1) Introduction
The legitimacy of a democratic government depends on credible elections. One way of ensuring election credibility is election observation conducted by national and international missions. Election observer organizations depend on individual and group reports sent by their representatives from polling centers and polling stations and expect them to be accurate.
Free and Fair Election Foundation (FEFA) is the only Afghan Non-Governmental Organization (NGO) that conducts election observation in Afghanistan. Prior to the launch of observation missions, FEFA trains its provincial election observers in Kabul, who are then expected to train district election observers; district election observers cannot be invited to Kabul for trainings due to financial constraints. Each FEFA representative observes the election process at a number of provincial or district polling centers and polling stations and reports to FEFA headquarters in Kabul through telephonic conversation, text messages and observation forms. Upon receipt of reports, FEFA officers enter data into a database that allows for data analysis through the SPSS analytical software. The logic behind multiple means of reporting is to cross check data and ensure accuracy.
However, after analysis, the results of multiple means of reporting do not match, which makes it extremely difficult to come up with a factual statement that is based on data gathered from the field. Besides, since FEFA gives its initial election observation statement at the closing of polling stations it can only be based on reports gathered through telephonic conversation and text messages, whereas observation forms have to wait for a couple of days or at times weeks before they reach FEFA head quarters in Kabul. The difference in data leads to different FEFA statements and reports that not only fail in depicting accurate picture of the election process but also affect FEFA’s credibility in the eyes of Afghan people as well as the international stakeholders.
a) About FEFA
FEFA was established in 2004 and is registered with the Ministry of Justice as a civil society organization with the goal of ensuring the credibility of elections through election observation and reporting of electoral violations. FEFA’s mission is to guarantee the integrity of the election process. FEFA’s organizational culture is defined by their belief in democracy and elections as a democratic process that facilitates public participation.
b) Operational Context
FEFA operates in a difficult context. Issues are numerous and far beyond FEFA’s range of control, yet they affect FEFA performance heavily. Afghanistan is still a war zone, anti-government insurgency is strong and insecurity is on the rise. Taliban control large areas throughout Afghanistan. Governance system is centralized and the rhetoric of “good governance” and right to information is yet to transform into real transparent and accountable mechanisms. Access to basic services such as education, health, shelter and energy is either denied or severely limited; in such a situation to talk of computer literacy and access to internet is to act very naive.
A major proportion of Afghanistan’s operative budget and its entire development budget come from international aid. The giving hands rule, which means that despite efforts by Afghan government and donor governments and agencies, development is not an Afghan-led or Afghan-owned process. The approach towards development and democratization is donor driven which creates short-sightedness. Donors are accountable to their tax-payers and therefore require immediate results. This approach also causes the always late, always in hurry syndrome. Everything happens in a rush, and therefore with less focus, less attention, less preparation, and so almost negligible positive results.
c) FEFA through the Lens of the Strategic Triangle
i) Purpose/ Public Value
FEFA identifies itself with a legitimate purpose: ensuring the credibility of elections. For a developing democracy like Afghanistan free and fair elections is the first and most basic step on the path of democratization, widely recognized by both national and international stakeholders. Though the people of Afghanistan are yet to see tangible results of credible elections, they do have a positive understanding and approach towards the idea of fair and free elections and its impact on their daily lives. This is an ideal situation for an organization like FEFA.
ii) Legitimacy and Support
FEFA is popular with donor community. Most major contributors to democratization in Afghanistan provide financial support to FEFA.[3] What drives donor commitment in the words of German Ambassador to Afghanistan Werner H. Lauk is “the commitment and the courage that Afghans have shown in past elections despite fear, intimidation and violence.” FEFA doesn’t depend on Government support or sanction for its functioning or credibility. Though in theory FEFA’s work should be seen as an added value to the government’s efforts towards democratization, in practice, FEFA’s nature of work exposes government’s failure in support of democracy through participation in a free and fair election, and thus places it in opposition to the government.
iii) Operational Capacity
FEFA lacks strong organizational capacity to make good use of available support and legitimacy in order to realize the purpose. The failure to ensure data accuracy seems to be related to problems with the training systems, reporting systems and leadership ability to take along, inspire, provide constructive feedback to and reward not just FEFA staff in Kabul but also FEFA provincial and district election observers -who are mostly volunteers with a meager per-diem and who as field officers are connected to each other through their joint disconnect with the central office.
