[1]

EN

This action is funded by the European Union

ANNEX 3

of the Commission Implementing Decision on the on the Annual Action Programme 2016 and 2017

part 1 in favour of Pakistan, to be financed from the general budget of the European Union

Action Document for Support to electoral processes in Pakistan

INFORMATION FOR POTENTIAL GRANT APPLICANTS

WORK PROGRAMME FOR GRANTS

This document constitutes the work programme for grants in the sense of Article 128(1) of the

Financial Regulation (Regulation (EU, Euratom) No 966/2012) in the following sections

concerning calls for proposals: section 5.4.1.1

1. Title/basic act/

CRIS number

Support to electoral processes in Pakistan

CRIS number: ACA/2016/039-281 financed under Development Cooperation

Instrument

2. Zone benefiting

from the

action/location

Asia, Pakistan

The action shall be carried out at the following location: Islamabad - Federal

Capital and the Provinces of Balochistan, Khyber Pakhtunkhwa, Sindh and

Punjab, FATA and autonomous and disputed areas, Pakistan

3. Programming

document Multi-Annual Indicative Programme (2014-2020)

4. Sector of

concentration/

thematic area

Good Governance, Human Rights and

Rule of Law

DEV. Aid: YES

5. Amounts

concerned Total estimated cost: EUR 16,500,000

Total amount of EU budget contribution EUR 15,000,000

The contribution is for an amount of EUR 15,000,000 from the general

budget of the European Union for 2016.

This action is co-financed by potential grant beneficiaries for an

indicative amount of EUR 1,500,000.

6. Aid modality(ies)

and implementation

modality(ies)

Project Modality,

Direct management - procurement of services.

Direct management - grants – call for proposal

7 a) DAC code(s) 15151 – Elections; 15150 – Democratic participation and civil society ; 15152

– Legislature and political parties

b) Main Delivery

Channel

50000 Other (52000 - Other includes 'for profit', consultants and consultancy

firms); and 20000 –Non-governmental organisations (NGOs) and civil society

8. Markers (from

CRIS DAC form)

General policy objective Not

targeted

Significant

objective

Main

objective

[2]

Participation development/good

governance ☐ X

Aid to environment X ☐ ☐

Gender equality (including Women

In Development) ☐ X ☐

Trade Development X ☐ ☐

Reproductive, Maternal, New born

and child health

X ☐ ☐

RIO Convention markers Not

targeted

Significant

objective

Main

objective

Biological diversity X ☐ ☐

Combat desertification X ☐ ☐

Climate change mitigation X ☐ ☐

Climate change adaptation X ☐ ☐

9. Global Public

Goods and

Challenges (GPGC)

thematic flagships

Human Development

10. SDGs Main SDG is goal 16

Secondary SDG is goal 5

SUMMARY

This action aims at capitalizing on the existing historic opportunity provided by a rare Parliamentary

consensus to take forward electoral reforms agenda that is currently underway in Pakistan. Upcoming

electoral legislation expected in mid-2016 offers prospects for lasting political change in favour of

democracy. This programme can further build on institutional appetite for change evident by a pro-

reform leadership managing the affairs of the Election Commission of Pakistan (ECP). A range of

legislative and institutional constraints constitute a key challenge for holding of credible, transparent

and inclusive elections. The cross-party political agreement provides a new opening to transform the

ECP into an independent, accountable and transparent electoral body. This action envisions a

strengthened ECP that is enabled to ensure inclusive and credible elections and committed to engage

in mitigating risks of political controversies over election results. Political parties are repositioning

themselves to fight next elections on the basis of issue-based politics. A two fold approach of keeping

a balance - between critical supply side requirements and demand side needs of citizenry - has been

identified as an appropriate response to deepen and broaden the impact of EU support for electoral

reforms in Pakistan. The overall objective of the programme is to contribute to the consolidation of

democracy in Pakistan through improved electoral process with a focus on their enhanced

credibility and inclusiveness. The specific purposes are the following: 1: to assist sustainable

institutional development of the Election Commission of Pakistan; and 2: to strengthen domestic

capacities for observation of electoral processes and advocacy for electoral reforms. The

proposed programme intends to have a positive impact on the electoral processes and its outcomes

through addressing some of the selected critical problem areas. Limited institutionalized capacity

within the ECP including policy, planning and coordination mechanisms with constrained monitoring

efforts are some of the underlying causes behind weaknesses in managing election processes. The

problem of limited number and capacities of independent domestic observers will be also addressed.

There is a vibrant civil society and an active media in Pakistan. Building synergies among

stakeholders is of critical importance. Against the backdrop of now decreasing security concerns and

an overall resilient political context, time is of essence to support democratization process in Pakistan

with upcoming general elections due in little over two years’ time from now. A strengthened electoral

environment is expected to sustain smooth democratic transition and good governance. Effective

implementation of electoral reforms particularly the quality and outcome of next elections will provide

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key measurements for the success of this action. Direct management modalities are considered as a

suitable option for managing future electoral assistance.

1 CONTEXT

1.1 Sector/Country/Regional context/Thematic area

Democratic process in Pakistan has gone through various political experiments. In its history of nearly

seven decades since partition in 1947, the country has witnessed outright Martial Laws, quasi political

order and relatively stable democratic dispensation as is the case now with ruling Pakistan Muslim

League – N (Nawaz). Against this backdrop, the period between 2008 till now is of optimism as far as

democracy is concerned. The general elections of 2008 and 2013 are considered as key milestones for

Pakistan’s contemporary politics as power was first transferred from military government of President

General Musharraf to a civilian set-up followed by first ever historic transfer of power from an elected

civilian government to another civilian government elected through the general elections of 2013.

Political phase starting with 2008 elections up till now also saw other critical challenges such as

heightened security concerns, natural disasters and complex foreign policies, economic difficulties like

inflation, energy shortages and street protests. Leadership tackled these issues to a great extent through

noticeable political maturity and economic foresight. Growing powerful role of media and robust civil

society contributed to play their role in shaping public opinion and mobilization. Terrorism is broadly

on the decline, however, sporadic but sizable terrorist incidents – such as killing of 140 school

children in December 2014, January 2016 attack on Bacha Khan University and the recent incident in

Lahore continue to raise serious concerns. However, military operation in the Federally Administered

Tribal Areas (FATA) against terrorists and All Parties consensus on security policy represent positive

signs. Ever since the incident of Peshawar schoolchildren, the State of Pakistan is trying to nurture a

new narrative but deep-rooted ideological issues remain entrenched. That aside, the time period

between 2008 and 2015 saw political leadership confronted with some tough policy choices, which it

navigated somewhat successfully. Biggest dividend of this evident political resilience is the expanded

space for democracy to take firm root in the country.

It was also during this time 2008 and 2013 that Pakistan ratified the International Covenant on Civil

and Political Rights to improve its electoral legal framework through constitutional amendments.

Significant among many a positive change was the 18th Amendment to the Constitution that devolved

governance to the provincial level. Post-18th Amendment Pakistan is a decentralized federation with

sufficiently decentralized financial, legislative, administrative, political powers. Provinces are where

focus on governance is with centre retaining overall policy direction in strategically important areas.

With Local Governments now in place, there is enhanced and intense political competition between

power centres at the local and provincial levels. Role of Provincial Assemblies have acquired greater

pre-eminence in public imagination. Local Government elections of 2015 in Punjab, KP and Sindh led

to intense controversy over matters of legal framework, administration and management of elections

particularly amplifying the role of Judiciary, Provincial Government, opposition and Assemblies.

Although historical transfer of power from one democratically elected government led by Pakistan

People's Party to another led by Pakistan Muslim League – N in 2013 has stabilized trajectory of

Pakistan’s democratic performance underlying political competition at times leads to gridlock with

implications for economy and governance at large. Both PPP and PML-N were united in face of large-

scale protests launched by Pakistan Tehreek e Insaaf (PTI) in 2014 over issue of alleged systematic

electoral fraud. It was their unity coupled with decision to form General Elections 2013 Judicial

Inquiry Commission that laid to rest controversy over rigged elections. PTI now is more focused on

KP where it holds reign of power and tries to show its ability to deliver results. Baluchistan also

witnessed democratic transition with passing of power from erstwhile Chief Minister of National Party

to new Chief Minister from PMLN who struck a power deal for governing the province in equal time

between 2013 and 2018 elections. Sindh remains a turbulent political spot for varied reasons.

Ethnicity, power tussle and corruption continue to dominate media debates as far as Karachi is

concerned. Recent move to expedite cases against PPP has alienated the party with National

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Accountability Bureau (NAB) and Federal Investigation Agency (FIA) is at the centre of this

controversy. Opposition parties equate growing role of NAB with political victimization. High profile

case related to the murder of Punjab Governor in 2011 has triggered a new controversy with the

execution of his killer on February 29, 2016. Right wing religious parties are determined to mount a

new political challenge for the incumbent government of PMLN with focus shifting to Pakistan’s

blasphemy laws that lay at the centre of murder case of Punjab Governor. PMLN enjoys a great of

political support from conservative sections with considerable vote bank but how far it will manage

this new crisis remains to be seen.

In this evolving political milieu, broad-based calls for electoral reforms emerged as one of the most

pressing issues facing Pakistan. Part of the credit goes to PTI for consistently raising this issue but it

was the collective wisdom of the whole house of Pakistani Parliament that took the lead and formed a

Parliamentary Committee on Electoral Reforms (PCER). A dedicated sub-committee has prepared a

set of proposals and discussions are continuing to amend the constitution through passage of electoral

legislation unanimously. This is expected to happen in mid of summer 2016. What the committee is

considering are matters related to electoral administration, management, independence, grievance

redress, policy and capacity development areas within ECP besides issues such as voter registration,

electoral rolls etc. Media continues to report on the progress to date and there are reports of positive

outlook towards reforming the electoral systems, processes and practices.

