoral cycle. The fact that

international community support to the IEC was not maintained during the first inter-

electoral period between the 2004 - 2005 elections and the 2009 - 2010 elections, and

the institution had to effectively be resurrected in preparation for the 2009/10 elections,

contributed to some extent to electoral challenges faced in those elections.

To consolidate the gains from the past 2009 and 2010 elections, the international

community and the IEC agreed in 2011 to transform the original ELECT project first

30

UNDP/ELECT II 2006-2011, Project End Report, page 56: “According to revisions to the ELECT Project Document in December 2008, ELECT (I) expanded the scope of its mandate to include a range of complementary activities and engage the wider stakeholder community – including domestic observers, the media, political parties, police and civil society – as a way to ensure the positive contribution of each to the electoral process, according to their respective mandate. However, rather than enhancing ELECT support as envisaged, the broad range of activities weakened the project, serving as a distraction from core objectives and diluting staff capacity. By limiting its scope to technical and operational support in 2010, ELECT was able to refocus its support. Utilitarian in nature, this approach sought the greatest results with the least possible investment and exposure. While targeting the support to core functions of the electoral authorities, the UN could ensure essential assistance, without the distraction of other activities, while also limiting its profile.” 31

UNDP/ELECT II 2006-2011, Project End Report, page 55

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into the ELECT II capacity development project in 2012 and 2013, in order to maximize

the capacity development focus during the inter-election phase. Only in mid-2013, it

was decided to that the ELECT II project would also be expanded into an electoral

support project for 2014 and 2015.

Efficiency of ELECT II capacity development and electoral support to the IEC

Output 1: staff and organizational capacity enhancement

At the end of 2013, it is perceived by all partners that the technical capacity of the IEC

to conduct the 2014 elections has never been so robust and reliable in terms of

planning, implementation and readiness. A key element to this success can be related

to the nature of the capacity development approach as followed by ELECT II. Already

initiated in 2010, ELECT II elaborated in 2012 and

2013 the concept of co-locating management,

advisors and support staff within the IEC. ELECT II is

almost in daily contact with the IEC management,

while advisors are deployed across the spectrum of

IEC departments, inter-acting on a daily basis with

IEC counterparts, and in particular IEC department

heads. As stipulated above, the revised advisory role

of ELECT II permitted the project to create an

enabling environment for the transmission of

electoral knowledge and expertise, and thereby

assisting the Secretariat to take electoral planning

and implementation decisions on the basis of solid

technical input and best practices.

ELECT II initially focused on technical capacity enhancement of IEC staff, whether

through specific trainings for all staff, as well as tailored support to IEC Secretariat

members by being collocated and permanently working alongside IEC management

and department heads. An important lesson drawn from the Capacity Development

Assessment conducted end 2012 and early 2013, was to expand the capacity

development efforts also to an organizational level, in particular by strengthening

processes through the development and implementation of standard operating

procedures. In order to ensure sustainability of the IEC, ELECT II further needs to look

at long-term solutions that preserve the enhanced staff capacity and organizational

processes, decreased dependency on the knowledge of a few staff, and benefits from

institutional knowledge amassed during the preparation stage for the 2014/15

elections. This approach also served the IEC as an institution in times of leadership

personnel changes. This institutional development approach includes the development

of Standard Operating Procedures.

The late EC deputy-CEO and Chief of Operations Mr. Mohammed Hashim Samim, who passed away on 12 January 2013

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Output 2: conduct of the voter registration and the question of an electronic civic

registry

From a technical-operational perspective, the IEC voter registration ‘top up’ campaign

could be considered as a success. The entire VR process provided excellent lessons

learned for the preparation and operations of the elections itself and strongly enhanced

the IEC’s internal planning, coordination and communication mechanisms, in particular

between HQ and the provincial offices, instrumental for the success of the conduct of

the actual elections.

From a conceptual aspect, the IEC and ELECT II did not manage to ensure sufficient

support from different key stakeholders for the two initial VR plans, the conduct of a

new registration and VR cards validation exercise. Different aspects, including

questions of inclusiveness, technical feasibility and acceptability were raised. However,

above all, the voter registration debate was overshadowed by the question whether

Afghanistan’s priority would not be the development of an (electronic) civil registry from

which a voter register could be derived.

An important lesson learned for the project was the welcomed involvement of both

UNAMA and UNDP CO in the VR-related discussions, of which some aspects basically

superseded beyond ELECT II’s project scope. This involvement framed the positive

relationship dynamics between UNAMA, UNDP CO and ELECT II on electoral issues.

UNAMA was more appropriately placed to provide a forum for the politicized

discussions, with an electoral Needs Assessment Mission ultimately concluding the

parameters of an extended UN role in the 2014 and 2015 elections. UNDP CO

provided the forum to discuss the expansion of the ELECT II project and gave

guidance to partners in terms of deciding the limits of the project scope, in particular

the advice not to include the e-tazkira project as a separate output of ELECT II, based

on rationale as articulated above.