Greater donor support is vital in strengthening organizational capacity of FEFA, which can be attracted if FEFA can achieve the goal of excelling in accurate election observation and reporting through systems reform despite current financial and human resource restraints. Weak operational capacity is what is standing in the way of better performance by FEFA, which is discussed in more detail below.
2) The Problem: Weak Operational Capacity
a) Personnel System and Training Methodology
FEFA recruits temporary observers from provinces, who then recruit district observers. Observers are either members of local civil society organizations or independent volunteers. Observers are paid a fixed stipend to cover expenses such as transportation, logistics and a per-diem for personal use. The nature of the association between observers and FEFA – paid voluntarism - is temporary, which leads to their lack of commitment to the organizational purpose.
FEFA’s approach towards training of observers is short term. Prior to every election, FEFA submits training project proposals to donors and upon confirmation of financial support from them, conducts workshops at national or provincial centers.[4] FEFA does not conduct trainings for district election observers. FEFA’s short term approach towards the task of election observation and capacity building of observers is also evident from the training module topics, such as introducing FEFA, why election observation and advantages of observing elections, which could have been part of first rounds of trainings only. This shows that trainings do not feed into each other and therefore there is no sequence in learning. Trainings repeat topics with no prospect of new material, higher levels of training, and therefore higher level of knowledge and professional skills given to observers.
b) Reporting System
Reporting system from districts and provinces follows the same pattern. District observers report through provincial observers.[5] Election Day data collection is carried out through telephonic conversations with no set pattern of questions or answers. FEFA relies on individuals’ choice of question and perception of answers. Data collection team in Kabul only makes and receives calls from provincial observers, who are responsible for their part of data collection from districts, again based on their choice of questions and their perception of answers. In most cases, there is no guarantee that the provincial observer made notes while talking to the district observer, in order to ensure basic accuracy.
FEFA also receives reports through text messages.[6] Observers are provided with a prepaid card worth an insufficient amount of Afs.250 ($5) for text messages. FEFA relies on mobile networks’ coverage and costs and has had no arrangements made with any network provider for a more affordable package, better coverage or a FEFA specific telecom reporting mechanism.
c) Lack of Inspiring Leadership – Organizational Disconnect
FEFA leadership is inaccessible to its district level observers. They meet FEFA Chairperson and Executive Director on TV.[7] Absence of center-district connection leads to absence of performance measurement and feedback mechanism. This disconnect has two faces: FEFA doesn’t own district observers who in return do not own FEFA’s purpose and mission, do not feel to be part of FEFA, treat the task of election observation as temporary. Besides, they do not see any prospect of professional growth, leading to their lack of interest in active participation in the trainings and in election observation; this attitude leads to irresponsible observation and reporting.
3) Recommendations
(i) Revise Training Approach, Methodology and Modules:
FEFA spends a handsome proportion of its budget on trainings, which should be rendered more useful. There should be a sequence in FEFA trainings instead of current repetitive distinct training sessions; trainings could be divided into different levels based on skill level of training participants. This way, observers will not be required to repeat material and funds will not be wasted on offering same material to the same individuals more than once. As a result, the trainings will become more interesting, and funds will be saved. These savings could then be used to train district observers directly, as means of reaching out to them and connecting them to FEFA and thus enhancing the quality of their performance. Besides, training certificates will mean more to observers if they do not keep getting the same certificate for the same material and instead get a certificate as an attestation of their higher level of election observation skills. Also, it will help FEFA prepare for Elections and not an Election. FEFA has a great responsibility and must be prepared to shoulder it in the long run.[8]
Medium Term: This may seem beyond FEFA’s scope of work, but after all creative management and leadership is about thinking outside the box and expanding the scope of work as Billy Olsen did with Sweden’s CSN. This is not impossible and definitely not illegal: FEFA can get into an agreement with the Ministry of Higher Education and officially register its trainings so that training certificates add value to observers’ professional career. This will generate increased participants’ interest and positively affect their performance.