Wholesome debate needs to take place in Pakistan discussing other related and vital areas that impact

electoral outcome in different ways and considering the issue of economics behind the political

competition. Political economy of elections in Pakistan has always been characterized by culture of

patronage, powerful societal groups dominated by feudalism and political groupings such as Biradris

(Clan). Business interests of lead politicians pervade the political psyche of electorate who often view

electoral systems as disproportionately tilted towards political elite. Media continuously reports

allegations and counter allegations pertaining to ticket distribution, incentives for staff and securing of

legal identity for voting reasons. In recent years, Pakistan has witnessed intense debate over

procedures and appointment of caretaker government, independence of electoral machinery and

impartial performance of executive. Electoral outcomes have direct bearing on governance. Socio

economic path for Pakistan can improve with leadership elected through well managed and

administered elections in compliance with rule of law. Strong accountability practices and traditions

constitute critical buffer between the role of money in electoral politics.

1.1.1 Public Policy Assessment and EU Policy Framework

In last one decade, Pakistan has seen some basic changes to its constitution, which empowered ECP,

devolved governance and improved procedures for credible, transparent and inclusive election

defining citizenship rights, voice and participation. These changes have strengthened parliamentary

democracy and restored federalism principles on which the country was founded. The 20th

Constitutional Amendment in particular has set down a process to install a caretaker set-up and hold

free and fair elections in the future. Specifically, these amendments have provided for enhanced

mandate, authority and autonomy of ECP including a parliamentary mechanism for the appointment of

the Chief Election Commissioner (CEC) and the ECP Members, increased the transparency in the

process through introducing the right to information to citizens, established rules for appointing a care-

taker government and reduced discretionary powers of the President in the election process. In

addition, other political reforms introduced by the PPP-led coalition government ensured greater

autonomy to Federally Administered Tribal Areas (FATA) and Gilgit Baltistan including party-based

elections in these areas. PML-N Government has also initiated reforms in FATA that if implemented

can positively alter political landscape of the region.

Policy and legal changes introduced during last decade led to improvements in electoral process.

Structural problems however remain in place including the shortcomings in ECP’s internal

transparency, unregulated polling processes and inconsistently applied election rules.

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Judicial Inquiry Commission on General Elections 2013 came up with key recommendations to

improve electoral process. Accordingly, a Parliamentary Committee on Electoral Reforms (PCER)

was set up to recommend legal and operational changes needed to ensure credible, transparent and

inclusive elections in the future. However, PCER faces an uphill task of addressing fragmentation in

primary electoral legislation for regulating elections. More importantly, it is yet to be seen how the

committee ensures alignment of proposed legal changes to the Pakistan’s Constitution and

international legal instruments. Pakistan’s Senate has become the most public open and accessible

institution under the leadership of a veteran politician. Committees on Rule of Law, Human Rights

and Women rights are regularly conducting their legislative business. Electoral environment is

seemingly more conducive as there is greater synergy among democratic institutions.

ECP remains at the centre stage of Pakistan’s democratic transition. In line with its Five Year Strategic

Plan 2014-18, ECP undertook positive steps by a pro-active voters’ outreach, ensuring voting of

internally displaced persons, large scale training of polling officials, preparation of codes of conduct as

well as initiation of use of a results management system and of gathering of gender desegregated data

prior to 2013 General Elections. ECP has also undertaken initiatives including hiring of some senior

female officers including Director of ECP Gender Affairs and Disability. ECP progress report of

January 2016 highlights some progress but also points at limited achievements in the areas of

planning, training or monitoring. The results chain of the Strategic Plan needs further development as

there are no baselines, indicators or clear targets, making it difficult to measure progress. The

recommendations formulated in the Report of the General Election 2013 – Inquiry Commission 2015

remain valid and the ECP is obliged to address such areas as inadequate staffing and capacities of

electoral staff, insufficient enforcement of electoral legislation by ECP staff, planning of operations

and coordination with other actors involved in electoral processes. Recently ECP initiated a review of

its Strategic Plan. Local Government elections were held in 2015 amidst controversy over legal

frameworks. Women were under-represented in those elected, as candidates, as voters and in the

election administration. Discrepancies were also pointed out regarding accreditation system and

domestic observers. In Pakistan, the Computerised National Identity Card (CNIC) has become

mandatory for voting and the basis for the new 'markedly improved' electoral roll. Unification of

codified electoral laws, out of country voting and technology in elections are other matters ECP is

contemplating for better options. Delimitation issue is another potential political challenge with

implications for electoral process. Council of Common Interests has yet again postponed the census.

Further delays in holding of census since 1998 will only add difficulties for ECP including finalization

of electoral rolls afresh before 2018 elections.

In line with EU’s Agenda for Change 2011 underlining the requirement to focus the EU aid on actions

related to human rights, democracy and other key elements of good governance, as well as on

inclusive and sustainable growth for human development, this action also builds on these priority

areas. Democracy, governance and human rights are also highlighted as specific areas of the EU –

Pakistan 5-Year Engagement Plan of 2012. The action is also designed keeping in view strategic

objectives outlined in the EU MIP 2014-2020 aimed at supporting the functioning of democratic

institutions and electoral processes, at federal, provincial and local levels. Recommendations put

forward by the Election Observation Mission (EOM) 2013 provide direction to future programming

support to electoral reforms in Pakistan. Besides reflecting insights and suggestions of EU Evaluation

of Electoral Support Report, findings and recommendations of Electoral Follow-Up Mission (EFM)

also inform the substance of this action. One of its recommendations emphasizes, “EU is in a

particularly strong position to support electoral reform in Pakistan given its leading role in

international observation, its previous support to the ECP and to citizen observation and advocacy, and

its reputation as a trusted neutral partner. The EU has increased potential for influence given its

demonstrated long-term commitment to democratic rule in Pakistan and GSP+ interest and

requirements.

1.1.2 Stakeholder analysis

[6]

Stakeholders of the support to electoral processes in Pakistan are discussed in this Action under three

broader categories viz,1) Stakeholders on the Supply Side; 2) Stakeholders on the Demand Side; 3)

Stakeholders that Support both sides for a credible, transparent, and inclusive electoral process.

1. Supply Side:

Government institutions including political leadership of incumbent government have a key role in

ensuring credible, transparent and inclusive elections. Current government has responded to

widespread public calls including directions from General Elections 2013 Judicial Inquiry

Commission for electoral reforms. In addition to support mandate and capacities, the sitting

government has instituted a dedicated parliamentary mechanism that is actively pursuing reforms

aimed at streamlining electoral processes. Election Commission of Pakistan, an autonomous

institution responsible for administration and management of elections, is faced with key institutional

constraints. These include lack of adequate capacities for effective policy development, performance

management and results based monitoring mechanisms. ECP has the largest stake in sustaining

political change through credible elections. Parliament has the key role for shaping a political

agreement, undertaking legislative action and abiding to regulations for improved internal party

democracy. In 2014, a Parliamentary Committee on Electoral Reform (PCER) was formed to review

the problematic areas of the 2013 elections and to prepare an electoral reforms package. New

legislation concerning electoral reforms is expected in mid-summer. Role of Judiciary in electoral

process has come under intense public discourse for varied reasons. From appointments in electoral

set-ups, policy directions to adjudication matters, judiciary has become a key stakeholder. It is actively

asserting its role in advancing electoral reform agenda. Key missing link, however, remains the need

for engaging the institution in a broader policy dialogue aimed at streamlining and rationalizing the

role of judiciary in electoral policy processes, structures and systems. Local Governments in Post

18th amendment Pakistan require focus of electoral reforms to be shifted at the sub-national level.

Legislative frameworks for LG elections need policy endorsement of all stakeholders including ECP

with effective arrangements to administer and manage LG polls. Civil Administration at the lowest

level plays key role in maintaining not only law and order but also enforcing elections rules and

regulations. ECP also engages polling staff from education, health departments of local administration.

There are gaps in ensuring effective voting and polling processes besides securing compliance with the

guidelines or codes of conduct issued by ECP. Coordination is the missing link. ECP needs capacity to

effectively engage local administration.

2. Demand Side:

Political Parties are the basic unit and primary stakeholders of electoral process alongside the

citizens. They are instrumental in creating demand for and consensus on critical electoral reforms.

Sustaining the political agreement on upcoming electoral reforms package represents a major

challenge. There is need for regular inter-party dialogues on varied aspects of electoral process. Civil

Society and Rights Based Organizations of Pakistan have become quite vocal and assertive in recent

years. However, local capacities of citizen sector to conduct effective election observations remain

thinly spread and under-engaged. There are constraints such as limited outreach, monitoring and

communication capacities. Educational Institutions overall are functioning but limited public debate

focusing on shortcomings in syllabus, quality of teaching, enrolment etc. Schools, colleges and

universities have yet to give importance to subjects such as democracy, human rights and political

inclusiveness. The education system discriminates against marginalized sections of society. Women,

Minorities, People with Special Needs and other Marginalised Groups have critical stake in

electoral process. There are a number of civil society groups working for promotion of gender equality

including concerns of other vulnerable communities. There is however a need for concerted efforts for

effective advocacy, awareness and sensitization of official stakeholders. Youth is a significant

phenomenon in Pakistan. Demographic profile is dominated by youth bulge. Nearly two third of

Pakistanis are under the age of 31. Political role of youth remains under explored or limited in terms of

influencing changes in electoral process to their advantage. Having served as nurseries of democracy

in the past, existing Student Unions remain either under-capacitated or largely banned in Pakistan.

This has stunted the growth of political nurseries for democracy. Domestic Observation Networks /

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Organisations do not have adequate presence or competition. FAFAEN nearly monopolizes the

domestic observation scene (despite insufficient geographical coverage) with hardly any other

organization or network capable of mounting a matching capacity to monitor polls. Potential exists but

this needs to be harnessed by strengthening technical knowhow, outreach and monitoring abilities of

observer groups at the local level. Media and Opinion Makers particularly the electronic component

has revolutionized the information landscape in Pakistan. Dozens of news channel constantly keep

close eye particularly toward events of political nature. This serves as a strong check but areas such as

regulatory and election coverage remains challenging.

