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lecE t ir oi na F N e& twe oer rkF

FA NFE

An Assessment of Voter Lists Displayedfor Public Scrutiny in March 2012

ACCURATE BUTINCOMPLETE

13% Voters not Verified in Areas of their Residence20 Million Potentially Missing on Rolls

Preliminary Electoral Rolls 2012

Free and Fair Election Network

Preliminary Electoral Rolls 2012: Accurate But Incomplete

All rights reserved. Any part of this publication may beproduced or translated by duly acknowledging the source.

1st Edition: June 2012. Copies 2,500

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Table of Contents

Acknowledgments i

Abbreviations ii

Executive Summary 2

Methodology of Assessment of PER 2012 8

Key Findings 10

1. One in every eight voters not verified at his/her address given in PER 2012 10

2. Families of almost two thirds of unverified voters also not found on addresses given in PER 2012 10

3. More women than men voters not verified at residential addresses 11

4. One fifth of adult population potentially not registered as voters 11

5. Negligible number of voters misallocated 12

6. Voter entries on PER 2012 highly accurate 14

7. Quality of Display Period 15

7.1 Voter accessibility to display centers 15

7.2 Facilitation of voters at display centers 16

7.3 Materials available at display centers 17

7.4 Participation of women voters 18

7.5 Participation of political parties 18

7.6 Corrective measures by ECP 19

7.7 Claims filed at display centers 19

Annexes 21

Background 6

Annexure 1: Population estimates (Economic Survey of Pakistan 2011-12) 23

Annexure 2: Questionnaires and Checklists used in the Assessment 24

Annexure 3: List of display centers visited for List-to-Voter Assessment 28

Annexure 4: List of localities visited for People-to-List Assessment 42

Annexure 5: District-wise number of display centers visited by FAFEN observers for observation of Display Period processes 51

The Free and Fair Election Network (FAFEN) wishes to acknowledge with appreciation the hard-working FAFEN monitors and their supervisors for implementing this assessment during the Display Period for Preliminary Electoral Rolls 2012 between February 29 and March 20, 2012. Many personnel at the FAFEN Secretariat also deserve commendation for their essential contributions to the design of this assessment as well as the data cleaning and analysis.

FAFEN thanks the Election Commission of Pakistan for encouraging and facilitating this assessment. In particular, FAFEN wishes to express appreciation for the District Election Commissioners and Display Center In-charge Officers in the display centers around the country who cooperated with our efforts.

Finally, FAFEN acknowledges the financial support of the Department for International Development (DFID)

The Asia Foundation (TAF) for all of FAFEN's governance programming, of which this assessment is a part.

Board of Trustees

and Embassy of the Kingdom of Netherlands through

Acknowledgements

i

CNIC Computerized National Identity Card

DCIO Display Center In-charge Officer

DER Draft Electoral Rolls

DFID Department for International Development

ECP Election Commission of Pakistan

FAFEN Free and Fair Election Network

FATA Federally Administered Tribal Areas

FER Final Electoral Rolls

ICT Islamabad Capital Territory

KP Khyber Pakhtunkhwa

MoE Margin of Error

NADRA National Database and Registration Authority

PCO Pakistan Census Organization

PER Preliminary Electoral Rolls

TAF The Asia Foundation

UKaid United Kingdom Agency for International Development

Abbreviations

ii

Free and Fair Election Network w w w . f a f e n . o r g2

The five-year term of the National Assembly of Pakistan comes to an end on March 17, 2013. As part of its

preparations for the forthcoming general elections, the Election Commission of Pakistan (ECP) has finalized

Electoral Rolls in July 2012. The new rolls replaced the previous Finalized Electoral Rolls 2007 (FER 2007) used in

the general elections of 2008.

The new electoral rolls have been necessitated as part of the ECP’s efforts to improve the quality of future elections,

which included a legal amendment to make CNICs mandatory for voter registration. The ECP adopted rigorous

and methodical processes in the preparation of new rolls, including eliciting the services of NADRA. The rolls were

finalized after their public scrutiny managed by the ECP between February 29 and March 20, 2012. Eligible voters

were thus provided a valuable opportunity at 55,000 display centers set up across country to confirm their

registration status and to request corrections to erroneous identification details on the Preliminary Electoral Rolls

2012.

In an effort to independently verify the accuracy and completeness of PER 2012, FAFEN undertook a study

encompassing three separate assessments – List-to-Voter, People-to-List and Display Period Process

Assessment. The study was carried out in systematically sampled locations and display centers across the country

by a total of 1,916 trained FAFEN observers. The objectives of the study were to assess:

1. The extent to which individuals listed in PER 2012 are registered in the polling areas of their residence (where

they will go to cast ballots on Election Day)

2. The correctness of voters' other data in PER 2012

3. The extent to which eligible voters are not yet registered in PER 2012

4. The quality of the processes at display centers during the public scrutiny of PER 2012

The List-to-Voter Assessment, which is focused primarily on the accuracy of the voters list, verified a statistical

sample of names taken from the electoral roll by visiting the addresses listed and interviewing those registered

voters. The List-to-Voter Assessment was conducted in 2,134 sampled locations in four provinces, Islamabad

Capital Territory (ICT) and Federally Administered Tribal Areas (FATA). The sample size included 20,068 voters

listed on PER 2012 – 9,850 women and 10,218 men. Standardized checklists were employed to record each

selected voter's Voter Number, Household Number, Name, CNIC Number and Address extracted from the

electoral roll. The presence of each voter was verified at his/her listed address in addition to confirming other vital

identification details.

The People-to-List Assessment, which is focused primarily on the completeness of the voters list, was conducted

in 2,114 sampled locations in four provinces, ICT and FATA. Ten households were randomly selected in each of the

sampled locations and one eligible voter was interviewed at each household, producing a sample size of 19,278

respondents – 9,141 females and 10,137 males. Trained FAFEN staff filled standardized checklists with the Name,

CNIC Number and Address of each interviewed individual and then verified their registration status and accuracy

of identifying details against the designated electoral roll of each respective area.

The Display Period Process Assessment was conducted at 6,557 Display Centers in 1,196 sampled Union

Councils in four provinces and in ICT and FATA. FAFEN observed the quality of display period processes

administered by the ECP in order to analyze their fairness, neutrality and transparency against the ECP's Manual of

Instructions provided to the officials assigned for display center management.

Methodology of Assessment

Executive Summary


Summary of Key Findings

1. List-to-Voter Assessment

2. People-to-List Assessment

3. Display Period Process Assessment

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Facilitation of voters at Display Centers

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Materials available at Display Centers

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One in every eight registered voters (13%) could not be confirmed to be residing at the address listed in PER 2012.

Of voters not verified of their addresses, more than one-half of their families (58%) were not found to be residing at the addresses given in PER 2012. In other words, every eligible member of these families may be registered to vote in the wrong location (with the wrong address).

Slightly more female voters than male voters are not verified of the addresses. Nationwide, 14% of registered women voters were not found to be living at their given addresses, while the same was true for 12% of male registered voters.

The names of voters on the electoral rolls were found to be accurate in 99% of cases.

The CNIC numbers checked on PER 2012 also were accurate in 99% of cases.

About 3.4% of eligible voters who have CNICs are not registered in PER 2012, which means that almost 3.6 million CNIC holders may have been erroneously left off the voters' list, while 20 million adults of voting age may be missing on the rolls altogether. The highest incidence of under-registration of eligible voters with CNICs was documented in Sindh. Nationwide, 3.5% of the unregistered eligible voters are female, while 3.4% are male, with higher rates of disparity in ICT, FATA and Balochistan.

About 1% of verified voters are registered in areas where they do not reside. Most misallocations were found in ICT and Balochistan. Approximately 0.4% of verified voters were found to be misallocated to electoral areas within the same province/region, while about 0.3% were misallocated to electoral areas in other provinces/regions.

Approximately 20% of registered voters' names were not fully accurate when checked against the voters' list. The names of 37% of registered voters were not accurate on the lists in Balochistan, while in Sindh the names of 25% of voters could not be verified in full. However, these discrepancies may have been due to hand-written errors in transcription of names.

The CNIC numbers of 99% of the voters listed by observers at selected households were observed to be correct in the lists.

3.1 Voter accessibility to Display Centers

The vast majority of display centers (94%) established by the ECP were in locations that were easily accessible to the public.

Display center banners were not clearly visible at 11% of the centers across the country.

Instructions for visitors were not displayed at two-thirds (63%) of the observed display centers.

Informative material was not present at the majority of display centers (65%).

3.2

Display center staff was observed providing support and guidance to the public at the majority of observed centers (89%). In Balochistan, the staff was not seen performing its duties to facilitate citizens at 15% of the observed centers.

Display center staff was deemed to be acting in a polite and courteous manner at 90% of the observed centers.

3.3

Voter lists were not present at 15% of the observed centers in Balochistan at varying times during the display period.

Electoral rolls including separate sections for men and women were available at 91% of the observed centers. However, separate sections of lists were unavailable at 13% of the centers in Balochistan.

Display center staff had ECP staff manuals at 89% of the observed centers.

