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 ELECTIONS STATEMENT
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The Sudanese Group for Democracy and Elections (SuGDE) and the Sudanese Network for
Democratic Elections (SuNDE)
ELECTIONS STATEMENT
APRIL 24TH 2010
Dr Mutaal Girshab, Chairman (SuGDE) 0912535097 [email protected]
Reverend Benjamin Lemi Chairman (SuNDE) 0918289375 – [email protected]
SuNDE and SuGDE conducted the only coordinated Sudan-wide non-partisan election monitoring effort for
the April 2010 elections. Together, SuGDE in the north and SuNDE in the south, received more than 13,500
reports from over 4300 trained and accredited election observers who were deployed to over 2000 polling
stations across all of Sudan‟s 25 states. The two coalitions used a common reporting form for observing key
elements of the elections. Observers remained in their polling stations throughout the day and reported
through their respective county and state coordinators to data collection and analysis centers for SuNDE in
Juba and SuGDE in Khartoum, where the reports were verified for quality and analyzed impartially
according to standards for non-partisan election observation. SuGDE and SuNDE shared their observations
and findings and developed this fact-based statement, released simultaneously at press conferences in
Khartoum and Juba, respectively.
SuGDE and SuNDE express their most sincere thanks and appreciation to all of their volunteers who
dedicated their time to improving the transparency of the electoral process. SuGDE and SuNDE would also
like to extend their thanks to the elections officials in the National Election Commission (NEC), the High
Elections Committee of Southern Sudan (SSHEC) and the State High Elections Committees (SHCs) for
their cooperation and accreditation of SuNDE and SuGDE Observers.
EXECUTIVE SUMMARY
The April 2010 elections were a requirement for moving forward with implementing the Comprehensive
Peace Agreement (CPA). However, the elections did not fulfill the Interim Constitution‟s and CPA's
aspirations for democratic transition and did not adequately meet the requirements of the National Elections
Commission rules and regulations. Sudanese citizens demonstrated their desire for democracy without a
doubt through their registering, voting and participating in lively political debate in these elections.
Extraordinary efforts are required to achieve democratic governance, and SuNDE and SuGDE will seek to
contribute constructively to securing peace and democratic progress. The hopes of citizens should not be
allowed to slip away.
SuNDE and SuGDE observed that the National Elections Commission (NEC) failed to adequately
plan and prepare for the elections. The polling stations observed often lacked essential election
materials to open on time or ran out of essential materials during the polling process. The
inefficiency of the NEC to develop or publicize the polling station list and final voters‟ lists in a timely
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manner also caused substantial confusion and potentially the disenfranchisement of a significant
number of voters.
SuGDE and SuNDE observed that while the administration of the elections was deficient
throughout Sudan, in Southern Sudan the administration of the elections was observed to be more
problematic.
SuGDE and SuNDE observed several positive aspects to the elections. Voters turned out in large
numbers and conducted themselves in a largely peaceful manner. Polling officials showed a strong
commitment to fulfilling their responsibilities, particularly given the difficult circumstances.
Thousands of citizens volunteered with civic organizations to observe the election and stayed
through all 7 days of the polling and the counting process.
SuNDE and SuGDE recognize that this was the first election in Sudan since the signing of the
Comprehensive Peace Agreement and understand that the complexity of the electoral process and
difficult logistical environment of Sudan made running this election challenging.
However, SuGDE and SuNDE recorded significant flaws in the election process at the polling
stations observed.
SuNDE recognized that in South Sudan the political parties actively participated in the election
however, SuNDE observers noted a need for parties, candidates, and their supporters or agents to
better understand their roles in the electoral process, particularly regarding interfering with the
polling process.
SuGDE notes that in the North of Sudan leading political parties boycotted the elections which
deprived citizens of choice and made the elections confusing and less competitive.
SuNDE was concerned by the troubling number of incidents of intimidation and harassment
reported by its observers in South Sudan, particularly by party and candidate agents and
supporters, and unknown and unauthorized security personnel.
SuGDE was concerned by incidents of violence, intimidation and harassment in Southern Kordofan,
Western Darfur, Northern Darfur and Sinnar.
SuGDE and SuNDE are deeply concerned that the electoral process did not meet citizen‟s
expectations and failed to fully embrace democratic principles at the polling stations observed.
SuNDE and SuGDE urge all election stakeholders to learn from these elections and apply those
lessons to improve the transparency and credibility of future elections, including the 2011
Referendum.
INTRODUCTION TO SuGDE AND SuNDE
The Sudanese Group for Democracy and Elections (SuGDE) is a joint effort of eight independent, nonpartisan
organisations working together to encourage free, fair and non-violent elections. It includes the
AZZA Women Association, the Babikr Badri Scientific Association for Women Studies, the Group for
Economic, Social and Cultural Rights Studies (GESCRS), HELA HELP organization, Human Security
Initiative (MAMAAN), the Institute for Development of Civil Society (IDCS), the Social and Human
Development Consultative Group (SAHDCG) and Sudanese Environmental Conservation Society (SECs).
SuGDE worked in partnership with the Sudanese Network for Democratic Elections (SuNDE). It also
coordinated 10 with civil society organization in the 15 states of North Sudan, including the Southern
Kordofan Civic Education Form, the Blue Nile Forum for Civic Education and Elections and the Abyei Voter
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Education Forum to implement a nationwide voter education and non-partisan domestic observation
program.