3. Support organisations / Institutions

Donor Community comprising a range of key donors, which have been supporting electoral-

assistance projects in Pakistan. These mainly include EU, UK (DFID), Canada (DFATD), and USAID.

Donors coordinate their support through an Election Support Group (ESG). Synergy and

complementarity areas need strengthening. INGOs with their role in legislative advocacy for electoral

reforms, are of particular value but there is need for more concerted efforts to broaden their

engagement with strong linkages with domestic civil society. UN System continues to enjoy their

comparative advantage in implementation, convening and advocacy roles. UNDP and UNWOMEN

have played important role in advancing electoral reforms agenda with UNWOMEN focusing more on

the political participation of women. UN organizations are strategically well positioned to leverage

their relevant mandates to push the electoral reforms agenda forward.

1.1.3 Priority areas for support/problem analysis

The Action shall support the stakeholders of Pakistan in promoting a credible, transparent and

inclusive election process by strengthening the internal capacity and accountability of top electoral

administration and management body as well as cultivating independent groups of civil society to

contribute to the process. Priority areas to be supported through this action would fall under a set of

two distinct specific objectives. On the supply side, this action is designed to strengthen the capacity

of ECP to conduct free and fair elections, while on the demand side, citizens would be supported

proactively watching the process and suggesting timely remedial measures through professional and

informed observation of the election process. This support to the specialised groups of citizens would

include diversification, professionalization and expansion of domestic observation capacities including

better geographical coverage with a special attention to remote areas, robust advocacy and networking

capacities for effective election observation. This action is built to improve accountable, transparent,

inclusive and responsive electoral processes. A range of legal, structural and institutional changes are

required to be streamlined by bringing the whole electoral system up to an acceptable international

standard. Among other issues, the most serious include uninhibited electoral malpractices at different

levels (in pre-election campaigns; on polling day; in the setting up of polling stations and appointment

of polling staff by local authorities, etc.). As per various reports of Election Observations for the

General Election 2013 (GE 2013), including the EU Election Observation Mission, one of the key

reasons for non-adherence of different stakeholders to the set rules under ECP Codes of Conduct

(CoCs) was that they were not sufficiently monitored and enforced.

The Observation reports also noted that the quality of domestic observation in GE 2013 could have

been better, had there been more focus on professional trainings, greater geographical coverage,

greater number of observation groups with better mechanisms available to field observers for feeding

the information timely to the relevant election authorities. It has been reported at times that political

parties and other interest groups keep influencing domestic observers through threats of aggression.

Alongside, the system of monitoring the compliance of Codes of Conduct was weaker and at places,

was totally absent. This encouraged open violations at places during and before the polling process,

which created unrest among political parties who then raised their concerns loudly. The entire chain of

events resulted in erosion of public trust in elections and hurting the legitimacy of democratic process.

Taking leads from European Commission’s working document on Strategic Engagement on Gender

Equality 2016-2019 and EU Election Observation Report for GE 2013, this action identifies inclusive

political participation of all citizens as a key strategic area. Women, people with special needs and

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minorities are under-represented as voters including discrimination candidates face during scrutiny

process of election. There is also a concern regarding limited inclusiveness in the voter registration,

which needs to be linked to possession of Computerized National Identity Cards (CNICs). Other

matters involve issues such as limited access for communities in remote areas and insufficient civic

education. All these concerns impinge upon the integrity of electoral process, slowing down of

democratic transition eventually leading to weakened governance.

For this Action, priority list of targets and activities include strengthening policy development and

operational planning for elections, internal monitoring of ECP operations including stronger

coordination for effective enforcement of codes of conducts issued by ECP. There is also need to

support technical / financial accountabilities of the election and polling staff while enhancing

transparency mechanisms and internal / external communication. Another aim of this Action is to

strengthen ECP capacities for effective performance management, and financial management systems.

Broader aim is to enable ECP for enhanced administrative responsibility for key election and polling

staff. Other institutional shortcomings to be addressed through this Action will include addressing

weak institutional development, inadequate human resources and performance of ECP/ elections/

polling staff, internal capacities of ECP for training of ECP/Election/polling staff and last but not least

insufficient interface and dialogue between legislature / executive / civil society / political parties and

ECP on electoral processes and reforms. A related aspect to enhancing value of electoral support is to

strengthen coordination amongst donors. This is all the more necessary given the fact ECP has been

using international electoral support through implementing partners including NGOs to substitute for

its institutional role and programs for reforms and capacity development. Priority areas for ‘Domestic

Observation’ include support for enhancing limited presence and capacities of domestic observation in

remote areas, advocacy and networking capacities of domestic observers, strengthening capacity for

long term and Election Day observation. Rationale for such a support for this Action rests with key

problems including exclusion of non-traditional society actors from the domestic observation and

domination of single large network without having a healthy competition among a diverse range of

actors representing general ethnic and sociological make-up of Pakistani society. However, there are

important challenges to be addressed such as the need to undertake consultation with potential

observers for defining and streamlining accreditation procedures including establishment of

mechanism for lodging complaints and remedy.

The political commitment and incentive for electoral reform are varying amongst and within political

parties. The 2013 election results were broadly accepted in larger benefit of democratic transition but

many parties expressed reservations about the integrity and transparency of the electoral process. As a

result the legitimacy of the entire electoral process was questioned by Pakistan Tehreek-e-Insaf (PTI).

PTI's demand for the establishment of an independent Judicial Commission (JC) to investigate the

validity of the elections and its subsequent protests in 2014 triggered the formation of a high level

Parliamentary Committee on Electoral Reforms (PCER). The preparation of a legislative reform

package, however, has been set at a very slow pace due to lack of political agreement on key

contentious reform areas. There is thus, a risk that the process is derailed or that it results in minimal

reform prior to the next 2018 elections. This, being the consequence of fluctuating sense of urgency,

lack of trust and cooperation between stakeholders and competing high level priorities (security,

energy, economy). The input of the ECP into the process will be determined by its assertiveness and

improved organisational capacity. The implementation of the ECP Strategic Plan will need to be

expedited. Other priorities include the need for public debate through pro-active civic and voter

education, quality media reporting and increased civil society action. Political parties and

parliamentary decision-making also requires substantive, specialised and politically grounded electoral

expertise. In recognition of these challenges, the Action shall work on the demand and the supply side

to promote and provide input to a well-informed inter-party and parliamentary debate on reform and

support increased cooperation amongst all stakeholders (demand/supply); increase the public

awareness and demand for reform; and enable institutions to take assertive measures and confidently

respond to this demand through gradual internal transformation (supply side). The quality of the 2018

general elections as well as future Local Government Elections (LGE) will be largely determined by

[9]

the ability to hold them timely and to take substantive legislative action to immediately improve the

electoral practices.

2 RISKS AND ASSUMPTIONS

Risks Risk level

(H/M/L)

Mitigating measures

Democratic transition is discontinued

due to military take over

L High level political engagement. Reassess

continuation of programme within the

context of GSP Plus

No new actors emerge for effective

Domestic observation

M Prior assessments, deeper engagement with

citizen groups with strong outreach and

capacity to be the potential domestic

observers groups

Security threat to democratic leadership

causing discontinuity of policy

M Support political parties and encourage

credible alternatives

Security incidents disrupting electoral

process

H Engage from the outset to incorporate

security elements in strategic planning

processes related to electoral management

and code of conduct for security personnel

Change in ECP leadership affecting

implementation of new legislation

H Engage with parliamentary leadership to

advance amendments related to appointment

of ECP members

ECP leadership becomes controversial

and no committed CEC can be found to

bring desired changes

M Policy dialogues, political engagement and

immediate reassessment of support

Corruption undermining effectiveness of

deliverables

M Political engagement and enhanced focus on

transparency and streamlining gaps in

financial, procurement processes

Stakeholders unable to articulate

political will or collaborate for electoral

reforms

M Policy dialogues, support accountability,

provisions for incentive and expertise/tools

for reforms, political engagement with

leadership

Electoral reforms are not accompanied

by broader governance or constitutional

reforms

H/M EU high level political engagement

Haphazardly completed delimitation

before next elections trigger political

crisis

M Continued policy dialogues and close

monitoring

Yet again 2018 election results are not

accepted by runner up and street

agitation brings the country to a halt

M Support political consensus, enhance

domestic observation and build effective

engagement with media

Elections are called earlier than notified

timeframe

L Adapt the programme for greater impact on

immediate electoral priorities

Electoral reforms are largely

inconsistent with EOM 2013 and EFM

2016 recommendations

M Immediate review of new legislation

determining how far new reforms are

consistent with observations and

recommendations / policy dialogue

Pursuit of EVM becomes a major

financial and political drag

M Policy advocacy

Assumptions

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Political stability, smooth transfer of power, acceptance of electoral results, no major terror incident, no

major natural disaster, CEC is pro-reform, new legislation is passed with broad political consensus,

elections are held in an orderly and credible manner, local and national political governments complete

their tenure, no regional security lapse occurs, funds are utilized transparently and accountably

3 LESSONS LEARNT, COMPLEMENTARITY AND CROSS-CUTTING ISSUES

3.1 Lessons learnt

The support to Pakistan's electoral reform process flows directly from the 2008-2014 EU experience in

the sector. During this period, the EU provided comprehensive electoral assistance to key stakeholders

through different programmes and engaged politically through visits of the twice EU EOM Chief

Observer to Pakistan and the high profiled 2013 EU EOM. Electoral reforms are also part of the EU-

Pakistan Strategic dialogue. On the assistance side, the EU rolled out two multi-facetted programmes

of 12.4 million EUR under the Instrument for Stability, which complemented well the EU

parliamentary support. The interventions covered the demand side (domestic election observation,

work on electoral reform and advocacy with parliamentarians, politicians and the media) and the

supply side (support to ECP through the International foundation for electoral Systems and UNDP).