Output 3: enhanced engagement with the electorate and key stakeholders

The public outreach campaign in 2013 allowed the IEC (and ELECT II) to revise the

comprehensive public outreach strategy for 2014, in particular based on results of a

survey and stakeholder assessment conducted for the IEC’s internal purposes. Weaker

points already identified in the 2013 campaign included the missed opportunity to

better engage with local CSOs to further distribute electoral materials. Furthermore, for

the 2014 elections campaign, ELECT II included an element of third party monitoring

for IEC public outreach activities as well as the deployment of civic and voter

educators.

In general, in terms of engagement of the electorate at-large in the electoral process,

the following observation can be made that despite the IEC’s informative and

motivational public outreach efforts, much more still needs to be done to improve

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women’s and youth participation in the electoral process. This is not the sole

responsibility of the IEC. CPAP Outcome 4 that indicates that ‘state and non-state

institutions are better able to promote democratic participation and be accountable to

the public’. The lesson to be learned is that it cannot be expected from an electoral

support project, which is developed to enhance the capacity of electoral bodies, to

solely contribute to wide-spread civic and voter awareness, civil society engagement

and the formation of political entities. It is important that UNDP continues to clearly

define its envisaged outcome, supported by underlying projects, in this regard in a

realistic manner.

Output 4: The IEC’s operational management functions and the project support

services are provided in a transparent, efficient and effective manner

A main recommendation of the project’s interim evaluation report in early 2013

included the strengthening of the project’s management support unit. Besides being

able to recruit an operations manager, who also closely assists the IEC as advisor with

its operational support functions, ELECT II also expanded the team with extra

procurement specialists, in addition to engagement of the UNDP’s global procurement

support office (PSO) in Copenhagen. Procurement of electoral materials faces a wide

range of different constraints, related to the huge quantity, the desired quality, the

choice between domestic versus international procurement, the complicated

procurement procedures, the sensitivity around electoral materials, and the time-bound

aspect of a precise Election Day. Certain challenges during the planning of the voter

registration procurement process provided good lessons learned for the project and the

IEC to procure specific electoral materials. Project procurement specialists, in close

coordination with UNDP procurement specialists in the country office, the regional

office and the global procurement office, developed in a timely manner a

comprehensive elections procurement plan. The specifics of this approach can provide

useful insights for future UNDP led electoral support projects.

In terms of strengthening the IEC’s operational functions, while monitoring related

risks, good lessons learned included UNDP’s approach to first conduct in 2013 a

GARMIN mission, which provided oversight and directions of different national

implementation modalities, and which also informed partners, such as donors as well

as the Afghan government, of the different risks related to various modalities.

Furthermore, UNDP conducted a Micro Capacity Assessment of the IEC’s capacity

subsequently. Although NIM has been identified as the financial modality system of

UNDP’s ELECT II support to the IEC, it is important to underscore the incremental

process of gradually transferring processes and related risks from DIM to NIM, making

sure that both the IEC and the MoF possess the requisite capacity before implementing

a full NIM approach.

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Output 5: The conduct of polling, counting and result management operations by

the IEC is improved

As mentioned earlier, by the end 2013, all partners agree that the technical capacity of

the IEC to conduct the 2014 elections

has never been so robust and

reliable in terms of planning,

implementation and readiness.

Besides on-going capacity

enhancement efforts by the project to

the IEC at large, another key element

has been the development of a wide

range of electoral plans well ahead

on time and through an informative

and consultative process with key

stakeholders; from the

announcement of the electoral calendar for the 2014 elections almost 1 ½ year before

Elections Day (31 October 2012), to the Concept of Operations (February 2013), and

the Electoral Operations Plan and the accompanying Security Plan and Fraud

Mitigation Plan (March/April – revised in July 2013). These plans were shared with key

national and international stakeholders to incorporate feedback and increase

ownership. All these plans considered international best practices in the most suitable

way given the local context, while electoral lessons learned were included, enhancing

the IEC’s knowledge sustainability. Technical lessons learned from previous ELECT (I)

support to IEC elections, and currently included in the upcoming elections planning

include, amongst other: piloting the use of UV ink besides indelible ink, the use of

transparent tampered evident bags (TEB), GIS mapping of polling centres, enhanced

security features on new VR cards, the introduction of a bar coded assets tracking

software (in particular for sensitive electoral materials), distribution of ballots uniquely

to specific polling stations with no further re-distribution, signed records of receipt of

materials, upgrades of the tally system with focus on statistical error reduction, and

enhanced polling staff training regarding materiel handling and forms’ use.

Output 6: The electoral dispute resolution mechanisms of the electoral process

are enhanced

In the past, the (I)ECC had to be re-established each time again, leading consequently

to practical delays and limited time to organise physical structures and human

resources. This IECC is currently facing similar challenges given its new establishment

only in late 2013. However, now defined as a permanent body and remaining

operational throughout the entire electoral cycle, the IECC can this time retain cores

staff and facilities, collect a pool of institutional knowledge and capacity for future

elections. It might decrease in scale in non-peak periods, but it could use interim

periods to increase public awareness of the complaints process, contribute to electoral

Loading of electoral materials (December 2013) – Photo by ELECT II

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reform development, and maintain an oversight function so that issues could be

addressed as they arise and not only during polling and the announcement of results.

