Final Report of the International Observers to the Abyei Area Community Referendum

November 2013

Contents
Foreword ...................................................................................................3 Executive Summary .................................................................................4 Overview of Observation Mission ......................................................5 Back round ..........................................................................................! "eferendum Mana ement ......................................................................1# $oter "e istration ...............................................................................1% &re'arations for &o((in ......................................................................1) *+e $oter "e istry ,istribution of Sensitive Materia(s &o((in .................................................................................................1.ountin .................................................................................................%5 .onc(usions and "ecommendations ....................................................%-

Foreword
*+e /byei /rea .ommunity "eferendum +as been 0ud ed as 1uni(atera(23 even 1i((e a(2 1 by many w+o were not 'resent durin t+e 'rocess and +ave (itt(e idea of w+at actua((y took '(ace in /byei /rea. *oo many condemnations +ave been +asty. 4t wou(d +ave been better3 in our o'inion3 if t+ose w+o condemned t+e referendum +ad first en5uired as to t+e conditions and 'rocedures under w+ic+ and by it was carried out. *+e /frican 6nion 7/68 s+ou(d make a 0ud ement as to w+at extent t+e 9 ok ,inka successfu((y im'(emented its own 'ro'osa( on t+e basis of evidence3 rat+er t+an issuin an a 'riori statement. :e +o'e t+at t+is re'ort can 'rovide t+e muc+;needed evidence t+at is re5uired in reac+in decisions as to +ow to react to t+e /byei /rea .ommunity "eferendum3 and t+at t+ose actors w+o +ave made +asty 0ud ements wi(( revise t+eir o'inion in t+e (i +t of it. :e note t+e current uncertainty re ardin t+e way forward and +o'e t+at if any referendum is +e(d in /byei /rea in t+e future3 (essons wi(( be (earnt from t+e /byei /rea .ommunity "eferendum and from t+is re'ort3 t+at wi(( stren t+en any future 'rocess. :e3 (ike t+e /frican 6nion &eace and Security .ounci( 7/6&S.83 +o'e to see 'eace3 security and stabi(ity 'romoted in t+e re ion3% but be(ieve t+at i norin 3 misre'resentin or fai(in to 'ro'er(y acknow(ed e t+e /byei /rea .ommunity "eferendum wi(( a ravate t+e situation on t+e round and create a barrier to t+e reso(ution of t+e fina( status of /byei. :e a''ea( to a(( to 0ud e t+e /byei /rea .ommunity "eferendum on t+e evidence and revise current 'ositions in t+e (i +t of t+at evidence. <umi(ity and t+e wi((in ness to revise o'inions is t+e first re5uirement of an evidence; based a''roac+.

<anna+ .ross and *im F(atman 9ovember %#13

1 %

/frican 6nion3 1&ress "e(ease= *+e /frican 6nion Stron (y .ondemns t+e <o(din of a 6ni(atera( >"eferendum? in /byei32 October %@3 %#13. /frican 6nion &eace and Security .ounci(3 14#5t+ Meetin &ress Statement32 9ovember )3 %#13.

Executive Summary
*+e dec(aration made by t+e 9 ok ,inka enera( conference w+ic+ estab(is+ed t+e /byei /rea .ommunity "eferendum .ommission 7//.".8 invited internationa( observers to witness t+e referendum.3 /(t+ou + forei n 0ourna(ists a(so en0oyed a +i + (eve( of access and civi( society or anisations and o''osition 'o(itica( 'arties in Sout+ Sudan acted as externa( observers3 we were t+e on(y internationa( observers w+o res'onded to t+e invitation. *+ere was a +i + (eve( of trans'arency in t+e /byei /rea .ommunity "eferendum. *+e referendum was 'eacefu( and credib(e. Structures functioned we(( and incor'orated (oca( know(ed e and ex'ertise. /(( voters e(i ib(e under t+e /frican 6nion <i + 4m'(ementation &ane( 7/6<4&8 'ro'osa(4 commended by t+e /6&S. and ot+er internationa( institutions and overnments +ad o''ortunity to re ister and vote3 and no e(i ib(e voter was 'revented from doin so. :e wou(d (ike to commend t+e //.". for a com're+ensive and t+orou + 'rocess we((;executed. :e are satisfied t+at t+e resu(ts of t+e /byei /rea .ommunity "eferendum accurate(y re'resent t+e enuine ex'ression of t+e wi(( of t+e e(ectorate. :+i(e t+ere were minor irre u(arities derivin from t+e s+ort timetab(e and (ack of time avai(ab(e for voter education and staff trainin 3 t+e inte rity and credibi(ity of t+e 'rocess was not com'romised. *+is was an extraordinary ac+ievement iven t+e (o istica( c+a((en es t+e .ommission faced. :e +ad some concerns about assisted votin and (ack of attention to secrecy by bot+ voters and staff in a sma(( number of centres3 but t+is was t+e exce'tion and not t+e norm. :+ere it did take '(ace3 we are satisfied voters were iven a enuine c+oice and mani'u(ation was not t+e intent. /ssistance was enera((y iven in res'onse to re5uests by voters and attem'tin to miti ate t+e 'rob(ems faced by i((iterate and disab(ed voters. 4n many res'ects t+e /byei referendum exceeded t+e standards met by t+e Sout+ Sudanese referendum +e(d in Aanuary %#11. :e find t+at t+ere are no ood tec+nica( reasons to fai( to reco nise t+e /byei referendum. .ountries and institutions w+o reco nised t+e resu(ts of t+e Sout+ Sudanese referendum of %#11 as a enuine ex'ression of t+e wi(( of t+e e(ectorate3 but w+o fai( to do so in t+is case3 wi(( do so for 'o(itica( rat+er t+an tec+nica( reasons.

3 4

/byei /rea 9 ok ,inka &eo'(e?s Benera( .onference3 1,ec(aration of t+e 9 ok ,inka .ommunity of /byei /rea to <o(d /byei /rea .ommunity "eferendum32 October 1@3 %#13. /frican 6nion <i + 4m'(ementation &ane(3 1&ro'osa( on t+e Fina( Status of /byei32 Se'tember %13 %#1%.

Overview of Observation Mission

/(t+ou + t+e //.". accredited (oca( observers and externa( 7i.e.3 externa( to t+e 9 ok ,inka community8 observers from o''osition 'o(itica( 'arties and civi( society or anisations based in Sout+ Sudan3 we were t+e on(y internationa( observers of t+e /byei /rea .ommunity "eferendum. *+is was due to a (ack of interest from or anisations t+at traditiona((y observe referenda and e(ections. / c(ear invitation was issued to internationa( observers5 and t+e //.". were ready to accredit ot+er internationa( observers w+o 'resented t+emse(ves. 694SF/ 76nited 9ations 4nterim Security Force for /byei8 a''eared to +ave t+eir own observation mission3 but did not seek accreditation from t+e //.".. On re'eated occasions we witnessed t+em makin s+ort visits (astin a few minutes to "eferendum .entres in /byei town3 bot+ durin re istration and 'o((in . 7Our visits usua((y (asted % +ours.8

*+e internationa( observers were *im F(atman3 a re u(ar visitor to /byei workin vo(untari(y and direct(y wit+ (oca( c+urc+es to su''ort t+e dis'(aced 9 ok ,inka and returnees nort+ of t+e river Ciir3 and <anna+ .ross3 +is fiancee3 w+o was visitin /byei for t+e first time. *im +as been an e(ection a ent on numerous occasions in t+e 6C and is fami(iar wit+ a(( as'ects of e(ectora( 'rocedures. <is ex'erience and contacts in /byei +e('ed in identifyin w+ic+ (ocations wou(d be most usefu( to visit3 and enab(ed t+e verification of im'ortant information 7for exam'(e3 c+eckin t+e numbers of re istered voters in rura( 'o'u(ation centres a ainst t+e ex'ectations of t+ose invo(ved in assistin returns to t+ose areas or 'rovidin +umanitarian su''ort8. <anna+ 'rovided a usefu( counter;'ers'ective as one new to /byei /rea.

:e wou(d (ike to t+ank t+e //.". for t+eir co;o'eration and assistance3 w+ic+ far exceeded reasonab(e :e observed a(( sta es of ex'ectations. ,es'ite t+e referendum 'rocess= t+e time 'ressures re istration3 're'arations and resource for 'o((in day 7inc(udin constraints t+ey 'roduction of t+e voter faced3 members of re istry and distribution of t+e .ommission sensitive materia(s83 o'erated an o'en 'o((in and countin . :e door 'o(icy and we arrived in / ok on %# were ab(e to ask and 9ovember %#13 and were receive answers to accredited by t+e //.". our 5uestions at a(( t+e fo((owin day. :e times. Observers and visited 11 of %- (oca( 7Sout+ Sudanese and referendum centres= @ forei n8 0ourna(ists durin re istration and @ International Observer speaking to staff at were +osted in t+e durin 'o((in 3 and Referendum Centre //.". com'ound3 witnessed two counts from (ocated in t+e former start to finis+. :e note t+at t+e .arter .entre visited a simi(ar 'ercenta e of Ministry of Finance bui(din in /byei *own3 centres durin t+e %#11 referendum on t+e se(f; near t+e +os'ita( site. :e were t+erefore immediate(y aware of new deve(o'ments and determination of Sout+ern Sudan.) ab(e to monitor ve+ic(es (eavin and returnin wit+ sensitive materia(s. 5 /byei /rea 9 ok ,inka &eo'(e?s Benera(
.onference3 1,ec(aration of t+e 9 ok ,inka .ommunity of /byei /rea to <o(d /byei /rea .ommunity "eferendum.2 *+e .arter .entre3 Observing the 2011 Referendum on the Self-determination of Southern Sudan: Final Report 7*+e .arter .entre3 %#1183 !.

:e en0oyed continuous wa(k;in access to t+e data centre at t+e //.". com'ound and were ab(e to observe and ask 5uestions of staff at a(( (eve(s and at a(( times. *+is is 'articu(ar(y 5

im'ortant to note3 iven t+e obstruction internationa( observers faced w+en tryin to access t+e data centre in Auba durin t+e %#11 referendum on t+e se(f;determination of Sout+ern Sudan.! :e were even 'rovided wit+ soft co'ies of t+e sections of t+e voter (ist we re5uested3 in s'reads+eet format3 so t+at we cou(d run our own c+ecks on it. ,es'ite t+e (ack of ve+ic(es avai(ab(e to t+e //.". and t+e (o istica( difficu(ties t+is 'resented3 t+e //.". a(tered t+eir own '(ans to faci(itate trans'ort to centres we wis+ed to visit3 rat+er t+an t+e centres t+ey +o'e we wou(d visit3 durin bot+ re istration and 'o((in . //.". a(so faci(itated t+e trans'ort of 0ourna(ists. /s far as we are aware3 t+e on(y com'(aint made by any 0ourna(ist t+rou +out t+e entire 'rocess re(ated to +avin to wait a mornin for trans'ort to nort+ernmost 'o((in centres. :e do not find t+is com'(aint reasonab(e. *+e //.". +ad no duty to faci(itate trans'ort for 0ourna(ists. *+e de(ay was caused by a (ack of avai(ab(e ve+ic(es and t+e need to use some ve+ic(es to trans'ort ba((ot boxes from a secure overni +t (ocation to referendum centres so t+at votin cou(d be in on time. Four centres were wit+in wa(kin distance from t+e com'ound3 and cou(d be visited wit+out t+e need for assistance from t+e //.".. :e find t+at bot+ t+e //.". and staff at (oca( referendum centres ex+ibited a +i + (eve( of trans'arency. Aourna(ists +ad freedom to fi(m t+e inner workin s of t+e //.". and referendum centres. On occasion t+ey overste''ed boundaries by attem'tin to fi(m ordinary voters markin t+eir ba((ot3 so t+at t+e voter and +is or +er c+oice cou(d be identified from t+e '+otos or fi(m foota e. Sometimes referendum staff warned t+em a ainst t+ese 'ractices3 but on ot+er occasions t+ey a''eared to be intimidated by forei n 0ourna(ists and said not+in . :+i(e trans'arency is crucia(3 it +as (imits and s+ou(d not com'romise t+e secrecy of t+e ba((ot. :e are satisfied t+at t+is +a''ened on a sma(( number of occasions on(y. <owever3 0ourna(ists s+ou(d be aware t+at re u(ations a''(y to t+em as muc+ as to staff at referendum centres.
! 4bid.3 143 %#.