The objective was to contribute to strengthened legal electoral framework and to credible, inclusive

and transparent 2013 elections. The support also filled an important programmatic gap of work with

legislators as recommended by the 2008 EU EOM. An evaluation of the overall EU electoral portfolio

in Pakistan confirmed the high relevance of EU support to all key stakeholders simultaneously as

compared to focusing on some. This, and specifically the support to the value-based demand side, had

enabled the EU to position itself strategically as a committed donor and Pakistan's partner.

The EU engagement enjoyed greater ownership by domestic stakeholders and effectively contributed

to the 2013 election alongside providing a basis for longer-term impact. The evaluation recommended

continuing/building upon this investment with similar approach enhancing its civil society outreach,

strengthening the capacity building element of the supply side beyond election delivery and working

on strong collaborative measures amongst key stakeholders. Electoral Follow Up Mission fielded in

February 2016 also reconfirm the existence of gaps in the electoral process including institutional

deficiencies of ECP and overall legal framework particularly internal transparency and monitoring

within ECP. Other Key lessons learnt and recommendations of the evaluation are:

1) Need to enhance the strategic multi-donor engagement to ensure effective synergies and coherence

on the supply and the demand side; 2) Increase collaborations at all levels and ascertain donors’

oversight capability; 3) Address cooperation/collaboration issues; 4) Need for enhanced politically

sensitive programme design and implementation and reinforced high-level political dialogue including

through specific EU EOM follow-up; 5) Ensure ECP owned long-term capacity development at all

levels to reduce substitution; 6) Increase support to civil society, introduce specific capacity and

organisational development component and expand to grass root organisations; 7) Achieve

sustainability by focus on civic education and advocacy extended to governance; 8) The media should

feature as a stakeholder in future electoral advocacy support; 9) Strengthening of the electoral

institutions and processes should be part of broad political and institutional reforms that address

genuine governance concerns.

3.2 Complementarity, synergy and donor coordination

The programme is complementary to electoral legal framework reforms package expected to be agreed

by the Parliament in mid 2016. Synergies between the EU electoral interventions and other donor-

funded projects will be ensured during envisaged planned programme timeframe to avoid duplication

and effective coordination. This approach shall further consolidate the EU democracy portfolio. At

macro level the Action represents a follow up of the 2013 EU EOM, EFM 2016 and shall feed

politically grounded information to the EU-Pakistan Strategic dialogue. The Action should open

additional channels for policy dialogue with Pakistani stakeholders on strengthening of democracy and

increase the EU and its partners’ capabilities for communicating on important issues.

[11]

Most of the EU electoral interventions 2009-2014 were undertaken through joint programmes with

key donors (Canada, UK/DFID, Australia and Norway, and USAID, Japan and Switzerland and for the

2013 elections). This ensured high level of synergy, sustainability and impact of the EU investment.

DFID and USAID provided additional substantial support to civil society. DFID future programming

priorities include support to ECP in strengthening critical aspects such transparency, accountability

and inclusion in electoral processes. DFID also wants to support Media and Political Parties in the

related aspects of electoral reforms. USAID plans to follow a three pronged strategy for their next

phase of support to democracy in Pakistan mainly focusing on political parties, including training of

polling agents, gender equity and grants to civil society organization for promoting citizens’ voice and

participation. Canada plans to complement its programming for future electoral reforms through IFES

and UNDP. Main indicative areas of interests for Canada include strengthening ECP’s strategic

planning processes, capacity development and inclusion. Donor coordination is undertaken through

ECP, donors-implementing partners' forum (Election Support Group), joint Steering Committees with

the ECP and joint messaging. Based on their joint experience and collaboration, EU and UK/DFID

developed a comprehensive Joint Results Framework for support to elections to align donors and

implementing partners around shared objectives and results. Other donors and development partners

are willing to align behind it, which would increase the impact of the EU support. The EU provides a

large budget support for education in Pakistan. Issues related to the need for revision of the school

curricula to include civic education encompassing electoral issues can be included in the

accompanying policy dialogue.

3.3 Cross-cutting issues

While advancing civil and political rights of all, this action will particularly promote the participation

of women, minorities and persons with disabilities in the political field and work on their

protection against discrimination in line with ICCPR, CEDAW and CRPD, the findings of EU

EOM2013 and EFM 2016. This will be ensured through concrete outputs and indicators designed at a

project level. Furthermore a rights based approach will be integrated in the activities. ECP faces

critical challenge of closing existing gender gap of 11.6 million voters. There are barriers facing

women to stand as candidates. There is need for induction of qualified women to oversee polling and

election processes are other areas. Besides, facilities for women at the polling station including their

access need to be streamlined. This action will support the ECP institutional gender and minorities

sensitive policies for increasing hiring of female staff for ECP administrative,

management/monitoring positions including parity election and polling personnel, redressing the

under-representation of women on the electoral list (11.6 million women not included), adequate

representation as candidates and the inclusion of minorities in electoral process, taking resolute action

against barring women from voting, use of gender-disaggregated data, measures to promote women

participation through increasing the number of women candidates on general seats and reform of the

system of allocation of reserve seats. The rights holders/vulnerable groups, such as women and

minorities shall also be encouraged through Purpose 2 to become part of domestic observation and

advocacy for electoral reforms. ECP led Gender, Minorities and Disability Working Group will be

supported through relevant programmatic interventions. The programme will address issues of good

governance and conflict prevention by fostering citizens-state dialogue on electoral reform for

general, provincial and local elections.

4 DESCRIPTION OF THE ACTION

4.1 Objectives/results

The overall objective of the program is to contribute to the consolidation of democracy in Pakistan

through improved electoral process with a focus on their enhanced credibility and inclusiveness.

The specific purposes are the following: 1: to assist sustainable institutional development of the

Election Commission of Pakistan; and 2: to strengthen domestic capacities for observation of

electoral processes and advocacy for electoral reforms. These will be achieved through a coherent

set of feasible activities under a number of prioritized results. The expected results shall lead to a

positive impact in selected critical problem areas as elaborated in detail in the section 1.1.3 above

based on the problem tree.

[12]

This programme is relevant for the Agenda 2030, It contributes primarily to the progressive

achievement of SDG targets under Goal 16 "Promote peaceful and inclusive societies for sustainable

development, provide access to justice for all and build effective, accountable and inclusive

institutions at all levels"; but also promotes progress towards Goal 5 "Achieve gender equality and

empower all women and girls". Relevant targets under these two broad goals include: 16.6 "Develop

effective, accountable and transparent institutions at all levels"; 16.7 "Ensure responsive, inclusive,

participatory and representative decision-making at all levels"; 5.1 "End all forms of discrimination

against all women and girls everywhere"; and 5.5 "Ensure women’s full and effective participation

and equal opportunities for leadership at all levels of decision-making in political, economic and

public life". This does not imply a commitment by the country benefiting from this programme.

4.2 Main activities

Purpose 1:To assist sustainable institutional development of the Election Commission of Pakistan

Expected Result 1: ECP capacities are developed for advanced planning of elections and

enhanced accountability mechanisms in managing operations.

Indicative Activities (capacity development and technical assistance):

a. Strengthen capacity to plan and prepare elections through development of policy, strategic and

operational planning, and management processes and systems development in line with the current or

planned revised legislative framework governing the ECP work;

b. Strengthening financial management to assist transition into a fully independent financial status

foreseen under the planned revised electoral bill (budgetary planning and execution; financial

monitoring and reporting, procurement management);

c. Support and advice the enhancement of well-engendered human resource management systems with

a particular focus on temporary election and polling staff with the required qualifications and integrity

standards (selection, appointments, verification of credentials, performance management);

Expected Result 2: ECP training capacities are developed to address needs of the ECP staff and

other actors involved in the electoral processes

Indicative Activities:

a. Assist development of a recently established training department into a strong staff training

function;

b. Assist implementation of training covering the needs of the permanent and temporary staff involved

in electoral and polling processes at the federal, sub-national and local levels;

c. Contribute to the possible creation of the Federal Election Academy (foreseen in the planned revised

electoral bill) through assistance to development of curricula, training and trainers materials, training

of trainers, capacity development of staff;

Expected Result 3: ECP internal monitoring and evaluation capacities are developed

Indicative Activities:

a. Assist development of a recently established operational monitoring department into a strong

monitoring and evaluation function (through development of monitoring and evaluation framework,

ICT-based electoral monitoring tools; follow-up and enforcement mechanisms for Codes of Conduct,

monitoring and evaluation of implementation of the ECP’s Strategic Plan, including through third

party validation;

b. Assist in developing standard monitoring operating procedures;

c. Capacity development for planning of human resources for monitoring and evaluation;

d. Capacity development of core permanent and other temporary staff, including for monitoring of all

aspects of electoral processes and code of conducts developed by the ECP for other actors involved in

elections;

Expected Result 4: ECP capacities are developed to support inclusive and non-discriminatory

electoral processes.

[13]

Indicative Activities:

a. Strengthening a newly created gender and minority department (research, multi-stakeholder

consultation at local levels; CSOs involvement, policy advocacy addressing the needs of minorities,

women and people with special needs, interface with the Parliamentary Committee on Electoral

Reforms and Women Parliamentary Caucus);

b. Strengthening a recently created ECP's Gender and Disabilities Electoral Working Group for policy

making on cross cutting issues especially women, minorities and people with special needs;

c. Assist development and implementation of a gender strategic plan to address a gender gap of 11

million voters;

d. Assist development of policy, legislative and procedural framework;

Expected Result 5: Improved institutionalised coordination and collaboration mechanisms of the

ECP with key stakeholder groups involved in the electoral processes: donors and their

implementing agencies, civil society, political parties, and media.