The Sudanese Network for Democratic Elections (SuNDE), is a non-partisan coalition of over 75 Sudanese
civil society organizations and faith-based groups committed to promoting the ability of the Sudanese public
to participate freely, equitably, and effectively in transparent and accountable democratic processes.
SuNDE State Steering Committees, composed of local civil society organizations, implement voter
education and observation activities.
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SuNDE and SuGDE are not affiliated with any government, political party, or candidate.
SuGDE and SuNDE Methodology
Principles
We are committed to upholding the highest ethical standards of impartiality and accuracy as non-partisan
domestic observation groups. Our methodology is informed by globally accepted principles for non-partisan
domestic election observation, including impartiality, objectivity and accuracy. The objective of observation
is to promote free fair and peaceful elections, and the goal is to contribute to developing and maintaining a
democratic society. Our observers are Sudanese citizens, who are committed to promoting, electoral
integrity and pledge not to favor any political party or candidate and to report accurately about their
observations.
While financial and other constraints did not allow us to observe all aspects of the election process,
reaching back to the 2008 census and continuing throughout the election cycle, we recognize that an
accurate and complete assessment of any election must take into account the entirety of the process. In
addition, we recognize that no election can be viewed in isolation from the political and historical context in
which it takes place. We have conscientiously examined the processes surrounding Sudan‟s April 2010
elections and drew upon credible sources as well as our general knowledge and experience in the lead-up
to the elections. No election is perfect, but the relative integrity of each of these processes contributes to the
degree of credibility and the confidence citizens should have in elections.
Non-partisan domestic observation of the Sudanese electoral process helps to promote confidence in the
electoral process as well as to deter the efforts of those who seek to subvert the will of voters. During the
conduct of these elections, observers watched the voting and counting processes at designated polling
stations throughout the country, recorded key information on standardized forms and reported their findings
to a central data collection center, either in Juba or in Khartoum. SuNDE and SuGDE used this information
to evaluate the overall quality of election-day processes.
Domestic Observation Forms
Standardized forms facilitated processing of the thousands of witness accounts made by trained domestic
observers, with the primary goal being to have a detailed picture of the electoral process on Election Day 1
through Day 5, and two days of counting process. There were 2 types of forms used for the observation
process:
Critical Incidents Forms: The purpose of these forms was to capture any serious events that may
have had a disruptive effect on the voting process. Incidents included matters such as polling station
processes being suspended and occurrences of intimidation or harassment, and they were communicated
immediately through hotlines to the SuGDE data collection centre.
Polling and Counting Forms: These forms consisted of a set of 18 questions addressing
Sudanese concerns on administration and participation issues, including, for example, the security of ballot
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boxes, campaigning within the polling station, obstruction of observer presence, and lack of appropriate
materials.
Data Collection and Analysis
A communications system was designed to ensure the timely and accurate transmission of incident, polling
and counting forms between individual observers, team leaders/constituency supervisors/State coordinators
and data entry personnel at the data collection centers. Critical incidents were directly relayed
from observers to the centers‟ trained phone operators. Polling and counting forms were delivered from
observers to their team leaders or constituency supervisors and state coordinators, who provided a quality
control step before the information was passed to the data collection centers for entry. The database and
data entry system were designed to facilitate verification of the quality of reports and accurate data entry as
well.
Database software allowed staff to quantify the data findings concerning the voting and counting processes.
Important findings could be drawn by identifying systematic trends versus isolated incidents, through the
breakdown of information by state, and analysis of questions across multiple days of polling.
Once data was entered, it was analyzed by SuNDE and SuGDE to identify significant observations and
findings of positive developments, as well as potential problems in the voting and counting processes. The
leadership of both coalitions shared findings and characterizations and agreed upon the final text of this
statement.
The data collected is not based upon a statistically representative sample.
Network of Observers
By partnering with state-based civil society organisations and networks throughout the North, SuGDE
recruited, trained and mobilized a network of 2318 volunteers to observe the election process in Al
Shamalyia, Nile State, Red Sea State, Kassala, Gedaref, Khartoum, El Gezira, Sennar, Blue Nile, White
Nile, Southern Kordofan, Northern Kordofan, Darfur, West Darfur, North Darfur and the Area of Abyei.
Each of the fifteen states covered by SuGDE had two coordinators and a number of team leaders to provide
additional layers of organizational management and capacity. SuGDE had 30 state coordinators and 93
team leaders, each of whom managed a maximum of 26 observers.
SuNDE engaged its State Steering Committees to recruit, train and accredit over 2000 observers in the ten
states of Southern Sudan. SuNDE had two coordinators and information officers in each state. Constituency
Supervisors (CSs) managed teams of 10-15 observers. Resident county coordinators each managed two to
three CSs.
Training
SuGDE and SuNDE attached importance to the training of its organizers and observers in order to equip
them with the information, skills and training necessary to observe the electoral processes according to
Sudanese law and recognized international best practices. With SuGDE, all the state coordinators and team
leaders were trained in Khartoum on the democratic elections basics, volunteer recruitment, observation
methodology, observer code of conduct, observation forms, and the reporting and communication system.