Adequate amounts of forms for adding voters' names, raising objections and making changes to credentials were available at 90% of the observed centers.


3.4

Women did not check the draft rolls at 67% of the observed display centers. This was most pronounced in Khyber Pakhtunkhwa (KP), where women did not visit more than 83% of the observed centers.

Women's names were registered by male members of their families at 60% of the observed centers. This practice was observed at 70% of the observed centers in the ICT area.

The staff assisted women appropriately at only 54% of the observed centers nationwide. ECP staff were least helpful to women at observed centers in Balochistan, with 42% not facilitating women.

3.5

Political parties showed little interest in the Display Period and caused problems on the few occasions when they did go to display centers. Party workers were present at only 1% of the observed centers. Where they were present, they were the source of problems in 53% of cases.

When prompted by FAFEN, ECP officials took immediate action to address various types of issues reported from display centers by FAFEN observers. As a result, a steady decline in common complaints against dysfunctional or closed display centers was witnessed.

3.6

Voters filed 58,014 name-addition claims at the observed centers, the majority of which were claims from Sindh (31,503).

A total of 5,835 correction claims were recorded, the majority of which were in Sindh (3,036).

A total of 5,536 claims challenging the genuineness of registered voters were filed at the observed centers, most of which were filed in Punjab (2,619).

Extrapolating from figures recorded during the observation exercise, only approximately half a million people country-wide may have registered as voters during the Display Period.

The names and CNIC numbers listed on the PER 2012 are highly accurate.

The important exception to this high accuracy is that one in every eight voters on PER 2012 (13%) may be residing in an electoral area other than the one where she/he is registered to vote. Any voter registered in one area according to their permanent address listed on their CNIC, but residing and intending to vote in another area of their current address, will be unable to cast a ballot on Election Day.

Moreover, PER 2012 is significantly incomplete. Approximately 3.59 million eligible voters who already have valid CNICs may not be included on the new electoral roll.

Taking into account population estimates from the latest Economic Survey of the Government of Pakistan, the number of eligible voters (with and without CNICs) who are not included on the electoral roll may be as high as 20.27 million

ECP administered the legally-required Display Period relatively efficiently and ECP was responsive to problems raised by FAFEN observers. The poorest implementation of the Display Period was in Balochistan, where as many as 15% of display centers suffered from serious irregularities.

Despite some success in implementing the Display Period, very few citizens visited display centers, and political parties did not play a positive role in facilitating potential voters to register.

Approximately 500,000 citizens may have taken advantage of the ECP Display Period to add their names to the electoral roll.

However, a consistent lack of information and instructions provided to potential voters at display centers (and perhaps more generally through mass media) may have prevented more citizens from taking advantage of the Display Period to register to vote.

Participation of women voters

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Participation of political parties

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Claims filed at Display Centers

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, or almost one-fifth (19.37%) of the eligible voting population.

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Conclusions

Regarding the Electoral Roll

Regarding the Display Period


Recommendations

In view of the findings of this assessment, FAFEN offers the following recommendations to maximize the voter registration and improve the quality of FER 2012.

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ECP Must Collaborate with Relevant Stakeholders

ECP Must Improve Public Access to FER 2012

ECP Must Simplify Voter Registration Process

ECP Must Register More Voters on FER 2012

ECP Must Improve Display Period Processes

1. Solicit the assistance of political parties and civil society organizations to increase voter registration, especially of women voters, before the announcement of the election schedule.

2. Host a series of consultative meetings with these partners to provide them with complete information about FER 2102 in order to be fully transparent about the required improvements in FER 2012 and to enlist their help in all possible ways.

1. Make FER 2012 available at Union Council offices to enhance public access to the lists, since the current placement of the lists at District Election Commission offices restricts unregistered citizens who have to travel long distances to district headquarters.

2. Provide simple, clear information through public education campaigns about the procedure for addition and correction of names and other particulars.

3. Include information/addresses of locations where FER 2012 is placed in ECP public education campaigns, especially on radio and TV to reach as many citizens as possible.

1. Allow each location where FER 2012 is displayed to serve as a “one-stop-shop” for additions and corrections by amending Rule 10 to avoid unnecessary multi-step processes.

2. Restrict arbitrary powers of Registration Authorities and clarify rules under Section 18 of Electoral Rolls Act 1974 to facilitate the process of voter registration and corrections.

1. Enable citizens to give consent of registration as voters at the time of acquiring CNICs by amending relevant laws in order to increase voter registration.

2. Make special efforts to increase registration of female voters. Currently, there are12 million fewer women than men registered as voters on FER 2012.

3. Ensure that FER 2012 includes all people turning 18 years of age between the present date and the announcement of the election schedule by collaborating with NADRA.

4. Identify and publicize geographic areas where voter registration is low so that civil society organizations and political parties can assist with mobilization of eligible voters.

The ECP Display Period prior to each General Election does not serve its purpose if citizens do not have the motivation and information necessary to visit display centers in order to register to vote and correct their registration details. The following steps are necessary to ensure for future Display Periods that ECP officials and political parties perform their essential roles to facilitate as many citizens as possible.

ECP must ensure through training and enforcement of procedures that all display centers prominently display instructions and informational materials for voters.

More broadly, ECP should use its authority to enlist the assistance of media, civil society and political parties to disseminate practical information and motivational messages to citizens in advance of each Display Period.

ECP should amend all necessary rules during the Display Period to ensure that the process of voter registration (adding names to the voters lists) is as simple as possible and requires as few steps as possible.

ECP should coordinate with political parties in advance of each Display Period to provide the practical information they need to develop active campaigns to facilitate potential voters.

Particularly in Balochistan, the ECP must improve the training and enforcement of all Display Period procedures for all display center personnel.


Background

Pakistan is preparing for democratic elections at the approaching expiry of the National Assembly's five-year term on March 17, 2013. Political parties have begun reaching out to potential voters through rallies, public gatherings and media. Meanwhile, election administration authorities are taking measures to improve quality aspects of the upcoming elections. While many legislative and regulatory reforms are still needed, the Election Commission of Pakistan (ECP) has finalized electoral rolls in July 2012.

The new electoral rolls has replaced the Final Electoral Roll 2007 (FER 2007) that was prepared for the previous general elections held in February 2008 with technical expertise from international experts. However, under a

Supreme Court directive in Benazir Bhutto vs. the Federation of Pakistan, the ECP appended to FER 2007 a Supplemental List of Voters 2002 comprising all voters who were registered in 2002 but potentially erroneously

1omitted in FER 2007 . Adding the Supplemental List significantly undermined the integrity of the newly computerized electoral roll since many unverified and duplicate voters were included.

In an effort to improve electoral processes, including electoral rolls, for the next general elections, the ECP initiated collaboration with NADRA in 2010. The collaboration began with an effort to integrate the civil and voter registries, as advocated by political parties, media and civil society, including FAFEN. The ECP and NADRA commenced a pilot project in 60 selected electoral areas of four districts, i.e. Swabi, Vehari, Karachi East and Quetta, in October and November 2010 with the objective to verify electoral lists against NADRA's database of citizens. The pilot's findings were encouraging, and integration appeared possible. The methodology was then replicated to verify the entire FER 2007 and 2002 Supplemental List of Voters with NADRA's database.

2However, when ECP released the findings of this verification exercise , the quality of FER 2007 came under serious doubt. According to the ECP's press release issued to announce the findings, the verification process found 44.02 million registered voters to be in possession of genuine Computerized National Identity Cards (CNICs), while 37.18 million registered voters were unverified. Of these 37.18 million unverified voters, 15.02 million were registered without CNICs, 2.14 million were registered with invalid CNIC numbers, 2.49 million were registered with duplicate CNIC numbers, 6.46 million were registered with non-computerized NICs, while the remaining 11.05 million were registered with non-computerized NICs whose records NADRA was unable to find.

While the ECP was already in the process of improving the quality of the electoral rolls, the Supreme Court directed 3the ECP on March 31, 2011, to immediately rectify the electoral rolls and delete any fake or duplicate registrations .

The Court also observed that the ECP and the Pakistan Census Organization (PCO) could join forces to improve the quality of electoral rolls, which they subsequently did.

The Court was informed that the ECP had devised a plan to delete from the electoral roll the names of all persons not found in NADRA's database. Ground work for the preparation of new electoral rolls according to new Census Blocks began in April 2011. In parallel to the house-listing by PCO, data was obtained about the head of each household, along with his/her CNIC number, thus enabling NADRA to generate and print Draft Electoral Rolls 2011 on the foundation of its own database. Afterward, the ECP checked these draft rolls through a door-to-door verification exercise in August-September 2011. However, this process failed to yield the required results because of serious flaws in the verification process and the haste with which ECP had to act to finalize the electoral rolls on the Supreme Court's direction.

In an effort to compensate for the flawed verification process, the ECP automatically put all the unverified voters who were in possession of CNICs by December 31, 2011, on the electoral rolls and provisionally registered them at their permanent addresses. Furthermore, the ECP displayed the preliminary electoral rolls in the offices of Registration Officers/Assistant Registration Officers and at 55,000 centers across the country in a legally-mandated 21-day Display Period that lasted from February 29 to March 20, 2012. The Display Period provided

The provincial assemblies of Sindh, Khyber Pakhtunkhwa and Balochistan passed resolutions in support of extending the verification process, primarily because of the displacement of people resulting from floods and security situation in parts of these provinces.