Indicative Activities:

a. Assist ECP to acquire a stronger ownership of the electoral processes implemented by different

partners. Assist the ECP's Coordination Wing with coordinated results-oriented planning and

implementation with stakeholders in a non-partisan manner;

b. Develop collaboration mechanisms with CSOs involved in electoral processes (improving

accreditation system, communication, legally binding, revised all ‘Code of Conduct for ’ prepared and

adopted through an inclusive consultative process);

c. Supporting ECP in multiparty-party dialogue on key issues such as management of electoral

process, enforcement of the related code of conduct, electoral legislative reforms;

d. Strengthening the ECP's Media Wing for improved engagement with media and development of

ECP communication products;

e. Support revision and implementation of the ECP's Communication, Outreach and Visibility Strategy

including electoral literacy campaigns;

f. Strengthening the ECP - NADRA interface for better coordination on improving voters’

identification, rectifying past registration practices in an inclusive manner;

g. Strengthening the ECP District Administration/Police interface for better coordination on polling

day responsibilities and better understanding of each other’s role.

Purpose 2: To strengthen domestic capacities for observation of electoral processes and advocacy for

electoral reforms.

Expected Result 6: Capacity development needs of domestic observation organisations (DOs)

addressed and their diversity, number and geographical coverage are increased.

Indicative Activities:

a. Assist non-traditional and non-partisan civil society segments (professional associations, women’s

and minorities’ groups, community based organisations, unions of media and students, bar councils

etc.) to become part of larger network of election observation

b. Provide capacity development for domestic observers in election day, pre and post-election day

observation / monitoring.

c. Design and implement training programs for DOs on the legislative framework of elections, election

rules, big data management, polling processes and monitoring techniques, developed and

implemented;

d. Self-assessment tools developed for the DOs for continuous appraisal of their work in election

observation

e. Assist an inclusive consultative process among the DOs for a comprehensive election monitoring

framework with realistic indicators and ensuring complementarity

f. Enhance the capacity of DOs to engage diverse groups of society and number of on-field observers

and from different geographical areas, including remote rural locations.

g. Support DOs in developing ICT based, user friendly, easy to access databases and logs of election

observations, including linkages with ECP District Complaint Committees, and user-friendly software

for consolidating real-time Election Day observations from the field; Training of DOs for

professionally using databases and the software.

[14]

Expected Result 7: Advocacy and networking capacity of observation organisations strengthened.

Indicative Activities:

a. Comprehensive program for advocacy capacity building of domestic observers;

b. Assist domestic observers with research, outreach and communication;

c. A consultative process initiated among the election bodies, legislative bodies and DOs for the

development of a strong legal framework covering all aspects of election and polling day observation

d. Revised ‘Code of Conduct for Observers’ prepared and adopted through an inclusive consultative

process.

4.3 Intervention logic

This Action has been designed to support sustainable organisational development on both the supply

and demand side of the electoral processes. Accordingly 5 result areas refer to the institutional

development of the ECP and 2 results areas address organisational capacities of the civil society. The

proposed indicative list of activities has been defined in reference to root causes of some critical

problems in selected areas as elaborated in detail in the attached Problem Tree.

The expected outcomes of this Action should impact positively on the progress of the democratic

transition and improved governance in Pakistan, limiting the risk of another military takeover of

powers. Support for enhanced transparency, credibility and inclusiveness of elections shall contribute

to the trust building between citizens and the authorities and mitigate the risk of the next elections

results being contested again, as it was the case after 2013 elections, which caused the political

instability.

Concerns and interests of marginalised groups will receive a special attention in this Action, with

focused activities planned on supply and demand sides. Activities planned under the Purpose 2 shall

support emergence of new CSO actors with adequate capacities in domestic observation and advocacy

for electoral reforms, which could better represent marginalised geographical areas and different

disadvantaged segments of the society.

Anchoring of the support directly with the ECP shall support the ownership of reforms and improved

coordination with donors and other partners involved in the management of elections. ECP is also

planned to be involved in an advisory role for the steering of activities under the Purpose 2 with a

view to support better quality of capacity building for election observation, understanding, and

cooperation with CSOs involved in the field of elections.

It is assumed that the political will for institutional reforms of the ECP will continue also after the

change of leadership of the ECP with the appointments of new Commissioners planned by the mid of

2016. It seems that the up-coming Parliament-led electoral reforms package offers a historic

opportunity to transform not only the electoral legal regime but also enable a substantial

transformation of ECP into an independent and more powerful electoral management institution.

However, while it is essential for the legislative framework to be amended to better enable a

comprehensive set of reforms aligned with new and clearly defined legal accountabilities of the ECP,

it is assumed that the institutional development shall be advanced regardless of the progress of

legislative changes, as recommended by the Supreme Court.

To support collaboration for reforms among the political parties and ECP this Action foresees a

technical assistance of a specialised EU organisation for ECP in a multi-party dialogue. EU dialogue

on management of elections and electoral reforms is also extended through the Election Observation

Missions, with the next requested to take place in 2018. Furthermore, the dialogue related to the

implementation of the GSP Plus has been instrumental in furthering the cooperation on democratic

transition as Pakistan’s commitments to international legal treaties including civil and political rights

form important part of this engagement.

[15]

5 IMPLEMENTATION

5.1 Financing agreement

In order to implement this action, it is foreseen to conclude a financing agreement with the partner

country, referred to in Article 184(2)(b) of Regulation (EU, Euratom) No 966/2012.

5.2 Indicative implementation period

The indicative operational implementation period of this action, during which the activities described

in section 4.1 will be carried out and the corresponding contracts and agreements implemented, is 48

months from the date of entry into force of the financing agreement.

Extensions of the implementation period may be agreed by the Commission’s authorising officer

responsible by amending this decision and the relevant contracts and agreements; such amendments to

this decision constitute technical amendments in the sense of point (i) of Article 2(3)(c) of Regulation

(EU) No 236/2014.

5.3 n/a

5.4 Implementation modalities

5.4.1.1 Grants: call for proposals "Strengthening capacities of civil society organisations active

in the field of elections" (direct management)

(a) Objectives of the grants, fields of intervention, priorities of the year and expected results

The objective of the grant is to strengthen domestic capacities for observation of electoral processes

and advocacy for electoral reforms.

The expected results are 6) Capacity development needs of domestic observation organisations (DOs)

addressed and their diversity, number and geographical coverage are increased; and 7) Advocacy and

networking capacity of observation organisations strengthened.

The type of actions eligible for financing will be in line with the indicative list of activities defined

under the expected results 6 and 7 above and will include: capacity development, training

programmes, technical assistance to support involvement of new civil society organisations with a

particular focus on ensuring geographical coverage of remote rural areas and representation of

disadvantaged groups like women, disabled and minorities, assistance in development of collaboration

links among the civil society organisations and between the CSOs and the ECP.

(b) Eligibility conditions

The lead applicant and potential co-applicants must be international or local non-profit organisations

or a grouping of those, which are established in a Member State of the European Union or in Pakistan.

They need to demonstrate experience in the field of domestic observation and advocacy for electoral

reforms, including experience and knowledge of the related context in Pakistan.

Subject to information to be published in the call for proposals, the indicative amount of the EU

contribution per grant is EUR 6,000,000 and the grant may be awarded to a mono beneficiary and to a

consortium of beneficiaries (coordinator and co-beneficiaries). The indicative duration of the grant (its

implementation period) is 45 months.

(c) Essential selection and award criteria

The essential selection criteria are financial and operational capacity of the applicant.

The essential award criteria are relevance of the proposed action to the objectives of the call; design,

effectiveness, feasibility, sustainability and cost-effectiveness of the action.

(d) Maximum rate of co-financing

The maximum possible rate of co-financing for grants under this call is 80 %.

[16]

In accordance with Articles 192 of Regulation (EU, Euratom) No 966/2012, if full funding is essential

for the action to be carried out, the maximum possible rate of co-financing may be increased up to 100

%. The essentiality of full funding will be justified by the Commission’s authorising officer

responsible in the award decision, in respect of the principles of equal treatment and sound financial

management.

(e) Indicative timing to launch the call

Fourth Quarter of 2016.

5.4.1.2 Procurement (direct management)

Subject in generic terms, if possible Type (works,

supplies,

services)

Indicative

number of

contracts

Indicative

trimester of

launch of the

procedure

Purpose 1 - to assist sustainable institutional

development of the Election Commission of

Pakistan

Service 1 4th quarter 2016

5.5 Scope of geographical eligibility for procurement and grants

The geographical eligibility in terms of place of establishment for participating in procurement and

grant award procedures and in terms of origin of supplies purchased as established in the basic act and

set out in the relevant contractual documents shall apply, subject to the following provisions.

The Commission’s authorising officer responsible may extend the geographical eligibility in

accordance with Article 9(2)(b) of Regulation (EU) No 236/2014 on the basis of urgency or of

unavailability of products and services in the markets of the countries concerned, or in other duly

substantiated cases where the eligibility rules would make the realisation of this action impossible or

exceedingly difficult.

5.6 Indicative budget

Focus of Programmatic Support EU

contribution

(amount in

EUR)

Indicative

third party

contribution,

in currency

identified

Purpose 2: To strengthen domestic capacities for observation of

electoral processes and advocacy for electoral reforms.

Results 6 and 7

5.4.1.1 – Call for proposals "Strengthening capacities of civil

society organisations active in the field of elections" (direct

management)

6,000,000 EUR 1,500,000

Purpose 1: To assist sustainable institutional development of the

Election Commission of Pakistan.

Results 1, 2, 3, 4 and 5

5.4.1.2 Procurement (direct management) – Service contract 8,300,000

5.9 Evaluation, 5.10 Audit 200,000

5.11 Communication and visibility* 300,000

[17]

Contingencies 200,000

Total 15,000,000 EUR 1,500,000

* this will not be contracted separately but rather as part of a larger contract of the EU Delegation

5.7 Organisational set-up and responsibilities

Separate management structures will be established for the Purposes 1 and 2. Detailed composition

and terms of reference for the proposed 2 steering committees will be agreed in the programme

inception phase.

