See related documentsElection observation report
| Doc. 14159
| 10 October 2016
Observation of the early parliamentary elections in Jordan (20 September 2016)
Author(s): Ad hoc Committee of the Bureau
Rapporteur : Mr René ROUQUET,
France, SOC
1. Introduction
1. On 26 January 2016, the Parliamentary
Assembly adopted
Resolution
2086 (2016) granting the Jordanian Parliament “partner for democracy”
status with the Parliamentary Assembly. It emphasised the importance
of organising free and fair elections as the cornerstone of a true
democracy and expressed the expectation that, consequently, it would
be invited to observe the parliamentary elections in Jordan, beginning with
the early elections scheduled for 2016.
2. At its meeting on 24 June 2016, the Bureau of the Assembly
decided to observe the parliamentary elections in Jordan, subject
to receiving an invitation. It set up an ad hoc committee for that
purpose, comprising 11 members and also including the rapporteur
of the Committee on Political Affairs and Democracy on “Evaluation
of the Partnership for Democracy in respect of the Parliament of
Jordan”, and appointed Mr René Rouquet (France, SOC) as Chair of
the ad hoc committee.
3. At its meeting on 5 September 2016, the Bureau took note of
the letter of invitation sent by Mr Khalid Al Kaladeh, Chairperson
of the Independent Election Commission of the Hashemite Kingdom
of Jordan.
4. In line with the co-operation agreement signed on 4 October
2004 between the Parliamentary Assembly and the European Commission
for Democracy through Law (Venice Commission), a representative
of the Venice Commission was invited to join the ad hoc committee
as a legal adviser.
5. The membership of the ad hoc committee, based on the proposals
of the Assembly's political groups, is reproduced in Appendix 1.
6. The ad hoc committee went to Jordan from 17 to 22 September
2016 and held talks inter alia with political
party representatives, Mr Shalem Hamad, Minister of the Interior,
Mr Ali Al Drabkeh, Secretary General of the Independent Election
Commission, as well as representatives of the international community
present in Jordan and representatives of civil society. The programme
of the meetings of the ad hoc committee is set out in Appendix 2.
The ad hoc committee wishes to thank the Jordanian authorities for
their help in organising this visit.
7. For the purpose of these elections, the Kingdom was divided
into 23 electoral districts (there were 45 such districts in 2012).
The electoral districts and the allocation of seats between the
12 governorates and the three Badia regions
were
defined in accordance with the 2016 law on elections and the regulations
governing electoral districts (No. 6/2016). This allocation is shown
in Appendix 3.
8. On polling day, the ad hoc committee split into six teams
which observed voting in Amman and its region, as well as the governorates
of Central Badia, Balqua, Jerash, Karak, Irbid, Madaba, Ma’an and
Tafileh.
9. The ad hoc committee concluded that the Independent Election
Commission had organised the poll with integrity and in full transparency.
The press release published at the end of the elections is reproduced
in Appendix 4.
2. Political context and legal
framework
2.1. Parliament
10. Jordan is a parliamentary constitutional
monarchy. It has a bicameral parliament, made up of the Senate and
the Chamber of Deputies. The members of the Senate are appointed
by the King by royal decree in the conditions laid down by the Constitution.
The term of office of senators is four years. Senators whose term
of office has expired may be appointed for a new term of office.
The number of senators (including the Speaker of the Senate) may
not exceed half the number of deputies. At present, the Senate has
75 seats. The Speaker of the Senate is appointed by the King by
royal decree for a two-year term of office, which is renewable.
11. The previous Chamber of Deputies, made up of members elected
by direct suffrage, was dissolved by the King on 31 May 2016. It
had been elected for four years in accordance with the legislation
adopted in 2012 and had 150 seats, of which 123 had been filled
by a direct, secret general ballot for single-mandate local constituencies.
Of those 123 seats 9 had been reserved for Christians, 9 for Bedouins,
3 for Chechens and Circassians and 15 for women. The other 27 seats
had been allocated to the political parties on the basis of a general
nationwide constituency by closed-list proportional representation.
12. The composition of the previous parliament had been strongly
characterised by a system allowing heavy representation of trans-Jordanian
tribes and various small groupings around eminent figures, at both
local and national levels. The latter tended to focus on issues
relating to their electoral strongholds rather than matters of national
importance.