*+e commission and its staff reco nised t+e im'ortance of trans'arency to ensure t+e referendum com'(ied wit+ internationa( standards as far as was 'ossib(e. <owever3 a stron er motivation was t+e desire for t+e wor(d to see t+e 9 ok make t+eir decision as to t+e fina( status of /byei /rea. .ommission members3 staff at referendum centres and voters we s'oke to viewed t+e 'rocess as t+e im'(ementation of t+e /frican 6nion <i + 4m'(ementation &ane( 'ro'osa( for a referendum in October %#13. *+ey we(comed us and 0ourna(ists a(ike as t+ose w+o wou(d testify as to t+e conduct of t+e referendum and 'resent conc(usions to t+e internationa( community. *+is in itse(f dis'(ayed a +i + (eve( of confidence in t+e inte rity of t+eir 'rocess. Staff were wi((in to take t+e risk t+at observers wou(d witness some 'ractices inconsistent wit+ internationa( norms3 on t+e assum'tion t+at we wou(d a(so see t+at t+e resu(ts were a enuine ref(ection of t+e wi(( of t+e e(i ib(e e(ectorate 7i.e.3 e(i ib(e under t+e /6<4& 'ro'osa(8. *+is assum'tion was3 in t+e end3 borne out in rea(ity. oter registration at !unruok

Back round
/byei +as a (on 3 and contested3 +istory. *+e /byei Boundaries .ommission 7/B.8 ave some detai(s of t+is +istory in its re'ort 'resented in %##5.@ /ccounts of recent +istory are avai(ab(e e(sew+ere. /n attem't wi(( not be made to 'resent a fu(( +istory of /byei +ere3 but mere(y to situate t+e /byei /rea .ommunity "eferendum in its context.

for t+e referendum was t+e 9 ok ,inka3 but ot+er 'ermanent residents of /byei /rea wou(d a(so be ab(e to vote. *+e boundaries of /byei /rea were defined by t+e /B. in %##53 but t+e Bovernment of Sudan re0ected its conc(usions. /byei /rea was attacked and many 9 ok ,inka tem'orari(y dis'(aced in May %##@. *+e Bovernments of Sudan and Sout+ern Sudan a reed to submit to t+e verdict of t+e &ermanent .ourt of /rbitration at t+e <a ue3 w+ic+ furt+er de(imited t+e boundaries of /byei /rea and defined t+e area c(ear(y as t+e territory of t+e 9 ok ,inka c+iefdoms.- *+e Bovernment of Sudan first acce'ted3 t+en re0ected3 t+ese conc(usions. / referendum did not take '(ace as 'romised in Aanuary %#11. Before t+e se'aration of Sout+ Sudan on - Au(y %#113 t+e Sudanese /rmed Forces ;inc(udin Misseriya mi(itias incor'orated into it; destroyed muc+ of /byei town and dis'(aced t+e 9 ok ,inka 'o'u(ation in May %#11. / series of a reements fo((owed. :+en t+e Bovernments of Sudan and Sout+ Sudan 'roved unab(e to reac+ a reement on a 'rocess to reso(ve t+e fina( status of /byei3 a 'ro'osa( was 'resented by *+abo Mbeki.1# *+e 'ro'osa( was acce'ted by t+e Bovernment of t+e "e'ub(ic of Sout+ Sudan but re0ected by t+e Bovernment of Sudan. *+e 'ro'osa( +as been reco nised by t+e /frican 6nion &eace and Security .ounci( 7/6&S.8 as t+e on(y 1fair3 e5uitab(e and workab(e211 so(ution for /byei /rea3 but +as not yet been im'(emented by it. *+abo MbekiDs 'ro'osa( 'romised a referendum in October %#13 and offered furt+er c(arification as to voter e(i ibi(ity. / ain3 t+e 9 ok ,inka were identified as t+e tar et community. *+e Misseriya3 as seasona( nomads3 were not e(i ib(e to vote. <owever3 t+e 'ro'osa( offered a series of 'rotections so t+at t+ose sections of Misseriya w+o traditiona((y mi rate into and t+rou + /byei /rea3 wou(d be ab(e to continue to do so3
&ermanent .ourt of /rbitration3 1&ress "e(ease= /byei /rbitration= Fina( /ward "endered32 Au(y %%3 %##-. 1# /frican 6nion <i + 4m'(ementation &ane(3 1&ro'osa( on t+e Fina( Status of /byei.2 11 /frican 6nion &eace and Security .ounci(3 133-t+ Meetin .ommuni5ue32 October %43 %#1%.

%estru&tion of &lassrooms at "b#ei Catholi& Chur&h follo'ing 2011 atta&ks /byei was transferred to Sout+ern Cordofan by t+e co(onia( aut+orities in 1-#5 for administrative reasons. 4n t+e ear(y 1-5#s3 a c(ear ma0ority of c+iefdoms ur ed t+e &aramount .+ief of t+e day3 ,en Ma0ok3 to 'ersuade t+e aut+orities to reverse t+e decision. <owever3 action was not taken unti( it was too (ate3 and on t+e inde'endence of Sudan3 in 1-5)3 /byei remained in 9ort+ern Sudan. "e(ations between nei +bourin 9 ok ,inka and Misseriya communities deteriorated durin and after t+e 1-55;!% civi( war. 4n t+e /ddis /baba / reement of 1-!% a referendum on t+e se(f;determination of /byei /rea was 'romised. *+is 'romise was never im'(emented. *+e /byei &rotoco(3 'art of t+e .om're+ensive &eace / reement si ned in %##53 a ain 'romised a referendum. *+e tar et community
@ /byei Boundaries .ommission3 "b#ei $oundaries Commission Report3 Au(y 143 %##5.

w+atever t+e resu(t of t+e referendum. *+e 'ro'osa( received wides'read su''ort from t+e /6&S.3 /6 <eads of State3 t+e 6nited 9ations Security .ounci( 769S.8 and various nationa( overnments3 inc(udin t+e 6S3 6C and 9orway. *+e Bovernment of Sout+ Sudan encoura ed t+e 9 ok ,inka to return to /byei /rea in 're'aration for a vote3 even ivin 9 ok ,inka in overnment 'osts 'aid (eave to return for t+e referendum.1% *+e $ice;&resident3 Aames :ani 4 a3 attended a 'rotest in 9ew Eork at w+ic+ t+e 9 ok ,inka t+reatened to im'(ement t+e /6<4& 'ro'osa( t+emse(ves if t+e /6&S. did not3 and 'romised t+at t+e Bovernment of t+e "e'ub(ic of Sout+ Sudan 7"SS8 wou(d never (et t+e 9 ok ,inka down. <owever3 as t+e end of October drew near3 t+e Bovernment of Sout+ Sudan was si(ent on t+e issue of a uni(atera( referendum. *+e 4nformation Minister +inted t+at "SS wou(d not su''ort a referendum or anised by t+e 9 ok ,inka3 but t+e &resident and $ice;&resident +ave not commented3 and t+e res'onse of "SS remains unc(ear to date.13 4t is sti(( 'ossib(e t+at "SS may reco nise t+e resu(ts of t+e referendum if t+e /6&S. does not act to im'(ement a referendum. *+e 9 ok ,inka were not 're'ared to (et October %#13 'ass wit+out a referendum. One of t+e observers3 *im F(atman3 was 'resent in / ok and /byei town in t+e bui(d;u' to t+e 9 ok ,inka Benera( .onference +e(d on 1@ October %#133 inc(udin t+e time before former Sudan and Sout+ Sudan cabinet ministers ,r Fuka Bion ,en and ,en /(or arrived in /byei. ,urin t+is 'eriod3 most senior (eaders in /byei 'referred to res'ond to t+e /frican 6nionDs fai(ure to im'(ement t+eir 'ro'osa( by makin a dec(aration3 si ned by t+e traditiona( c+iefs of t+e 9 ok ,inka3 reso(vin t+e status of /byei t+emse(ves. <owever3 t+e ma0ority of inte((ectua(s and 'easants w+o +ad returned to /byei 'referred a referendum3 on
1% Sudan *ribune3 1Auba Brants /byei .itiGens Feave for "eferendum $oter "e istration32 Se'tember 53 %#133 www.sudantribune.comHs'i'.'+'Iartic(e4!-%5. 13 Sudan *ribune3 1S. Sudan Si(ent over /byei $ote Outcome32 October 313 %#133 www.sudantribune.comHs'i'.'+'Iartic(e4@)4%.

t+e rounds t+at t+ey +ad been 'romised a referendum and it wou(d s+ow more c(ear(y t+e wi(( of t+e w+o(e community. /t t+e 9 ok ,inka Benera( .onference +e(d on 1@ October %#133 two o'tions were discussed= a dec(aration by t+e - c+iefdoms or a 'eo'(eDs referendum. Stron rassroots backin for t+e second o'tion stren t+ened t+e +and of t+e minority of (eaders w+o 'referred a uni(atera( referendum and t+is became t+e dec(ared o'tion. *+e conference a(so set u' t+e /byei /rea .ommunity "eferendum .ommission3 a tec+nica( body tasked wit+ overseein and im'(ementin t+e referendum3 and ado'ted ru(es and re u(ations overnin t+e conduct of t+e referendum. /(t+ou + t+e 9 ok ,inka saw t+e referendum as im'(ementation of t+e /6<4& 'ro'osa( in t+e (i +t of t+e /6&S.Ds fai(ure to do t+e same3 t+eir decision was wide(y condemned. "SS wit+drew its backin 3 t+ou + its current 'osition is3 as above3 ambi uous. Misseriya (eaders c(ose to t+e Bovernment of Sudan and (ivin in C+artoum t+reatened vio(ence. Eout+ rou's t+reatened to carry out t+eir own referendum. 9eit+er t+reat +as materia(ised at t+e time of writin . / Misseriya referendum is un(ike(y3 since it cou(d not rea(istica((y be +e(d in /byei /rea3 wou(d need to be +e(d wit+ different e(i ibi(ity criteria to t+e /6<4& 'ro'osa(3 and wou(d be un(ike(y to meet t+e same +i + standards as t+e 9 ok ,inka referendum. 4n any case3 t+e Misseriya community is divided and Misseriya yout+ +ave since wit+drawn t+is t+reat.14 *+e .+air'erson of t+e /6 commission3 9kosaGana ,iamini Juma3 dec(ared t+e referendum i((e a(315 wit+out substantiatin +er a((e ations. :+i(e t+e 'ur'ose of t+is re'ort is not to make 'o(itica( 0ud ements3 and every effort +as been made to 'resent a factua( account above3 it is im'ortant to (ay out t+e basis on w+ic+ we3 as observers3 'artici'ated in t+e referendum. :e be(ieve t+at3 accordin to internationa( (aw3 every community +as t+e ri +t to se(f;
14 Sudan *ribune3 1Misseriya Eout+ Back down on .ounter;referendum in /byei32 9ovember 33 %#133 www.sudantribune.comHs'i'.'+'Iartic(e4@)!-. 15 /frican 6nion3 1&ress "e(ease.2

determination and t+at t+is ri +t exists inde'endent(y of any ot+er a reements w+ic+ +ave been reac+ed between Sudan and Sout+ Sudan on /byei. *+e /frican 6nion +ave every ri +t to refuse to reco nise t+e /byei /rea .ommunity "eferendum as im'(ementation of t+eir own 'ro'osa(. <owever3 t+is does not in itse(f make t+e 'rocess i((e a(. *+e 'rocess +as not3 to our know(ed e3 broken any nationa( or internationa( (aws and cannot t+erefore be i((e a(. Furt+ermore3 a reements si ned between two 'arties K Sudan and Sout+ Sudan K do not ne ate t+e ri +ts of a t+ird 'arty K t+e 9 ok ,inka K to se(f;ex'ression or even se(f; determination. 4n our view3 t+e resu(ts of t+is referendum3 if carried out to +i + tec+nica( standards 7as we 0ud e it +as been83 can (e itimate(y be reco nised as bindin by any nationa( overnment or internationa( institution. <owever3 t+e referendum does not in itse(f 'revent t+e /frican 6nion from carryin out a furt+er referendum. Since t+e /6<4& 'ro'osa( reco nises t+e same e(i ib(e e(ectorate as t+e /byei /rea .ommunity "eferendum did3 and if any /6 referendum meets t+e same +i + standards as t+is referendum did3 t+e resu(ts are (ike(y to be identica(. 4f an /6 referendum is carried out t+en it wi(( be es'ecia((y im'ortant to (earn (essons 7bot+ 'ositive and ne ative8 from t+e conduct of t+is referendum3 since most as'ects of t+e 'rocess wi(( be t+e same. 9 ok ,inka (eaders3 w+i(e considerin t+e resu(ts of t+e /byei /rea .ommunity "eferendum bindin and (obbyin for reco nition of t+e resu(ts3 a''ear to be o'en to t+e 'ossibi(ity of t+e /6 carryin out its own 'rocess3 and view t+e two 'rocesses as com'(ementary. 4t is at (east t+eoretica((y 'ossib(e t+at some overnments and institutions wi(( reco nise t+e resu(ts of t+e /byei /rea .ommunity "eferendum3 w+ereas ot+ers wi(( ur e t+e /6&S. to im'(ement a referendum before reco nisin its resu(ts.