(ii) Revise Provincial and District Reporting Systems:
To ensure accuracy and uniformity of reports, there is need for pre-determined set of questions and possible answers, for both telephonic conversations and text messages. Simulations must be carried out during trainings so that observers are familiar with the questions and their answers, leaving them with a basic task of marking one answer only; the chances of them marking an answer only is higher than writing a sentence in response to a verbally asked question; this will ensure accuracy. It will also mean skipping one step in data entry and directly entering data in the database and thus saving time. Basically they will follow Ramirez’s model of reducing steps for accomplishment of a task.
Medium Term: Afghanistan’s telecommunications industry is expanding quickly.[9] In the long run, FEFA could strike a deal with telecom sector players for more affordable packages, as well as initiate a joint mechanism of easy, reliable and fast reporting. Telecom service providers are commercial giants and like any other commercial entity are interested in contributing and demonstrating their contribution to public cause; this is an opportunity that FEFA can explore and invest in.
(iii) Performance Measurement: Reward and Motivate:
Building a performance measurement system, besides its intended purpose, will also help connect FEFA district observers to its leadership. Limited access to computers and internet does not mean that FEFA website should not be used as means of encouraging employees. FEFA could reward observer performance through publishing case studies of successful election observers; published stories will encourage good performers and motivate average performers. It is important to make observers feel appreciated as part of a bigger goal than them, it is important to win their hearts and minds as Melody Johnson did. There is one point of caution though: employee safety. Extreme care must be taken while publishing individual stories, as those may endanger the lives of observers and their families in certain cases. This is important as the drive for publishing success stories may render FEFA blind to the safety of its observers.
Considering numerous challenges that are beyond FEFA’s range of control, such as security, it is possible for FEFA to demonstrate performance improvement if emphasis is laid on quality and not quantity. Fewer but better should be the motto. Instead of spending human and financial resources on widening coverage area, FEFA should focus on smaller coverage areas, but more accurate and reliable reporting.[10]
Medium Term: GE Model Talent Hunt: A step further in this direction will be the initiative of finding talented and eager individuals who could lead FEFA operations at district and provincial levels and serve as a focal points in the region. Such an initiative could be taken through a partnership with public or private educational institutions, as the best sources of young talent. Having a focal point in a province or district is different than current practice of entrusting provincial observers with responsibility for entire districts or a number of districts without appropriate preparation.
4) Sources
- Free and Fair Election Foundation (FEFA), accessed November 30, 2010 http://www.fefa.org.af/
- Media coverage of FEFA activities
- Managing Student Aid in Sweden, KSG Case Program, C16-92-1191.0
- Paying the Bills at the Junta of Andalusia, KSG Case Program C16-90-869.0
- Winning Hearts and Minds: Reforming the Providence School District (A), KSG Case Program, C14-03-1689.0
- Vision and Strategy: Paul H. O’Neill at OMB and Alcoa, KSG Case Program, C16-92-1134.3
- GE’s Talent Machine: The Making of a CEO, HBS Case No 304-049
[3] FEFA International Partners include the governments of United States through USAID, United Kingdom through DFID, Germany through GTZ, Dutch, Finland, Denmark and Canada through CIDA, international organizations such as National Democratic Institute, The Asia Foundation, United Nations Development Program, and Afghan credible entities such as the Afghanistan Independent Human Rights Commission.
[4] For instance, part of the preparation for the September 2010 Parliamentary Elections was a project that comprised of 8 provincial workshops to be conducted in a 9 months’ time frame covering 24 provinces where in each workshop provincial observers from three provinces could participate. Provincial observers were then expected to train district observers without FEFA supervision.
[5] For Election Day data collection, Kabul office makes four data collection teams each comprising of a team lead, two team members and one data entry officer cover 8 provinces on average.
[6] Text messages are to provide answers to a number of questions such as the number of polling centers that did not have female staff, were opened late and inaccessible for voters, or had ink problems or lacked staff or equipments.
[7] Financial limitations are stated to be responsible for FEFA’s inability to conduct trainings for district observers.
[8] If Afghanistan is going to continue on the path of democratization and accountable and participatory governance, elections are going to be an integral part of social and political life of people.
[9] There are four major service providers, covering over 80% of population with almost 14 million subscribers.
[10] This does not mean that with improved performance and security situation FEFA may not widen its coverage area.