PRELIMINARY DECLARATION OF ECOWAS OBSERVERVATION MISSION TO THE 17 NOVEMBER 2012 GENERAL ELECTIONS IN THE REPUBLIC OF SIERRA LEONE I. Introduction
1. Pursuant to the Constitutional Convergence Principles of the
Supplementary Protocol on Democracy and Good Governance (2001), and within the
framework of the Program of Assistance to Member States organizing elections,
the President of the ECOWAS Commission, His Excellency Kadré Désiré Ouédraogo,
deployed an ECOWAS Observer Mission (EOM) to monitor the conduct of the
Presidential, Parliamentary, Council, and Mayoral elections, which took place
concurrently in Sierra Leone on 17 November 2012.
2. The Mission, made up of 150 observers, includes delegations drawn from
the ECOWAS Council of the Wise, West African Ambassadors accredited to Abuja,
and the Community Parliament and Court of Justice. It also includes experts
drawn from the relevant Ministries and Electoral Management Bodies of Member
States, Civil Society Organizations, and the Media. It is led by Air Vice-
Marshall Christian Edem Dovlo, Commandant of the Kofi Annan International
Peacekeeping Training Centre (KAIPTC), Accra, and supported by the Vice-
President of the ECOWAS Commission and a technical team from the Commission.
3. Prior to the deployment, ECOWAS had been monitoring the political and
security situation in the country in the build-up to the elections through its
Early Warning Mechanism. In September 2012, the President of the Commission
dispatched a Fact-Finding Mission to the country to interact with the
principal stakeholders in the electoral process, with a view to assessing the
state of preparedness for the elections
II. Arrival and Deployment
4. The ECOWAS Observer Mission began arriving in the country on 11
November 2012. The Mission maintained contacts with the State authorities;
interacted with the media; and held consultations with other observer
missions, including the African Union, the European Union, the Commonwealth,
the National Elections Watch, and the Women’s Situation Room. It also
monitored the concluding phase of the electioneering campaign.
5. Following a briefing and orientation session on 15 November 2012,
teams of ECOWAS Observers were deployed to 64 towns and villages throughout
the fourteen Administrative Districts of Sierra Leone. These include 14
localities in Freetown (Western Area Urban I, Urban II, and Rural); 7 in
Kenema; 4 in Kono; 5 in Kailahun; 5 in Bombali; 3 in Kambia; 5 in Port Loko; 4
in Tonkolili; 3 in Koinadugu; 6 in Bo; 2 in Bonthe; 4 in Moyamba; and 2 in
6. While in the field, the ECOWAS observers maintained contact with the
Mission Situation Room in Freetown and with other missions. A team of
observers also monitored proceedings at the National Tallying Centre in
III. Preliminary Observations and Recommendations
7. Having analyzed dispatches and reports from team leaders in the field,
and after a debriefing session with returning observers, the ECOWAS Observer
Mission to the 2012 General Elections in Sierra Leone wishes to make a
Preliminary Declaration on the electioneering campaign and developments on
Election Day, 17 November 2012, as follows:
A. The Campaign, Opening of the Poll, Polling, Counting and Collation
i. Overall, the concluding phases of the electioneering campaign were
colorful, enthusiastic, and boisterous. They passed off peacefully without any
major incidents, helped by the holding of campaigns on alternate days and the
vigilance of the security agencies.
ii. Except in a few cases, the media was polarized, partisan, and
intemperate, reflecting the sharp Red - Green divide of the country’s
political landscape between the All Peoples Congress (APC) and the Sierra
Leone Peoples Party (SLPP).
iii. The Cooling-Off Day (16 November 2012) was generally observed.
iv. On Election Day, voters were observed in teeming numbers at the
polling centers long before the official poll opening time of 7:00 am. A few
had spent the night at the centers while several others had arrived as early
as 4:00 am.
v. The demographic spread among the voters showed a predominance of women
and the youth.