!oman a'aiting !F( food distribution at )ulmul

"eferendum Mana ement

On our arriva( in /byei town we were introduced to t+e .+air'erson and anot+er member of t+e //.". and immediate(y accredited as internationa( observers. 4n t+is first meetin wit+ members of t+e //.". we were iven a co'y of t+e ru(es and re u(ations overnin t+e conduct of t+e referendum3 uide(ines iven to eac+ "eferendum .entre3 and a (ist of "eferendum .entres.

t+e workin s of t+e //.". and visits to "eferendum .entres made by t+e .ommission and t+e <i + .ommittee occurred at different times usin different ve+ic(es.

*+e ru(es and re u(ations mandated //.". to set u' "eferendum .ommittees at .ounty (eve(3 a''ointin a <ead and members of t+e .ommittees. .ommittees wou(d a''oint t+e <ead and members of "eferendum .entres and be res'onsib(e for t+e conduct of t+e referendum 'rocess wit+in t+eir .ounty. +ad a +i + !e 'ere highl# impressed .ommittees de ree of autonomy. *+ey :e were +i +(y im'ressed 'ith the rules and were ab(e to set u' sub; wit+ t+e ru(es and some centres to ensure a sufficient re u(ations3 a regulations***In number of "eferendum com're+ensive 3);'a e respe&ts+ these rules 'ere .entres were (ocated in a(( document coverin a(( more stringent than ,'o'u(ation centres. 4n Mi0ak3 as'ects of t+e referendum a sub;centre was set u' 'rocess. 4n some res'ects3 ele&toral la'* because of (oca( concerns t+at t+ese ru(es were more t+e 'o'u(ation was dis'ersed strin ent t+an 6C e(ectora( over a (ar e area. 4n / ok3 severa( sub;centres (aw. 7:e are not ab(e to s'eak wit+ aut+ority were set u' since a substantia( 'o'u(ation was about e(ectora( (aw in ot+er nations.8 concentrated in a sma(( area3 and t+ere were :e note t+at t+e ru(es and re u(ations were concerns t+at a sin (e centre wou(d not be ab(e ado'ted on 1@t+ October %#133 in advance of t+e to co'e wit+ (ar e numbers re isterin . :+ere start of t+e cam'ai n 'eriod. *+is com'ares subcentres were set u'3 bot+ t+e new centre and favourab(y to t+e %#11 referendum a((owin for t+e main centre were ade5uate(y staffed. :e did t+e se(f;determination of Sout+ Sudanese3 w+en not find any exam'(es w+ere recommendations ru(es and re u(ations were ado'ted we(( into t+e by t+e "eferendum .ommittees were not cam'ai n 'eriod. /s far as we cou(d te((3 t+e acce'ted by t+e //.".. Structures a((owed ru(es and re u(ations3 and t+e uide(ines3 were (oca( know(ed e and ex'ertise to be drawn on3 distributed to a(( "eferendum .ommittees and and ensured t+e e(i ib(e e(ectorate +ad a +i + <eads of "eferendum .entres. /t many of t+e (eve( of access to "eferendum .entres durin "eferendum .entres we visited3 we saw staff bot+ re istration and 'o((in . refer to t+e ru(es and re u(ations. *+e ru(es and re u(ations c(ear(y s'ecified t+at t+e //.". s+ou(d be financia((y3 administrative(y and tec+nica((y inde'endent of t+e /byei /rea <i + .ommittee 7//<.8. :e found t+at3 a(t+ou + not a(( externa( 0ourna(ists understood t+is distinction3 t+e //.". made reat efforts to 'reserve it. Meetin s of t+e //.". and t+e //<. were entire(y distinct. *+e //.". o'erated as a 'ure(y tec+nica( body and did not take 'art in 'o(itica( decisions or 're'arations for t+e ce(ebrations or anised by t+e //<.. *+e //<. did not interfere in :e found t+at "eferendum .ommittees were functionin we(( in a(( t+e counties we visited. Members of t+e .ommittees circu(ated between t+e .entres durin t+e day w+i(e re istration and 'o((in took '(ace3 c+eckin t+at 'rocedures were bein fo((owed by (oca( staff. Staff at t+e .entres c(ear(y understood t+e structures set u' under t+e ru(es and re u(ations w+en we 5uestioned t+em3 and deferred to t+e "eferendum .ommittees as a''ro'riate. *+e .ommittees 'roved an im'ortant structure for (o istica( reasons. *+ey co((ected re istration (ists from t+e centres and brou +t t+em to centra( (ocations w+ere //.". members and 1#

staff cou(d co((ect t+em3 and received sensitive materia(s3 makin distribution and co((ection of resources 'ossib(e in a (ar e area wit+ access 'rob(ems. 7Some roads were sti(( water(o ed3 as t+e referendum took '(ace soon after an extended rainy season.8 .+iefs and e(ders a(so a''eared to understand t+eir ro(e we((. *+ey acted as identifiers3 ready to estab(is+ t+e identity of any voter w+ose e(i ibi(ity was in doubt. Some were a(so members of "eferendum .ommittees. *+ey deferred to <eads of "eferendum .ommittees as a''ro'riate even t+ou + many +ad a +i +er (eve( of aut+ority wit+in wider society. //.". members and staff a(so circu(ated between t+e centres. :e witnessed t+em reso(ve 'rob(ems in some centres and were ab(e to re'ort 'rob(ems to t+em at ot+er centres3 w+ic+ were immediate(y reso(ved. :e are satisfied t+at t+e structures envisa ed under t+e ru(es and re u(ations were im'(emented and functioned we((. 4n enera(3 t+e ru(es and re u(ations were fo((owed strict(y. :+ere t+ey were not3 t+is was usua((y a conse5uence of a condensed timetab(e. For exam'(e3 t+e t+ree;day 'eriod for a''ea(s and ob0ections cou(d not be accommodated wit+in t+e timetab(e. <owever3 t+is was not an issue as no a''ea(s or ob0ections were made.

.lders+ Referendum Committee+ and Centre members at a sub-&entre in )i/ak 11

$oter "e istration

$oter re istration started on %# October %#13. <owever3 t+e s+ort time;frame between t+e decision to +o(d a referendum3 made on 1@t+ October %#133 and t+e start of t+e 'rocess3 resu(ted in de(ays. Most "eferendum .entres were not o'ened unti( %1st October. /s far as we are aware3 / ok3 t+e centre wit+ t+e +i +est number of 'otentia( voters3 was t+e on(y centre to o'en on %#t+ October. Feu centre o'ened on %%nd October3 but was t+e on(y exam'(e we found of re istrations startin so (ate. 4n addition3 some centres did not o'en on time every day. For exam'(e3 :unruok did not o'en unti( 11am on t+e %1st and -.45am on t+e %%nd. / (ack of cars to trans'ort staff to t+e .entre was cited w+en staff were 5uestioned as to w+y .entres +ad o'ened (ate. $oters seemed +a''y to wait for staff to arrive and we do not t+ink anyone fai(ed to re ister because o'enin +ours were not strict(y ad+ered to.
t+

,iscussions wit+ members of /byei /dministration and members of t+e .+urc+ w+o +ave been assistin returnees in rura( areas su est t+at t+e numbers re istered in a(( (ocations re'resent a +i + 'ro'ortion of over;1@s w+o +ave returned3 exce't in / ok. / variety of reasons were iven by .ommission and .ommittee members for t+e (ow 'ro'ortion of voters re istered in / ok. One member of t+e .ommittee coverin /byei town su ested t+at 'eo'(e in / ok may not +ave been as aware of t+e referendum as 'eo'(e in /byei town or t+e vi((a es w+ere returnees +ad sett(ed. 4t is true t+at t+ere was (itt(e time for voter education or mobi(isation a+ead of t+e re istration 'eriod3 and t+at traditiona( networks3 a vita( source of information3 are not as stron in / ok w+ere 'eo'(e from a(( - 9 ok .+iefdoms are tem'orari(y resident. <owever3 mobi(isation cam'ai ns were conducted durin t+e re istration 'eriod3 and t+e sub;centres in /niet market were c(ear(y visib(e to a((. / series of demonstrations were +e(d in / ok in t+e bui(d; u' to t+e vote and word of mout+ s'reads fast. / .ommission member su ested t+at t+e interest in / ok was not as +i + as in /byei town. S+e noted w+i(e t+e numbers re istered in / ok were 'ro'ortionate(y (ow3 t+e .ommission cou(d not force residents to re ister and vote. 4t is (ike(y t+at t+ose motivated to return to /byei town +ad a +i +er (eve( of interest in t+e vote t+an t+ose resident in / ok. 9onet+e(ess3 no reason offered satisfactori(y ex'(ains t+e (ow numbers of voters re istered in / ok. :e are3 +owever3 satisfied t+at 9 ok and ot+er 'ermanent residents of / ok +ad o''ortunity to re ister and to vote. *+ere were more sub; centres in / ok t+an in any ot+er area3 and t+ese centres were o'en for a (on er 'eriod. Fate on t+e %4t+ October t+e //.". made a decision to extend t+e 'eriod for re istrations for a furt+er day. For most .entres3 t+is was entire(y unnecessary. Officia(s3 e(ders and ot+ers 'resent at t+e "eferendum .entres we visited to(d us t+ey be(ieved everyone w+o wou(d re ister +ad a(ready done so. 4n on(y one .entre we visited was concern ex'ressed t+at t+ere may be 1%

Registration in !unruok / ok was t+e on(y (ocation w+ere a (ow 'ro'ortion of t+e e(i ib(e e(ectorate re istered. On t+e (ast two days of re istration very few 'eo'(e were re istered and w+en 5uestioned3 re istrars3 <eads of "eferendum .entres and "eferendum .ommittees3 to(d us t+ey be(ieved a(most everyone from t+e c(uster of vi((a es covered by t+e "eferendum .entres in 5uestion +ad a(ready re istered. /(t+ou + it wou(d +ave been idea( for a(( "eferendum .entres to +ave o'ened on t+e %#t+3 we find t+at t+e de(ay in o'enin "eferendum .entres did not affect t+e abi(ity of t+e e(i ib(e e(ectorate to re ister or t+e tota( numbers re istered.

