Idea Transcript
On-Site Technical Assistance Mission Project Report February 1,2000 to August 31, 2000
USAIDlIndonesia-IFES Cooperative Agreement Grant No. 497-G-OO-98-00041-00
Submitted to the U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT by the International Foundation for Election Systems
MAKING DEMOCRACY WORK
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REPUBLIC OF INDONESIA On-Site Technical Assistance Mission Project Report February 1, 2000 to August 31, 2000
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USAIDlIndonesia-IFES Cooperative Agreement Grant No. 497-G-OO-98-00041-00
Submitted to the U.S. AGENCY FOR INTERNATIONAL DEVELOPMENT by the International Foundation for Election Systems
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Table of Contents GLOSSARY OF TERMS AND ABBREVIATIONS I.
INTRODUCTION ............................................................................................................... 1
II.
OVERVIEW OF IFES TECHNICAL ASSISTANCE ACTIVITIES ................................. 2
III.
PROJECT ACTIVITIES ..................................................................................................... 5 A.
Project Timeline ...................................................................................................... 5
B.
Target Program Areas .... :....................................................................................... 12 1. 2. 3. 4. 5. 6.
7. 8. 9. IV.
IFES IMPACT ................................................................................................................... 23
V.
CHALLENGES ................................................................................................................. 27 A.
Election Administration Assistance ...................................................................... 27
B.
Civic Education and Media Activities................................................................... 28
C.
Legal Reform Issues .............................................................................................. 29
D.
National Survey ..................................................................................................... 30
E.
Assistance to Parliament ....................................................................................... 31
F.
Assessment of TVRI Transition to a Public Broadcaster ...................................... 32
ATTACHMENTS
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Election Administration Civic Education Legal Analysis and Reform National Survey SWARA Broadcasts Assessment of TVRI Transition to a Public Broadcaster Assistance to Civil Society Organizations Constitutional Reform Assistance to Parliament
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GLOSSARY OF TERMS AND ABBREVIATIONS AIPI
Indonesian Institute of Political Science
CEPPS
Consortium for Elections and Political Process Strengthening
CETRO
Center for Electoral Reform
CSO
Civil Society Organization
DPR
People's Representative Assembly
DPRD
Regional People's Representative Assembly (provincial, regency, or municipality level)
ECT
Election Commission of Thailand
Gol
Government of Indonesia
IFES
International Foundation for Election Systems
IB
Indonesia Baru (New Indonesia)
IRI
International Republican Institute
JOMC
Joint Operations and Media Center
Kabupaten
Regency/Municipality
KPU
National Election Commission
LP3ES
Lembaga Pene1itian, Pendidikan dan Penerangan Ekonomi dan Sosial
MoU
Memorandum of Understanding
MPR
People's Consultative Assembly
NGO
Non-Governmental Organization
Panwas
Election Supervisory Commission
PETA
Pre-election Technical Assessment
PPI
National Election Implementing Committee
PPW-LIPI
Research and Regional Development - Indonesian Institute of Science and Research
PSA
Public Service Announcement
PSHK
Center for Indonesian Law and Policy Studies
RRI
Radio Republik Indonesia, Indonesian government-owned radio network
SET
Yayasan Sains, Estitika dan Teknologi
SWARA
Suara Wakil Rakyat (Voice of the People's Representative)
TPI
A private Indonesian television station
TVRI
Televisi Republik Indonesia, Indonesian government-owned television network
UNDP
United Nations Development Programme
USAID
United States Agency for International Development
Indonesia On-Site Technical Assistance Mission Project Report: February 1,2000 to August 31,2000
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I.
Page 1
INTRODUCTION
In August 1998, the International Foundation for Election Systems (IFES) sent a three-person team to Indonesia to conduct a comprehensive pre-election technical assessment (PET A) of the electoral environment and to assist and guide the international community's actions in playing a constructive role in the democratization process. The technical assessment mission had the following objectives: 1) provide an assessment of the prevailing legal and procedural environment relating to the electoral and political system in Indonesia; and 2) provide recommendations to the Government of Indonesia (Gol) and the donor community for actions to be taken in order to implement democratic reforms, such as measures to reform electoral laws, procedures to strengthen the administration of elections, and practices to create a transparent campaign and election process. The IFES technical assessment mission outlined a series of important issues and challenges that the Gol, Indonesian political stakeholders, and civil society would face during the pre-election period. Issues were identified in specific target areas: legal reform, election administration, voter education, and election monitoring. IFES proposed addressing these needs through multiple program activities, with the goal of increasing the capacity of the Gol to implement democratic reform measures, strengthen the administration of elections, and create a transparent campaign and election process.
