Electoral-Management-Reference-Model-v.1.0

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2.0 BUSINESS OF ELECTIONS 2.1 What Electoral Agencies Do The business of elections centres around the delivery of events, including elections, referenda, by-elections, enumerations, boundary redistributions, and recall and initiative. In order to deliver events, electoral agencies must also establish a business infrastructure to support standard business functions, such as staff recruitment and training, payroll, facilities management, information technology, etc. However, event delivery is the heart of what electoral agencies do and the standard business functions are a means to support the achievement of this end. Events are large-scale, legislated activities with a definite beginning and end that distinguishes them from the on-going operations of an electoral agency. Events include by-elections, general elections, enumerations, boundary redistributions and recall and initiative petitions. No two events are the same. In addition to changes resulting from continuous refinement of procedures, there are often amendments to electoral law between events that necessitate changes to processes and procedures from one event to the next. While legislation and business practices vary by jurisdiction, the area of overlap in business requirements across jurisdictions far exceeds the gaps. Listed below are some of business functions that all electoral agencies perform to varying degrees: • verify voter eligibility; • register eligible electors; • ensure that electoral district boundaries are accurately reflected in computer systems and maps; • create written descriptions and maps that describe and show electoral district boundaries; • assign electors to the correct electoral district and polling division based on their physical address; • register political entities, which may include political parties, candidates, electoral district associations, advertising sponsors and yes/no groups; • recruit, train and pay temporary election workers; • establish temporary field offices and polling places; • administer voting at general elections, by-elections, and referenda; • consider ballots and count votes; • create, procure, store and distribute event materials; • educate electors; • develop educational materials for school civics programs; • oversee campaign financing; 7 April 9, 2010
• inform and monitor the media; • ensure compliance with local electoral law and enforce the law when necessary; and • cooperate with other levels of government and other electoral agencies to share information and resources in an effort to continuously improve service to electors. In addition to this list, there are functions that some agencies perform and others do not. For instance, in B.C., the Chief Electoral Officer is also responsible for the administration of recall and initiative petitions and initiative votes. Some jurisdictions create a temporary list through enumeration for use in a specific event, while others maintain a permanent register, which they may update through enumeration before administering an event. There are different models for the administration of elections across Canada. In some provincial/ territorial jurisdictions, the electoral agency is responsible for local government, health authority, and school board elections and acts in an advisory capacity with other groups, in addition to administering provincial/territorial events. In other jurisdictions, agencies are responsible for elections for one level of government. Some examples of different models are as follows: • in B.C., Alberta, Manitoba and Saskatchewan, the electoral agency is responsible for provincial-level events only. • Elections New Brunswick is responsible for local government, education council or school board, and provincial elections. • Elections Québec is responsible for provincial-level events, and plays an advisory and support role in municipal and school board elections. • the Elections Nunavut CEO acts as the Elections Commissioner for the Nunavut Tunggavik Incorporated elections, as well as being responsible for Nunavut territorial events. 2.2 What Makes the Business Unique? “An election or direct democracy poll is often one of the largest single activities that is ever organized in a country. It is a very complex administrative task, implemented in a politically charged atmosphere.” 2 In terms of the scale and temporary nature of operations, the political environment in which they are conducted, the level of attention to legislative detail required, and the consequences of failure, the business of delivering elections is like no other. The purpose of this section is to review the characteristics that define and set the election business apart from other businesses. 2 ACE (2009). Overview of Electoral Management. Retrieved June 22, 2009, from ACE: The Electoral Knowledge Network website: http://aceproject.org/ace-en/topics/em/em10 8 April 9, 2010
Page 1 and 2: Electoral Management Reference Mode
Page 3 and 4: Document Control Date of original v
Page 5 and 6: TABLE OF CONTENTS GLOSSARY ........
Page 7 and 8: 5.2.6 Relationship between the addr
Page 9 and 10: 6.4.3 Post-event phase ............