1 Constitution Petition No.45 of 2007 (Mohtarma Benazir Bhutto vs. Election Commission of Pakistan & others)2 ECP Press Release, March 8, 2011.3 The Supreme Court directive to ECP came in response to a petition filed by a citizen


voters with the opportunity to verify their voting status and their electoral areas of registration, to challenge names on the list, and to make additions and deletions to the lists. The ECP will publish the Final Electoral Rolls 2012 after accommodating the claims it received during the Display Period.

The new electoral rolls are unique in both process and product for the following reasons, among others:

1. The ECP's collaboration with NADRA. As part of their recommendations for electoral reforms, domestic elections stakeholders including FAFEN strongly recommended such cooperative measures before and after the 2008 General Elections. The electoral rolls now are computerized and in sync with the civil registry maintained by NADRA.

2. For the first time in Pakistan's electoral history, only adults in possession of valid CNICs are being included on electoral rolls. The unique identifier, i.e. CNIC number, has eliminated the chances of erroneous duplicate voter registration, which was a significant problem in earlier rolls.


FAFEN undertook an independent study to verify the accuracy and completeness of the PER 2012 prepared and made available by the ECP for public scrutiny at 55,000 nation-wide display centers between February 29 and March 20, 2012. The study comprised three separate assessments -- List-to-Voter, People-to-List and Display Period Process Assessment -- in systematically sampled locations and display centers across Pakistan. (See Annex 2 for the Questionnaires and Checklists used in the Assessment.) The objectives of the study were to assess:

1. The extent to which individuals listed in PER 2012 are registered in the polling areas of their residence (where they will go to cast ballots on Election Day) (accuracy)

2. The correctness of voters' other data in PER 2012 (accuracy)

3. The extent to which eligible voters are not yet registered in PER 2012 (completeness)

4. The quality of the processes at display centers during the public scrutiny of PER 2012 (facilitating citizens in order to ensure both accuracy and completeness of the lists)

The List-to-Voter Assessment was designed to draw a representative sample of registered voters on the electoral 4rolls at a Margin of Error (MoE) of 0.35%. It was conducted in 2,134 systematically sampled locations in the four

provinces, Islamabad Capital Territory (ICT) and Federally Administered Tribal Areas (FATA). Ten voters were randomly selected in each location from PER 2012, which were available for public scrutiny at each designated Display Center, producing a sample size of 20,068 respondents – 9,850 women and 10,218 men. Appropriately trained FAFEN monitors filled standardized checklists with each selected voter's Vote Number, Household Number, Name, CNIC Number and Address extracted from the electoral roll. Monitors then visited each listed address to verify that the voter resides at the listed address and to ascertain the accuracy of other vital identifying details from the voters list. The survey helped FAFEN determine both the extent to which voters are registered in the electoral areas of their residence and the accuracy of voter data on the electoral rolls. See Table 1 for region-wise breakdown of sampled locations.

Methodology of Assessment of PER 2012

Table 1: Region-wise Breakdown of Sampled Locations for List-to-Voter Assessment

Sr. No. Region No. of Locations Selected No. of Registered Voters Selected

Margin of Error Female Male Total

1 Balochistan 50 204 230 434 2.4%

2 FATA 55 248 259 507 2.2%

3 ICT 27 121 123 244 3.1%

4 KP 442 2,014 2,124 4,138 0.8%

5 Punjab 1,022 4,794 4,923 9,717 0.5%

6 Sindh 538 2,469 2,559 5,028 0.7%

Total 2,134 9,850 10,218 20,068 0.4%

4 The margin of error is a statistic expressing the amount of random sampling error in a survey's results. Margin of error is half of the confidence interval. It represents the degree of variation in survey findings.5 The oldest available eligible voter in a family was selected for interview.6 The ECP has established a helpline through which voters can verify their voting status via a text message.

The People-to-List Assessment was designed to draw a representative sample of the adult population that is eligible to vote at an MoE of 0.35%. It was conducted in 2,114 systematically sampled locations in the four provinces, ICT and FATA. In this assessment, 10 households were randomly selected in each of the sampled

5locations. Interviews were conducted with one eligible voter at each of the selected households, producing a sample size of 19,278 respondents – 9,141 females and 10,137 males. Trained FAFEN monitors filled standardized checklists with the Name, CNIC Number and Address of each interviewed individual. Monitors then visited the display center corresponding to each voter in order to verify his/her voter registration status and the accuracy of

6identifying details in the electoral roll. FAFEN also verified the status of these voters with the ECP's 8300 helpline . This assessment helped FAFEN determine both the extent to which eligible voters are registered and whether they are registered in the electoral areas of their residence. See Table 2 for region-wise breakdown of sampled locations.


Table 2: Region-wise Breakdown of Sampled Locations for People-to-List Assessment

Sr. No Region No. of Location Selected No. of eligible voters selected

Margin of Error Female Male Total

1 Balochistan 56 231 251 482 2.2%

2 FATA 34 128 147 275 3.0%

3 ICT 20 90 92 182 3.6%

4 KP 426 1,840 2,032 3,872 0.8%

5 Punjab 1,035 4,659 5,024 9,683 0.5%

6 Sindh 543 2,193 2,591 4,784 0.7%

Total 2,114 9,141 10,137 19,278 0.4%

The Display Period Process Assessment was conducted by 1,916 trained and neutral observers at 6,557 display centers in 1,196 systematically sampled Union Councils in 108 districts of the four provinces and other locations in ICT and FATA. Barring a few districts of southern Balochistan, all the districts of Pakistan, inclusive of ICT and FATA, were covered in the assessment. (See Annex 3 for a list of all sampled display centers.)

During the 21-day Display Period, FAFEN observers made 55,892 visits to 6,557 display centers. On average, each observer visited his/her assigned center nine times during the 21-day Display Period. Observers in ICT made an average of 16 visits to their assigned display centers, followed by averages of nine visits each in KP and Punjab, eight in Sindh, and five in FATA. The greatest number of visits was made in Punjab (30,548) followed by Sindh (15,702), KP (6,928), Balochistan (1,298), FATA (944) and ICT (472). Region-specific numbers of observers trained and mobilized and their corresponding numbers of visits to display centers are provided in Table 3.

FAFEN observers monitored the quality aspects of the Display Period processes in order to analyze their fairness, neutrality and transparency against the ECP's Manual of Instructions provided to the Display Center In-Charge Officers (DCIOs), the officials assigned by the ECP for display center management.

The Display Period Process Assessment enabled FAFEN to promptly inform the ECP of issues so that the election administration could take immediate corrective measures. Moreover, on the basis of observation findings, FAFEN was able to make useful recommendations to the ECP with respect to strengthening the enforcement of its processes and improving quality dimensions of the forthcoming elections.

Table 3: Region-wise Breakdown of Sampled Locations for Display Period Process Assessment

Sr. No.

Region No. of UCs Selected

No. of DCs Observed

No. of Observers

No. of Visits Average Visits/DC

1 Balochistan 59 166 55 1,298 8

2 FATA 25 195 41 944 5

3 ICT 9 29 15 472 16

4 KP 152 730 251 6,928 9

5 Punjab 618 3,529 1,003 30,548 9

6 Sindh 333 1,908 551 15,702 8

Total 1,196 6,557 1,916 55,892 9


1. One in every eight voters not verified at his/her address given in PER 2012

The List-to-Voter Assessment established that one in every eight voters (13%) was not found to be living at the address listed on PER 2012, indicating that he/she may be residing in another electoral area and therefore was left out of the ECP verification process in 2011. Any voter registered in one area (their permanent address, for example) but intending to vote in another area (their current address, for example) will be unable to cast a ballot on Election Day.

Most unverified voters were found in Balochistan, where one-fifth (20%) of the voters sampled from the electoral rolls were not found to be living at their listed residential addresses. In Sindh and ICT, 17.0% and 14.8% of registered voters, respectively, were not residing at the addresses provided on the lists. The incidence was slightly lower in Punjab, Khyber Pakhtunkhwa, and FATA, where 12.1%, 11.1%, and 10.3% of voters, respectively, were not verified to be residing at the addresses given in the electoral rolls. See Table 1.1 for a region-wise breakdown.

The misidentification of voters' residential addresses can largely be attributed to the incomplete and hurried door-to-door verification of voters conducted by the ECP in August-September 2011 when Supreme Court was pushing ECP to finalize the electoral rolls at the earliest. The ECP's request that more time be allowed for the process, also reflected in resolutions passed by three Provincial Assemblies, was rejected by the Supreme Court. Subsequently, unverified voters left out of the ECP verification were registered at the permanent addresses listed on their CNICs. To correct this anomaly, the Supreme Court directed the ECP to conduct a follow-on door-to-door verification exercise.