The team leaders, in turn, conducted 93 training sessions in which 2195 observers were trained to observe
the voting and counting process and report their findings. Within SuNDE, state coordinators, resident county
coordinators and constituency supervisors were trained on volunteer recruitment, observer code of conduct,
observation methodology, checklists and critical incident protocols, and the reporting and communication
system. SuNDE then traveled to 50 of Southern Sudan‟s 78 counties and conducted a series of 68
trainings which directly trained over 2000 observers to observe and report on the voting and counting
processes.
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Deployment
SuGDE deployed observers in teams of two stationary observers in 1110 polling stations in all 15 states
and the area of Abyei. The observers were deployed in urban and rural areas of every state. Each team
filed one report per voting day and one for the counting process.
SuNDE deployed observers in teams of two stationary observers in over 950 polling stations and over 130
constituencies covering 50 of 78 counties in the 10 states of Southern Sudan, and each team filed one
report per voting day and one for the counting process. SuNDE observers were also deployed in both urban
and rural areas.
THE ELECTION CONTEXT – SuGDE ANALYSIS
Sudan has had 13 elections and three referendums since its independence in 1956. The April 2010
elections are the country‟s first significantly competitive elections in 24 years. The Comprehensive Peace
Agreement signed in 2005 requires executive and legislative elections before the 2011 referendum in which
the South will be given the chance to vote on unity or secession. The April 2010 elections have are widely
seen as crucial step in a process of democratic transformation.
Legal Framework
The legal framework creates the possibility for genuine elections in Sudan. The CPA calls for a “democratic
system of governance.”1 The Interim Constitution states that “the authority and powers of government
emanate from the sovereign will of the people exercised by them through referenda and in free, direct and
periodic elections conducted through universal adult suffrage, using secret ballot.”2 The 2008 National
Elections Act provides for an independent National Elections Commission (NEC), freedom of expression, a
prohibition on the misuse of state funds for campaigning purposes and legislates for the presence of nonpartisan
domestic observers for the first time in Sudanese history3.
In addition, Sudan, as a member of the United Nations, is obligated by Universal Declaration on Human
Rights, and is a party to the International Covenant on Civil and Political Rights (ICCPR) and the African
Charter of Human and Peoples Rights, all of which guarantee the right of citizens to participate in the
governance of their country, directly or through freely chosen representatives in genuine elections.
In the North a number of domestic laws compromise the framework created by the Interim Constitution and
the Bill of Rights. The effect of these laws has been to limit freedom of association and expression and
provide Security Services with the power to detain without timely judicial recourse. In addition, the state of
emergency in Darfur was not lifted for the elections, and while it was not used in an overt manner to curtail
the elections its presence hung over the political environment.
It should be noted that the CPA required a national census, which was conducted in 2008. The results of
the census were a subject of debate with some opposition political parties disputing its validity. In February
2010, there was an agreement that 40 additional National Assembly seats be allocated to the south
1 Comprehensive Peace Agreement Part A – Agreed Principles
2 The Interim National Constitution of the Republic of Sudan 2005 Part 1
3 The Sudan National Elections Act 2008
Pg 77, Article 104, Section 3, Committees may be formed for observation of the elections and referendum from:
a) Judges,
b) Legal counselors at the Ministry of Justice and the Ministry of Legal Affairs and Constitutional Development,
c) Ex-public service employees or persons of the society known for uprightness, truth and honesty,
d) Civil society organizations press and the media,
e) Political parties
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following the elections, to be appointed by the Presidency. The region of Abyei would receive two additional
seats. Southern Kordofan would receive four additional seats. State elections Southern Kordofan were later
postponed for 60 days.
The National Elections Act provides for the use of state resources or any public material or human
resources on payment of proportionate costs, which should be accessible to all political parties and
candidates (article 69). This provision creates an opportunity for the misuse of state property. NEC‟s 27
March decision on campaign expenditure ceilings was rendered just two weeks before voting.
Voter Registration
Voter registration was conducted by the National Elections Commission (NEC) between November 1 and
December 7, 2009. Over 16 million voters were registered, and according the (NEC) over 50 percent were
women. According to the NEC, 79 percent of eligible voters were registered, 71 percent of the eligible North
Sudanese voters were registered, while figures in North, South and West Darfur were only 65, 67 and 69
percent respectively. Apparently, registration omitted large numbers of IDPs, who are estimated at near 5
million. The voter registration was marked by a number of problems for example the delay in publishing the
final voter list likely resulted in the disenfranchisement of some voters. SuGDE observers noted that a
number of prospective voters who were turned away from the polls during the election. In the absence of an
independent audit of the final voters list, the extent, accuracy and inclusiveness cannot be stated.
Media Environment
SuGDE did not systematically monitor the media. The National Electoral Act specifies “to guarantee the
rights of all candidates for the elections and political parties participating therein in the use of the public
media on the basis of equality and equal opportunities, and to prevent any kind of discrimination between
them in the coverage of the electoral campaign news.”4 However the implementation of these requirements
was contested. For example, in early March several opposition parties withdrew from the NEC‟s mechanism
concerning the State media, alleging that they had been excluded from decision making, and some
opposition parties submitted a memorandum to the NEC complaining about effects on the electoral process
of faults in the census, delimitation of election districts in many states, and voter registration, as well as
media access.