residents w+o +ad not yet re istered. *+is .entre was /kec+n+ia(3 w+ere t+e <ead of t+e "eferendum .entre stated +e be(ieved t+at some e(der(y voters w+o +ad difficu(ty comin to t+e .entre by foot +ad not yet arrived. <e +ad re5uested extra time to re ister voters and was waitin for advice from t+e //.". as to w+et+er +e cou(d re ister voters on t+e %5t+. :e were im'ressed by t+e (eve( of know(ed e t+is s+owed about t+e (oca( 'o'u(ation and recommend t+at if a furt+er referendum is +e(d by any institution3 structures are set u' w+ic+ can accommodate (oca( know(ed e in t+e same way as t+e /byei /rea .ommunity "eferendum did. 4n our view3 t+e (ow vo(ume of re istrations in / ok was t+e main reason for extendin re istrations for a furt+er day. *+e officia( reason iven was a (ar e number of e(i ib(e returnees arrived in / ok on t+e %4t+ and t+e //.". did not want t+em to be disenfranc+ised after t+ey +ad made t+e 0ourney to /byei /rea to vote in t+e referendum. *+e .+air'erson of t+e //.". to(d us t+at a(( .entres wou(d remain o'en on t+e %5t+ in case some of t+ese returnees trave((ed on immediate(y to t+eir vi((a es3 even t+ou + +e fe(t t+e on(y .entre w+ere t+ere wou(d be a (ar e number of voters re istered on t+e %5t+ wou(d be / ok. :e are not sure w+et+er every .entre did o'en. /t .entre number 43 Mu(mu(3 staff seemed re(uctant and un're'ared to o'en for a furt+er day. *+is .entre did not o'en unti( 1.5#'m on t+e %5t+3 and on(y a +andfu( of voters re istered t+at day. "e istration was a(so com'(icated at t+is .entre by a :F& food distribution takin '(ace on t+e same day. Many 'eo'(e assumed t+at t+e re istrars were re'resentin :F&3 not t+e //.".. ,es'ite t+e s+ort time;frame between t+e decision to +o(d a referendum and t+e o'enin of re istration centres3 we found t+at a(( t+e "eferendum .entres we visited +ad ade5uate staff and a(( t+e materia(s t+ey re5uired for re istration. Most .ommittees decided to +o(d re istrations3 wit+ (ess need for 'rivacy t+an 'o((in 3 outside t+e bui(din s used as .entres3 to im'rove visibi(ity. 7*+is was in accordance wit+ /rtic(e 34 718 of t+e ru(es and re u(ations.8

"e istrars were com'etent and (iterate. Most +ad com'(eted secondary education3 and a few +ad been invo(ved in t+e Sout+ Sudanese referendum in %#11. .+iefs or e(ders were 'resent at a(( .entres3 a(t+ou + not a(ways continuous(y3 to reso(ve any dis'utes about e(i ibi(ity. On one occasion3 at :unruok3 we witnessed an e(der correct re istrars w+o +ad recorded t+e birt+'(ace of t+ree voters as t+eir current residence. *+is c(eared u' confusion as to w+y t+ree voters a''arent(y residin in Maker /bior wou(d re ister in :unruok. *+e know(ed e of c+iefs and e(ders was instrumenta( in ensurin t+e accuracy of t+e voter re istry. :+i(e t+ey did not monitor t+e re istration of every name3 and some c+iefs were more invo(ved in c+eckin t+e re ister t+an ot+ers3 w+enever t+ere was an a''arent discre'ancy 7as above83 t+ey were ab(e to c(arify matters. 4f any furt+er referendum is +e(d in /byei /rea3 t+eir invo(vement wi(( be crucia(.

.lder points to banner at Referendum Centre number 1 9o;one was 'revented from re isterin at any .entre on t+e rounds t+at t+ey were ine(i ib(e3 a(t+ou + a number of new returnees at /wo(n+om were advised t+at it wou(d be better to re ister at t+eir fina( destination3 since t+ey cou(d on(y vote at t+e .entre t+ey re istered at3 and wou(d +ave to return to /wo(n+om if t+ey intended to vote t+ere. :e found t+at t+ere was no confusion over e(i ibi(ity criteria at any .entre. /(( staff +ad a c(ear understandin of w+o was e(i ib(e and w+o was not. 9o doubt t+is is 'art(y due to t+e controversy over e(i ibi(ity criteria at an internationa( (eve(. Staff 13

were aware of t+e e(i ibi(ity criteria set out in t+e /6<4& 'ro'osa(3 and be(ieved t+emse(ves to be im'(ementin t+at 'ro'osa(. 9o;one was 'revented from re isterin . <owever3 it a''ears t+at a(( voters were 9 ok and t+ere were no voters w+o were e(i ib(e by virtue of +avin 'ermanent abode in /byei but w+o were not 9 ok.

t+e voter re ister3 w+ic+ wou(d inc(ude 'o((in numbers3 avai(ab(e a day before 'o((in be an3 so t+at voters cou(d c+eck t+eir name was inc(uded3 a''ea( to a s'ecia( "eferendum .ourt if it was not3 and take note of t+eir 'o((in number so as to make findin t+eir name easier on t+e day. *+e cards were never intended as a 'roof of identity3 and (ike 'o((in cards in t+e 6C3 it was never envisa ed t+at t+e cards wou(d be re5uired w+en votin . :+i(e it may +ave been 'referab(e to ive voters some kind of token w+en re isterin 3 we find t+at t+e inabi(ity to 'roduce cards did not dama e t+e referendum 'rocess.

:e found 5ueues of u' to 15 at "eferendum .entres on t+e %%nd and t+e %3rd. Lueues +ard(y existed at a(( on t+e %3rd3 %4t+ and %5t+. Staff made efforts to make sure 5ueues were order(y. 4, was rare(y c+ecked3 exce't to verify names3 at .entres w+ere residents were sett(ed and known. More 5uestions were asked of t+ose Chairperson of the ""CRC+ )on#luak "lor -uol+ registering arrivin from Auba and re isterin at "eferendum .entre 4nformation taken from and recorded about number 1 7/byei *own .entre83 t+e busiest voters at t+e re istration sta e inc(uded t+eir centre. 4n most areas3 a(( t+ose re istered were name3 a e3 sex3 c+iefdom3 occu'ation3 (eve( of from one c+iefdom3 or two c+iefdoms if t+e education3 'ayam and residence. :+i(e t+is boundaries of c+iefdoms s'(it across t+e c(uster seemed at first an excessive (eve( of of vi((a es attributed to a 'articu(ar 'o((in information3 it became c(ear t+at t+is station 7e. . :unruok3 w+ic+ inc(uded areas information was indeed necessary on 'ertainin to Bon o and /bior c+iefdoms8. 'roduction of t+e voter re istry. Many voters <owever3 in /byei *own .entre3 Mu(mu(3 / ok3 +ave t+e same names in /byei. 4n cases w+ere and /wo(n+om3 a(( areas w+ere returnees t+e fat+er is t+e same but t+e mot+er is con re ated3 t+ose re istered inc(uded 9 ok different3 more t+an a few 9 ok +ave t+e same from a(( - c+iefdoms. a e and t+e same names. *akin ot+er information enab(ed staff at t+e data centre to ,ecisions to o'en sub;centres3 in Mi0ak and c+eck t+at identica( names were not du'(icate / ok3 were made durin t+e re istration sta e. records and t+at voters +ad not attem'ted to *+is meant t+at voters voted at t+e same centres re ister twice in different "eferendum .entres. t+ey re istered at. *+is (ed to (ess confusion t+an durin t+e %#11 Sout+ Sudanese referendum3 *+e //.". +ad intended to ive t+ose w+ere t+e use of mobi(e centres in rura( areas re isterin cards wit+ t+eir 'o((in number on. meant t+at some voters arrived at t+e (ocation 6nfortunate(y t+ey were unab(e to secure t+e t+ey +ad re istered to find t+ere was no 'o((in tec+no(o y to 'roduce t+e cards wit+in t+e station t+ere. s+ort timeframe. *+e .ommission .+air'erson to(d us t+at t+e .ommission intended to make :e witnessed few irre u(arities durin t+e 14

re istration 'eriod. 4n our o'inion3 t+ere was one minor breac+ of /rtic(e ! of t+e ru(es and re u(ations. *+is was at Maria( /(eu3 w+ere a Eout+ For "eferendum banner +ad been erected next to t+e area w+ere voters w+ere bein re istered. *+e s(o an on t+e banner read= 1*+e 'eo'(e of ,inka 9 ok want to return to Sout+ Sudan. October %#132. :e ex'(ained our view t+at t+e banner dis'(ayed a c(ear 'reference as to t+e o'tions offered by t+e referendum and s+ou(d not be (ocated in a vicinity w+ere it wou(d be associated wit+ officia(s w+o s+ou(d be neutra( and im'artia(. *+e next time we visited t+is "eferendum .entre3 t+e banner +ad been moved a considerab(e distance from t+e "eferendum .entre and we +ad no furt+er concerns about its (ocation. *+e issue of cam'ai nin near 'o((in stations is one t+at often cro's u' durin 6C e(ections3 in t+e ex'erience of one of t+e observers. Aud ements as to w+at is 'ermissib(e is (ar e(y sub0ective. <owever3 extra vi i(ance s+ou(d be maintained w+ere t+ere is a(ready a wides'read assum'tion t+at t+ere wi(( be a (ar e ma0ority for one o'tion in a referendum. :+en we visited "eferendum .entres durin t+e re istration 'eriod3 we asked (oca( officia(s w+et+er t+ey +ad any concerns re(atin to t+e 'o((in 'eriod. *+e on(y concern was raised at Mi0ak3 w+ere t+e <ead of t+e "eferendum .entre said +e was worried about security3 and w+et+er t+e ba((ot box cou(d be 'revented from t+ose w+o +ad taken too muc+ wine. <e said +e +ad asked t+e //.". to 'rovide furt+er security. *+is was 'articu(ar(y a concern at ear(y sta es w+en //.".Ds '(an was to +ave someone s(ee'in over at eac+ "eferendum .entre 'rotectin t+e ba((ot box. ,ue to concerns about security3 t+e ba((ot boxes were taken by t+e //.". eac+ ni +t and stored at a secure (ocation3 revea(ed on(y to a se(ect few3 and returned in t+e mornin . :+i(e t+is 'revented (o istica( difficu(ties3 and occasiona((y ba((ot boxes were returned after 'o((in s+ou(d +ave started3 it a((eviated t+e on(y concern t+at was raised wit+ us by (oca( officia(s re(atin to t+e 'o((in 'eriod.

:e found t+at staff were +i +(y motivated and dedicated to ensurin as many e(i ib(e voters as 'ossib(e re istered. On t+e %4t+3 w+ic+ was to be t+e (ast day of re istration3 re istrars at Ma(ua( /(eu ex'ressed wi((in ness to stay o'en for a few extra +ours if necessary3 to ensure t+at no; one was disenfranc+ised.

!e found that staff 'ere highl# motivated and dedi&ated to ensuring as man# eligible voters as possible registered* On the 20th+ 'hi&h 'as to be the last da# of registration+ registrars at )alual "leu e1pressed 'illingness to sta# open for a fe' e1tra hours if ne&essar#+ to ensure that no-one 'as disenfran&hised*
Overa(( t+ere were few 'rob(ems durin re istration. :e are satisfied t+at a(( t+ose e(i ib(e under t+e /6<4& 'ro'osa( w+o wis+ed to re ister +ad t+e o''ortunity to do so3 and t+at officia(s fu(fi((ed t+eir ob(i ations under t+e ru(es and re u(ations di(i ent(y.