13. Over the years, this attitude has prompted disinterest and
fairly strong dissatisfaction with regard to the work of the parliament
on the part of many Jordanians, resulting in fairly low election
turnouts. A further factor was the system of “active” voter registration
which required citizens interested in voting to be proactive and take
the necessary steps to have their names put on the electoral roll.
14. The new Chamber of Deputies will be constituted on the basis
of the results of the elections held on 20 September 2016, which
were organised in accordance with the law on elections amended in
March 2016.
It comprises 130 members elected by direct
suffrage, which is 20 members fewer than the dissolved chamber. The
number of reserved seats remains unchanged (36). The 130 members
are elected for a four-year term of office. The Speaker is also
elected. His term of office, which has been doubled, will be two
years.
15. The new law has introduced a fundamental change, with all
the deputies being elected by proportional voting from party lists.
This change is in line with the idea that Jordan needs a “parliamentary
regime”; King Abdullah II has stated for years that the Jordanian
Parliament must represent the entire ideological spectrum of parties
and that the Prime Minister should be elected by a government coalition.
The system of registration on the electoral roll has also been changed
and been made “passive”, with all citizens aged over 17 years and 90
days on polling day being registered automatically and entitled
to vote.
2.2. Government
16. Where relations between parliament
and the government are concerned, it should be remembered that, on
29 May 2016, King Abdullah II appointed Mr Hani al-Mulki, the Head
of the Aqaba Special Economic Zone Authority, to the post of prime
minister, replacing Mr Abdullah Ensour. Mr Hani al-Mulki had an
initial mandate of four months, ending after the elections of 20
September 2016, in particular to achieve the aims of Jordan's “Vision
2025” reform plan and implement the law on decentralisation, which
will not take effect before the municipal elections in 2017.
17. Mr al-Mulki's appointment marks a switch to a technical government,
acting without the support of a parliament. The Chamber of Deputies
was dissolved on 31 May 2016 and, in compliance with the Constitution, its
members immediately lost their prerogatives and no longer sit.
18. Following the elections of 20 September 2016, the King mandated
Mr Hani al-Mulki to form a new government on 25 September.
2.3. The reforms introduced by
the King
19. The powers of the Prime Minister
are limited, especially since the wave of constitutional amendments announced
in April 2016, which reinforced the authority of the executive,
and chiefly the powers of the King. On 27 April 2016, the Jordanian
Parliament passed a controversial constitutional amendment giving
the King the power to appoint and dismiss senior officials without
consulting the government.
20. A paragraph added to Article 40 of the Constitution empowers
the King to choose his successor, the head of the judiciary and
the president of the Constitutional Council. The King, who is the
supreme commander of the armed forces, also has the final say on
top-ranking posts in the army, the intelligence services and the National
Guard. The prerogatives linked to executive power exercised by the
King remain unchanged but, previously, his decisions had to be vetted
by the government, even if it rarely vetoed an appointment decided by
the King. With the constitutional amendment, the powers of the King
are now enshrined in legislation.
21. This consolidation of the King's powers must be viewed in
a broader and more complex political context and time-scale as well
as in the light of a long-term development strategy for the country.
In the wake of the “Arab Spring” protests, the King swiftly set
up i) a national dialogue committee, tasked with proposing legislative provisions
regarding elections and political parties, and ii) the royal committee
on constitutional reform, tasked with proposing amendments to the
Constitution.
22. On the basis of the work carried out by those committees,
between August 2014 and May 2016, the parliament passed 42 constitutional amendments,
changing 39 of the Constitution's 131 articles and providing for
the setting up of an independent election commission, greater accountability
on the part of the government, greater autonomy of political parties,
the prohibition of torture and the toughening up of the rules governing
the dissolution of parliament.
23. Four major laws, regarded as key components of all the reforms
undertaken by the King, were also passed: i) the Law on Independent
Election Commission; ii) the amended Law on elections; iii) the
Law on political parties; and iv) the Law on the Constitutional
Court.
24. Complementing that set of laws is the legislation on decentralisation
adopted on 23 August 2015. This law provides for the election of
councils at the level of Governorates and at the level of municipalities.
It is seen as a further step towards the democratisation of the
country, helping to broaden the participation of the Jordanian people
in political decisions and as a driving force in economic development
at local level.