Campaign Environment
SuGDE did not conduct systematic observation of the campaign period. However, a number of significant
points about the period are evident. The 72 registered political parties nominated a large number of
candidates, and independent candidates were registered as well. While generally peaceful, and candidates
at all levels were able to campaign, the campaign period witnessed isolated incidents of violence.
In early March code of conduct and declaration of commitments developed under the auspices of the
African Union High Level Implementation Panel was signed by 15 southern parties and later by 11 northern
parties, which contributed to hopes about the elections.
The eleventh-hour boycott, marked by the withdrawal of SPLM Presidential candidate, the SPLM withdrawal
from Darfur elections, the decision by SPLM candidates in other northern states to withdraw and the
withdrawal from northern elections of at least six other opposition parties created confusion amongst voters
and greatly reduced the competitiveness of the elections. The Sudanese people‟s choices were thus
limited, though the boycotting parties and candidates names remained on the ballots due to the late
withdrawal dates. The controversy surrounding the boycott, including speculation concerning the conditions
leading to the announcements and about the relative merits and motivations of the decisions, is likely to
have affected popular confidence in the electoral process.
4 National Elections Act 2008 Section 66 (2)
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Voter Education
In a highly complex election system where each voter had to cast 12 and 8 ballots in the south and north
respectively voter education was crucial to facilitate informed voting as well as informing people about the
voter registration and election-day processes, among other matters. Voters needed to know the about the
process, contestants and issues involved in the election. Many in these elections were first time voters, and
a significant number or prospective voters could not read, which requires extra outreach measures.
Conducting impartial voter education that effectively reaches the electorate is mainly the responsibility of
government, usually conducted through electoral administration bodies. This is a difficult task in addition to
other responsibilities for properly organizing elections and voter education is not the exclusive domain of the
NEC. Civil society and electoral contestants also should play important roles in voter education.
Nonetheless, the voter education conducted for the elections did not meet the magnitude of the task. The
ability to inform people of the voting process was severely impaired by delays in voter information.
Eight SuGDE member organizations conducted voter education surrounding the voting and counting
processes in all 15 northern states. Starting in mid March 2010 as soon as the voting and counting process
information were available to the groups they launched a massive voter education and awareness
campaign using a variety of techniques. The SuGDE member organizations conducted public forums
targeting community leaders and civil society activists, workshops for community educators, popular theater
shows, exhibition of voter education materials such as posters, leaflets, stickers and booklets and lecture
series on the election process targeting groups which included, women, youth, university students and
police forces. Most participants of these events then went out to conduct further dissemination activities to
reach out more voters. The materials used by these groups include posters, flyers, stickers and booklets
among others. Collectively, the SuGDE members were able to reach nearly 90,000 voters directly and
many more indirectly.
Election Administration
The elections were administered in the midst of enormous administrative and logistical challenges by the
National Elections Commission (NEC), which was constituted in November 2008. The nine-member
Commission is headed by a Chairperson and Vice Chairperson. The NEC‟s members were appointed by
the President, with consent of the First Vice President, who represents the SPLM, and the endorsement of
two-thirds of the National Assembly (which acted by unanimous consent, representing a consensus on the
appointments). There are also 25 State High Election Committees (SCHs), which work on the NEC‟s behalf,
and there is a High Elections Committee of Southern Sudan (SSHEC).
The NEC deserves considerable credit for administering the elections given time constraints, logistical
challenges and electoral complexities. It conducted much of its work with dedication, yet there have been
severe deficiencies in transparency, in communication of decisions and in administrative tasks.
The delay in the formation of the Commission had negative impact on its ability to administer the electoral
process in a timely, effective and efficient fashion. Administering an election process involving 12 ballots per
voter in the south and 8 ballots per voter in the north, presented a huge challenge, and the electoral system
included a combination of absolute majority (two-round) presidential elections for the Republic of Sudan and
for Southern Sudan; first-past-the-post gubenitorial and single-member district legislative elections at the
national and state levels; as well as two closed lists proportional representation elections (one for a general
list and one for the 25 percent of seats reserved for women in the National Assembly). More than 16000
candidates stood for the various elections for which the NEC had to print over 1250 different ballot papers.
It also qualified large numbers of candidates, including independents. Another area where the NEC
demonstrated commitment to electoral inclusiveness was its accreditation over 20000 domestic election
observers.
Serious concerns have been raised about the delimitation of election districts, which the NEC delegated to
the SHCs. (Please see the Legal Framework section above.) The law provided only 30 days for the
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boundary process, which is difficult, time consuming and politically charged. The concerns include:
vagueness of boundaries, which makes it difficult for voters to know for whom they should consider as their
potential legislative representatives and difficult for candidates to campaign effectively; the legal
requirement of populations per electoral district not exceeding 15 percent reportedly was not consistently
followed; and political parties raised complaints about the manner in which districts were drawn.
The reduction in the number of polling centers/stations increased the likelihood that the voters had to travel
long distances to their polling stations in order to vote. In addition, the locations of the polling stations were
announced so late in the process that the voter educators could not inform the voters where their polling
station was situated, which caused considerable confusion among voters.
There were serious lapses in administering the elections, some of which can probably be attributed to
insufficient training of polling officials. Other areas of concern noted in observer reports covered issues
such as misprinting of ballot papers, misdistribution of ballot papers to various polling stations, nonavailability
of polling materials, including the appropriate final voters list.