Nevertheless, if projected on the eligible voting population numbering 83.7 million, it can be inferred from FAFEN's statistical assessment that the addresses of approximately 10.9 million voters were not verified on PER 2012.

Table 1.1: Voters not Verified at Addresses Given in PER 2012

Sr. No

Region No. of Voters

Selected from List

Status of Verification that Voter Lives at Address on the List

%

Verified Unverified Verified Unverified

1 Balochistan 434 347 87 80.0% 20.0%

2 FATA 507 455 52 89.7% 10.3%

3 ICT 244 208 36 85.2% 14.8%

4 KP 4,138 3,680 458 88.9% 11.1%

5 Punjab 9,717 8,540 1,177 87.9% 12.1%

6 Sindh 5,028 4,174 854 83.0% 17.0%

Total 20,068 17,404* 2,664 86.7% 13.3%

2. Families of almost two thirds of unverified voters also not found on addresses given in PER 2012

During the verification of voters' identification details in the electoral rolls, FAFEN observers also documented the residential status of unverified (misallocated) voters' families in order to ascertain whether they also did not reside at the given addresses.

The observers were able to determine the residential statuses of 71% of the unverified voters' families. The families of as many as 58% of the unverified voters were also not found to be residing at the addresses provided in PER 2012. However, the families of the remaining 42% were found to be living at the given addresses, implying that, in the case of each family, only certain member(s) had moved elsewhere. See Table 2.1 for a region-wise breakdown.

Key Findings


3.

In comparison to their male counterparts, more women voters were not verified to be residing at the addresses given on PER 2012. Nationwide, 14% of registered women voters were not found to be living at their given addresses, while the same was true for 12% of male registered voters.

This phenomenon was reflected in all the country's regions except Balochistan, where 22% of male registered voters were not found to be residing at the given addresses, as compared to 18% of female registered voters. In Sindh, 18% and 16% of female and male registered voters, respectively, could not be verified to be residing at the given addresses. In ICT, the same was true for 16% of female and 14% of male registered voters. In Punjab, KP and FATA, the gaps between numbers of unverified male and female registered voters were comparatively smaller. See Table 3.1 for a gender-wise regional breakdown of unverified voters.

More women than men voters not verified at residential addresses

Table 3.1: Gender of Unverified Voters

Sr. No.

Region

No. of Voters Status of Residential Verification %

Selected from List Verified Unverified Verified Unverified

Male Female Total Male Female Male Female Male Female Male Female

1

Balochistan

230

204

434

180 167

50

37

78.3%

81.9%

21.7%

18.1%

2

FATA

259

248

507

237 218

22

30

91.5%

87.9%

8.5%

12.1%

3

ICT

123

121

244

106 102

17

19

86.2%

84.3%

13.8%

15.7%

4

KP

2,124

2,014 4,138

1,903

1,777

221

237

89.6%

88.2%

10.4%

11.8%

5

Punjab

4,923

4,794 9,717

4,396

4,144

527

650

89.3%

86.4%

10.7%

13.6%

6

Sindh

2,559

2,469 5,028

2,140

2,034

419

435

83.6%

82.4%

16.4%

17.6%

Total

10,218

9,850 20,068

8,962

8,442

1,256

1,408

87.7%

85.7%

12.3%

14.3%

4. Almost one-fifth of adult population (20.27 million) potentially not registered as voters

Almost 3.44% of eligible voters with CNICs sampled in the People-to-List assessment are not registered in PER 2012. An eligible voter is defined by Article 51(2) of the Constitution of 1973 as a person who is a citizen of Pakistan, not less than 18 years of age, and not declared by a competent court to be of unsound mind. In April 2011, the possession of a valid CNIC was made an additional prerequisite for voter registration.

The highest incidence of under-registration of eligible voters with CNICs was documented in Sindh at 5.62%, closely followed by Balochistan (5.19%), FATA (4.36%), Punjab (2.79%), KP (2.2%) and ICT (1.65%). See Table 4.1 for region-wise breakdown.

Table 2.1: Residential Status of Families of Unverified Voters

Sr. No. Region No. of Unverified voters Residential Status of Families %

Verified Unverified Missing Data Verified Unverified

1 Balochistan 87 24 17 46 58.5% 41.5%

2 FATA 52 32 13 7 71.1% 28.9%

3 ICT 36 4 21 11 16.0% 84.0%

4 KP 458 175 137 146 56.1% 43.9%

5 Punjab 1,177 330 563 284 37.0% 63.1%

6 Sindh 854 218 348 288 38.5% 61.5%

Total 2,664 783 1,099 782 41.6% 58.4%


Sr. No.

Region

No. of Adult Population Sampled

Verification Status Unverified

Percent Unverified Verified on List

Verified on ECP Helpline

Female Male Female Male Female Male Female Male Female Male

1 Balochistan 231 251 141 156 77 83 13 12 5.6% 4.8%

2 FATA 128 147 93 115 27 28 8 4 6.3% 2.7%

3 ICT 90 92 77 78 11 13 2 1 2.2% 1.1%

4 KP 1,840 2,032 1,415 1,625 384 363 41 44 2.2% 2.2%

5 Punjab 4,659 5,024 3,777 4,117 749 770 133 137 2.9% 2.7%

6 Sindh 2,193 2,591 1,571 1,866 500 578 122 147 5.6% 5.7%

Total 9,141 10,137 7,074 7,957 1,748 1,835 319 345 3.5% 3.4%

Table 4.2: Gender Disaggregated Breakdown of Unregistered Eligible Voters by Region

Based on this data and extrapolating from population estimates included in the latest Economic Survey of Pakistan 7from the Government of Pakistan , there may be as many as 3.59 million people with CNICs nationwide who have

not been registered as voters in PER 2012 (3.44% of 104.64 million adult citizens). The ECP and NADRA state that all people who were issued CNICs before December 31, 2011, were included in PER 2012. Therefore, these 3.59 million unregistered eligible voters with CNICs may be those who acquired their CNICs after that date.

In its People-to-List assessment, FAFEN has only assessed the extent to which eligible voters with CNICs are not 8registered as voters in PER 2012. However, NADRA indicates that only 92 million CNICs have been issued ,

whereas the Economic Survey of Pakistan indicates there are an estimated 104.64 million adult citizens, leaving at least 12.64 million additional adult citizens who may not possess CNICs and hence not be registered as voters.

A disproportionate number of these missing voters are women, since according to NADRA, the total number of women with CNICs is less than 40 million, while the total number of men with CNICs is more than 52 million. Only

986% of estimated adult women have CNICs, according to NADRA . 10More generally, ECP reports that there are 84.37 million registered voters on the electoral rolls . Based on the

Government of Pakistan estimate of 104.64 million adult citizens, there are potentially 20.27 million eligible voters

According to Table 4.2, the gender disaggregation of the number of unregistered eligible voters with CNICs in the FAFEN sample shows that there is not a significant gender disparity at the national level; 3.49% of the unregistered eligible voters are female, while 3.40% are male. However, region-wise breakdown of these figures establishes greater male-female disparity. In FATA, 6.25% of sampled eligible female voters are not registered as compared to 2.72% eligible male voters. There appear to be more female eligible voters with CNICs unregistered in Balochistan (5.63%) as compared to males (4.78%). Similarly in ICT, twice as many eligible female voters as male voters are unregistered. However, the male to female ratio appears to be almost equivalent in Sindh, KP and Punjab.

Table 4.1: Region-wise Breakdown of Unregistered Eligible Voters

Sr. No.

Region No. of Adult Population

Sampled

Verification Status Percent

Unverified Verified on List

Verified on ECP Helpline

Unverified

1 Balochistan 482 297 160 25 5.2%

2 FATA 275 208 55 12 4.4%

3 ICT 182 155 24 3 1.7%

4 KP 3,872 3,040 747 85 2.2%

5 Punjab 9,683 7,894 1,519 270 2.8%

6 Sindh 4,784 3,437 1,078 269 5.6%

Total 19,278 15,031 3,583 664 3.4%

7 Economic Survey of Pakistan 2011-2012, Government of Pakistan, May 2010, page 162. See Annex 1. The 2012 population is estimated at

180.71 million. Assuming an equal number of people in each year of age in the 15-19 year old category, the total 2012 estimated population

aged 18 years or older is 104.64 million.8 See http://www.nadra.gov.pk/index.php?option=com_content&view=article&id=375:96pc-adults-registered-in-pakistan-nadra&catid=14:

latest-news (accessed 27 August 2012).9 http://www.nadra.gov.pk as above.10 See http://www.ecp.gov.pk/ home page.


In some cases, voters were misallocated to electoral areas in the same province/region and in some other instances voters were even misallocated to electoral areas falling in the jurisdiction of other provinces/regions. Overall, 0.42% of the verified voters were found to be misallocated to electoral areas within the same province/region while 0.33% of these voters were misallocated to electoral areas in other provinces/regions.