3. Administration of elections,
voter lists and candidate registration
25. Parliamentary elections are
run by the Independent Election Commission (IEC) and the lower-level election
commissions.
26. The IEC was set up in 2011 to autonomously manage and supervise
the electoral process. The successive constitutional reforms of
2014 and 2016 further reinforced the powers of this body, which
will also run the next municipal elections. The IEC comprises a
Board of commissioners, itself made up of a chair and four members
appointed by royal decree for a non-renewable term of office of
six years (Article 6) and the lower-level election commissions.
In April 2016, the King appointed Dr Khaled Kaladeh as Chairperson
of the IEC.
27. According to Article 27 of the electoral law, “An election
committee shall be formed in each electoral district by a decision
of the Board with its chair and members appointed in the same decision
to perform the tasks stipulated in this law and other regulations
and executive instructions issued thereof”. The members of the Board
are chosen from among government and public institution officials.
They must not have any kinship up to the second degree with any
of the candidates in their district.
28. The electoral law stipulates that only political parties and
independent candidates can appoint observers. Those observers may
be present at voting and vote-counting, but only one per list/independent
candidate for each polling station.
29. Any Jordanian citizen over 17 years and three months of age
has the right to vote, on condition of having full civil and political
rights and not presenting any of the disqualifying criteria provided
for in law.
30. According to the data provided by the IEC, 4 130 145 Jordanians
were registered on the electoral lists, breaking down as follows:
2 186 951 women corresponding to 52.8% of voters and 1 952 711 men,
equivalent to 47.2% of voters.
31. The number of voters has increased by 45% since 2012, above
all as a result of the automatic registration of all citizens aged
17 years and three months.
32. Where the registration of lists of candidates from political
parties and coalitions was concerned, the political parties were
allowed to register their lists of candidates as of August. According
to IEC data, 39 of the 50 political parties registered with the
Ministry of the Interior submitted lists of candidates within the
legally stipulated time limits in order to participate in the elections
of 20 September 2016.
33. Under Article 11 of the Law on elections, a candidate to the
Chamber of Deputies must meet a number of conditions, including:
he/she must have been a Jordanian national for at least 10 years,
must not hold the nationality of another country and must be at
least 30 years old on polling day. A total of 1 252 candidates,
of whom 252 were women, stood on 226 lists.
34. The Minister of the Interior and the Secretary General of
the IEC gave a presentation to the ad hoc committee's members on
voting procedures, vote-counting and the declaration of election
results, as well as the most important changes in the new legislation
governing these elections.
4. Election campaigning, campaign
funding and media coverage
35. Election campaigning began
on 16 August 2016 and, in accordance with legislation, was supposed
to cease 24 hours before polling day but, in the event, it never
stopped. Among other things, the latter stage of the election campaign
period coincided with Eid al-Adha, the “Festival of Sacrifice”,
which is one of the most important festivals in Muslim countries.
As a result, Jordanians were off work from 9 to 17 September, three days
before the vote. On the whole, the ad hoc committee's talking partners
did not report any major incidents during the election campaign.
36. When meeting party and civil society representatives, the
Assembly delegation emphasised the importance of Jordanian citizens
actively participating in the parliamentary elections of 20 September
2016, which should strengthen their trust in and respect for the
democratic process and give the newly elected parliament greater
legitimacy.
37. The representatives of the Moubada Party and the Proper Democratic
Party met by the ad hoc committee made the following points in their
assessment of the legislative changes and the running of the election
campaign:
- with the Eid al-Adha
festival, the election campaign had lasted only five weeks, which
was a relatively short period;
- the changes made to the electoral legislation were felt
to be a real “leap into the unknown”. More specifically, it had
to be seen how the new system of voting by party list would fit
in with the current structure of Jordanian society, which was still
tied in with tribal structures or personal bond. They stressed that
the majority of the parties had no manifestos but instead promoted
slogans;
- the buying of votes could be a fairly substantial problem,
particularly during the festival period, when the exchanging of
gifts was a tradition that was broadly followed and it was very
difficult to draw a real distinction between the types and origins
of gifts. Votes could be bought in this manner either via a direct cash
payment to “heads of families” or to women or through the payment
of school fees for children;
- the election campaign was conducted in a rather unusual
way: instead of organising large public meetings, the main parties,
groupings or eminent figures rented marquees in key areas of cities
where they welcomed voters, offered them refreshments and spoke
to them. Even in a context of fairly strict electoral legislation
on campaign expenses, counting a maximum of 5JOD (€6) per voter
and per voting district in the big cities (for a voting district
in a big city, with a population of 200 000, costs would amount to
1 million JOD) and 3JOD (€4) elsewhere, our talking partners thought
that spending limits could be substantially exceeded, given that
hiring a marquee could cost around 6 000/7 000 JOD (€7 500/8 800) a
day, an amount to be multiplied by a good 20 days not including
remuneration for the refreshment services provided to visitors;
- major cases of improper use of administrative resources;
- illicit conduct on the part of certain public officials
who devoted part of their working time to work on the election campaign,
despite this being strictly prohibited by law.