SuGDE OBSERVATION FINDINGS
Findings and Analysis
I. Findings from Critical Incidents Reported in Polling Stations Observed
The total number of critical incidents reported by SuGDE observers throughout the 7 days of the election
was 761. The most reported incidents were:
Voting suspended (217 cases reported, throughout the election process)
Intimidation or Harassment (135 cases reported throughout the election process).
Polling Stations not opening on time (121 cases reported).
Some of the main reasons given which resulted in the suspension of the voting reported were mistakes in
the ballot papers or problems with the symbols of the candidates.
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II. Findings from Polling Stations Observed in Days 1 and 2
Polling Stations Not Opening on Time (before 8.30 am):
On the first day of polling, 23% percent of the polling stations SuGDE observed did not open before
8:30am. The late opening of the polling stations on the first day was particularly a problem in White Nile and
Western Darfur where 77% and 47% of the polling stations observed, respectively, did not open before
8:30am. The most common reason for late poll openings was polling stations not receiving critical election
materials, most notably ballot papers. Polling stations opening on time improved somewhat during the
following days. However SuGDE observers still noted late opening as a significant problem throughout all
the days of polling, with reports as late as April 15.
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People who Came to the Polling Station to Vote but did NOT find their names on the Voters’ List:
Almost 6% of the stations observed across all states in the region reported that there were many (26+)
people who came to the polling stations to vote but did not find their names on the Voters List. In almost half
of the polling stations observed in South Kordofan and in over 32% of those observed in Abyei, observers
said that some (11 to 26) to many ( 26 +) people come to the polling station to vote but did not find their
name on the list. This of course denied a number of voters to exercise their right to participate in the
elections.
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Presence of Election Officials and Voting Materials at the Opening of the Station:
Despite the complexity of these elections and the logistical challenges, in 97% of observed polling stations,
election officials were present. In 98% of observed polling stations, the official stamp, ink and the Final
Voters List were available. The ballot boxes were sealed across at the opening of most of the stations
observed.
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Presence of Police inside the Polling Stations:
SuGDE witnessed the presence of police in 71% of the polling stations observed. The notable exception
was in White Nile where SuGDE observers reported the presence of police in only 1% of the polling stations
observed. In some instances, SuGDE observers reported police interfering in the election process.
This represents a violation of the Election Law. According to the Safety and Security regulations stipulated
in the Polling and Counting Guide for Election Officials Manual, „there will be Police appointed to individual
polling stations until counting of votes has been completed and Polling materials have been retrieved to the
state High Elections Committees. The police officers will always be outside the polling stations unless their
presence is required by the senior Polling Officials.‟
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Campaigning inside the Polling Station
SuGDE observed campaigning in the polling stations in 13% of the polling stations observed. Campaigning
was reported most commonly by observers in Southern Darfur and Western Darfur states where 24% and
20% reported instances of campaigning in the polling stations SuGDE observed.
This represents a breach of the Elections Act 2008, Article 64 (3) which stipulates that, „campaign activities
shall not be held within the last twenty four hours before polling date, or during polling day or days
according to the Rules.‟
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Suspension of Voting Process At Any Time During the Day:
Voting was suspended at 19.2% of the stations observed. Rates were particularly high in the White Nile
(41%), Sinnar (33%) and N. Kordofan (33%). Suspension of the voting process most often occurred due to
polling stations running out or having the wrong critical materials, especially ballot papers; and disruptions
in the polling station.
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Obstruction of Observers at Any Time During the Process
In most of the polling stations observers were not obstructed while performing their duties. However, in
Western Darfur, 14% of our observers were obstructed.
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Witnessing of Incidents of Intimidation or Harassment During the Voting Process
SuGDE observers witnessed incidents of violence, intimidation and harassment in 10% of polling stations
observed across the region, with reports occurring in all 15 states. States who reported occurrences in over
15% of polling stations covered include Southern Kordofan (17%), Western Darfur (17%), Northern Darfur
(16%) and Sinnar (16%). Voters should be free to cast their ballots without fear of reprisal from any political
or government actor.
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Sealing of Ballot Box at the End of the Day:
[
In most of the stations observed, the ballot boxes were sealed. However, in Blue Nile 11% of the polling
stations observed reported that the ballot boxes were not sealed at the end of the day.
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III. Counting: Findings from Polling Stations Observed during Two Counting Days:
Presence of Unauthorized People During the Counting Process:
Unauthorized people were present inside the polling stations observed across all states in varying degrees.
This was observed in the highest percentages (over 10%) in Western Darfur and White Nile.
This represents a violation of the Elections Act, which stipulates in the Polling Procedures 74 - (3) that „the
accredited candidates, agents, observers and representatives of the mass media, shall have the right to
enter the polling centre and stay therein at any time during the polling process as shall be specified by the
Rules.‟
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Interruption of Counting Process
In 9% of the stations observed, the counting process was interrupted, particularly in North Kordofan, (14%)
South Kordofan (15%) and Khartoum (15%).
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Incidents of Violence, Intimidation and Harassment During the Counting Process
There were not many violence, intimidation or harassment incidents reported during the counting days.
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Registering of Complaints by Party Agents
Written complaints were intended to signify complaints registered in Form 7 or in the book of the head of the
polling station; 13% of written complaints were reported across the states in the region. Certain states such
as the Red Sea and Northern State approached 20% of written complaints.