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In September 1998, the United States Agency for International Development (US AID) and IFES signed a one-year cooperative agreement that enabled IFES to undertake program activities in Indonesia based on needs identified during the PETA mission. By April 1999, IFES was positioned to implement a comprehensive technical assistance project to support the Indonesian government in preparation for the historic June 7, 1999 elections. The National Election Commission (KPU) and the National Election Implementing Committee (PPI) positively received IFES' offer of technical assistance for these elections. IFES responded to this opportunity by providing a comprehensive technical support strategy that featured legal analysis, election administration assistance, a Joint Operations and Media Center (JOMC), the preparation of pollworker training materials, and a comprehensive voter and civic education program. After providing substantial support in the above areas during the June i h elections, IFES continued to conduct programming that assisted the postelection democratic transition process in Indonesia. In earlier project reports to USAID, IFES detailed its activities in Indonesia from September 1998 to the end of January 2000. IFES activity in the post-election period has focused on consolidating and extending the gains of 1999 in developing democratic representative institutions and supporting the creation of new electoral management structures that avoid the problems of partisan activity, inefficiency, unpreparedness and a lack of integrity evident in 1999. During the last 6 months, elements of IFES support strategy for the continued democratization of Indonesia have included: assisting the People's Representative Assembly (DPR) and the People's Consultative Assembly (MPR) to increase the transparency and public knowledge of their operations; developing and implementing wide-ranging civic education and information programs; providing technical advice to the legislature and civil society organizations (CSO) on electoral law and constitutional reform issues; advising the KPU Secretariat on restructuring electoral administration; and developing the capacities of broadcast media.
Indonesia On-Site Technical Assistance Mission Project Report: February 1,2000 to August 31,2000
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OVERVIEW OF IFES TECHNICAL ASSISTANCE ACTIVITIES
Following the 1999 elections, IFES identified key areas for continued and integrated support of the nascent elected democratic institutions in order to enable them to blossom and grow in a postauthoritarian environment. IFES' non-partisan approach and skill in designing and managing electoral reform, communications, and civic information programs worldwide were key to assisting the growth of democratic representative institutions. This laid the groundwork for a rehabilitation of the electoral administration and the development of capacity for an informed analytical civil society. IFES continued implementation of its multifaceted on-site technical assistance project in Indonesia to conduct the following activities in support of institutions and civil society.
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Election Administration
During the period under review, IFES concentrated on working with senior officials of the National Election Commission's (KPU) Secretariat to advise on management improvements and restructuring alternatives for the various levels of election administration within Indonesia. This focus was dictated by events. For the first half of the period under review, the KPU itself was reduced to a widely discredited rump until it was disbanded. Following the dismissal of the old KPU in June 2000, IFES worked with the KPU Secretariat and provided advice that emphasized issues of organizational effectiveness, goal-oriented structures, accountability, responsiveness, access, and professionalism. IFES exposed a group of senior Indonesian officials to international election practices by organizing a study tour to Thailand. In April, the Indonesians observed the second rcund of senate elections in and around Bangkok. Building on research conducted in 1999, IFES organized an international seminar for DPR members, political party executives, Indonesian media, and civil society organizations. The seminar addressed issues of illegal money politics and how to regulate political finance in Indonesia using Asian models.
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IFES completed its evaluation of regional election management structures and performance during the 1999 election. The evaluation involved in-depth interviews and focus groups with members of election committees at provincial, municipal, village, and polling station levels. It includes recommendations for improvements in the election management framework and structures as well as election procedures. The evaluation report was distributed to the KPU, DPR, and other interested bodies. The KPU Secretary-General consults the report when planning for administrative reform.
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Civic Education
IFES' civic education program involves an information campaign to encourage effective public participation in the democratic process. It strives to increase public awareness of and access to the democratic and political process. IFES' regular activities include the broadcast of a weekly public affairs television show, Indonesia Baru (IB), which features members of the DPR or MPR, Executive Branch, and non-governmental organizations (NGO). The program was the highest-rated television talk show in the country during this reporting period. IFES also assists the production of Suara Wakil Rakyator Voice of the People's Representatives (SWARA), which is a C-Span-type broadcast of the Parliament (see SWARA below). IFES facilitated a program to allow the Speaker of the DPR to
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Indonesia On-Site Technical Assistance Mission Project Report: February 1,2000 to August 31,2000
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Page 3
appear regularly on television to communicate the agenda and activities of the DPR. IFES also produced and broadcast public service announcements (PSA) focused on developing democratic dialogue.
3.
Legal Analysis and Reform
IFES continues to encourage the DPR to amend electoral legislation to provide for a fully independent, non-partisan, electoral administration structure. IFES drafted suggested amendments to Law No 3 of 1999 on General Elections to give effect to such a structure, and discussed these with the leadership of the DPR. IFES conducted a technical analysis and advised DPR members on the government's proposals, which reformed the membership and appointment process of the National Election Commission. Unfortunately, the government's proposal did not provide full independence for the national administration of elections. Following passage of legislative amendments creating a new KPU executive at the national level, IFES has been working with DPR leadership to identify key issues for electoral reform. IFES encourages the prioritization and realistic implementation of a timetable for a comprehensive review of electoral legislation, which is still required.