Although the scope of the project document allows ELECT II support simultaneously to

both electoral bodies, all international key partners understood well the risk for the

project of becoming involved in a potential conflict of interest between both electoral

bodies during the adjudication of complaints and objections, if no ’firewall’ is put in

place between elections-operational advisory and adjudication advisory. In an attempt

to still have one overarching ‘entity’ to channel electoral funding, UNDP and donor

partners reached consensus to subcontract the technical assistance and operational

support to the IECC to IFES and UNOPS respectively. This methodology could be a

useful lesson learned of how to provide international support, with a potential

conflicting assistance mandate, to both electoral bodies within one overarching project

or programme.

Output 7: The integrity of the electoral process is enhanced through a fully-

supported media regulatory body

To ensure an effective approach to election-related media regulation, including a

consultative and recruitment process of the IEC’s Media Commission, the project

assisted the IEC with the development of a concept paper that outlined steps for the

establishment of the Media Commission and commensurate regulatory framework, and

the inclusion of a selection committee comprising of IEC secretariat staff and media

representatives. This ensured a consultative and fair recruitment process, as the

selection committee shortlisted 13 candidates from amongst more than 80 applicants,

out of which the (IEC) Commission ultimately nominated the five Media Commission

members. As a result, the Media Commission can be considered as composed of

media professionals, mostly from the private sector, of which the sole female member

is a well-known journalist, and eventually was selected from within as Media

Commission’s Chairperson. The approach of first assisting the IEC with defining the

outline of the establishment of the Media Commission, including a transparent and

consultative recruitment process based on technical criteria, is a good lesson learned

as it enhanced the objectivity during long- and shortlisting and reduced significantly any

political interference at the final appointment stage.

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IX. FUTURE PLANS

With the assistance of ELECT II, the IEC enters 2014 with an improved electoral

framework and enhanced professional capacity to conduct the 5 April Presidential and

Provincial Council elections. (See in annex 13 the IEC electoral timeline for the 2014

elections). However, in order to maximize these advantages to the benefit of a more

credible, inclusive and democratic electoral process, it is essential that the

Constitutionally-mandated independence of the IEC is fully respected. The IEC Board of

Commissioners and Secretariat have been vested with the highest responsibility of

ensuring the right to vote for all eligible Afghan voters, and seeing that each individual’s

vote, including those of women, are honestly counted, aggregated and translated into final

results that reflect the will of the people.

The Team - ELECT II project’s annual review on 28 November 2013 – Photo by ELECT II

Likewise, the Independent Electoral Complaints Commission (IECC) also has a key role in

ensuring an opportunity for voters and electoral contestants to seek judicial relief, and

ensure election results in accordance with the law. Even though neither the IEC, nor the

IECC, have responsibility for security challenges or the broader political environment

during the electoral process, they can ensure the highest integrity and professional

standards within their respective mandates. By doing so, they can ensure that the

competition for political office is conducted in line with the law and upon a sound electoral

administration foundation. This will be greatly facilitated by structured coordination and a

collegial approach by both institutions, for the common good of the electoral process.

Ultimately elected office is about serving the public interest, and a peaceful transition of

power will surely serve the national interest to the highest degree, and usher in a new

chapter for Afghanistan’s future political life and development.

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In terms of operational preparations, key focus areas in the upcoming months prior to

Polling Day include:

- Operationalization of the IECC

- Operationalization of the Media Commission and subsequent media monitoring

- Finalization of security assessment of the polling centre locations

- Adequate logistical preparations and packing of materials, in addition to

development and implementation of an adequate national and provincial

movement plan to have all materials reaching its polling centre destination

- Timely recruitment and effective training of trainers, 1,450 civic and voter

educators, 3,194 district field coordinators and some 100,000 polling staff

- Enhanced public outreach and stakeholder relations to engage the electorate

and all partners inclusively in the electoral process, in particular women

- Accreditation of observers

- In depth focus to fraud mitigation planning and focus

- Results management finalization

- Operational planning for a possible second presidential round

- Timeline planning for 2015 Wolesi Jirga and possible district elections

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X. ANNEXES

A. Annex 1: Financial Table

B. Annex 2: Expenses by Output

C. Annex 3: Expenses by Donor

D. Annex 4: Risk Log

E. Annex 5: Issue Log

F. Annex 6: IEC Training and Capacity Building

programmes in 2013

G. Annex 7: IEC Standard Operating Procedures developed

in 2013

H. Annex 8: ELECT II Capacity Development approached

and efforts to IEC (2012-2013)

I. Annex 9: 2013 provincial Voter Registration ‘top-up’

details

J. Annex 10: Candidate Nomination details

K. Annex 11: Key dates IECC establishment

L. Annex 12: ELECT II project M&E verification

methodologies (2014)

M. Annex 13: Key dates IEC 2014 Elections Operational

Plan

Documents

ENHANCING LEGAL AND ELECTORAL CAPACITY … | P a g e I. EXECUTIVE SUMMARY Throughout 2013, the UNDP project ‘Enhancing Legal and Electoral Capacity for Tomorrow, Phase II’ (ELECT