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SuNDE FINDINGS AND ANALYSIS
A. Election Administration
SuNDE observed serious shortcomings in the administration of the elections at the polling stations
observed. The inability of the NEC to properly plan for the elections caused polling stations to open very
late or not at all, close early and suspend voting. Poor planning and preparation also led to confusion
among voters about their polling station assignments.
SuNDE appreciates the efforts of the election officials who tried to address the administrative problems that
occurred during the polling days. The NEC did extend the polling process by 2 additional days but ultimately
the extension of the polling process did not address the fundamental problems associated with the
administration of the elections.
1. NEC Coordination and Communication
A lack of communication and coordination between the NEC and other election bodies often exacerbated
these issues, as SuNDE noticed confusion and disparity among State High Election Committees regarding
the development of their polling station lists.
This confusion was also demonstrated during the accreditation process, as SuNDE noted many variances
in the accreditation procedures among the ten southern State High Election Committees. Organizations
were required to submit different documentation depending on the regulations of the State High Election
Committees, and many followed differing timelines for submittal. In Jonglei, the State High Election
Committee tried to assess a fee of 20 SDG for each accreditation card.
2. Late Opening of Polling Stations and Suspension of the Voting Process
On April 11, the first day of polling, 52% percent of the polling stations SuNDE observed did not open
before 8:30am, with many opening very late (after 12:00 pm) or not at all. The late opening of the polling
stations on the first day of voting was particularly a problem in Central Equatoria and Northern Bahr el
Ghazal where 64% and 67% of the polling stations observed, respectively, did not open before 8:30am. The
most common reason for late poll openings was polling stations not receiving critical election materials,
most notably ballot papers.
The large number of polling stations not opening or opening very late may have discouraged voters from
voting on April 11.
Polling stations opening on time improved somewhat during the following days, however SuNDE observers
still noted late opening as a significant problem throughout all the days of polling, even as late as April 15.
Suspension of the voting process occurred in 10% percent of the polling stations SuNDE observed. This
was a particular problem in Northern Bahr Ghazal where an average of 16% of all polling stations observed
suspended the voting process over the 5 days of polling. Suspension of the voting process most often
occurred due to polling stations running out of critical materials, especially ballot papers; rain interrupting
the voting process; and disruptions in the polling station.
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Percentage of Polling Stations
Opened Very Late Or Not At All
by Polling Day
48%
18%
15% 13% 12%
0%
10%
20%
30%
40%
50%
60%
1 2 3 4 5
Polling Days
3. Confusion over Voters Lists and Polling Stations
SuNDE observers reported that in 37% of the polling stations observed at least some voters could not
locate their names in the final voters list. In 12% of the polling stations observed, observers reported that
many (over 26) voters could not find their name in the voters list over all 5 polling days. This was a serious
problem in all ten states of Southern Sudan and led to considerable frustration among voters, and probable
disenfranchisement of those who eventually gave up searching for their names in voters list.
SuNDE observers also reported that in some polling stations observed Final Voters Lists were not
delivered, particularly on the first day of voting, or the wrong Final Voters List was delivered to the polling
station. This was reported in Western Equatoria, Central Equatoria, Eastern Equatoria, Northern Bahr
Ghazal, and Lakes.
The NEC did not publicize the list of polling stations until late March and the list of polling stations was
never publicized widely. This meant citizens never had a reasonable opportunity to find out where they
should vote prior to the polling days. Publicizing polling station lists earlier would have mitigated some of the
confusion at the polling stations SuNDE observed.
In some instances, election officials tried to remedy the problem of the voters list by bringing the original
voter registration books to the polling centers or allowing voters to vote with just their registration receipt,
but the inability of voters to find their names in the voters list remained an issue for all 5 days of voting.
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4. Ballot Papers
Improper delivery and printing of ballot papers also posed a problem in some polling stations SuNDE
observed. States where observers reported ballot papers being delivered to the wrong polling stations
included Jonglei, Central Equatoria, Upper Nile, and Northern Bahr Ghazal.
Misprinting of ballot papers was also reported by SuNDE observers in some of polling stations, including
contests being printed on ballot papers with wrong headings and incorrect colors or candidate names being
left off of ballots. Not having correct ballot papers caused confusion among voters and led to voters being
unable to elect the candidates of their choice.
SuNDE observers reported that some polling stations stopped the voting process if they did not have all of
the correct ballot papers. Other SuNDE observers reported that polling stations continued with the voting
process despite not having all the correct ballots. SuNDE is concerned that continuing the voting process
without all of the correct ballot papers deprived some voters from exercising their choice in all elections.
Instances of certain ballot papers missing altogether were reported by observers in Upper Nile, Northern
Bahr Ghazal, Central Equatoria, Eastern Equatoria, Lakes, and Unity. The National Assembly Geographic
Constituency, South Sudan Legislative Assembly Geographic Constituency, and the National Assembly
Party List and Women‟s List ballot were reported missing most often. This is due to inadequate planning
and insufficient logistical arrangements made by the NEC.
The printing of the presidential ballot papers in Arabic only by NEC also may have limited the ability of
voters to correctly mark the person of their choice. This is of particular concern to voters in Southern Sudan
since many voters do not read Arabic.