In the case of Balochistan, 2% of the verified voters were misallocated to electoral areas within the province, while an almost equal proportion were misallocated to electoral areas in other provinces. In FATA, the majority of misallocated voters were assigned electoral areas in other regions. Similarly, almost all misallocations in ICT were inter-regional. In KP, more misallocations were inter-regional (0.34% of verified voters) than intra-regional (0.05% of verified voters). In Sindh, most allocations were within the province (0.88%) while 0.13% were inter-regional. In Punjab, 0.30% misallocations were intra-province while 0.23% were inter-province. See Table 5.2 for intra-regional and inter-regional misallocations.

Table 5.2: Misallocations Within and Outside Province/Region

Sr. No. Region Intra-Province/Region Misallocations Inter-Province/Region Misallocations Total

1 Balochistan 1.8% 2.0% 3.7%

2 FATA 0.4% 1.9% 2.3%

3 ICT 0.0% 3.9% 3.9%

4 KP 0.1% 0.3% 0.4%

5 Punjab 0.3% 0.2% 0.5%

6 Sindh 0.9% 0.1% 1.0%

Grand Total 0.4% 0.3% 0.8%

Table 5.1: Misallocated Voters by Region

Sr. No Region Verified Voters (List and ECP Helpline) Unverified Verified but Misallocated

1 Balochistan 91.30% 5.20% 3.70%

2 FATA 93.50% 4.40% 2.30%

3 ICT 95.10% 1.10% 3.90%

4 KP 97.50% 2.10% 0.40%

5 Punjab 96.70% 2.80% 0.50%

6 Sindh 93.60% 5.50% 1.00%

Total 95.90% 3.40% 0.80%

not included on the electoral roll. These potential missing voters represent approximately one-fifth (19.37%) of the eligible voting population.

The gender disparity in the voters list is clear from ECP reported data, with 47.77 million men registered to vote (56.6% of the list) and only 36.59 million women registered to vote (43.4% of the list). If it is assumed that at least 50% of the population are female, then more than two-thirds of unregistered eligible voters are female, with approximately 4.55 million men (22.4%) and 15.72 million women (77.6%) missing from the 2012 electoral roll.

5.

For the People-to-List Assessment, FAFEN observers randomly selected 10 households in each of the sampled locations and documented the Name, CNIC Number and Address of each household member of voting age in the family. FAFEN monitors then checked each eligible voter's registration status and accuracy of identification details on the designated electoral roll in each respective area, and also verified the status of these voters with the ECP's 8300 helpline. Both types of verifications suggested that 3.4% of all eligible voters were missing from the rolls. Of the verified voters, almost one in every hundred was allocated to a wrong electoral area, i.e. 1% of voters were registered in areas where they do not reside.

Most misallocations were found in ICT and Balochistan; in each area 4% of the verified voters were assigned to wrong electoral areas. The same was true for 2% of the verified voters in Balochistan, 1% each in Sindh and Punjab and 0.4% in KP. See Table 5.1 for region-wise breakdown of misallocations.

Negligible number of voters misallocated


A 99% accuracy rate was also observed in the verification of CNIC numbers, which were double-checked with the ECP's 8300 hotline. The CNIC numbers of ICT voters whose addresses were verified were found to be correct in 100% of cases. In each of the remaining provinces/regions, the accuracy rate was 99%.

Table 6.2: Accuracy of CNIC Numbers in List-to-Voter Assessment

Sr. No. Region Verified Accurate %

1 Balochistan 347 346 99.7%

2 FATA 455 448 98.5%

3 ICT 208 208 100.0%

4 KP 3,680 3652 99.2%

5 Punjab 8,540 8467 99.1%

6 Sindh 4,174 4132 99.0%

Grand Total 17,404 17,253 99.1%

Table 6.1: Accuracy of Names in List-to-Voter Assessment



2 FATA 455 455 100.0%

3 ICT 208 205 98.6%

4 KP 3,680 3650 99.2%

5 Punjab 8,540 8,437 98.8%

6 Sindh 4,174 4101 98.3%

Grand Total 17,404 17,193 98.8%

Sr. No. Region Region of Vote Registration

Balochistan FATA ICT KP Punjab Sindh

1 Balochistan 1.8%

2.0%

2 FATA

0.4% 0.4% 1.5%

3 ICT

1.1% 2.8%

4 KP 0.0% 0.1% 0.0% 0.1% 0.0% 0.2%

5 Punjab

0.1% 0.1% 0.3% 0.0%

6 Sindh 0.0% 0.0%

0.0% 0.0% 0.9%

Total 0.1% 0.0% 0.1% 0.2% 0.2% 0.3%

Table 5.3: Direction of Misallocation by Region

6.

In the List-to-Voter Assessment, voters' names on the electoral rolls were found to be accurate in 99% of the total cases. In Balochistan, the names of 345 out of 347 voters with verified addresses were found to be correct. In FATA, the accuracy was 100%, while in ICT, KP and Punjab, 99% of the names were correct. In Sindh, the same was true in 98% of the cases.

Voter entries on PER 2012 highly accurate

Of the total verified voters in Balochistan, 1.75% were misallocated within the province, while another 1.97% were misallocated to electoral areas in KP. In FATA, 1.52% of verified voters were misallocated to electoral areas in KP, another 0.38% to ICT and an equal proportion was misallocated within FATA. Almost 3% of the verified voters in ICT were misallocated to electoral areas in Punjab, while another 1% were misallocated to KP. In the case of Punjab, 0.3% of the verified voters were misallocated within the province, while 0.1% each were misallocated to areas in Sindh and KP. In Sindh, 0.88% of verified voters were found to be misallocated within the province, while 0.4% each were found to be misallocated to Punjab and KP. An even lesser proportion of verified voters in Sindh (0.2% each) were found to be misallocated to Balochistan and FATA. See Table 5.3 for Direction of Misallocation.

In the People-to-List Assessment, the accuracy rate of names listed at households was observed to be only 80%. Since observers made verbal inquiries and wrote down the names of family members by hand, the comparatively lower rate of accuracy is most likely due to minor spelling mistakes. The names of 37% of voters could not be


However, the accuracy rate of CNIC numbers in the People-to-List assessment was similar to the rate observed in the List-to-Voter assessment. The CNIC numbers of 99% of the voters listed by observers at selected households were observed to be correct in the lists, reinforced by further verification with the 8300 hotline. The rate of accuracy was 100% in FATA and 99% in all other regions except Balochistan where the rate of CNIC accuracy was 98%.

Table 6.3: Accuracy of Names in List-to-Voter Assessment



2 FATA 263 208 79.1%

3 ICT 180 154 85.6%

4 KP 3,791 2,977 78.5%

5 Punjab 9,413 7,828 83.2%

6 Sindh 4,523 3,394 75.0%

Grand Total 18,627 14,849 79.7%

Table 6.4: Accuracy of CNIC Numbers in People-to-List Assessment



2 FATA 263 263 100.0%

3 ICT 180 178 98.9%

4 KP 3,791 3,736 98.5%

5 Punjab 9,413 9,315 99.0%

6 Sindh 4,523 4,477 99.0%

Grand Total 18,627 18,415 98.9%

7. Quality of Display Period

7.1 Voter accessibility to Display Centers

Public scrutiny of voter rolls is a meaningless process if the public is not able to easily access display centers and understand their procedures. Public access is eased if display centers are established at prominent public places, appropriate sign posts are erected, and instructional material is presented outside each center.

The vast majority of display centers established by the ECP (94%) were easily accessible to the public, i.e. they were established at prominent public places. In Balochistan, however, 8% of the display centers were not easily accessible, followed by 5% in KP, 4% in Punjab, 3% in Sindh, 2% in FATA and 1% in ICT. Approximately 4% of centers nationwide were not established in accessible locations.

According to ECP regulations, a noticeable banner should be exhibited at each display center. Such banners were not clearly visible at 11% of the display centers set up across the country. In Balochistan, these amounted to 24% of the display centers set up in the province, followed by 13% in Punjab, 10% in Sindh, 6% in KP and 3% each in ICT and FATA.

Display Center In-charge Officers (DCIOs) are required to exhibit standardized instructions outside each display center, which clearly explain how to examine names and other particulars and how to file claims if needed. FAFEN observers did not find such instructions displayed at two thirds (63%) of the observed centers. Instructions were not found at 70% of the display centers in Punjab, followed by 58% in KP, 54% each in Sindh and ICT and 51% in Balochistan. Conversely, instructions were clearly exhibited at 64% of the display centers in FATA.

DCIOs are also required to display informative material, published by the ECP, outside each display center. However, this information was not posted at the majority of observed display centers (65%). Display centers in ICT showed least adherence to this standard procedure, since 74% of them lacked any such informative material. In Punjab, 71% of the display centers did not have informative material on display, followed by 59% in KP, 58% in Sindh and 54% in Balochistan. FATA was again a positive exception, with informative material present outside 71% of the display centers (refer to Table 7.1).

verified in Balochistan, followed by Sindh where 25% of voters' names were not verified in full. Similarly, 21% of voters in FATA and KP spelled their names differently than as listed in the electoral rolls. The same was true in 16% of the cases in Punjab and 14% in ICT.


Table 7.2 ECP Staff Facilitating Voters at Display Centers

Sr.

No. Observed Factors Responses Balochistan FATA ICT KP Punjab Sindh Total

1

DCIO is providing support

and guidance to voters for

registration, correction

and exclusion of their

names from electoral rolls.