15

&re'arations for &o((in

*+e $oter "e istry
Ear(y on t+e //.". reco nised t+at 'roduction of t+e voter re istry wou(d be one of t+e reatest c+a((en es t+ey faced3 a c+a((en e exacerbated by t+e condensed timetab(e. *+e //.". 're'ared for t+is by co((ectin re istration (ists from "eferendum .entres near to t+e //.". com'ound3 durin t+eir own su'ervisory visits3 or w+en faci(itatin visits to our c+oice of .entres3 before t+e c(ose of re istrations. :ork be an on t+e voter re istry from t+e evenin of t+e %%nd onwards. *+e //.". +o'ed to transfer a(( names from re istration (ists onto s'reads+eets and reorder names in a('+abetica( order. Once one s'reads+eet +ad been created 'er "eferendum .entre3 and c+ecked a ainst t+e ori ina( (ist3 t+e s'reads+eets wou(d be combined and c+ecked for du'(icate names as a way of c+eckin voters +ad not attem'ted to re ister in different centres. 4n rea(ity t+is abuse was on(y a risk w+ere3 as in /byei town3 t+ere were a number of "eferendum .entres wit+in wa(kin distance of eac+ ot+er. Mu(mu( and /byeit+ony are %# minutesD wa(k away from "eferendum .entre number 1 in o''osite directionsM :unruok is a''roximate(y -# minutesD wa(k. &o((in numbers wou(d t+en be added. <eads of "eferendum .entres wou(d be 'rovided wit+ a co'y of a ty'ed (ist of voters re istered at t+eir .entre3 and a co'y of t+e ori ina( (ist as a backu'. *+is 'ractice 'roved im'ortant3 as at one "eferendum .entre a voterDs name cou(d not be found on t+e ty'ed (ist3 but was eventua((y found on t+e ori ina( (ist. Evident(y t+e name +ad been missed in t+e 'rocess of transferrin names onto t+e voter re istry. Even t+ou + t+e //.". took measures to start 'roduction of t+e voter re istry before re istration c(osed3 and brou +t in extra (a'to's and staff to work on t+e re istry3 t+e 'rocess of 'roducin t+e re istry and doin t+e necessary c+ecks took (on er t+an t+ey +ad antici'ated. *+is was not +e('ed by t+e decision to extend

re istration for a furt+er day. 4n t+e circumstances3 it was a brave decision by t+e //.". to a((ow observers wa(k;in access to t+e data centre to observe 'roduction of t+e (ist3 and ask 5uestions of staff. :e were ab(e to ascertain w+en (ists for various .entres were com'(eted. Most (ists were not com'(eted and verified unti( t+e evenin of t+e %)t+ October. ,ata for one "eferendum .entre was mis'(aced and +ad to be rety'ed (ater t+at evenin . For a minority of (oca(ities3 (ists were not ty'ed at a((. "e istration (ists were numbered by 'a e3 and 'o((in numbers were a combination of t+e 'a e number of t+e (ist and voter number 71;158 on t+at 'a e. *+is created additiona( 'rob(ems for t+ese .entres durin 'o((in as names were not in a('+abetica( order and were t+erefore +arder to find. <owever3 t+e vast ma0ority of "eferendum .entres +ad ty'ed and ori ina( (ists avai(ab(e for t+e start of 'o((in on t+e %!t+ October. :e were concerned t+at effective(y t+e voter re istry was not 'ub(is+ed unti( 'o((in started. 4t was not made avai(ab(e to t+e 'ub(ic as t+e ru(es and re u(ations demanded. $oters s+ou(d +ave been ab(e to ob0ect if t+eir own name was missin or ot+er names inc(uded w+o t+ey did not be(ieve s+ou(d +ave been inc(uded. *+e care and attention iven by //.". staff to 'roduction of t+e voter re istry resu(ted in no instances of voters com'(ainin t+at t+eir name was missin 3 save t+e one exam'(e a(ready iven t+at was reso(ved. &ressure to dec(are t+e resu(ts before t+e end of October meant t+at it was not viewed as an o'tion to de(ay votin by anot+er day to a((ow a day for voters to raise ob0ections. *+ere was a su estion by t+e //.". t+at c+iefs wou(d o t+rou + t+e re istry as an additiona( c+eck before it was 'ub(is+ed. <owever3 we did not see any evidence of t+is and do not be(ieve it took '(ace. :e did see //.". staff makin a series of c+ecks to ensure s'e((in s were correct3 names +ad not been missed off or inc(uded twice3 and any du'(icate names were different 'eo'(e. :e re5uested a soft co'y of t+e (ists for t+e four /byei town "eferendum .entres3 w+ere we 1)

be(ieved t+e risk of mu(ti'(e re istration was +i +est. *+is was 'rovided to us on t+e same day we asked for it3 and before t+e eventua( 'ub(ication of t+e (ist. :e ran our own c+ecks for du'(icate names. :e found a number of du'(icate names. Many +ad t+e same a es. <owever3 ot+er detai(s 7(eve( of education3 occu'ation3 c+iefdom etc.8 were different. :e acce't t+e ex'(anation offered as to w+y voters may +ave t+e same names and a es 7t+e simi(arity of 9 ok names and t+e 'ossibi(ity t+at some du'(icate names were t+e names of t+e same fat+er and a different mot+er8. 4t is not im'ossib(e t+at some voters re istered at more t+an one "eferendum .entre and ave s(i +t(y different information as to (eve( of education3 occu'ation3 etc. at eac+ .entre. <owever3 t+e risks of attem'tin to do so were +i +. $oters did not know in advance w+at kinds of c+ecks t+e //.". wou(d run. $oters attem'tin to ive t+e wron c+iefdom may +ave been found out by c+iefs and e(ders 'resent at t+e "eferendum .entres durin re istration3 w+o wou(d know t+eir (inea e. On t+e day3 votersD fin ers were inked after votin . 9o staff re'orted and no observer witnessed a voter w+ose fin er +ad a(ready been inked attem'tin to vote. Many centres +ad 1##N or near(y 1##N turnout. *+is in itse(f su ests t+at mu(ti'(e re istrations did not take '(ace. 4n any case3 9 ok voters knew t+at t+e fina( resu(t was (ike(y to be a (ands(ide for Sout+ Sudan3 and t+at any 'ractice w+ic+ undermined t+e vote wou(d undermine t+e credibi(ity of t+ose resu(ts. :e t+erefore find bot+ t+at mu(ti'(e re istrations were rare or non;existent3 and t+at t+e referendum 'rocess inc(uded various c+ecks durin re istration3 com'i(ation of t+e voter re istry3 and 'o((in 3 t+at miti ated stron (y a ainst mu(ti'(e votin . :+i(e t+ere were 'rob(ems wit+ t+e 'roduction of t+e voter re istry3 and we remain critica( of t+e fai(ure to make t+e voter re istry " sealed ballot bo1

avai(ab(e to t+e 'ub(ic3 we be(ieve t+at t+e inte rity of t+e voter re istry was +i +3 and commend t+e //.". on maintainin

***'e believe that the integrit# of the voter registr# 'as high+ and &ommend the ""CRC on maintaining e1emplar# standards of transparen&# despite the problems the# fa&ed*
exem'(ary standards of trans'arency des'ite t+e 'rob(ems t+ey faced. *+e //.". did t+e best 0ob 'ossib(e iven t+e (imited tec+no(o y avai(ab(e for a se(f;or anised community referendum. 4f anot+er referendum is carried out in t+e future3 we wou(d (ike to see more time bui(t in to t+e timetab(e between t+e end of re istration and t+e start of 'o((in 3 and more effort made to ensure t+at t+e voter re istry is dis'(ayed in a 'ub(ic '(ace in advance of t+e start of votin .

,istribution of Sensitive Materia(s

9o sensitive materia(s were distributed to "eferendum .entres before t+e mornin of %! t+ October3 t+e first day of 'o((in . <eads of "eferendum .ommittees co((ected ba((ot boxes3 knives3 ba((ots3 inde(ib(e ink3 stam's3 canvas 'osters and strin from t+e //.". com'ound to et+er wit+ t+e ty'ed and ori ina( voter (ists on t+e evenin of %)t+ October. *+ey were taken to secure (ocations in eac+ county overni +t3 and to "eferendum .entres on t+e mornin of %!t+ October. *+is 'rocess 'rovided ade5uate security and uarantees a ainst mani'u(ation3 but (ack of ve+ic(es meant t+at 'o((in started (ate in a minority of "eferendum .entres on t+e %!t+. Ba((ot boxes were sea(ed usin im'rovised measures by .ommission members 1!

before <eads of "eferendum .ommittees were 'ermitted to take t+em. *+e boxes K '(astic stora e boxes K were ta'ed so t+at t+ey cou(d not be o'ened and //.". stam's were '(aced over t+e ta'e and t+e boxes t+emse(ves. Our view was t+at t+is did not uarantee t+at t+e boxes cou(d not be tam'ered wit+3 as ta'e cou(d be removed and re'(aced3 but t+e boxes were ta'ed in suc+ a way t+at (ar e amounts of ta'e wou(d +ave to be removed3 and t+e risk of (eavin evidence of tam'erin wou(d be +i +. :e found t+is a ood im'rovised measure and note t+at we saw no evidence t+at boxes +ad been tam'ered wit+ durin 'o((in or immediate(y 'rior to countin . 6nfortunate(y3 t+e canvas 'osters desi ned to be dis'(ayed outside 'o((in stations +ad been wron (y 'rinted3 and dis'(ayed a confusin ba((ot desi n t+at was not identica( to t+e actua( 'rinted ba((ots. *+is may +ave caused confusion to a sma(( minority of voters3 a(t+ou + t+is was miti ated by ex'(anations iven by staff durin t+e 'o((in 'rocess. *+is was an unfortunate but re(ative(y minor mistake. :e wou(d (ike to commend t+e //.". for consistent(y ad+erin to best 'ractice in distributin sensitive materia(s3 des'ite t+e (o istica( c+a((en es faced. *+e attention 'aid to t+is as'ect3 es'ecia((y at t+e same time as tryin to com'i(e t+e voter re istry3 ref(ects extreme(y we(( on t+e inte rity of t+e referendum 'rocess and com'ares favourab(y to 'ractices re'orted durin t+e %#11 Sout+ Sudanese referendum. 4t was a(so an indication of its t+orou +ness and or anisation.

Sealing and stamping ballot bo1es

1@

&o((in
&o((in +ours varied at different "eferendum .entres. :e were to(d by staff in various centres t+at t+ey o'ened at @3 @.3# and -am. Fo istica( difficu(ties in de(iverin ba((ot boxes eac+ day meant t+at some "eferendum .entres did not o'en unti( mid;mornin . For exam'(e3 ,un o' o'ened at 1#.3#am on %!t+ October. 694SF/3 w+o continued to 'ay s+ort visits to t+e four centres in /byei town3 to(d us t+at :unruok +ad o'ened at 1#am on t+e same day. $oters waited 'atient(y unti( "eferendum .entres o'ened. /s many "eferendum .entres +ad a turnout of or a''roac+in 1##N3 we do not t+ink s(i +t variations in o'enin +ours 'revented re istered voters from votin . Some centres were re'orted to +ave c(osed ear(y as 1##N of re istered voters +ad a(ready voted. *+e 'ractice of kee'in ba((ot boxes in a secure (ocation overni +t and de(iverin t+em to "eferendum .entres eac+ mornin was in our view 'referab(e to t+e initia( '(an w+ereby one 'erson wou(d s(ee' wit+ t+e ba((ot box at eac+ "eferendum .entre. :e +ad been concerned t+at t+e initia( '(an '(aced too muc+ trust in a sin (e 'erson at eac+ .entre3 and t+at a sin (e 'erson wou(d not be ab(e to 'rotect t+e ba((ot box if t+ere was a security incident. .1amining the voter registr#

it in t+e ba((ot box. /t most .entres3 t+ese 'rocedures were s'(it into t+ree se'arate areas inside t+e "eferendum .entre. /t some .entres3 t+e first and second sta es were combined. /t a(( .entres we visited3 wit+ t+e exce'tion of ,un o'3 votin took '(ace inside t+e .entre 7usua((y a 'rimary sc+oo(8. /t ,un o'3 returnees were s(ee'in in every room of t+e .entre and so t+is was not a''ro'riate. /t /kec+n+ia(3 a centre we were 'articu(ar(y im'ressed by3 t+e first sta e took '(ace outside3 and staff were on t+e door to ensure voters cou(d on(y enter t+e bui(din once t+eir name +ad been marked off. *+is meant t+ere was more s'ace inside t+e .entre and it was easier to maintain order and uarantee voter 'rivacy. *+e index fin er of voters was inked to s+ow t+ey +ad voted. *+is was usua((y done at t+e end of t+e 'rocess3 but was sometimes done at t+e second sta e. On a few occasions we saw voters attem't to (eave wit+out +avin t+eir fin er inked3 or 'ro ress direct(y to t+e second sta e on enterin t+e "eferendum .entre3 but t+is was a(ways s'otted and rectified by "eferendum .entre members. :e 'referred it w+en t+e index fin er was inked at t+e end of t+e 'rocess. Some voters +ad difficu(t carryin and markin t+eir 'a'er wit+ t+e t+umb of t+eir ri +t +and covered in ink to vote3 and t+e index fin er of t+eir ot+er +and a(ready inked. *+is increased t+e (ike(i+ood of ba((ots bein s'oi(t by accidenta((y ettin ink in bot+ boxes. /t Ma(ua( /(eu3 staff rea(ised t+at t+is was a 'rob(em and amended t+eir 'ractice3 ex'(ainin to us w+at t+ey were doin and w+y. 4n most .entres3 officia(s +ad access to bot+ ty'ed and ori ina( voter (ists. *+ey were ab(e to identify and mark off voters 5uick(y and efficient(y. :+ere .entres on(y +ad ori ina( (ists3 t+ere were often (on 5ueues as staff +ad to read t+rou + t+e entire (ist to find eac+ name. Because of t+is3 on(y 1# voters +ad voted at Ma(ua( /(eu by t+e time we arrived at 1.5#'m on t+e first day of votin . Ma(ua( /(eu and /wono+(m a((owed (ar e 5ueues to bui(d u'3 t+en ca((ed out names from t+e (ist w+o wou(d come u' to vote if t+ey were 'resent. *+is was a ood im'rovised so(ution w+ic+ enab(ed a(( 1-