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5. Polling Officials
SuNDE would like to express its gratitude to the polling station officials who worked long hours under
difficult circumstances, often without water or food, to fulfill their responsibilities. At the polling stations
SuNDE observed, polling officials generally followed the basic rules and procedures of the voting process,
such as preventing voters from voting for people not present, and inking voters‟ fingers.
SuNDE observed that polling officials often didn‟t receive clear directives, or received conflicting and
inconsistent instructions from NEC officials. This caused the election process to differ from polling station to
polling station. For instance, the counting process started at different times in different areas. In Aweil East
County the counting of ballots started on April 15, when the poll should have still been opened for voting,
and had mostly finished by April 16. Most polling stations SuNDE observed began counting on April 16.
Some polling stations observed continued counting throughout the night, while others suspended the
counting process on the night of April 16 and then started again on April 17.
B. Intimidation and Observer Obstruction
SuNDE observers reported 194 incidents of intimidation, harassment or violence during the 7 day period in
the polling stations observed. Incidents of intimidation were reported in all ten states. Of the total number of
incidents reported in each state, those with the highest percentage of incidents of either intimidation or
violence included Western Bahr el Ghazal (33%), Warrap (31%), Northern Bahr el Ghazal (26%), and Unity
(23%).
Party and candidate agents or their supporters as well as unknown and unauthorized security personnel
who were not directed by election officials to be in the polling stations were most often observed to be the
sources of intimidation and violence. Voters should be free to cast their ballots without fear of reprisal from
any political or government actor.
Twenty-one SuNDE observers were arrested and detained in several states including Central Equatoria,
Unity, and Western Equatoria. One SuNDE observer was also kidnapped and beaten in Western Bahr el
Ghazal. SuNDE issued two statements condemning these incidents.
SuNDE would like to thank the members of the State High Election Committees and international
observation missions who assisted SuNDE to resolve these issues.
Incidents of violence were not just directed at SuNDE observes. In Tonj North County in Warrap State, party
supporters brought guns into the polling station in an attempt to steal ballot boxes. These incidents created
a hostile and tense environment for observers and party agents in some polling stations.
SuNDE also was concerned about President Bashir‟s remarks threatening international observers prior to
the election days. Observers, regardless of whether they are domestic or international, have the right to
report, comment and suggest recommendations to improve the electoral process without being harassed.
1. Observer and Agent Obstruction
SuNDE observers reported 70 incidents of observation obstruction, largely being prevented from entering
their assigned polling station, or asked or forced to leave during the process. Incidents of observer
obstruction made up 10% of the total incidents reported in Unity State and 7% of the total incidents reported
in Central Equatoria and Northern Bahr Ghazal states. SuNDE is concerned about the impact these
incidents have on the transparency of the voting process.
In some of the cases polling officials and polling station security personnel simply did not understand the
rights of observers to watch the polling process and record their observations. However, in far too many
instances, observers and party and candidate agents were deliberately obstructed. SuNDE observers
reported on April 13 that in Mayom County in Unity State unknown soldiers chased all voters and election
observers from a polling station. Similar instances were reported in Mayendit County in Unity State and
Terekeka County in Central Equatoria state.
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In Northern Bahr el Ghazal, Aweil East County, SuNDE observers in 4 different polling stations reported
that all party and candidate agents as well as observers within the polling stations were forcibly removed.
C. Polling Station Security Personnel, Party and Candidate Agents
1. Presence of Polling Security Personnel
SuNDE observed the presence of polling station security personnel in 92% of the polling stations observed.
The notable exception was in Upper Nile where SuNDE observers reported the presence of polling station
security personnel in only 55% of the polling stations observed. In some limited instances, SuNDE
observers reported polling station security personnel interfering in the election process. Polling station
security personnel need further clarification on their appropriate roles. However most problems related to
security were reported about non-polling station security personnel.
2. Party and Candidate Agents
Party and candidate agents were present in 97% of the polling stations SuNDE observed. SuNDE notes
that this is a marked improvement from SuNDE‟s observation of the voter registration process. However, at
the polling stations SuNDE observed, many party agents did not understand their roles, responsibilities, or
the voting procedures. Party agents seemed particularly confused regarding the NEC rule that polling
officials could assist voters who requested help to vote. At some of the polling stations observed, party
agents argued with polling officials who tried to assist voters or tried to observe the polling official actually
marking the ballot for the voter. This is a violation of the voters‟ right to a secret ballot.
Party agents often disrupted the process by arguing with polling officials or other party and candidate
agents and actively campaigning in the polling stations. SuNDE observed campaigning in the polling
stations in 12% of the polling stations observed. Campaigning in the polling stations was reported most
commonly by observers in Northern Bahr Ghazal and Western Bahr Ghazal states where 29% and 19%
reported instances of campaigning in the polling stations SuNDE observed.
Party agents were a major cause of the disruptions which led to a suspension of the polling process at the
polling stations SuNDE observed.
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C. Counting
Despite conflicting instructions from the NEC on when to begin the counting process, SuNDE observers
reported that counting was carried out largely free from major incidents of violence or intimidation in 96%
percent of the polling stations observed. SuNDE is concerned that in some polling stations observed,
observers and party and candidate agents were barred from observing the count. This casts doubt on the
integrity of the counting process in those polling stations.