Yes 74% 87% 88% 93% 89% 87% 89%

No 15% 4% 1% 3% 4% 5% 4%

Missing 11% 10% 10% 4% 7% 8% 7%

Total 100% 100% 100% 100% 100% 100% 100%

2 The DCIO’s behavior is

polite and courteous.

Yes 74% 87% 92% 93% 91% 89% 90%

No 14% 3% 1% 3% 3% 3% 3%

Missing 12% 10% 6% 4% 6% 8% 7% Total 100% 100% 100% 100% 100% 100% 100%

3 The DCIO is unnecessarily

making people wait.

Yes 5% 8% 0% 3% 3% 5% 4% No 82% 82% 91% 93% 90% 87% 90%

Missing 13% 10% 8% 4% 7% 8% 7% Total 100% 100% 100% 100% 100% 100% 100%

Table 7.1: Voter Accessibility to Display Centers

Sr. No. Observed Factors Responses Balochistan FATA ICT KP Punjab Sindh Total

1

The display center is

situated /located at a

prominent place

accessible to voters.

Yes 86% 91% 97% 93% 94% 94% 94%

No 8% 2% 1% 5% 4% 3% 4%

Missing 7% 8% 2% 2% 2% 3% 2% Total 100% 100% 100% 100% 100% 100% 100%

2

Election Commission of

Pakistan’s banner is

clearly visible on the

building.

Yes 70% 89% 95% 92% 85% 87% 86% No 24% 3% 3% 6% 13% 10% 11% Missing

6%

8%

1%

2%

2%

3%

2%

Total

100%

100%

100%

100%

100%

100%

100%

3

The instructions issued by

the Election Commission

of Pakistan are displayed

outside the display

center.

Yes

43%

64%

43%

40%

28%

43%

34%

No

51%

27%

54%

58%

70%

54%

63%

Missing

6%

9%

3%

2%

2%

3%

3%

Total

100%

100%

100%

100%

100%

100%

100%

4

The information posters

issued by the Election

Commission of Pakistan

are displayed outside the

display center.

Yes

40%

71%

22%

39%

26%

39%

32%

No

54%

21%

74%

59%

71%

58%

65%

Missing

6%

8%

3%

2%

2%

3%

3%

Total

100%

100%

100%

100%

100%

100%

100%

A DCIO is required to run the display center's business in the most efficient and effective manner possible, in order to maintain public accessibility and smooth facilitation of the filing of claims. Measures of this efficiency and effectiveness include the extent to which DCIOs are facilitating voters, materials are available at display centers, and women are included in the process.

7.2

DCIOs provided appropriate support and guidance to voters for registration, correction and exclusion of their names from electoral rolls at the majority of the display centers observed (89%). However, in at least 4% of centers nationwide and 15% of the observed display centers in Balochistan, DCIOs were not seen performing their duties, as was the case in 5% of the display centers in Sindh, 4% each in Punjab and FATA, 3% in KP and 1% in ICT.

According to FAFEN observers, the general behavior of DCIOs at most of the observed display centers (90%) was deemed to be polite and courteous. However, inappropriate conduct was reported in at least 3% of centers nationwide and in 14% of the centers in Balochistan. Similarly, at 4% of the total observed centers, DCIOs unnecessarily made people wait. This was seen in 8% of the observed centers in FATA. See Table 7.2.

Facilitation of voters at Display Centers


7.3

The electoral rolls of the relevant electoral areas assigned to a display center should be present at the respective display centers. However, at one point or another, voter lists were not present in at least 4% of the centers nationwide, and in 15% of the observed centers in Balochistan. Similarly, voter lists were not present at various points in time at 4% each of the observed centers in Sindh and FATA, at 3% in Punjab and at 2% in KP. No such case was reported from ICT.

Electoral rolls including separate sections for men and women were available at 91% of the total observed display centers. However, separate sections of lists were unavailable at 13% of the centers in Balochistan.

The electoral rolls should either be displayed on the wall or be available at the DCIO's desk. These lists were not displayed on the walls of almost three-fourth (73%) of the observed centers. Likewise, electoral rolls were not displayed on the walls of 78% of the centers in Punjab, followed by 71% in Balochistan, 68% in KP, 67% each in Sindh and ICT and 28% in FATA.

Electoral rolls were not available at the desks of DCIOs at 15% of the observed centers in Balochistan, in violation of legal requirements as per the law of voter facilitation and effectiveness of the scrutinizing process. The same was reported from 6% of the observed centers in ICT, 4% in Sindh and 3% each in FATA, KP and Punjab.

DCIOs had the ECP manual containing staff instructions and guidelines with them at the majority of the observed display centers (89%). However, DCIOs did not have the manuals with them in at least 5% of centers nationwide and in 16% of the centers in Balochistan.

ECP Form IV is used for adding voters' names; Form V is used for raising objections against an entry; and Form VI is used to make corrections to credentials in the draft electoral rolls. The forms were available in sufficient numbers at the majority of observed display centers (90%), but at least 3% of centers did not have all the available forms. Refer to Table 7.3.

Materials available at Display Centers

3

The electoral rolls are

displayed on the walls

of the display center.

Yes

15%

44% 10%

25%

12%

24%

17%

No

71%

28% 67%

68%

78%

67%

73%

Missing

13%

28% 22%

7%

10%

9%

10%

Total

100%

100% 100%

100%

100%

100%

100%

4

The electoral rolls are

present on the table of

the DCIO.

Yes

75%

89% 88%

93%

91%

90%

90%

No

15%

3%

6%

3%

3%

4% 4%

Missing

10%

8%

6%

3%

6%

7% 6%

Total

100%

100% 100%

100%

100%

100%

100%

5

The ECP instruction

manual is present with

the DCIO.

Yes

74%

89% 93%

92%

90%

87%

89%

No

16%

3%

0%

4%

5%

6% 5%

Missing

10%

9%

6%

4%

6%

7% 6%

Total

100%

100% 100%

100%

100%

100%

100%

6

Sufficient number of

Forms IV,

V and VI are

available at the display

center.

Yes

77%

88%

83%

94%

90%

90%

90%

No

13%

3%

2%

3%

3%

3%

3%

Missing

10%

9%

15%

4%

6%

7%

6%

Total

100%

100%

100%

100%

100%

100%

100%

Table 7.3: Materials Available at Display Centers


1

Electoral rolls of

relevant areas are

present in the display

center.

Yes 75% 88% 93% 94% 91% 89% 90%

No 15% 4% 0% 2% 3% 4% 4%

Missing 10% 8% 6% 3% 6% 7% 6%

Total 100% 100% 100% 100% 100% 100% 100%

2

The sections for men

and women in the

electoral rolls are

present in the display

center.

Yes 77% 88% 93% 94% 91% 90% 91%

No 13% 3% 0% 3% 3% 3% 3%

Missing 10% 9% 7% 3% 6% 7% 6%

Total 100% 100% 100% 100% 100% 100% 100%


7.5

In an environment in which electoral rolls have become a central topic of political controversy, it was expected that political parties would actively engage in the process by mobilizing potential voters, overseeing the workings of the display centers and contributing to the common goal of producing accurate and complete electoral rolls. Contrary to expectations, however, mainstream political parties showed little, if any, concern for the process, at least at the display centers observed by FAFEN.

Party workers were found to be present at merely 1% of the observed centers. In Balochistan, party workers were present inside 3% and outside 2% of the centers. In KP, party workers were present outside 2% of the centers, while in all other regions there was no deviation from the 1% national aggregate.

While party workers were seen trying to influence DCIOs at only 1% each of the centers in Balochistan and ICT, the few that did visit display centers seemingly became a source of difficulty for the public. At 35% of the total observed centers where party workers were present inside display centers, they became a source of difficulty (53% in Punjab, 27% in FATA, 21% in Balochistan, 18% in KP and 17% in Sindh). Refer to Table 7.5.

Participation of political parties

7.4

Voters in general and women in particular showed lackluster interest in verifying their registration status and identification details on the electoral rolls during the Display Period. Low participation of women voters in the scrutiny process was observed throughout the country.

Women did not visit display centers to check the draft electoral rolls at 67% of the total observed centers. In KP, women did not visit more than 83% of the observed centers. Similarly, at 77% of the centers in FATA, women did not turn up for scrutiny or claims. Similar situations were observed at 69% of the centers in Balochistan, 66% in Punjab, 60% in Sindh and 57% in ICT.

At 60% of the total observed display centers, women's names were registered by their male family members. Surprisingly, this was most common in ICT, at 70% of the region's centers, followed by Balochistan and Sindh (65% each), KP (62%), FATA (58%) and Punjab (57%).

DCIOs were observed assisting women appropriately at only 54% of the display centers nationwide. At 42% of the observed centers in Balochistan, DCIOs did not cater to women. The same observation was made at 31% of the centers in KP, at 28% in Punjab, at 24% each in Sindh and FATA and at 17% in ICT. Refer to Table 7.4.

Participation of women voters

Table 7.4: Participation of Women Voters

Sr.