Purpose 1: activities will be implemented under the leadership of the Election Commission of

Pakistan through a dedicated service contract.

Project Steering Committee (PSC): PSC will be constituted to provide overall direction, strategic

guidance and management decisions. The PSC will be responsible for approval of work plans and

periodic reviews of progress. PSC will be chaired by ECP. Team Leader of the technical assistance

will provide administrative support to PSC. The membership and detailed terms of reference of the

PSC will be agreed in the project inception phase. Indicatively members will include representatives

of ECP (central and provincial levels), EAD, and EU as an observer. Dedicated technical working

groups reporting to the PSC may also be constituted co-chaired by relevant staff of ECP to lead

capacity development of specific institutional units/functional areas, such as training or monitoring.

PSC meetings will be convened half-yearly. Working groups can meet as and when required. Any

additional ad-hoc meetings can also be called, if required.

Capacity development and technical assistance: EU Delegation to Pakistan will procure services of

company or a consortium and will be responsible for management of the contract. The team will

include up to 4 key experts (including the Team Leader) who will be responsible for outputs in the

selected results areas. Team Leader (TL) will be responsible for implementation management, of

activities in coordination with different stakeholders. The experts shall be located ideally in the

premises of the ECP, provided sufficient office space would be made available. SA large pool of

short-term experts will be mobilised regularly in line with the detailed implementation plan approved

by the PSC. Each expert will be approved by the EU Delegation after prior consultation with the ECP.

Purpose 2: activities will be implemented through a dedicated grant contract.

Project Steering Committee (PSC): will be constituted to provide overall direction, strategic guidance

and management decisions. The PSC shall meet on a half-yearly basis. The members will include

representatives of the civil society and the technical assistance. ECP will be involved in an advisory

role. Geographical coordination units can be formed as needed with more frequent meetings as may be

required.

Capacity development and technical assistance will include up to 4 key experts (including Team

Leader), who will be responsible for outputs in different results and geographical areas. Team Leader

(TL) will be responsible for implementation management, of activities in coordination with different

stakeholders. EU Delegation to Pakistan will conclude a grant contract with a non-profit organisation

and will be responsible for management of the contract.

5.8 Performance monitoring and reporting

Anchored in the principles of results based management and Key Performance Indicators, the M&E

system established by the implementing partner shall correspond to the performance management

system of beneficiary institutions - ECP.

The day-to-day technical and financial monitoring of the implementation of this action will be a

continuous process and part of the implementing partner’s responsibilities. To this aim, the

implementing partners shall establish a permanent internal, technical and financial monitoring system

for the action and elaborate regular progress reports (not less than annual) and final reports. Every

report shall provide an accurate account of implementation of the action, difficulties encountered,

changes introduced, as well as the degree of achievement of its results (outputs and direct outcomes)

[18]

as measured by corresponding indicators, using as reference the log frame matrix (for project

modality) or the list of result indicators (for budget support). The report shall be laid out in such

a way as to allow monitoring of the means envisaged and employed and of the budget details for the

action. The final report, narrative and financial, will cover the entire period of the action

implementation.

The Commission may undertake additional project monitoring visits both through its own staff and

through independent consultants recruited directly by the Commission for independent monitoring

reviews (or recruited by the responsible agent contracted by the Commission for implementing such

reviews).

Such monitoring reviews could be undertaken also jointly with other donors active in the sector of

intervention in reference to the Joint Results Framework agreed by the key donors. Furthermore

capacity development will be provided for a monitoring function of the ECP.

5.9 Evaluation

Having regard to the importance of the action, a mid-term, and final and/or ex-post evaluation will be

carried out for this action or its components via independent consultants contracted by the

Commission.

Mid-term evaluation will be carried out for the purpose of problem solving, learning purposes, in

particular with respect to course correction and to adapt planning of activities based on lessons learnt.

Final and/or ex post evaluation will be carried out for accountability, and learning purposes at various

levels (including policy revision) taking into account in particular the fact that lessons learnt could

feed into any following EU assistance programming.

The Commission shall inform the implementing partner at least 15 days in advance of the dates

foreseen for the evaluation missions. The implementing partner shall collaborate efficiently and

effectively with the evaluation experts, and inter alia provide them with all necessary information and

documentation, as well as access to the project premises and activities.

The evaluation reports shall be shared with the partner country and other key stakeholders. The

implementing partner and the Commission shall analyse the conclusions and recommendations of the

evaluations and, where appropriate, in agreement with the partner country, jointly decide on the

follow-up actions to be taken and any adjustments necessary, including, if indicated, the reorientation

of the project.

Indicatively, two contracts for evaluation services shall be concluded in the 4th quarter of 2018 (mid-

term evaluation) and in the 3rd quarter 2021 (final and/or ex-post evaluation).

5.10 Audit

Without prejudice to the obligations applicable to contracts concluded for the implementation of this

action, the Commission may, on the basis of a risk assessment, contract independent audits or

expenditure verification assignments for one or several contracts or agreements.

Indicatively, one contract for audit services shall be concluded in the 1st quarter of 2021.

[19]

5.11 Communication and visibility

Communication and visibility of the EU is a legal obligation for all external actions funded by the EU.

This action shall contain communication and visibility measures which shall be based on a specific

Communication and Visibility Plan of the Action, to be elaborated at the start of implementation and

supported with the budget indicated in section 5.6 above.

In terms of legal obligations on communication and visibility, the measures shall be implemented by

the Commission, the partner country, contractors, grant beneficiaries and/or entrusted entities.

Appropriate contractual obligations shall be included in, respectively, the financing agreement,

procurement and grant contracts, and delegation agreements.

The Communication and Visibility Manual for European Union External Action shall be used to

establish the Communication and Visibility Plan of the Action and the appropriate contractual

obligations.

Direct implementation modalities will be used for implementation of those activities. Services will be

contracted by the EU Delegation possibly to be combined in one contract with the assistance planned

for the Election Commission of Pakistan or as part of a larger contract of the EU Delegation dedicated

to a joint communication and visibility activities covering all sectors of cooperation and with the

possibility of using budget allocations under different decisions.

Indicative table of communication and visibility measures to be launched:

Subject in generic terms, if possible Type (works,

supplies,

services)

Indicative

number of

contracts

Indicative

trimester of

launch of the

procedure

Communication and visibility actions Services 1 1st quarter 2017

[20]

APPENDIX - Indicative Logframe matrix (for project modality) * - aligned with the sector policy framework (ECP Strategic Plan 2014-18 and Elections 2013 - Inquiry Commission Report 2015

** - aligned with the EU Results Framework

*** - aligned with the Joint Donor Results Framework for electoral support in Pakistan (main donors: EU, UK/DFID, US and Canada)

Overall objective: Impact

Results chain Indicators Baselines

(incl. reference year)

Targets

(incl. reference year)

Sources and

means of

verification

Assumptions

Politically stable

Pakistan with

improved electoral

processes with a

focus on their

credibility,

transparency and

inclusiveness.

1. Peaceful transfer of power endorsed by

mainstream parliamentary parties.

2. Enhanced democratic legitimacy and stability

of democratic institutions***

3. Level of political participation - increased

level of voter turnout and in particular women

voters (disaggregated by gender).*&***

4. Increased proportion of seats held by women

in national parliament and provincial

assemblies.*&** Level 1, Indicator 31 (also

used by DFID)

5. Level of compliance with EU and domestic

observers' recommendations and Pakistan

human rights obligations.***

6. # of elections supported by the EU where the

electoral process is perceived by independent

observers as free and fair .**Level 2, Indicator

2 (also used by DFID)

7. Objectivity, independence and

professionalism of international and domestic

observation and media contributes to

validation of credibility of electoral processes

1. Regular elections since 2008.

2. Democratic legitimacy

undermined, opposition contests

outcomes of 2013 elections.

3. Voter turnout in 2013 elections,

status on marginalised groups

(disaggregated by gender).

4. Status in the current national

assembly and provincial

assemblies.

5. As in the Report of Election

Observation Follow-up Mission

of February 2016.

6. 0 – as per instructions of the EU

Result Framework.

7. Limited professionalism,

independence and geographical

coverage of media and domestic

observation. Limited involvement

of disadvantaged groups in

domestic observations.

Ineffective accreditation system

1. Peaceful transition of

powers through 2018

elections.

2. Stable democratic

institutions sustained

after 2018 elections.

Democratic legitimacy

accepted by all parties.

3. Increased no of voter

turnout (disaggregated

by gender). Increased no

of marginalised voters.

4. Increased no of women

per assembly.

5. EOM reports progress of

reforms.

6. 1 (National elections in

2018) & more local ones

7. No of new domestic

observers representing

disadvantaged groups

and extending coverage

Bertelsmann

Transformation

Index

Annual Reviews

of ECP Strategic

Plans

Specific ECP

reports on

inclusion of

women,

minorities,

people with

disabilities etc.

EOM and EFM

Reports

Reports by

Domestic

Observer Groups

White papers

issued by parties

Local and

international

No major security

threats and

recurrent political

crisis impacting

on operational

delivery of

elections as

planned.

Military

supportive of

democratic

transition

Political

consensus

produces an

effective revised

electoral

legislative

framework on

time for 2018

elections.

ECP maintains

commitment to

institutional

[21]

of domestic observers. EUEOM to remote areas. EOM media coverage reforms.

Donor support to

elections in

Pakistan is better

coordinated with

ECP in the lead.