vi. There was conspicuous but unobtrusive presence of security agents at
most of the polling centers observed. Security was provided by the Sierra
Leone Police Force, supplemented by the Fire Service, Local Council Security
and other para-security agencies.
vii. Overall, the political parties and their followers respected the
prohibition of the display of party colors and symbols on Election Day.
viii. The vehicular restrictions put in place on Election Day, including
manned check-points at vantage points around Freetown and other cities,
greatly improved electoral security, even though they constrained the ability
of some voters to exercise their franchise.
ix. In the main, polling officials were on the scene at most of the
polling centers in advance of the official opening time.
x. Party agents of APC and SLPP were present at the opening of polls at
all the polling stations observed. In addition, some other agents of between
one and three other political parties were also observed, in particular the
People’s Movement for Democratic Change (PMDC), Democratic People’s Alliance
(DPA) and Independent candidates.
xi. Essential electoral materials were in place in most of the polling
centers observed, and the polls opened within 30 to 60 minutes of the official
opening time of 7:00 am.
xii. However, materials arrived late in a few polling centers, causing
delays in the commencement of polling. Instances observed included SLMB
Primary School in Port Loko (Code 0701), where materials arrived at 10:05 am;
Kondembaya’s Court Barry in Koinadugu District, Bombali and some parts of the
Gbong District, where voting did not start until after 3: 00 pm in some
xiii. At the opening of polls, Polling Center Queue Controllers at the
centers visited struggled to maintain order due to a combination of
insufficient numbers, and the influx and enthusiasm of voters; the situation
improved gradually with time.
xiv. In the early hours of voting, the Voter Enquiry Officers were too few
and professionally unprepared to guide voters to their designated polling
stations, leading to frustration. The situation was worsened by the difficulty
in identifying designated polling stations from the displayed serial numbers
xv. In some areas, the physically challenged, the aged and nursing
mothers, encountered difficulties in accessing polling stations.
xvi. Despite the challenges, voters exhibited maximum patience and
perseverance in their determination to exercise their civic rights and
xvii. The voting process was slow at the beginning, complicated by the sheer
number of elections being conducted, On the average, it took between 4 and 5
minutes to complete the voting cycle. However, as the polling officials warmed
to the task, the pace quickened.
xviii. The polling officials demonstrated adequate professionalism in
carrying out their duties while party agents ably watched over their party and
xix. International and regional observers were present in most polling
centers visited. These included, besides ECOWAS observers, the United Nations
Development Program (UNDP), European Union (EU), African Union (AU), the
Commonwealth, Carter Centre, British High Commission and American Embassy, the
Women’s Situation Room, and the Women’s Observer Mission. Effective presence
of Local Observers, was also recorded, led by the National Elections Watch
(NEW), and including Human Rights Commission of Sierra Leone (HRCSL), the
Political Parties Registration Commission, Sierra Leone Action Network on
Small Arms (SLANSA), Council of Churches in Sierra Leone (CCSL), Justice and
Peace Commission of the Catholic Church (JPCCC), Sierra Leone Teachers Union
xx. On the whole, the voting process took place in an orderly, transparent
and professional manner, and secrecy of the ballot was in the main ensured.
xxi. By 3:00 pm, most of the electorate who wished to do so, had exercised
xxii. In most polling stations observed, the polls closed at the official
time of 5:00 pm except in the cases where materials arrived too late.
xxiii. The sorting, counting, tallying, and reconciliation of the ballot, as
well as the declaration and certification of results at the polling stations,
were carried out in a professional, transparent and credible manner, and under
the watch of party agents and observers.