No. Observed Factors Responses Balochistan FATA ICT KP Punjab Sindh Total

1

Women are coming to

the display center for

registration.

Yes 21% 13% 35% 12% 27% 32% 26%

No 69% 77% 57% 83% 66% 60% 67%

Missing 11% 10% 8% 5% 7% 8% 7%

Total 100% 100% 100% 100% 100% 100% 100%

2

Women’s names are

being registered by the

male members of their

families.

Yes 65% 58% 70% 62% 57% 65% 60%

No 22% 32% 22% 33% 36% 26% 33%

Missing 13% 10% 8% 5% 7% 9% 7%

Total 100% 100% 100% 100% 100% 100% 100%

3

DCIO is facilitating the

women visiting the

display center.

Yes 35% 52% 55% 46% 55% 59% 54%

No 42% 24% 17% 31% 28% 24% 27%

Missing 23% 24% 28% 23% 17% 17% 18%

Total 100% 100% 100% 100% 100% 100% 100%


Table 7.5: Participation of Political Parties


1 Political workers are

present inside the

display center.

Yes 3% 1% 0% 1% 1% 1% 1%

No 87% 90% 94% 95% 93% 92% 93%

Missing 10% 9% 6% 4% 6% 7% 6%

Total 100% 100% 100% 100% 100% 100% 100%

2

Political workers

present inside the

display center are

becoming a source of

difficulty for the people.

Yes 21% 27%

18% 53% 17% 35%

No 59% 73%

82% 47% 79% 62%

Missing 21% 0%

0% 1% 4% 3%

Total 100% 100%

100% 100% 100% 100%

3

Political workers are

present outside the

display center.

Yes 2% 1% 0% 2% 1% 1% 1%

No 88% 90% 94% 95% 94% 92% 93%

Missing 10% 9% 6% 4% 6% 7% 6%

Total 100% 100% 100% 100% 100% 100% 100%

4

Political workers are

influencing the officials

deployed inside the

display center.

Yes 1% 0% 1% 0% 0% 0% 0% No 88% 91% 93% 96% 93% 92% 93%

Missing 12% 9% 6% 4% 6% 7% 6% Total 100% 100% 100% 100% 100% 100% 100%

7.6

FAFEN established a call center at the FAFEN Secretariat to document and report issues observed at the display centers to the ECP's district, provincial and national offices so that prompt remedial measures could be taken by the ECP.

Observers were trained to systematically communicate 14 types of issues, including closure of display centers, unavailability of DCIOs, unavailability of claim forms, incidents of violence, interruption of proceedings, etc. Observers reported issues to the FAFEN Secretariat, which FAFEN staff members quickly entered into a standardized online utility and disseminated to relevant ECP offices via fax.

Approximately 5,000 issues were documented and disseminated to the relevant District Election Commissioners (DECs), Regional Election Commissioners and the ECP's head office. During the Display Period, FAFEN transmitted approximately 1,000 faxes to these ECP offices.

ECP officials at the district, provincial and national levels took immediate action in the majority of cases, an indication of which was the steady decline in common complaints against dysfunctional or closed display centers. Some DECs in Sindh, Punjab and KP maintained consistent contact with FAFEN Secretariat and other partner organizations.

7.7

Voters may file three kinds of claims at display centers on specified forms: (i) he/she is a legally eligible voter and his/her name should be added to the list, (ii) his/her identifying details are not correct and due correction should be made, (iii) a person registered as voter in the list is not a genuine voter and his/her name should be removed from the list. FAFEN observers collected the official records of claims from 6,557 display centers.

According to these ECP records from observed centers, voters filed 58,014 addition claims, the majority of which constituted claims from Sindh (31,503), followed by Punjab (17,158 claims), KP (4,683 claims), Balochistan (3,811), FATA (603) and ICT (254).

As many as 5,835 correction claims were recorded at observed centers, the majority of which came from Sindh (3,036) followed by Punjab (1,836). Only 445 correction claims were filed in KP's observed centers, while 405 were filed in Balochistan, 75 in FATA and 38 in ICT.

A total of 5,536 claims challenging the genuineness of voters were filed at observed centers, mostly in Punjab (2,619) followed by 1,737 in Sindh, 680 in KP, 289 in Balochistan, 148 in FATA and 32 in ICT. Refer to Table 7.7.1.

Corrective measures by ECP

Claims filed at Display Centers


Table 7.7.2: Extrapolated Number of Additions, Corrections and Challenges Nationwide

Sr. No Region Addition Claims Challenge Claims Correction Claims Number of Display

Centers

1 Balochistan 31,967 2,424 3,397 1,392

2 FATA 5,058 1,241 629 1,636

3 FRs 17 260 - 25

4 ICT 2,131 268 319 243

5 KP 39,281 5,704 3,733 6,098

6 Punjab 143,921 21,968 15,400 29,601

7 Sindh 264,247 14,570 25,466 16,004

Total 486,620 46,436 48,944 55,000

Table 7.7.1: Additions, Corrections and Challenges at Display Centers

Sr. No

Region Addition Claims Challenge

Claims Correction

Claims Number of

Display Centers

1 Balochistan 3,811 289 405 166

2 FATA 603 148 75 195

3 FRs 2 31 0 3

4 ICT 254 32 38 29

5 KP 4,683 680 445 727

6 Punjab 17,158 2,619 1,836 3,529

7 Sindh 31,503 1,737 3,036 1,908

Total 58,014 5,536 5,835 6,557

If the number of claims in the sampled display centers is extrapolated to all display centers nationwide, the total number of addition claims can be estimated at approximately 486,620, which suggests that fewer than half a million people registered as voters during the Display Period. Similarly, it can be inferred that fewer than 50,000 challenges and claims for corrections were filed nationwide. Refer to Table 7.7.2.

Annexure 1: Population Estimates (Economic Survey of Pakistan 2011-12)Annexure 2: Questionnaires and Checklists used in the AssessmentAnnexure 3: List of display centers visited for List-to-Voter AssessmentAnnexure 4: List of localities visited for People-to-List Assessment Annexure 5: District-wise number of display centers visited by FAFEN observers for observation of Display Period processes

Annexure

21Free and Fair Election Network w w w . f a f e n . o r g

Free and Fair Election Network w w w . f a f e n . o r g

Age Groups

Population 2011

Percentage of Population

Population 2012 (Million)

Adult Population 2012 (Million)

0---4 22.02 12.44% 22.48

5---9 20.4 11.52% 20.82

10---14 19.94 11.26% 20.35

15---19 20.27 11.45% 20.69 8.28

20---24 17.72 10.01% 18.09 18.09

25---29 15.25 8.61% 15.57 15.57

30---34 12.95 7.32% 13.22 13.22

35---39 10.83 6.12% 11.06 11.06

40---44 8.9 5.03% 9.09 9.09

45---49 7.32 4.13% 7.47 7.47

50---54 6.01 3.39% 6.13 6.13

55---59 4.83 2.73% 4.93 4.93

60---64 3.78 2.14% 3.86 3.86

65 above 6.81 3.85% 6.95 6.95

Total 177.03 100.00% 180.71 104.64

Source: Economics Survey of Pakistan 2011-12, Ministry of Finance.

Annexure 1. Population Estimates (Economic Survey of Pakistan 2011-12)

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Annexure 2: Questionnaires and Checklists used in the Assessment

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Annexure 3: List of display centers visited for List-to-Voter Assessment