Specific Purpose 1 (Outcome)

Results chain Indicators Baselines

(incl. reference year)

Targets

(incl. reference year)

Sources and

means of

verification

Assumptions

Substantial and

sustainable

institutional

development of ECP

enabling enhanced

fulfilment of its

mandate

1. Level of progress on implementation of the ECP

Strategic Plan and Gender Strategic Plan*&***

2. ECP budget reflects institutional priorities;

Increased % of budget utilisation;*&***

3. ECP management of elections improved

through advanced planning (min 6 months ahead)*

4. Improved level of compliance of ECP officials

with electoral legislation and ECP regulations;

non-compliance investigated and

sanctioned*&***

5. Increased number of female staff at ECP

secretariats/offices at all levels (including female

polling staff); *&***

6. Effective measures enforced against barring

women from voting and increasing women voter

turnout; gender gap reduced*&***

7. Observer access enshrined in the law and

practices of ECP. *&***

1. Absence of M&E system

for ECP Strategic Plan

2. Absence of financial

autonomy

3. Lack of advanced

planning.

4. Lack of effective internal

monitoring and

accountability

mechanisms. Fragmented

electoral legal

framework with outdated

provisions

5. Limited no of female

staff in ECP and absence

of supportive HR policy..

6. Lack of specific policies.

Gender gap of around 11

millions

1. Progress according to plans.

GSP launched, SP revised.

2. ECP budget fully aligned with

priorities; budget utilisation

close to 100%

3. ECP prepared to run elections

at least 6 months in advance.

4. Internal monitoring and

accountability mechanisms

established and enforced.

5. Specific policy adopted and

operationalised

6. ECP formulates and

implements plan to reduce

gender gap of 11 million in

electoral process

7. Revised accreditation system

developed through consultative

process in place ahead of

ECP Reports

and Reviews

Budget &

utilisation

reports

Policy

documents,

operational

plans

Internal

monitoring

reports

ECP published

data on

electoral

processes

Reports and

monitoring

data of civil

Appointments at

senior level in

ECP support

reforms

ECP assumes

leadership of

electoral reforms

Political

consensus on

legal reforms

leads to a new

electoral bill

Legal

framework

supporting

independence

and

accountability of

ECP

Other

[22]

8. ECP stakeholder outreach effectively

contributing to credibility. ECP operations and

procedures are voter centric and responsive to

citizens’ expectations of electoral process*&***

9. 6 Codes of Conducts issued by ECP enforced.*

7. Lack of effective

accreditation for

observer organisations

8. Limited stakeholder

outreach and satisfaction

levels of voters, political

parties, etc;

9. Insufficient enforcement

elections

8. Improved two way

communication and

collaboration between ECP and

citizens and improved level of

satisfaction of various groups

9. Revision of CoCs as required,

increased enforcement levels

society/Think

Tanks and

Media

institutions

involved in

electoral

processes, civil

society, political

parties and

media cooperate

effectively with

ECP

Specific Purpose 2 (Outcome)

Results chain Indicators Baselines

(incl. reference year)

Targets

(incl. reference year)

Sources and

means of

verification

Assumptions

Domestic capacities

are strengthened for

observation of

electoral processes

and advocacy for

electoral reforms

1. Competent local observers representing

diverse sectors of society are allowed and

ensure wide coverage of elections monitoring,

including in remote areas, and share their

findings without any hindrance.

2. New organisations engage in domestic

observation and ensure representation of

diverse disadvantaged groups

3. Wide geographical coverage is ensured by

domestic observers with particular focus on

remote rural areas

4. Competency levels and reporting mechanisms

of domestic observers are improved

5. Enhanced effectiveness of advocacy efforts in

support of electoral reforms. ***

6. Increase in joint and coordinated advocacy

1. Domestic observation is

dominated by one large

network; many observers

do not get accreditation

or get it too late

2. Domestic observation

excludes non-traditional

society actors

3. Absent or limited

coverage of remote rural

areas

4. Limited capacities for

long-term and election

day observation;

competency levels may

require improvement

also in view of the

1. Improved quality and increased

quantity of reports; healthy

competition

2. No of new organisations

representing marginalised

groups

3. No of new remote rural areas

covered by observation

4. No of people trained

disaggregated by gender and

targeted groups)

5. Effective advocacy and

communication campaigns

conducted; common messages

enabling coordinated political

dialogue produced and utilised

effectively ***

Observation

reports,

monitoring

data

Media

reporting

ECP and

donor

organisations

assessments

Field of

domestic

observation does

not remain

heavily

monopolized

DOs overcome

constrains of

logistical and

security

problems to

develop required

capacities

Communication

and

collaboration

between Dos

and ECP is

[23]

efforts among CSOs***

7. Increased capacities of CSOs representing

diverse groups enabling advocacy for reforms

8. Increased professionalism and coverage of

electoral processes by media

anticipated new law;

5. Limited effectiveness of

demand for reforms

6. Limited networking

7. Under-represented

marginalised groups and

limited capacities

Limited professionalism,

independence and

coverage

6. No of joint or coordinated

initiatives

7. No of people trained

(disaggregated by gender and

targeted groups)

effective

Specific Purpose 1 (Outputs): To assist sustainable institutional development of the Election Commission of Pakistan

Results chain Indicators Baselines

(incl. reference year)

Targets

(incl. reference year)

Sources and

means of

verification

Assumptions

Output 1.1 ECP

capacities developed

for advanced

planning of elections

and enhanced

accountability

mechanisms in

managing

operations.***

1.No of staff trained disaggregated by

gender*

2. Operational plans developed well in

advance of elections and implemented on

time*&***

3. No of policies, plans and management

systems developed in line with the

current or new legislative framework

(incl. revised HR management policy

and HR planning with a focus on

permanent and temporary staff)*

4.No of financial and procurement

regulations developed*

5.Increased number of female staff at

ECP secretariats/offices at all levels*

1. TBC in the inception

phase; lack of capacities to

plan and implement large

scale training; and monitor

training

2.Absence of advanced

planning

3.&4.TBC in the inception

phase (linked to the

anticipated new law) Some

revision to HR policies

implemented.

5. Less than 10% of ECP

staff are women

1. Review the ECP’s organizational structure and

human resources and identify any gaps in the

system* No of staff trained – TBC in the

inception phase

2. Operational plans finalised by the end of 2017

and implemented during 2018 elections and

any subsequent elections

3. a) Partnerships developed between ECP and

Foreign Electoral Management Bodies, Think

Tanks and academia for learning/ research and

election management b) ECP HR management

policy and planning developed and

implemented for permanent and temporary

staff ahead of 2018 elections. c) Procurement

management adapted to support advanced

planning of elections. More TBC in the

inception phase (linked to the anticipated new

ECP

Annual

Report to

Parliament

Annual

Review of

ECP

Strategic

Plan

Project

Progress

Reports

Publicised

data on the

electoral

process

Schedule of

elections is not

disrupted by

unexpected political

developments

Timely execution of

electoral assistance

is not disturbed by

security

environment

New ECP leadership

does not disown

reform agenda

New legislation

supports a

comprehensive

[24]

law) No TBC in the inception phase

4. No of financial regulations and working

procedures adapted to support enhanced

accountability; No TBC in the inception phase

(linked to the anticipated new law)

5. No of ECP female staff increased by min 30%

reform programme

Output 1.2 ECP

training capacities

are developed to

address needs of the

ECP staff and other

actors involved in

the electoral

processes

1. Organisational set up and staffing of

the training wing reviewed and adapted

to needs*

2.Improved training management

capacities of ECP; No of ECP staff ,

disaggregated by gender, dedicated to

training management who benefited from

capacity development, disaggregated by

gender and province*

3. No of permanent and temporary staff

administrative, (election and polling

staff) who benefited from pre- election

2018 training, disaggregated by gender

and province*

4. No of training curricula, training

materials and trainer manuals

developed*

5. Number of staff who benefited from

TOT training*

1. Training wing

recently formed with a

very limited no of staff;

absence of adequate

capacities for staff

training; Federal

Election Academy still

to be established.

2. 0

3. 0 (TOT initiated in

2016)

4. Some curricula and

training materials for

TOTs developed

5. TOTs initiated in

2016 and on-going.

1. Revised organisational design and staffing of

the training wing

2. a) Training needs assessments conducted at

national, provincial, and local levels.

b)Training plan in place in support of

advanced planning of elections

HR;c)monitoring and quality assurance

capacities developed; d)No of staff trained –

TBC in the inception phase

3. Min. No: 1200 District Returning

Officers/ROs; 50,000 Monitors; 2500 Master

Trainers / Lead trainers) – indicative numbers

TBC in the inception phase based on progress

4. Six Training curricula developed for as many

training streams including training materials

(manuals, audio-visual aid material, etc)

5. No TBC in the inception phase based on

progress

Revised org

chart and

staffing

Training

implementa

tion reports

Produced

curricula,

materials

and

manuals

ECP ensures

coordination and no

overlap between

donor agencies

complementing to

delivery of a large

scale training

programme at

central and local

levels

ECP puts in place

training monitoring

to ensure delivery of

quality training

No major

unexpected turnover

of trained staff

causing disruptions

electoral processes

Output 1.3 ECP

internal monitoring

and evaluation

capacities are

developed

1. Organisational set up and staffing of

the monitoring unit reviewed and

adapted to needs*

2. No of ECP staff dedicated to

monitoring and evaluation who benefited

from capacity development,

1.The unit recently formed

with a very limited

staffing

2. 0

3. Non existent

1. Organisational review conducted, leading to

revised organisational chart and staffing

2. No of M&E staff trained TBC after the

organisational review and revision of staffing

3. Procedures defined latest by the end of 2017

Revised

organisation

al chart and

staffing

Training

reports

Institutional

acceptance of

internal M&E

Other stakeholders

involved in electoral

processes cooperate

[25]

disaggregated by gender and province*

3. Standard operating procedures

developed and operationalised*

4. ICT tools for monitoring and

evaluation developed and utilised

effectively*

5. Follow-up and enforcement

mechanisms in place for ECP staff

performance*

6. Follow-up and enforcement

mechanisms in place for ECP-issued 6

Codes of Conducts*

7. Enhanced M&E and reporting

capacities for implementation of ECP

Strategic Plan*

4. No ICT tools available

5. Very limited capacities,

pilot testing initiated

6. No systems in place

7. Limited capacities,

donors support covers

insufficient institutional

capacities

and operationalised in 2018 elections

4. ICT tools in place latest by the end of 2017

and utilised in 2018 elections

5. Defined latest by the end of 2017 and utilised

in 2018 elections

6. Defined latest by the end of 2017 and utilised

in 2018 elections

7. Min no of staff trained disaggregated by

gender. Improved ECP reporting of 2016

implementation and onwards.