4.1. The media
38. Generally speaking, the media
made considerable efforts to inform voters about the new electoral system
and encourage them to turn out to vote. Radio and TV spots organised
by the IEC were broadcast free of charge every day.
39. On the other hand, the State-owned radio and television broadcaster,
Jordan Radio and Television Corporation (JRTV), and a large swathe
of private media had decided not to cover campaigning activities
in order to maintain a neutral and impartial stance. Their decision
limited candidates' access to the media and reduced the possibility
for voters to gain more detailed information on the candidates and
their manifestos.
40. Moreover, the candidates were not allowed to purchase slots
on State radio and television for their campaigns, a measure that
was taken to prevent giving wealthier candidates an unfair advantage
over those with less funding.
41. JRTV did however organise and broadcast a “Debates 2016” programme
six days a week, on which the candidates were able to present their
manifestos free of charge.
42. Owing to the restrictions on airtime, many candidates used
social networks as the main media tool for their campaign.
43. The ad hoc committee noted the concerns aired by the party
representatives. It believes that the new electoral legislation
and its implementing regulations cover most of the issues raised.
44. It welcomes the efforts made by the Independent Election Commission,
whose work has been remarkable at both national and local level.
The IEC benefited from technical assistance from the United Nations
Development Programme (UNDP) and substantial funding from the European
Union. That support enabled the IEC to set up an efficient system
for implementing the new electoral legislation at all levels.
45. One noteworthy measure was the major drive to train those
managing 1 483 polling stations throughout the country, enabling
them to deal with a wide range of problems which cropped up on polling
day.
46. The ad hoc committee has faith in Jordan's judicial system
and is confident that it will duly handle any legal action filed,
at its different levels.
5. Polling day
47. Polling day was untroubled
and voters were able to freely make their choices from the lists
presented by parties of different political persuasions.
48. The six Assembly teams observed the elections at 52 polling
stations in Amman and its region, as well as the governorates of
Central Badia, Balqa, Jerash, Madaba, Ma`an, Karak, Tafileh and
Irbid.
49. The polling stations were segregated by gender, with men voting
in boys' schools of all levels and women voting in girls' schools.
50. On the afternoon of polling day, the IEC decided to extend
voting by one hour, so that it ran from 7 a.m. to 8 p.m.
51. There was one incident in the Central Badia voting district,
where eight ballot boxes were stolen and subsequently found. As
a result, the IEC organised a re-run in the constituencies concerned
on 21 September. The re-run was incident-free.
52. The ad hoc committee members' assessment of the conducting
of voting, including vote-counting, was very positive, and the teams
did not find any irregularities.
53. Nevertheless, certain shortcomings were observed by the ad
hoc committee members:
- the
design of voting slips, in the form of a booklet, was confusing
for voters when they chose between the different lists, and a number
of voting slips were spoiled as a result. The booklet design also
slowed down the vote-counting process;
- on the whole, the polling stations were fairly difficult
to access for people with reduced mobility;
- people who were unable to read, chiefly in rural areas,
found it difficult to vote without being assisted;
- there were few women among polling station officials;
of the 52 polling stations visited, only 15 of them were chaired
by women.
54. According to the definitive results issued by the IEC, the
turnout was 36%, namely 1.4 million of the 4.1 million entitled
to vote. In 2013, the turnout was 56%, namely 1.29 million of the
2.3 million entitled to vote.