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National Survey
At the request of USAID, IFES facilitated the establishment of the Consortium for Public Opinion Polling. This consortium includes local NGOs and staff from the MPR and DPR. IFES financially supported the conduct of a national opinion survey by the Consortium in July 2000. The survey gauged public opinion and perceptions of the operations of representative bodies, proposed constitutional amendments, regional autonomy, government progress on important economic and social matters, the proposed draft State Emergency Law, and attitudes towards political leaders. The results of the survey were released publicly by the consortium at a formal press conference held by the MPR.
5.
SWARA Broadcasts
IFES continued to broadcast unedited proceedings of the DPR and MPR. The telecast included plenary sessions and commission meetings. Sessions were broadcast live whenever possible. IFES explored arrangements to institutionalize and ensure permanence for the production of SWARA within the legislature's operations. The SWARA broadcasts improved the transparency and accessibility of the democratic process. They facilitated access to and coverage of the DPR and MPR by the local, national, and international media, and kept the public informed of the assemblies' proceedings. For the annual MPR session in August 2000, SWARA added a second audio channel of the proceedings with simultaneous English language translation. IFES has introduced streaming video and audio of the SWARA broadcasts on the Internet at www.swara.net. The SWARA Internet site also includes background information on the members of the MPR and DPR.
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Indonesia On-Site Technical Assistance Mission Project Report: February 1,2000 to August 31,2000
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Assessment of TVRI Transition to a Public Broadcaster
IFES commenced a program to assess and assist Televisi Republik Indonesia (TVRI) in its transition to a public broadcasting station. IFES organized a seminar for public and private sector organizations in the broadcasting industry, and interested civil society participants, to discuss the proposed draft broadcasting law. At the end of August, planning was underway for the engagement of consultants to provide technical assistance to TVRI in the areas of operations management, programming, production, human resources management, training, financial planning and control, marketing and sales, community support, and engineering.
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Assistance to Civil Society Organizations
IFES provided advice about international standards and practices to local organizations developing proposals on constitutional amendments and electoral system reform. This enabled the organizations to clarify procedures and practical efforts related to the adoption of various election systems, methods of electing presidents, and potential structures, powers, and methods of election of bicameral legislatures.
8.
Constitutional Reform
IFES engaged in constructive dialogue with the leadership of MPR Ad Hoc Committee 1, MPR faction leaders, and other MPR members on electoral and governance issues being considered during the development of proposed constitutional amendments. IFES provided advice and information on international experience with various election systems, methods of electing presidents, and potential structures, powers, and methods of election of bicameral legislatures. Briefing papers on the results of the IFES-supported national opinion survey, including public attitudes to some constitutional reforms being proposed, were provided to each MPR member at the commencement of the MPR's annual session in August.
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Assistance to Parliament
IFES conducted an assessment, by a local computer systems analysis company, of the computerization needs of the DPR and MPR. The assessment includes recommendations for institutional support, communications, Internet, and constituent outreach. The strategy proposed by the assessment was accepted by secretariats of the MPR and DPR. IFES also provided support for DPR and MPR members on electoral and constitutional reform issues (see Legal Analysis and Constitutional Reform above), and in publicizing the activities of the DPR and MPR (see 'Civic Education' and' SWARA Broadcasts' above). IFES provided strategic communications advice to the Speaker and secretariat of the DPR and to the secretariat of the MPR. This included the introduction of a one-hour morning program on TVRI each month, featuring the Speaker of the DPR. IFES also advised the MPR in the operation of a press center during the annual MPR session.
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Indonesia On-Site Technical Assistance Mission Project Report: February I, 2000 to August 31,2000
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III.
PROJECT ACTIVITIES
A.
Project Timeline
Page 5
February 2000
IFES advised KPU members, DPR members, political party leaders, and NGO representatives on two pending, significant issues. The first issue was whether "local" elections were needed for parliamentary assemblies (DPRD) in the new provinces and regencies/municipalities created by legislation passed by the DPR in October 1999; or, instead of new balloting, what type of procedures based upon June 1999 election
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16 elections. But taxpayers are grumbling loudly arguing that these partial public financing
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arrangements have not substantially reduced the
dominance of big money in the state and federal elections. Yet the money approach of full public financing in which candidates agree to abide by spending limits and not accept private contributions from any source including their own bank accounts is gaining ground.
A 1996 poll
conducted for the non-partisan Center for Responsive Politics found that 68% of registered voters favor such a plan for congressional elections. The report stated that while clean money system may require enonnous public funding but it would pale in comparison with the annual cost of legislative
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and regulatory favors routinely wrested from government by big money contributors. We admit that illegal money politics is the seed bed of corruption in government that diverts limited funds eannarked for public projects to private pockets and governments that yield to big money contributors to protect their interests. It must be contained and minimized. Doing away with illegal influence of money politics and cleaning up elections is not the sole responsibility of Election Management Bodies .
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Clean elections is a national goal that can be achieved thru shared' responsibility---by electoral bodies, by lawmaking assemblies, the principal players in the political exercise, the media, the citizenry, the schools, and the church. A minimal voter education program a big percentage of impoverished voters a flawed and weak legal structures negative predisposition of political players a wavering media and
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