Page 11 and 12: 8.3.1.10 Other geography products f
Page 13 and 14: LIST OF FIGURES Figure 1 The EMRM:
Page 15 and 16: GLOSSARY Absentee ballot - A ballot
Page 17 and 18: Enumeration - An intensive outreach
Page 19 and 20: Preliminary list - The list of elec
Page 21 and 22: 1.0 INTRODUCTION “Election manage
Page 23 and 24: Figure 1 The EMRM: A High-Level Vie
Page 25: Figure 2 Roadmap to this Document I
Page 29 and 30: elector registrations from the poll
Page 31 and 32: Returning Officers are appointed by
Page 33 and 34: Figure 4 Electoral Agency Stakehold
Page 35 and 36: usiness areas having an assigned co
Page 37 and 38: Figure 6 The EMRM: Business Areas,
Page 39 and 40: 4.1 Overall Objectives for Electors
Page 41 and 42: 4.2.5 Types of lists of electors us
Page 43 and 44: helpful tools for identifying sourc
Page 45 and 46: 4.3.2 Business Processes in Elector
Page 47 and 48: Figure 9 Secondary Source Registrat
Page 49 and 50: Figure 10 Register Maintenance Proc
Page 51 and 52: notifications mailed through proces
Page 53 and 54: (elector name, residential address,
Page 55 and 56: determine whether a team of two ele
Page 57 and 58: and Secondary Source Registration b
Page 59 and 60: 4.6.2.3 Registration of electors wh
Page 61 and 62: • sharing of data will reduce dup
Page 63 and 64: 5.0 ELECTORAL GEOGRAPHY This chapte
Page 65 and 66: Table 2 Number of electoral distric
Page 67 and 68: accessibility and to comply with le
Page 69 and 70: Figure 15 Relationship Between Regi
Page 71 and 72: 5.3 Electoral Geography Business Ar
Page 73 and 74: Triggers for a review of polling di
Page 75 and 76: are identified as new to the addres
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Figure 18 Work Processes within Add
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Figure 19 summarizes the inputs, ou
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Examples include: • maps that sho
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Figure 20 Variation in Level of Eff
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5.6.2 Related to address register 5
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5.7 Electoral Geography During the
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2. To maintain a complete and curre
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Registered political parties are no
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Figure 25 Candidates and Their Affi
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6.2.4 Fairness in application of re
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6.3.2.1 Registration and Deregistra
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ED Associations. The Election Finan
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Destinations As illustrated in Figu
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signatures from electors who reside
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Destinations Information about lead
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Deregistration At the federal level
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proponent/proponent group and oppon
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6.3.3.5 Notifications of denial or
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6.4.4 Inter-event phase During the
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98 April 9, 2010
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7.2 Election Finance Business Area
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particular report include, but are
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Figure 37 Political Entity Filing -
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Figure 38 Political Entity Support
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Figure 39 Compliance and Enforcemen
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7.3.3.5 Lists of entities failing t
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7.6 Current Issues Affecting the El
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8.0 EVENTS The outputs produced by
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Figure 41 Events Business Processes
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When election dates are not fixed b
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• electors are registered to vote
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the elector has signed the ballot o
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8.3.1.2 Registration statistics fro
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1. Planning and Event Management 2.
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Figure 43 Planning and Event Manage
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Table 3 Example of a WBS and Activi
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Orders During the delivery of the e
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• cultural groups/demographics;
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• ballot printing; • photo-copy
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either a negotiated flat fee or a v
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processes, which link into Recruitm
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perceptions of their voting or regi
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Figure 49 Mailed Notifications - In
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Figure 50 Advertising and Communica
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Advertising and Communications proc
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The content of forms and guides is
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Figure 52 Procurement, Storage, and
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surveys, meetings, reports, etc. In
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Lessons learned from all sources ar
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maximum allowable number of registe
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• what should be printed on the c
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Electors must register at the time
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Figure 57 Voting - Inputs, Outputs
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mail envelope and must be received
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number to the number of electors wh
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Figure 59 Results Reporting - Input
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8.3.3.7 Candidate election results
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about potential polling places, pol
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The act of voting is a fundamental
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identification documents raises acc
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electors they serve and to train an
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a list of some of the questions tha
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Firm, legislated deadlines that mus
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9.3.4 Secure and Private - limits a
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9.3.10 Energy Efficient - environme
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