B. Challenges Observed
8. Besides the deficiencies noted above, the ECOWAS Observer Mission also
noted a few isolated incidents that could have marred the smooth and peaceful
conduct of the polls, including the following:
i. Where voting closed well after 5:00 pm, the absence of back-up
lighting obliged party agents to improvise with cell-phones and flashlights to
enable counting to proceed.
ii. The premeditated acts of intimidation at certain polling stations,
Around 5:15 pm on Election Day, a Cabinet Minister, dressed in military
fatigues, led a convoy of armed soldiers to the densely populated precinct of
Hill Station in Freetown. There, they were confronted by the local youth,
provoking chaos and panic. It took the arrival of observers from ECOWAS and
NEW, coupled with the intervention of the Operational Support Division units
for the convoy to beat a retreat.
iii. At Polling Center Code No. 14221 at Metropolitan Center, Wilkinson
Road, an individual snatched a number of unused ballot papers at Polling
Station No. 5 and ran away. He was, however, later apprehended by the police.
iv. At the ‘Under 5’ Government Hospital Polling Center (Code 02013) in
Kenema, ECOWAS observed the display of party posters.
v. At the same Center, as well as in a number of rural areas, the absence
of standard polling booths and their poor improvisation may have undermined
the secrecy of the ballot.
vi. It is the view of the ECOWAS Mission that these inadequacies observed
do not diminish the transparency, fairness or the credibility of the electoral
process at this point in time.
vii. Further, the Mission would like to draw attention to the mitigating
circumstances with regard to the inadequacies observed. First, the elections
are the first to be organized solely by Sierra Leoneans themselves since the
end of the Civil War. Secondly, the novelty of the biometric system, coupled
with the conduct of multiple elections on the same day, made certain
C. Preliminary Conclusions and Recommendations
9. In light of the preceding observations and analysis, the ECOWAS
Observer Mission to the 2012 General Elections wishes to make the following
i. The preparation of the 2012 elections, the conduct of the
electioneering campaign, as well as the processes on Election Day up until the
certification of the results of the four elections by the responsible
officials at the polling stations, were free, fair, and credible. The vast
majority of the qualified Sierra Leonean population, who wished to do so, were
provided the required freedom and space to exercise their constitutional
rights to vote or to be voted for.
ii. The ECOWAS Observer Mission will continue to closely monitor the
concluding phases of the electoral process, in particular the transmission of
the electoral results and supporting materials to the National Tallying
Center, as well as the processing and declaration of provisional results, and
will make further declarations where and when appropriate.
iii. The ECOWAS Observer Mission warmly congratulates the peace-loving
people of Sierra Leone, particularly the political leaders, their followers,
and the electorate in general, for the tenacity, determination, sense of
moderation and patriotism demonstrated in their quest for democracy and
development. The Mission wishes to also commend the National Electoral
Commission, the security agencies and all the other concerned stakeholders for
their invaluable contribution to the success so far achieved, and urges them
to pursue the process to its logical conclusion with the same determination
iv. At this juncture, the ECOWAS Mission would like to caution individuals
and groups, in particular the political parties, the media and civil society
organizations, to refrain from speculating on or declaring unofficial results
until they are officially declared. In this regard, the Mission urges the
Electoral Commission to come out with the provisional results as soon as
v. The Mission calls on all candidates and their supporters to continue
to respect due process and the rule of law at all times. Given the individual
and collective responsibility for the success of the process, the Mission
urges all to resort only to legal means to seek redress of any grievances
emanating from the electoral process
vi. Regarding the need to further strengthen the electoral process in
Sierra Leone, the ECOWAS Observer Mission wishes to recommend to the in-coming
Government, the Electoral Commission, and all other relevant stakeholders, to
prioritize voter education and strengthen the electoral infrastructure in the
country. The Mission also wishes to urge the in-coming Parliament to revisit
the issue of nomination fees for candidates, which nearly marred the
preparatory phase of the 2012 Elections, with a view to finding a consensual
solution to the matter.
vii. ECOWAS wishes to congratulate the people of Sierra Leone for their
exemplary comportment up to this point.
Done at Freetown, this 17th Day of November 2012