Documents

of standard

op

procedures

ICT tools in

place

Documents

defining

follow-up

and

enforcement

mechanisms

to enforce CoCs

Output 1.4 ECP

capacities developed

to support inclusive

and non-

discriminatory

electoral

processes.***

1. Well resourced, budgeted and

adequately capacitated Gender Affairs

Wing fully operational*

2. Implementation of Gender Strategic

Plan progresses as planned*

3. Legislative and procedural framework

developed and operational to support

inclusive electoral processes*

4. Consultation mechanisms with

marginalised groups institutionalised*

5. Interface with the Parliament

established (including Women Caucus)*

6. Electoral Gender Gap in registered

voters (11 m) reduced by at least 30

%*&***

1.Newly established

gender and disability unit

with limited staffing and

capacities

2. GSP under development

in consultation with

stakeholders

3. Absent

4. Initiated recently

5. Limited and on an ad

hoc basis

6. 11 million gender gap in

electoral processes

7. Non existent

1. Revised organisational design and staffing of

the gender wing before the end of 2017.*

2. a)Research capacities developed and research

conducted on issues related to inclusive

electoral processes, including to identify

barriers which prevent women and people

with disabilities from registering and

exercising their voting rights*; b)Capacities

developed for implementation coordination

and M&E for SGP by the end of 2017

3. Draft framework developed by the end of

2017; Approved and operationalised in

advance of 2018 elections

4.&5.Established as part of the organisational

review and redesign before the end of 2017

6. a)Strategy developed and implementation

progress to reduce the gap between men and

Donor

reports

Media

coverage

ECP reports

Impact

Assessment

Studies

Research

papers

Documents

adopted –

GSP, leg.

framework

Continued

commitment of ECP

to fostering multi-

stakeholder

cooperation

ECP continued

commitment to

improve HR gender

balance

Financial and

logistical challenges

do not prevent

adaptations of

polling stations to the

needs of women and

people with

disabilities

[26]

7. No of polling stations adapted to the

needs of women *

8. No of polling station adapted to the

needs of people with disabilities*

9. Increased no of female polling

staff*&***

10. Develop curricula, training materials

and trainer manuals to train ECP staff on

gender issues

11. No of ECP staff disaggregated by

gender who benefited from training on

gender issues, including TOT

8. Non existent

9. No of female polling

staff in 2013 Elections

10. Absent

11. 0

women on the electoral rolls*; b)Strategy

developed and implementation progress for

reducing voter turnout gaps between men and

women*; c) Review existing guidelines for

polling staff for effective recording of gender

disaggregated results in Forms XIV, XVI and

XVII*

7.&8. TBC in the inception phase

9. Develop a mechanism for increasing the

percentage of female polling staff* Increased

no of female polling staff by at least 30%

10. 1 set of curriculum, learning materials and

trainer manuals developed in 2nd half of 2017

11. Number of staff trained - TBC in the inception

phase (disaggregated by gender)

Output 1.5

Improved

institutionalised

coordination and

collaboration

mechanisms of the

ECP with key

stakeholder groups

involved in the

electoral processes:

donors and their

implementing

agencies, civil

society, political

parties, and media.

1. Media Wing organisational set up

adapted to needs and staff capacities

developed

2. Two way communication strengthened

between ECP and political parties;

regular dialogue held on issues related to

electoral processes*

3. Strategic Communication Plan (SCP)

developed and implemented covering

communication with different groups of

stakeholders*

4. Improved ECP website for reaching

voters*

5. Implement regular briefings for media

and CSOs*

6. Revised accreditation system of

1. Limited capacity of the

Media Wing

2. Absence of mechanisms

for inter party dialogue

with ECP

3. Absence of

communications plan

4. Website with limited

capacities

5. Limited briefings

6. Accreditation exists but

lacks efficiency and

consensus on modalities

7. Existing CoCs lacking in

enforcement and buying-

1. Organisational design reviewed and adapted to

needs, No of staff trained – TBC in the

inception phase and after the organisational

review

2. A two-way communication mechanism with

political parties developed; at least quarterly

consultations on issues related to electoral

reforms and various electoral matters*

3. Strategic Communication Plan developed in 2nd

half of 2017 and implemented for enhanced

alignment and coordination of electoral

stakeholders*

4. Website redesigned and adapted to the SCP

needs in 1st quarter of 2018

5. Quarterly engagement plan developed in 2nd

half of 2017 and implemented for closer

Revised

organisation

al chart of

the media

wing

Records of

multi-party

dialogues,

media

briefings

CSP

Document

and

implementat

ion reports

Website

content

Political parties

willing to collaborate

with ECP

Key groups

cooperate on

enforcement of

COCs

CSOs cooperate with

ECP in consultations

for development of a

revised accreditation

system

Making the COCs

legally binding

would depend on

consensus with the

targeted groups and

[27]

domestic observers in place ahead of

2018 elections

7. Code of Conducts for different target

groups developed as may be required

through an inclusive consultation;

acceptance and enforcement

strengthened

in from stakeholders

collaboration with media and civil society

6. Accreditation system revised and improved

through consultative process at least six months

before the 2018 elections (end of 2017)

7. Revised codes of conduct developed through

consultative processes and in place before the

2018 elections – No TBC in the inception phase

Accreditatio

n document

Code of

Conduct

documents

and

enforcement

reports

legislative

framework

Specific Purpose 2 (Outputs): To strengthen domestic capacities for observation of electoral processes and advocacy for electoral reforms.

Results chain Indicators Baselines

(incl. reference year)

Targets

(incl. reference year)

Sources and

means of

verification

Assumptions

Output 2.1 Capacity

development needs

of domestic

observation

organisation

addressed and their

diversity, number

and geographical

coverage are

increased.***

1 New networks of DOs emerging. Healthy

competition in place***

2. New CSOs engaged in domestic observation

representing marginalised segments of society

(women, minorities, people with disabilities

etc)***

3. Coverage of domestic observation significantly

extended to remote rural areas (with limited or no

coverage before)***

4. No of DOs networks who benefited from

capacity development, able to perform wide scale

electoral observation

5. No of CSOs staff, disaggregated by gender, who

1. Dominated by one large

network for domestic

observation, lack of

competition

2. Under-represented

currently

3. Very limited or not

existing coverage

currently

4. TBC depending on

demand

5. TBC in the inception

1. At least one new network before

2018 elections

2. At least 10 new DOs

3. At least 10 areas per province

4. No TBC based on demand; a) Self-

assessment tools developed for

DOs for continuous appraisal of

their work in election observation;

b) DOs assisted to develop a

comprehensive election monitoring

framework with realistic indicators

c)Links with international

observers established

EOM 2018

report

ECP and

donor

funded

reports

Training

records

Data from

civil society

IT tools in

use

New domestic

observers come

forward for

competition

Civil society and

media able to

operate (freedom,

funding, technical

capacity etc.)

Neutrality of civil

society and media

organisations

DOs committed to

[28]

benefited from capacity development in

continuous pre to post-election observation

observation, legislative framework of elections,

election rules, big data management, polling

processes and monitoring techniques, use of

common IT data collection tools etc

6. Interface between DOs and ECP established and

functioning through regular institutionalized

consultative mechanisms and communication tools

7. User friendly common IT tools available to

support collaboration among DOs, and between

DOs and ECP, including for consolidating real-

time election day observations from the field;

8. Level of implementation of EOM and EFM

recommendations with regard to election

observation standards

9. Domestic Observers operate in accordance with

a well-defined legal framework and accept and

enforce the related Code of Conduct

phase

6. Absence of

institutionalised

consultative

mechanisms, some ad-

hoc consultations

initiated recently by the

ECP Gender and

Disability Wing

7. Absence of common IT

tools

8. As defined in the EOM

2013 and EFM 2016

9. CoC for observer needs

revision in consultation with

DOs; insufficient level of

enforcement

5. a) No TBC in the inception phase,

maximum possible number in

advance of 2018 elections; b) no of

women observers increased

6. Established in 2nd half of 2017 and

operational in advance of 2018

elections

7. DOs networks supported through

this action adopted user-friendly IT

tools and utilise for next elections

8. All recommendations addressed

and implemented in national, by-

and local elections

9. Revised COC enforced by DOs in

2018 elections and onwards

cooperate with

ECP

ECP engaged in

advising on

capacity

development of

DOs

EOM 2018

implemented

Output 2.2

Advocacy and

networking capacity

of CSOs

strengthened.

1 No of media and CSOs staff, disaggregated by

gender, who benefited from related capacity

development

2. No of CSOs which benefited from capacity

development supporting networking

3. No of new networks engaged in advocacy

4. No of joint advocacy campaigns launched in

support of electoral reforms by local CSOs ***

5. No of media initiatives in support of advocacy

for electoral reforms

1. Limited capacities;

2. Dominated by one large

CSO network

3. Creation of new ones to

be supported

4. Limited number of joint

advocacy campaigns

5. 0

1. No TBC in the inception phase

2. No TBC based on demand

3. Min one new

4. Min 4; Key messages enabling

political dialogue produced and

utilised effectively ***

5. At least 2

Records of

trainings

ECP reports

CSOs reports

Media

content

Civil society/media

to able to operate

(freedom, funding,

technical capacity

etc.)