LOCAL COUNCIL ELECTIONS IN UGANDA SIGNAL TROUBLE IN 2011

UNCLAS SECTION 01 OF 02 KAMPALA 000576

DEPT PASS TO USAID

SENSITIVE
SIPDIS

E.O. 12958: N/A
TAGS: PGOV PHUM KDEM UG
SUBJECT: LOCAL COUNCIL ELECTIONS IN UGANDA SIGNAL TROUBLE IN 2011


1. (SBU) Summary: Uganda's road to achieving genuine multiparty
democracy remains rocky at best, with recent nationwide local
elections indicating that the Electoral Commission and political
parties are unprepared for the next presidential and parliamentary
elections in 2011. The lack of progress on electoral reform and
failure to implement these reforms in a timely manner may jeopardize
Uganda's ability to hold credible elections in 2011. Donors agree
that the potential for problems exists and are working together and
with the Electoral Commission to anticipate and address them. End
Summary.

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Background: Local Council Elections
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2. (U) The Ugandan Electoral Commission (EC) conducted local
council elections in 79 districts on May 21. Many of the contests
were to fill newly created seats in local government structures at
the town council and sub-county level. The remaining contests were
held to fill vacant seats. The diplomatic community monitored
elections in Kampala, Jinja, Mukono, Mityana, Wakiso, Luwero,
Mbarara, Rukungiri, and Kitgum. The objective was to assess
progress since the 2006 presidential and parliamentary elections and
draw general conclusions and recommendations that would help guide
international community engagement on electoral reform.

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Irregularities Abound
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3. (SBU) Overall, monitoring teams found that the voting process
was peaceful and, in most of the polling stations visited, reflected
the will of the people. Voter turnout was low and there were very
few contentious contests. However, there were a number of
irregularities and concerns that in a larger, more controversial
election could be cause for conflict or possibly a rejection of the
results. Observation teams reported that several polling stations
opened late due to tardy polling officials, missing or delayed
voting materials, and rain. Observers also recorded problems with
the voter identification process, including multiple voters without
voter identification cards or other identity documents, missing
names, un-alphabetized voter registries, and conflict between
polling officials and party agents over the identity of undocumented
voters (Note: There were allegations that the ruling National
Resistance Movement (NRM) party's officials brought people to the
polling stations without identification to vote in the place of
deceased individuals still on the list. End note).


4. (SBU) Monitors reported inconsistent ballot box sealing
procedures, mostly believed to be the result of poor training rather
than fraud. In some instances, polling officials mistakenly used
regular ink instead of the indelible ink to mark voters' fingers.
In at least two cases, individuals responsible for marking voters'
fingers were absent from their posts. Many polling officials, party
agents, and Uganda Police Force (UPF) constables appeared to lack a
strong understanding of their roles and responsibilities in the
voting process and thus failed at times to properly enforce
electoral laws. This, combined with limited voter education and
information, often led to confusion and in some isolated instances
verbal confrontation. In one district, observers reported a more
serious case of ballot stuffing. Although observers reported these
findings to the District Electoral Registrar, the results from the
station were still considered valid and were included in the final
count.

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Elections Highlight Need for Electoral Reform
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5. (U) Many of the problems exposed in the May 21 elections
highlight the Government's lack of progress on issues raised in the
Supreme Court's judgment on Forum for Democratic Change (FDC) Party
President Kizza Besigye's petition to hold a re-run or conduct a
recount of the 2006 presidential election. While the Supreme Court
dismissed the petition, it noted that there had in fact been
"non-compliance" with the Constitution, the Presidential Elections
Act, and the Electoral Commission Act. The Court found that the
removal of names from the voter registry had disenfranchised voters
and that there were irregularities in the counting of results. The
Court found that bribery, intimidation, violence, multiple voting,
and ballot stuffing had also infringed on voters' rights. The Court
expressed "grave concern" over the involvement of security forces in
elections where acts of intimidation, violence, and the partisan
harassment occurred. The Court called on the relevant Government
institutions to "urgently" address these concerns to "improve
electoral democracy." To date, the Government has taken few steps
to address these concerns.

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Opposition Coalition & Civil Society Push for Electoral Reform
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6. (SBU) Opposition parties and civil society, which remain weak
and largely uncoordinated, have pressed the Government to move
forward with electoral reform. The Inter-Party Cooperation (IPC),a
loose opposition party coalition, called for the removal of security
organs from the electoral process; an independent and impartial EC;
increased training for EC administrators and polling officials; a
revision of the voter registry and display process; and increased
voter education. In addition, other reforms proposed include:
revising the vote tallying process; addressing political party and
EC funding; and avoiding the late enactment of electoral laws and
regulations. IPC warned that if reforms proposed were not
implemented, it would be impossible to hold "free and fair
elections, have political stability, or build strong political
institutions." Moreover, civil society groups stress that civic and
voter education is critically needed and that the EC must become
more impartial in its activities.

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Resources and Political Will Hinder Greater EC Movement
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7. (SBU) The EC in early 2007 proposed 18 electoral reforms to the
Ministry of Justice and Constitutional Affairs to address some of
the Supreme Court's concerns. To date, however, there has been
virtually no movement on the EC's proposals. Another challenge to
electoral reform is a lack of intuitional resources. The EC
proposed a three-year phased funding plan to implement its 2010-2011
General Elections Roadmap, estimated at USD 75 million. However,
there is no indication that the Finance Ministry will release the
amount requested in the timeframe proposed. Electoral officials
have stressed that the timely release of funding is essential to
holding credible elections in 2011. The apparent lack of political
commitment to address the EC's needs has eroded its credibility and
supported the widely held view that the electoral body is a "tool"
of the ruling party.

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Comment
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8. (SBU) In our view, the conduct of free and fair elections will
require an impartial and adequately-funded EC and an agreement
between President Museveni and the political opposition on a way
forward for the 2011 elections. We will press the opposition
parties to take President Museveni up on his promise to the donor
community to consider EC candidates proposed by the opposition as
long as they are "persons of integrity." Civil society groups that
monitor the electoral process and provide information to citizens
will need to get better organized and obtain sufficient funding to
carry out their activities.


9. (SBU) Post is coordinating with other Missions to encourage the
GOU to undertake timely electoral reform and promote multiparty
democracy. We are implementing a program to support the EC and
political party development through the National Democratic
Institute (NDI) and the International Republican Institute (IRI).
However, funding under this program to support electoral reform is
limited. Post has submitted an Economic Support Fund proposal and a
request to USAID's Elections and Political Process program for
additional funds to support electoral reform. Our highest priority
remains timely and adequate funding for the electoral mechanisms in
advance of the 2011 elections. End Comment.
BROWNING