Basic 'rocedures were simi(ar at a(( of t+e "eferendum .entres we visited. 9ames were c+ecked a ainst and marked off on t+e voter re istry. $oters were t+en iven a ba((ot 'a'er3 w+ic+ was stam'ed. $oters were t+en directed to an area w+ere t+ey cou(d mark t+eir ba((ot 'a'er and were encoura ed to fo(d it and '(ace

re istered voters to vote by c(ose of 'o((s. 7<owever3 /wono+(m actua((y +ad t+e ty'ed (ist3 so we remain unsure w+y staff used t+is met+od at t+is .entre.8 *+e //.". +ad 'rioritised 'roducin ty'ed (ists for t+e "eferendum .entres w+ere (ar er numbers of voters +ad re istered3 so t+at t+ose .entres t+at needed 5uicker t+rou +'ut were ab(e to 'rocess voters more s'eedi(y. .+iefs and e(ders were continuous(y 'resent at eac+ .entre we visited durin 'o((in to identify voters in case of any dis'ute over identity. 9o dis'utes arose t+at we were aware of. $oters 5ueued 'atient(y and a''eared to be in ood s'irits even w+ere3 as in Ma(ua( /(eu and /wono+(m3 t+ey were waitin for a few +ours. *+e on(y time we saw 'rob(ems in t+e 5ueue was at "eferendum .entre number 13 w+ic+ +ad (on 5ueues on t+e first few days as !3)4# 'eo'(e +ad re istered t+ere. *+e //.". ensured t+ere were '(enty of staff 'resent bot+ inside and outside t+e .entre and t+ey were ab(e to reso(ve any dis'utes t+at arose 5uick(y and 'eacefu((y. Most .entres ave disab(ed voters and women wit+ youn c+i(dren 'riority in t+e 5ueue.

name3 /wono+(m wrote down t+e names of voters w+o +ad voted on a se'arate (ist3 and Ma(ua( /(eu wrote out recei'ts w+ic+ voters t+en took to t+e second sta e and +anded in. *+ese 'rocedures did no +arm3 and 'rovided an additiona( means of verifyin w+o +ad voted if any dis'utes (ater arose. <owever3 t+ey wou(d +ave been im'ossib(e to re'(icate at .entres wit+ more t+an %3### voters re istered. :e witnessed staff turn 'eo'(e away on a sma((

!e 'ere parti&ularl# impressed b# the guidan&e given at Centre 3o* 1* 4uidan&e 'as &onsistent+ impartial and appropriate to the needs of ea&h voter*
number of occasions and at different centres. On eac+ and every occasion3 t+is was 0ustified and done in accordance wit+ t+e ru(es and re u(ations. /t Mu(mu( and /byeit+ony "eferendum .entres3 bot+ wit+in %# minutes wa(k of "eferendum .entre number 13 'eo'(e tired of 5ueuein at .entre number 1 tried to vote. Staff 'atient(y ex'(ained t+at t+ey must vote at t+e .entre t+ey re istered at. / ain at Mu(mu(3 one man arrived to find +is name was not on t+e (ist. /fter furt+er discussions3 it emer ed +e +ad been away from /byei durin t+e re istration 'eriod and +ad asked a friend to re ister +is name on +is be+a(f. *+is was not 'ermitted and +e +ad t+erefore not been re istered. /(t+ou + t+is was unfortunate3 staff a''(ied t+e ru(es and re u(ations correct(y. /t t+e second sta e3 a ba((ot 'a'er was stam'ed and iven to eac+ voter. /t t+e better .entres3 detai(ed uidance was iven as to +ow to vote at t+is sta e. Staff ex'(ained w+ic+ o'tion was Sout+ Sudan and w+ic+ was Sudan3 +ow to vote 7by '(acin a tick or t+eir t+umb'rint inside t+e ova( w+ic+ re'resented t+eir 'reference83 +ow to fo(d t+e 'a'er and w+ere to 'ut it. /t t+e .entres t+at ave detai(ed uidance at t+is sta e3 voters re5uired (ess assistance at t+e fina( sta e and we +ad fewer concerns about (ack of secrecy and assisted votin . :e were 'articu(ar(y im'ressed %#

Orderl# 2ueuing at "'onohlm Referendum Centre *+ere were minor differences in t+e way staff inter'reted t+e ru(es and re u(ations at different .entres. For exam'(e3 w+i(e a(( .entres marked off voters on t+e (ists t+ey +ad been iven by 'uttin a tick next to t+eir name3 ,un o' a(so asked voters to 'ut t+eir fin er'rint next to t+eir

by t+e uidance iven at .entre 9o. 1. Buidance was consistent3 im'artia( and a''ro'riate to t+e needs of eac+ voter. :+en a deaf and dumb voter arrived3 staff ex'(ained w+ic+ o'tion was w+ic+ by 'ointin and esturin nort+wards and sout+wards. *+e voter evident(y understood and was ab(e to cast +is ba((ot wit+out assistance at t+e fina( sta e. :+i(e /byei *own .entre and Mu(mu( were exem'(ary in t+is res'ect3 we are satisfied t+at bot+ o'tions were ex'(ained and voters iven a rea( c+oice at a(( .entres.

t+e time of our re'eat visit on t+e %-t+. $oters often +ad difficu(ty in fo(din t+eir ba((ot 'a'ers. Many tried to 'ost t+eir ba((ot 'a'er wit+out fo(din it. Staff tried to encoura e voters to fo(d t+eir ba((ot 'a'er (en t+ways so t+at ink did not transfer from one ova( to anot+er3 and votes were not s'oi(t. 4n most .entres3 staff mana ed to communicate and demonstrate t+is usin +and si na(s. <owever3 staff in a sma(( number of centres became frustrated and took t+e ba((ot 'a'er from voters3 fo(ded it3 and ave it back to t+em to 'ost into t+e ba((ot box. Some staff to(d us t+at voters needed +e(' as t+ey did not understand +ow to fo(d t+e ba((ot 'a'ers. <owever3 many voters a(so +ad difficu(ty '(acin t+eir ba((ot 'a'ers in t+e ba((ot box. Staff mana ed to demonstrate t+is wit+out touc+in t+e ba((ot 'a'er and we be(ieve it wou(d a(so +ave been 'ossib(e for staff to demonstrate +ow to fo(d t+e ba((ot 'a'er wit+out touc+in it t+emse(ves. / ain3 we note t+at w+ere detai(ed uidance was iven at t+e second sta e3 t+ere was a reduced need for assistance at t+e fina( sta e. /t ,un o'3 staff were so adamant t+at ba((ot 'a'ers s+ou(d be fo(ded (en t+ways t+at t+ey took ba((ot 'a'ers from voters and fo(ded t+e 'a'ers t+emse(ves w+enever t+ey tried to fo(d t+em t+e ot+er way. BiGarre(y3 t+is was t+e case even w+en voters used a biro to tick t+eir 'reference and t+ere was no c+ance of marks bein transferred from one ova( to anot+er. :e sus'ect t+at t+ey +ad been to(d t+e 'ro'er way of fo(din ba((ot 'a'ers durin t+eir trainin 3 and were determined to ensure exact 'rocedures were fo((owed. 4n future3 t+ose trainin staff need to ensure t+at t+ey understand t+e reasons for certain 'rocedures3 and t+e 'rinci'(es t+at (ie be+ind t+em. *+e condensed timetab(e meant t+ere was (itt(e time for staff trainin . 4t wou(d +ave been better if more time +ad been devoted to staff trainin 3 inc(udin su'ervised dry runs in t+e 'resence of //.". members. *+e ba(ance between a''ro'riate assistance and secrecy was +ard to ac+ieve and some .entres were better t+an ot+ers in t+is re ard. :e note t+at most of t+ose w+o took 'art in t+e 'o((3 bot+ voters and staff3 +ad never voted before3 since no %1

"uthenti&ation of ballots at Centre number 1 /t t+e fina( sta e3 voters marked t+eir ba((ot 'a'er3 fo(ded it and '(aced it in t+e ba((ot box. Most .entres +ad a c(osed off area w+ere voters cou(d mark t+eir ba((ot 'a'er in 'rivacy. Severa( +ad curtains attac+ed to writin benc+es or t+e cei(in . *+ere was an effort made at a(( .entres we visited3 barrin ,un o'3 to ensure t+at on(y one voter was 'resent in t+is area at once3 or two voters w+ere t+ere was c(ear(y s'ace for bot+ to cast t+eir votes in 'rivacy. 4n .entre number 13 t+ere was no curtain on t+e %!t+3 but t+e ba((ot box was far enou + away from t+e ot+er sta es to ensure secrecy. Staff +ad decided to add a curtain by

e(ections +ave been +e(d in /byei since t+e 1-!#s. Some voters c(ear(y needed a +i + (eve( of assistance. :e observed one voter try to vote by '(acin +is t+umb'rint on t+e sam'(e ba((ot on t+e wa((3 des'ite +avin 0ust been +anded a ba((ot 'a'er. :+en a frustrated member of staff to(d +im t+is was not +ow to vote3 and demonstrated by 'uttin +is own t+umb on t+e benc+ near t+e voterDs ba((ot 'a'er3 t+e voter res'onded by a(so 'ressin +is inked t+umb on to t+e benc+. 4n t+is context3 a (on er cam'ai n 'eriod before re istration started wou(d +ave been idea(3 so t+at more extensive voter education cou(d +ave been conducted. $oters and3 in some cases3 staff attac+ed (itt(e va(ue to secrecy. 4n many cases we witnessed voters try to s+ow t+eir ba((ot 'a'ers to staff to c+eck t+at t+ey +ad voted for t+eir intended o'tion. 4n most cases staff dec(ined to (ook and sim'(y ex'(ained t+e o'tions and +ow to vote a ain. / ain3 we wou(d (ike to commend t+e staff at /kec+n+ia( w+o fo((owed bot+ t+e (etter and s'irit of t+e ru(es and re u(ations w+en facin t+is di(emma. 4n enera(3 staff understood t+e im'ortance of secrecy and made efforts to ensure t+at neit+er t+ey nor ot+er

'+oto ra'+ed voters markin t+eir ba((ot. /t "eferendum .entre number 13 one 0ourna(ist was 'revented from doin t+is by staff. /t Mu(mu(3 0ourna(ists were initia((y 'revented from '+oto ra'+in voters markin t+eir ba((ot 'a'ers3 but w+en t+ey com'(ained3 restrictions were re(axed. :e be(ieve t+at staff were worried t+at 0ourna(ists wou(d re'ort a (ack of trans'arency to t+e internationa( community if t+ey restricted t+em in any way. Aourna(ists rare(y ventured outside t+e town and we 0ud e t+at t+is was not an issue at ot+er .entres3 or indeed for a si nificant number of voters. <owever3 c(earer uidance s+ou(d be iven to 0ourna(ists3 and staff trainin s+ou(d inc(ude +ow to dea( wit+ 0ourna(ists. Aourna(ists a(so +ave a res'onsibi(ity to ad+ere to 'rofessiona( et+ics t+emse(ves. Our concerns about (ack of secrecy re(ate a(most entire(y to two "eferendum .entres= Ma(ua( /(eu and ,un o'. :+en we arrived at Ma(ua( /(eu3 we found t+at voters were castin t+eir ba((ot in t+e 'resence of a staff member at t+e second sta e3 w+o was ivin c(ear direction. <owever3 a .ommission member trave((in wit+ us immediate(y identified t+e 'rob(em and ensured t+at a(( subse5uent votes were cast next to t+e ba((ot box3 be+ind a curtain3 at t+e fina( sta e. *+is im'rovement was made wit+out any intervention by us. Because of t+e 'rob(ems Ma(ua( /(eu faced wit+ t+eir voter (ist on t+e first day3 on(y 11 votes of a tota( of 13#@13 were cast before t+e .ommission member intervened.