55. Overall, the lists supporting the current government appeared
to have secured victory. It is also noteworthy that the Islamic
Action Front, the political wing of the Muslim Brotherhood, the
only political movement organised at national level, won 16 seats
out of 130 thanks to its three lists (Al Islah – national reform coalition,
Al aqsa and Zamzam).
56. More detailed analysis of the vote is difficult at present,
as most of the deputies were elected on the basis of lists bearing
names with geographical connotations or tending to be linked to
eminent figures at local level. When parliamentary blocs/coalitions
start to be formed from the lists/parties during the constitution
of parliament, more in-depth analysis of the results will be possible.
For the first time, 20 women will sit in parliament, 15 elected
to mandates reserved for women and 5 elected on proportional lists.
6. Conclusions
57. The Parliamentary Assembly's
ad hoc committee for the observation of elections to the Jordanian Chamber
of Deputies concluded that the parliamentary elections held on 20
September 2016 took place in a calm atmosphere, with voters able
to freely make their choices from the lists presented by parties
of different political persuasions.
58. The ad hoc committee salutes the professionalism of the Independent
Election Commission, which organised the poll with integrity and
in full transparency. It commends the professionalism and courtesy
of the polling station officials met by the delegation during its
visit.
59. The ad hoc committee considers that some aspects of the electoral
process could be improved. The electoral legislation and its implementing
regulations should more closely regulate the question of “prolonged election
campaigning”, which continued on voting day right up to the doors
of the polling centres. The law should also consider whether the
choice of voting method, using a voting slip in the form of a small
booklet, is the most appropriate in terms of legibility for voters
and management of the counting process. Moreover, the Parliamentary
Assembly welcomes the effort made to ensure transparency during
the count by using a camera, which allowed all observers to see
the contents of each ballot paper.
60. The ad hoc committee invites the Jordanian authorities to
carry out an in-depth analysis of the organisation of the parliamentary
elections of 20 September 2016, the first elections to be held since
the new electoral legislation was passed. The ad hoc committee is
convinced that this work should be carried out in close co-operation
with the Venice Commission with a view to improving the electoral
legislation as well as certain practical aspects of the organisation
of voting and, more generally, the entire electoral process before the
next elections are held.
61. The ad hoc committee stresses the need to reinforce co-operation
between the Parliamentary Assembly and the newly elected parliament
within the framework of
Resolution
2086 (2016) on partner for democracy status.
Appendix 1 –
Composition of the ad hoc committee
(open)
Based on the proposals by the political groups
of the Assembly, the ad hoc committee was composed as follows:
Chairperson: Mr René ROUQUET, France (SOC)
- Group
of the European People’s Party (EPP/CD)
- Vladyslav GOLUB, Ukraine
- Nicole DURANTON, France
- Socialist Group (SOC)
- René ROUQUET, France
- Geneviève GOSSELIN-FLEURY, France
- Alliance of Liberals and Democrats
for Europe (ALDE)
- Olena
SOTNYK, Ukraine
- Andrea RIGONI, Italy
- Anne KALMARI, Finland
- European Conservatives Group
(EC)
- Suella FERNANDES,
United Kingdom
- Arkadiusz MULARCZYK, Poland
- Rapporteur of the Committee
on Political Affairs and Democracy on “Evaluation of the partnership
for democracy in respect of the Parliament of Jordan”
- Venice Commission
- Sergeï KOUSNETSOV, Head of Division
- Secretariat
- Alessandro MANCINI, Administrator,
Parliamentary Project Support Division, Parliamentary Assembly
- Danièle GASTL, Assistant, Election Observation and Interparliamentary
Co-operation Division
Appendix 2 –
Programme for the election observation mission (Amman, 18-22 September
2016)
(open)
Sunday
18 September 2016
10:00-10:45 Meeting of the ad hoc committee:
- Opening of the meeting and welcoming
address by Mr René ROUQUET, Head of the delegation
- Recent developments in the field of election legislation,
by Mr Serguei KOUZNETSOV, Venice Commission
- Practical and logistical arrangements presented by the
Secretariat
11:00-12:00 Meeting with Mr Slameh HAMMAD, Minister of the
Interior, accompanied by his collaborators in charge of electoral
administration and election issues
12:15-13:45 Meeting with:
- Mr Egidijus
NAVIKAS, Head of the Political Section, Delegation of the European Union
to the Hashemite Kingdom of Jordan,