The counting process was suspended in 7% percent of the polling stations SuNDE observed. This
happened for three main reasons including rain, polling officials striking because of late payment, and
polling officials stopping the process to sleep. The original NEC guidelines stated that the counting process
should start immediately after the last day of voting and that it should be a continuous process.
SuNDE observers reported the presence of unauthorized personnel in 16% of the polling stations observed
during the counting process. This was a particular problem in Western Equatoria, Lakes, and Warrap.
SuNDE observers reported that chiefs, sub-chiefs, and unaccredited party agents or supporters were often
allowed to observe the counting process in the polling stations observed. This is a violation of the NEC rules
and guidelines.
SuNDE observers also reported substantial inconsistency in how election officials judged valid and invalid
ballots.
RECOMMENDATIONS
The following recommendations are offered respectfully, based upon direct observations and analysis of the
overall electoral process, and they are made in light of the CPA and Interim Constitution, as well as global
standards and practices known to SuGDE and SuNDE. They are intended to contribute to constructive
dialogue and progress on improving electoral processes and related democratic development.
Concerning Civil Society Organisations and Domestic Observation
1) The domestic observation experience has been inspiring, educating and capacity building among the
organizations involved. Civil society organizations should maintain and promote potentials for democratic
transition through the skills and organization gained through the elections.
2) The domestic observation experience benefited a large number of civil society organizations, particularly
youth activists. It is highly important that the training for these young people be expanded to include
leadership skills. The need for sustainable civic and voter education is vital in order to promote democratic
culture and to maintain and expand Sudan‟s democratic progress.
Concerning Mitigating Potentials for Post-Election Violence
3) All political parties and candidates should act peacefully throughout the announcement of the results and
the formation of the new government; any disputes should be resolved peacefully through the a fair and
effective legal process appropriate complaint process; at the same time, all security forces should respect
civil and political rights and refrain from use of provocative tactics or unwarranted force.
Concerning Election Processes and the CPA
4) Preparations for the 2011 Referendums should proceed diligently, including formation of the South
Sudan Referendum Commission and Abyei Referendum Commission, and lessons learned form the these
elections should be applied in forming the commissions and in their work.
5) The rules and regulations governing the South Sudan and Abyei referendums should be developed and
published as soon as possible, while the voting systems for the referendums should be as simple as
possible so all voters can easily participate.
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6) Early and comprehensive voter education for the referendums should be a priority and be effectively
implemented; election authorities and security agencies need to ensure that all viewpoints can be freely
expressed and observer rights are respected in the referenda processes.
7) Preparations for Popular Consultations in Southern Kordofan and Blue Nile should proceed diligently as
well.
8) The Supreme Court‟s decision concerning redrawing constituencies in Gezira State should be
implemented in good faith to allow elections to proceed as soon as possible.
9) The NEC should make immediately available to the public all electoral results, disaggregated by polling
station as well as by total outcomes.
10) Election complaints should be carefully processed and effective, appropriate remedies provided.
11) The NEC should investigate all allegations of fraud and malpractices and refer matters for
administrative sanction or criminal action where abuse is appears to have taken place.
12) Election district boundaries should be evaluated, and the NEC should make available maps of electoral
district boundaries and demographic information of the population within election districts.
Concerning Electoral Administration
13) The NEC should improve internal communications, delineate clearly the division of labor between the
various electoral management institutions, and improve coordination among them.
14) The NEC should improve planning and preparation: conducting elections during the dry season;
publicizing polling station locations well in advance of elections; ensuring delivery of critical election
materials in a timely manner.
15) The NEC should ensure that the final voters register is prepared and published in a timely manner.
16) The NEC should set up polling stations to ensure secrecy of the ballot in order to safeguard one of the
that critical condition for elections.
17) The NEC should ensure that polling stations are set up to secure sensitive electoral materials, including
holding them overnight, and to accommodate all party and candidate agents and nonpartisan observers.
18) Polling officers and police staff should receive further training to enhance their knowledge and skills in
managing polling stations in the future. Training strategies and plans should be established as early as
possible and resources for their implementation must be made available.
Concerning Free Association and Political Expression
19) Security forces at differing levels and locals should review instances of harassment, detentions and use
of unjustified force by their personnel and hold violators accountable, and all security agencies should
receive more and better training on their roles in the electoral process.
20) Provisions in the legal framework that inhibit freedom of political expression should be removed to
encourage political expression and participation in public affairs.
21) Public media should extend access of political parties beyond the election period to encourage political
dialogue, debate and allow the public to evaluate the merits of political rivals.
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Concerning Women’s Public Participation and Leadership
22) Steps to encourage women political participation and leadership should continue after the elections
Concerning Political Party Accountability
23) Political parties in and out of government should develop internal accountability and other structures
conducive to democratic transformation.
24) Political parties and candidates should thoroughly train their agents on voter registration, voting
procedures and how to conduct themselves during the election days in order to protect electoral integrity
and seek effective remedies for problems and violations.
CONCLUSION
SuNDE and SuGDE would like to thank all of the election officials, political party leaders, and members of
the international community for their cooperation. Both coalitions look forward to working with all relevant
stakeholders to implement the recommendations contained in this report.
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Ahmed Elyas
فيس بوك
تويتر
انستقرام
يوتيوب
بنتيريست