Province

District

Name of Display Center

Balochistan

Barkhan

Government High School, Basti Rehmatan

Balochistan

Bolan

Government Primary School, Jalbani

Balochistan

Bolan

Government Primary School, Faizabad

Balochistan

Bolan

Government M School, Kotkhai

Balochistan

Bolan

Government Primary School, Nowshera

Balochistan

Bolan

Government Primary School, Kot Misri

Balochistan

Bolan

Government Primary School, Mullan

Balochistan

Chagai

Govern Model School, Killi Ghareeb Abad, Nokundi

Balochistan

Chagai

Government High School, Nokkundi

Balochistan

Jaffarabad

Government High School, Cattle Farm

Balochistan

Jaffarabad

Government Primary School, Roshan Khan Ramdani

Balochistan

Jaffarabad

Government High School, Manjhi Pur

Balochistan

Jaffarabad

Government Primary School, Hamza Khan Khoso

Balochistan

Jaffarabad

Government Middle School, Bhagia Khan Firdous Colony

Balochistan

Jaffarabad

Government High School, Usta Muhammad

Balochistan

Killa Abdullah

Government Primary School, Karam Khan Colony, Chaman

Balochistan

Killa Abdullah

Government Model School, Mehmoodbad

Balochistan

Killa Abdullah

Government Primary School, Dobandi

Balochistan

Killa Abdullah

Government M School, Disoza Karez

Balochistan

Killa Abdullah

Government High School, Maizai Adda

Balochistan

Killa Saifullah

Government Boys High School, Amirabad

Balochistan

Killa Saifullah

Government Boys Model School, Kakar Batozai

Balochistan

Killa Saifullah

Government Boys Primary School, Kamot Saibzai

Balochistan

Loralai

Government High School, Makhtar

Balochistan

Nasirabad

Government Primary School, Shori Peeral

Balochistan

Nasirabad

Government Middle School, Taj Muhammad Lehri

Balochistan

Nasirabad

Government Middle High School, Chatter

Balochistan

Nasirabad

Government Primary School, Qalindrani

Balochistan

Nushki

Government High School, Ahmedwal

Balochistan

Pishin

Government Middle School, Khudaidadzai

Balochistan

Quetta

Government Middle School, Yet Road

Balochistan

Quetta

T.B Santorium, Munsafi Road

Balochistan

Quetta

Tameer-eNue High School, Prince Road

Balochistan

Quetta

Government Middle School, Moti Ram Road

Balochistan

Quetta

Basic Health Unit, Alamdar Road near Carpet Center

Balochistan

Quetta

T.M.O, Chiltan Town

Balochistan

Quetta

Computer Complex WAPDA office, Satellite Town

Balochistan

Quetta

Government High School, Mano Jan Road

Balochistan

Quetta

Ayub Stadium, Jail Road

Balochistan

Quetta

Government Elementary College

Balochistan

Quetta

Government High School, Killi Sheikhan

Balochistan

Quetta

Government High School, Killi Samli

Balochistan

Quetta

Government Boys Primary School, Chachi Zai

Balochistan

Sherani

Government Primary School, Ghurlama

Balochistan

Sherani

Government Primary School, Lahrer Kermanzai

Balochistan

Zhob

Government Primary School, Nasir Abad

Balochistan

Zhob

Government Primary School No. 1, Amzaa

FATA

Bajaur Agency

Government High School, Reghagan

FATA

Bajaur Agency

Government High School, Khar

FATA

Bajaur Agency

Government Middle School, Tangkhata

FATA

Bajaur Agency

Government High School, Inayat Kallai

FATA

Bajaur Agency

Govt. Primary School, Mina-2

FATA

Bajaur Agency

Government Middle School, Tarkho

FATA

Bajaur Agency

Government High School, Dehrakai

FATA

Bajaur Agency

Government Middle School, Halki Charmang

FATA

Bajaur Agency

Government High School, Sarkari Qilla

FATA

Khyber Agency

Government Middle School, Azeem Killi, Bara

FATA

Khyber Agency

Government Primary School, Saidan killi, Bara

FATA

Khyber Agency

Government High School, Jan Khan Killi

FATA

Khyber Agency

Jalozai Camp (IDPs)

FATA Khyber Agency Government High School, Sur Kamar Jamrud

FATA Khyber Agency Government Higher Secondary School No.1, Jamrud

FATA Kurram Agency Government Primary School, Tari Tang

FATA Mohmand Agency Government High School, Haji Yar Jan

FATA Mohmand Agency Government Middle School, Kuz Kadi

FATA Mohmand Agency Government High School, Nahaqi

Province

District


FATA

Mohmand Agency

Government Middle School, Ghazibeg

FATA

Mohmand Agency

Government Primary School, Ziarat

FATA

North Wazirstan Agency

Government Middle School, Mubarak Shahi

FATA


Government Middle School, Ziraki

FATA


Government High School, Miranshah Village

FATA


Government Primary School, Banda

FATA


Government Primary School, Jalat Khan

FATA


Government High School, Paryat

FATA


Government High School, Khadi

FATA

South Wazirstan Agency

Government Middle School, Dashka

FATA


Government Middle School, Tattai

FATA


Government Middle School, Malik Mela

FATA


Government High School, Karrama

FATA


Government Middle School, Dab kot

FATA


Government Primary School, Kalotai

ICT

Islamabad

Office of the Assistant Election Commissioner, F-8 Markaz

ICT

Islamabad

F.G. Boys Secondary School, Khanna Dak

ICT

Islamabad

F.G. Boys Middle School, Phulgran

ICT

Islamabad

F.G. Boys Primary School, Khanna Kak

ICT

Islamabad

F.G. Boys Junior Model School, Lohi Bher

ICT

Islamabad

F.G. Boys Secondary School, Noor Pur Shahan

ICT

Islamabad

F.G. Boys Commprehensive School, G-7/2

ICT

Islamabad

F.G. Junior Model School No. 36, G-9/2

ICT

Islamabad

F.G. Boys

Model School, I-10/2

ICT

Islamabad

F.G. Boys Secondary School, Tarlai

ICT

Islamabad

Islamabad Model College for Boys (VI-X), Bhimber Tar

KP

Abbottabad

Government Primary School No.2

KP

Abbottabad

F.G. Piffer High School

KP

Abbottabad

Government Primary School, Jhangi A Abad

KP

Abbottabad

Government Primary School, Hazeera

KP

Abbottabad

Government High School, Tarnawai

KP

Abbottabad

Government Primary School, Mandroch

KP

Abbottabad

Government Primary School, Qalandar Abad

KP

Abbottabad

Government Primary School, Bandi Dhondan

KP

Abbottabad

Government High School, Jarral

KP

Abbottabad

Government Primary School, Birote

KP

Abbottabad

Government Primary School, Dhara Birote

KP

Abbottabad

Government Primary School,

Bandi Sayyadan

KP

Abbottabad

Government Primary School, Kolalian

KP

Abbottabad

Government Primary School, Naroka

KP

Abbottabad

Government Primary School, Sirla

KP

Abbottabad

Government Primary School, Hill Sialkot

KP

Abbottabad

Government Primary School, Salol Bandi

KP

Abbottabad

Government Primary School, Havelian Village

KP

Abbottabad

Government Primary School, Kiala

KP

Abbottabad

Government Primary School, Gari Phulgran

KP

Abbottabad

Government Primary School, Hurnara

KP

Abbottabad

Government Primary School, Gora Bazgran

KP

Abbottabad

Government Primary School, Banda Sahib Khan

KP

Abbottabad

Government Primary School, Longra

KP

Abbottabad

Government Primary School, Malkpura

KP

Bannu

Government Primary School, S.K Bala

KP

Bannu

Government Primary School, Roidar Manja Khel

KP

Bannu Government Primary School, Kot Azad Mughal

Khel

KP

Bannu Government Primary School, Hassan Khel Jaffar

Khan

KP

Bannu Government Model Primary school, Nar Sher

Khan

KP Bannu Government Primary School, Ajmal Barlashti

KP Bannu Government Primary School, Zaman Wazir Daud Shah

KP Bannu Government Primary School, Purana Daud Shah

KP Bannu Government Primary School, Saleh Khan Mandev

KP Bannu Government Primary School, Dilasa Khan


Province

District


Mandev

KP

Bannu

Government Primary School, Shah Dev Khas

KP

Bannu

Government Model Primary school, Town Ship

KP

Bannu

Government Primary School, Mateki Bizan Khel

KP

Battagram

Government Primary School, Malkal Gali

KP

Battagram

Government Primary School, Ajmera

KP

Battagram

Government Primary school, Chappargram

KP

Battagram

Government Primary School, Tamai

KP

Battagram

Government Primary School, Matta

KP

Battagram

Government Primary School, Hutal Batkul

KP

Battagram

Government Primary School, Qallah

KP

Battagram

Government Primary School, Kanai

KP

Buner

Government Primary School , Char

KP

Buner

Government Primary School, Malak Pur

KP

Buner

Government M School, Balo Khan

KP

Buner

Government Primary School, Beshonai

KP

Buner

Government Primary School, Narbatawal

KP

Buner

Government High School, Bagra

KP

Buner

Government M School, Shangra

KP

Buner

Government Primary School, Chalandrai

KP

Buner

Government Primary School, Pandair

KP

Buner

Government Primary School, Mangal Thana

KP

Buner

Government High School, Ghazi Kot

KP

Buner

Government M School, Bhag

KP

Buner

Government High School, Ghurghushti

KP

Charsadda

Government High School, No. 1

KP

Charsadda

Government Higher Secondary School, Dargi

KP

Charsadda

Government High School, Rajjar

KP

Charsadda

Government Middle School, Ajoon Killi

KP

Charsadda

Government High School No. 1, Tangi

KP

Charsadda

Government Middle School, Dhaki

KP

Charsadda

Government Primary School , Khoor Abad

KP

Charsadda

Government High School, Mirza Dher

KP

Charsadda

Government Primary School, Rahmat Ullah Khan

KP

Charsadda

Government Primary School No. 2, Shabqadar Fort

KP

Chitral

Government Centeninal Model School, Chitral

KP

Chitral

Government High School, Faiz Abad/Hone

KP

Chitral

Government Middle School, Shunoo

KP

Chitral

Government High School, Warijun

KP

Dera Ismail Khan

Government Primary School, Jewaya Sahi

KP

Dera Ismail Khan

Government Primary School, Gara More

KP

Dera Ismail Khan

Government High School, Chehkan

KP

Dera Ismail Khan

Government Primary School, Drabri

KP

Dera Ismail Khan

Government High School, Kotla saidan

KP

Dera Ismail Khan

Government Middle School, Jhok Qureshi

KP

Dera Ismail Khan

Government Primary School, Budhani

KP

Dera Ismail Khan

Government Pr

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