In general+ staff understood the importan&e of se&re&# and made efforts to ensure that neither the# nor other voters &ould see ho' individual voters voted*
voters cou(d see +ow individua( voters voted. *+ere were notab(e exce'tions to t+is enera(ity. /t "eferendum .entre number 13 a number of ear(y voters dis'(ayed t+eir marked ba((ot 'a'er c(ear(y to ot+er voters3 staff and 0ourna(ists3 at t+e start of votin on t+e %! t+. /(( t+ese voters were 'o(iticians associated wit+ t+e <i + .ommittee3 and it was c(ear t+at t+ey wanted 'eo'(e to know +ow t+ey voted. :+en ordinary voters started to vote3 0ourna(ists (eft and voter 'rivacy was estab(is+ed. <owever3 t+ere were occasions w+ere 0ourna(ists fi(med or

Staff at )alual "leu+ &learl# able to vie' voters marking ballots+ before ""CRC intervened

%%

6nfortunate(y3 t+ere were a(so two members of staff sat be+ind t+e curtain3 assistin voters and ab(e to see +ow most voters were votin . :e asked staff to ensure t+ey ad+ered to t+e ru(es and re u(ations by sittin furt+er away from t+e area w+ere voters voted3 and refrainin from +and(in ba((ot 'a'ers once t+ey +ad been iven to voters. Staff fo((owed our advice to some extent3 but were frustrated w+en voters asked for and ex'ected t+eir assistance3 inc(udin in markin t+eir ba((ot 'a'ers. /t a (ater sta e3 .ommission members arrived to make one of t+eir re u(ar su'ervisory visits. :e ex'(ained t+e 'rob(ems to t+em and t+ey ensured t+at better uidance was iven to voters at an ear(ier sta e3 and t+at staff sat furt+er away from t+e area w+ere voters marked t+eir ba((ots. 4n tota(3 around t+irty voters voted at Ma(ua( /(eu before t+e .ommission reso(ved 'rob(ems t+ere to our satisfaction. :e witnessed a furt+er twenty voters votin in satisfactory conditions before we (eft t+e "eferendum .entre. :+en we returned3 correct 'rocedures were sti(( bein fo((owed. :e +ave confidence t+is continued to be t+e case3 since t+e count at t+is .entre recorded 5 s'oi(t ba((ot 'a'ers. 6nder t+e conditions we first witnessed at Ma(ua( /(eu3 it wou(d +ave been im'ossib(e for any voter to s'oi( t+eir ba((ot 'a'erO

satisfied t+at mani'u(ation was not t+e intent. Even w+ere assistance was iven3 voters were offered a enuine c+oice. $oters t+emse(ves a''eared to va(ue t+e assistance t+ey were iven. <owever3 we are sti(( concerned t+at voters +ad (ess a ency at ,un o' t+an at ot+er "eferendum .entres. ,un o' was an exce'tion and we did not witness simi(ar 'rocedures e(sew+ere3 exce't at Ma(ua( /(eu w+ere t+e 'rob(ems were reso(ved before -!N of ba((ots +ad been cast. .ommission members and "eferendum .ommittee members 'aid re u(ar su'ervisory visits to "eferendum .entres t+rou +out /byei /rea to ensure t+at t+e ru(es and re u(ations were bein fo((owed. :e ex'ect t+at3 as at Ma(ua( /(eu3 t+ese visits reso(ved 'rob(ems at

/t ,un o'3 one member of staff was often sat at t+e tab(e w+ere voters made t+eir mark3 and anot+er was c(ear(y observin from a distance. "ppropriate assistan&e offered to disabled voters $oters w+o were (iterate and more confident .entres we were not ab(e to visit3 at an ear(y t+ey knew w+at to do voted wit+out assistance3 sta e. /(t+ou + t+e (ar er "eferendum .entres but in most cases a member of staff sti(( in /byei town were +i +(y im'ressive3 we a(so observed t+em from a distance and occasiona((y found t+at 'rocedures were fo((owed in rura( intervened if +e fe(t t+ey were about to do centres t+at we visited3 w+ere t+ere were (ar er somet+in wron 3 (ike '(ace t+eir mark on t+e numbers of i((iterate and disab(ed voters. :e symbo( for Sout+ Sudan rat+er t+an in t+e ova( find no evidence for a enera( discre'ancy in next to t+e symbo(. Staff +ere were more standards between urban and rura( "eferendum concerned about voters s'oi(in t+eir ba((ot .entres. 'a'ers t+an t+ey were about maintainin t+e secrecy of t+e ba((ots. Officia(s seemed to be :e asked staff at "eferendum .entres we visited tryin to miti ate t+e 'rob(ems faced by to ive t+eir understandin as to w+at kind of i((iterate and disab(ed voters and we are assistance cou(d be iven and under w+at %3

circumstances. 4n most cases3 staff +ad a c(ear understandin of t+e ru(es and re u(ations. /t /byeit+ony3 officia(s ex'(ained t+at 1:e cannot force or even s+ow 'eo'(e w+ere to vote. 4t +as to be t+e voterDs c+oice. 4f t+ey can3 t+ey do it a(one3 but if t+ey are b(ind t+ere is a condition w+ere we can +e(' t+em.2 :e were 'articu(ar(y im'ressed wit+ t+e assistance iven to visua((y im'aired voters. /t severa( .entres3 we saw staff uide t+em to t+e fina( sta e3 offer t+em a c(ear c+oice between t+e two o'tions3 wait for t+em to ex'ress a 'reference3 t+en ex'(ain w+at t+ey were doin as t+ey '(aced t+e voterDs inked t+umb on t+e ova( corres'ondin to t+eir 'referred o'tion. :e are satisfied t+at ade5uate numbers of staff were 'resent at a(( t+e "eferendum .entres we visited and at a(( times. Staff were +e('fu( but not overbearin . *+ere was a 'eacefu(3 sombre and 5uiet atmos'+ere at a(( .entres. / few voters s'ontaneous(y burst into son or started c+antin after votin 3 but t+is was not encoura ed by officia(s. $oters were in +i + s'irits. :e en0oyed watc+in o(d (adies +obb(e u' to vote3 cast t+eir ba((ot3 t+en ain a new (ease of (ife and dance wit+ 0oy. Staff maintained order at a(( t+e .entres we visited at a(( times3 even durin t+e initia( media circus at "eferendum .entre number 1 at t+e start of votin on %!t+ October. :+i(e t+ere were minor irre u(arities at a sma(( number of .entres3 and we +ad concerns about t+e ba(ance between assistance and secrecy3 we are satisfied t+at t+ese concerns did not affect t+e inte rity or credibi(ity of t+e referendum 'rocess. $oters were offered a enuine c+oice. Officia(s offered im'artia( advice. *+ey did not direct voters ina''ro'riate(y. $oters faced no intimidation from officia(s and did not a''ear to be affected by Misseriya t+reats of vio(ence. *+ere was no mi(itary or 'o(ice 'resence at "eferendum

.entres. :e are satisfied t+at t+e entire e(i ib(e e(ectorate was ab(e to exercise t+eir vote in free and fair conditions.

Finding (aramount Chief $ulabek %eng -uol "rop6s name during polling at Referendum Centre number 1

!e are satisfied that ade2uate numbers of staff 'ere present at all the Referendum Centres 'e visited and at all times* Staff 'ere helpful but not overbearing* 5here 'as a pea&eful+ sombre and 2uiet atmosphere at all Centres*
%4

.ountin

t+e strin ent 'rocedures ado'ted and t+e inte rity of officia(s.

:e witnessed two counts from start to finis+3 at "eferendum .entre number 13 and Mu(mu(. ,urin sortin 3 ba((ots were o'ened3 dis'(ayed *+ese +ad t+e +i +est and t+ird +i +est c(ear(y3 0ud ed 7by consensus8 to be for Sout+ numbers of ba((ots cast. :e 0ud ed t+ere was a Sudan3 Sudan3 or unc(ear3 and 'ut in 'i(es. Sudan +i +er (ike(i+ood of somet+in oin wron at votes and inva(id votes were few and were not counted unti( eac+ box +ad been com'(eted. t+ese .entres. ,es'ite Sout+ Sudan votes were t+is3 t+e re(iabi(ity and co((ected to et+er3 trans'arency of t+e !e 'ere impressed b# the c+ecked a ain to make counts at "eferendum stringent pro&edures adopted sure t+ey were not .entre number 1 was3 inva(id3 counted into in our view3 +i +er t+an and the integrit# of offi&ials* tens and t+en into t+e norm in t+e 6C. +undreds. *+e +undreds One of t+e observers were bund(ed usin e(astic bands3 and t+en +as attended numerous counts in t+e 6C and +as never seen so muc+ care and attention counted a ain to c+eck eac+ bund(e contained one +undred votes. $otes were bund(ed usin iven3 nor so many c+ecks carried out durin t+e 'rocess. *+e count at Mu(mu( was e(astic bands. :+en t+e .entre ran out of e(astic undertaken in difficu(t conditions3 but was a(so bands3 officia(s im'rovised by tyin bund(es wit+ ribbon 'u((ed from t+e windows of t+e re(iab(e and trans'arent. .entreO / ain3 we were im'ressed by t+e /t bot+ .entres3 t+e tota( number of ba((ots was di(i ence of officia(s and t+e number of c+ecks verified before sortin . $otes were t+en sorted3 bui(t into t+e countin 'rocedure. /s a conse5uence3 we +ave a +i + (eve( of confidence bund(ed and counted. in t+e resu(ts. /t "eferendum .entre number 13 ba((ots were removed one box at a time3 counted into 'i(es of ten3 c+ecked3 c+ecked a ain3 t+en counted back into t+e box. Every ten votes3 t+e cumu(ative tota( was verba(ised3 a reed by a(( staff 'resent3 and written down inde'endent(y by two members of staff. *+is 'rocess was very s(ow3 but incredib(y re(iab(e and trans'arent. Errors were rare(y made and were s'otted and corrected durin t+e c+ecks. :+en votes +ad been sorted3 two ba((ot boxes recorded exact(y t+e same number of votes as +ad initia((y been counted. *+is confirmed t+e +i + 5ua(ity of t+e verification sta e. *+e ot+er ba((ot box3 t+e first to be counted3 recorded @ more votes t+an +ad initia((y been counted. Staff were very concerned about t+is deve(o'ment3 a(t+ou + t+is is very common in t+e 6C. Bund(es were recounted to c+eck t+ere were exact(y 1## votes in eac+ bund(e. :+en c+ecks twice confirmed t+at t+e initia( count +ad been wron 3 t+e tota( number of votes in t+at box was amended. :e were im'ressed by

Counting at Referendum Centre number 1 %5

,urin t+e count3 t+e door was (ocked to ensure no;one interfered wit+ t+e count3 a(t+ou + observers and 0ourna(ists cou(d enter and (eave free(y. .ommission members continued to make su'ervisory visits durin t+e count.

instead of t+e ova( next to t+e symbo(3 w+ic+ inc(uded ink smud es e(sew+ere on t+e 'a'er3 and w+ere bot+ t+e symbo( and t+e ova( +ad been ticked. :+i(e few ba((ots were affected3 and t+ere were at most ei +t ba((ots t+at we fe(t were wron (y dec(ared as inva(id3 we take t+e disenfranc+isement of a sin (e voter very serious(y. :e note t+at no inva(id ba((ots contained a 'ossib(e vote for Sudan. /(( t+ose ba((ots t+at contained votes for one o'tion and were dec(ared inva(id wou(d3 if acce'ted3 +ave been votes for Sout+ Sudan. Ot+er ba((ots were dec(ared inva(id because t+ey contained no mark3 because bot+ o'tions +ad been ticked or because t+e ba((ot +ad not been aut+enticated 7stam'ed8.