- Mr Nikolai VULCHANOV, Deputy Chief Observer of the European
Union EOM in Jordan, and his team
- Ms Lora BORISSOVA, Deputy Head of Division, European External
Action Service
- Mr Gonzalo JORRO MARTINEZ, Programme Manager, EU Delegation
- Political background, electoral campaign
14:30-16:00 Meeting with Mr Ali Al DRABKEH, Secretary General
of the Independent Election Commission
16:30-17:15 Meeting with representatives of NGOs involved
in observing the elections:
- Ms Lena
ALOUL, Transparency International Jordan
- Mr Amer BANI AMER, AL Hayat Centre for the development
of society civil – RASED
17:15-18:15 Meeting with Mr Richard CHAMBERS, UNDP Chief Technical
Adviser, Support to the Electoral Cycle in Jordan
Monday 19 September
2016
10:00-11:30 Meeting with the Partnership for democracy delegation
of the Parliament of Jordan to PACE
11:30-12:30 Meeting with Ms Abla ABU OULBI, Proper Democratic
Party
14:30-16:30 Meeting with Ms Laurence CARLIER, Deputy Long-Term
Observer Coordinator of the EU EOM to Jordan in the Amman electoral
district,
Tuesday 20 September
2016
06:30-07:00 Observation of the opening of polling stations
07:00-20:00 Observation of voting
20:00 – Observation of vote-counting procedures
Wednesday 21
September 2016
10:00 Debriefing meeting of the ad hoc committee
13:00 Issue of press release
Appendix 3 –
Districting and seat allocation for the 2016 parliamentary elections,
as defined by the Law on Elections to the Chamber of Deputies (Law
No. 6/2016) and the implementing regulations on the electoral districts
(open)
Appendix 4 –
Press release issued by the Parliamentary Assembly observation mission
(open)
Partnership
for democracy with Jordanian Parliament on the right track, early
elections well administered
Strasbourg, 22.09.2016 – Following the invitation of Jordan’s
Independent Election Commission, the Parliamentary Assembly of the
Council of Europe (PACE) observed, for the first time, the early
elections to the Jordanian Chamber of Deputies which took place
on 20 September 2016.
In 2016 the Jordanian Parliament was granted “Partner for
Democracy” status with the Parliamentary Assembly of the Council
of Europe, and committed itself to doing everything possible to
ensure the elections were conducted according to international standards.
The PACE delegation, led by René Rouquet (France, SOC), was
made up of thirteen members from seven European countries and visited
Jordan from 17 to 21 September. It met with some of the candidates,
the Minister of the Interior, the Secretary General of the Independent
Election Commission, representatives of civil society and international
organisations. On election day six teams of observers were deployed,
observing the vote in Amman and its surrounding area, as well as
in the governorates of Central Badia, Balqa, Jaresh, Madaba, Ma`an,
Karak, Tafileh and Irbid.
The PACE delegation welcomes the professionalism of the Independent
Election Commission, which organised the poll with integrity and
in full transparency. It commends the professionalism and courtesy
of the polling station officials met by the delegation during its
visit. Jordanians, called upon to organise new elections within
a completely new legislative framework, have risen magnificently
to this major challenge.
The delegation noted that some aspects of the electoral process
could be improved by heeding the advice of the Council of Europe’s
Venice Commission. The election law and its executive instructions
should regulate more effectively the issue of the “prolonged election
campaign”, which continued on voting day right up to the doors of
the polling centres. The law should also consider whether the choice
of voting method, with a ballot in the form of a small booklet,
is the most appropriate in terms of legibility for voters and handling
of the counting process. Moreover, the PACE welcomes the effort
made to ensure transparency during the count by developing the use
of a camera, which allowed all observers to see the contents of
each ballot.
The PACE salutes the commitment shown by members of the Jordanian
delegation, who participated very actively in its work after obtaining
Partner for Democracy status. The Jordanian delegation was able
to showcase the development of the democratic process in their country
but also helped to make the PACE members more aware of the challenges
Jordan faces.
In the context of its work with the Parliament of Jordan,
the PACE continues to actively support the Jordanians in their efforts
towards the consolidation of democratic process in their country.
The PACE is naturally ready to continue working with renewed interest
with the new delegation, which it hopes will be designated as soon
as possible.
The PACE will discuss a report on the parliamentary elections
during the October 2016 part-session.