Invalid ballot papers *+e on(y minor criticism we +ave of t+e count at "eferendum .entre number 1 is re ardin t+e treatment of s'oi(t ba((ot 'a'ers. 4n enera(3 officia(s erred too muc+ on t+e side of caution and re0ected many votes3 w+ic+3 in our view3 ex'ressed a c(ear 'reference. :+en we were asked direct(y for assistance3 we refrained from ivin a verdict on individua( ba((ot 'a'ers3 in accordance wit+ /rtic(e 3! 748 of t+e ru(es and re u(ations. :e did remind staff of t+e 'rovision under /rtic(e 3@ 7%8 t+at 1/ ba((ot 'a'er s+a(( not be deemed inva(id as (on as t+e voter?s c+oice can be reasonab(y ascertained.2 /ny s(i +t diver ence from a tick or fin er'rint fu((y wit+in a sin (e ova( was treated as sus'ect. Lueries were raised about ba((ots w+ere voters +ad si ned wit+in t+e ova(3 or w+ere a tick extended s(i +t(y outside an ova(. Ear(y on in t+e count3 sensib(e decisions were taken and an attem't was made to ascertain t+e voterDs 'reference. *+e "eferendum .ommittee made one of t+eir su'ervisory visits durin discussion of one ba((ot3 and were asked for t+eir view. *+ey to(d t+e staff at t+e .entre to treat it as inva(id. /fter t+is3 ba((ots were treated as inva(id on t+e s(i +test 'retext. :e saw cases of inva(id votes w+ere3 in our view3 t+e voterDs 'reference was c(ear. *+ese inc(uded ba((ots w+ere t+e voter +ad ticked t+e symbo(

Of more concern t+an t+e tendency to err on t+e side of caution and disenfranc+ise individua( voters was t+e number of ba((ots t+at were inva(id because t+ey +ad not been aut+enticated. 4n most boxes t+ere were at most a +andfu( of ba((ots affected in t+is way. <owever3 one box contained 11% ba((ots t+at were not aut+enticated. Our 0ud ement is t+at it is (ike(y t+at a sin (e member of staff durin a sin (e s+ift did not stam' ba((ot 'a'ers as +e or s+e +anded t+em out. *+is +i +(i +ts t+e im'ortance of detai(ed staff trainin before t+e 'rocess be ins. *+e disenfranc+isement of so many voters is of dee' concern. /(( t+e affected ba((ots ex'ressed a c(ear o'tion for Sout+ Sudan. 4f t+e votes +ad been acce'ted3 t+e decision for Sout+ Sudan wou(d +ave been even more overw+e(min . /(t+ou + we c(ass t+is as a serious mistake3 we do not t+erefore be(ieve it affected t+e inte rity or credibi(ity of t+e fina( resu(ts. *+e count at Mu(mu( was made under difficu(t circumstances. 4t did not be in on time because t+ere was a (ack of trained officia(s to su'ervise t+e countin staff at t+e .entre. //.". were not confident t+at t+e count cou(d 'roceed wit+ inte rity and so waited for staff at ot+er "eferendum .entres to finis+ and trave( to Mu(mu(. *+is meant t+at t+e count did not start unti( @'m and 'roceeded in torc+(i +t unti( %.3#am. ,es'ite t+e unusua( circumstances3 we %)

+ave confidence in t+e inte rity of t+e count at tota(. Mu(mu(. :e a''reciate t+e decision of t+e //.". in t+e circumstances w+i(e notin t+at $otes were t+en sorted and bund(ed into 1#s and countin in suc+ conditions is far from idea(. 4f t+en 1##s. 9o e(astic bands or ribbon was no observers +ad been 'resent to witness t+e avai(ab(e3 so bund(es of 1##s were wed e under 'rocedures fo((owed3 t+e credibi(ity of t+is benc+es after bein c+ecked. :+i(e t+is so(ution count wou(d +ave been under 5uestion. was unusua(3 we are satisfied t+at it a((owed for / (ar e '(astic s+eet an accurate count was brou +t into t+e of sorted votes 5he &ount at oter Centre number 1 .entre and s'read f(at and t+at t+ere was across t+e room. .+airs 'as7 of a high standard for an no o''ortunity and benc+es were advan&ed demo&ra&#* 5hat a &ount for mani'u(ation '(aced around t+e room during a self-organised &ommunit# of t+e bund(es. and staff e5ui''ed wit+ torc+es sat on t+em3 pro&ess met su&h high standards is /(t+ou + directin torc+(i +t remarkable* decisions on toward t+e midd(e of sus'ect ba((ots t+e room. :e are were3 in our view3 satisfied t+at t+ere was sufficient (i +t to see more reasonab(e t+an at $oter .entre number 13 exact(y w+at was oin on. officia(s sti(( tended to err on t+e side of caution. 9o ba((ot was acce'ted as va(id w+ere t+e mark *+e two ba((ot boxes were em'tied into t+e was entire(y outside t+e ova(3 even w+ere it was midd(e of t+e room and two rou's counted c(ear t+e voter intended to vote for Sout+ Sudan. t+em back into t+e boxes. Our observer 7/ ain3 no ba((ots re0ected as inva(id cou(d +ave watc+ed one of t+e rou's carefu((y and was been inter'reted as votes for Sudan.8 *+ere were satisfied t+at countin was accurate. One a sma(( number of ba((ots re0ected because t+ey 'erson counted out 5# votes w+i(e t+e ot+ers +ad not been aut+enticated3 but t+e 'rob(em was watc+ed and confirmed. One 'erson wrote not near(y on t+e same sca(e as at "eferendum ta((ied 5#s. *+e counter rotated every 5# votes. .entre number 1. :e note t+at t+e .entres *+e ot+er rou' counted in 1#s. *+ere were w+ic+ were not as busy did not +ave t+e same fewer staff c+eckin t+e countin . :+en t+e 'rob(ems wit+ unaut+enticated ba((ots as t+e initia( verification +ad been com'(eted3 t+e tota( .entres wit+ t+e +i +est numbers of votes cast. was considerab(y +i +er t+an t+e tota( number of voters re istered at Mu(mu(. *+e staff :+i(e t+e count at Mu(mu( was +i +(y unusua( rea(ised t+ere must +ave been an error and t+e and made in difficu(t circumstances3 we are box our observer +ad not watc+ed was em'tied satisfied in t+e inte rity of t+e 'rocess and t+e and recounted by t+e more 'roficient team3 resu(ts. :e wou(d (ike to commend t+ose staff under observation. *+e tota( was over 3## votes w+o +ad worked at ot+er .entres from t+e under t+e number of re istered voters. :e are mornin of t+e 3#t+ and continued workin at satisfied t+at t+is second count was more Mu(mu( unti( %.3#amM for t+eir dedication3 re(iab(e3 and resu(ted in a more credib(e tota(. di(i ence and refusa( to take s+ort;cuts in t+e *+e eventua( tota( was revised u'wards s(i +t(y3 countin 'rocess des'ite tiredness. *+e count at w+en t+e tota( number of votes bund(ed was $oter .entre number 1 was3 des'ite our found to be s(i +t(y +i +er t+an t+e second mis ivin s about t+e treatment of a sma((

the &ount 'as &ondu&ted professionall# and in a&&ordan&e 'ith the highest standards+ and testifies to the solid organisation and the integrit# of the referendum pro&ess*

%!

number of inva(id votes3 of a +i + standard for an advanced democracy. *+at a count durin a se(f;or anised community 'rocess met suc+ +i + standards is remarkab(e. :e +ave no reason to be(ieve t+at ot+er counts we were not ab(e to observe did not meet simi(ar(y +i + standards. &oor countin 'rocedures cou(d easi(y +ave (et down t+e entire referendum 'rocess and cast doubt on t+e resu(ts. .onverse(y3 t+e count was conducted 'rofessiona((y and in accordance wit+ t+e +i +est standards3 and testifies to t+e so(id or anisation and t+e inte rity of t+e referendum 'rocess.

%@

.onc(usions and "ecommendations

*+e /byei /rea .ommunity "eferendum was a +i +(y trans'arent 'rocess3 carried out 'rofessiona((y in free and fair conditions des'ite difficu(t (o istica( c+a((en es. / com're+ensive set of ru(es and re u(ations3 'ub(is+ed in advance of t+e start of t+e cam'ai n 'eriod3 were ad+ered to consistent(y. Structures functioned we(( and incor'orated (oca( know(ed e and ex'ertise. /(( voters e(i ib(e under t+e /6<4& 'ro'osa( commended by t+e /6&S. and ot+er internationa( institutions and overnments +ad o''ortunity to re ister and vote3 and no e(i ib(e voter was 'revented from doin so. :e are satisfied t+at3 a(t+ou + t+e re ister was not 'ub(is+ed 'ub(ic(y as 'romised3 sufficient c+ecks were in '(ace to uarantee t+e inte rity of t+e voter re istry. /''ro'riate 'rocedures for distribution and care of sensitive materia(s were 'ut in '(ace and consistent(y ad+ered to. $oters were offered a c(ear c+oice and were ab(e to exercise t+at c+oice free(y. Buidance was consistent and im'artia(. 4n enera(3 staff understood and made efforts to 'reserve t+e secrecy of t+e ba((ot. Minor irre u(arities 'roceedin from t+e s+ort timetab(e and (ack of time avai(ab(e for voter education and staff trainin did not com'romise t+e inte rity or credibi(ity of t+e 'rocess. *+e count was extreme(y trans'arent and re(iab(e and met t+e standards ex'ected of an advanced democracy.

standards met by t+e %#11 Sout+ Sudanese referendum. For exam'(e3 ru(es and re u(ations were 'ub(is+ed in advance of t+e start of t+e 'rocess.1) .entres were we((;situated in areas w+ere (oca( 'o'u(ations were concentrated and (oca( referendum committees +ad t+e f(exibi(ity to set u' sub;centres3 resu(tin in exce((ent access.1! 6n(ike t+e Sout+ Sudanese referendum3 in no "eferendum .entre did ba((ots cast exceed t+e number of re istered voters.1@ *+ere was no s+orta e of re istration materia(s and 'rocedures for 'ackin and distributin sensitive materia(s were consistent(y ad+ered to.1- *+ere was no confusion over voter e(i ibi(ity and no;one w+o was e(i ib(e to vote was 'revented from re isterin .%# *+ere was no armed security 'resence inside any "eferendum .entre.%1 *+ere were no re'orts of direct intimidation. ,ifficu(ties wit+ t+e com'i(ation of voter (ists did not resu(t in any voter bein turned away. %% Observers were not obstructed from accessin t+e data centre at any time.%3 *+ere are no tec+nica( reasons for refusin to reco nise t+e resu(ts of t+e /byei /rea .ommunity "eferendum. *+e 'rocess met +i +er standards t+an t+e %#11 Sout+ Sudanese referendum w+ose resu(ts were reco nised by t+e Bovernment of Sudan3 t+e 693 /6 and ot+er institutions and overnments. <owever3 we are aware t+at t+e resu(ts may not be acce'ted for 'o(itica( reasons3 and t+at it is 'ossib(e t+at anot+er referendum be +e(d at some 'oint in t+e future. :e note t+at if a referendum is +e(d in /byei /rea in t+e future3 t+e e(i ib(e e(ectorate wi(( be t+e same as was t+e case in t+e /byei /rea .ommunity "eferendum. 4f (essons are not (earned from t+is referendum3 it is 'ossib(e t+at any 'rocess conducted under t+e aus'ices of t+e /6 wi(( not meet t+e same +i + standards met by t+e /byei /rea .ommunity "eferendum. :e
1) *+e .arter .entre3 Observing the 2011 Referendum on the Self-determination of Southern Sudan3 13. 1! 4bid.3 1-. 1@ 4bid.3 3. 1- 4bid.3 1)3 33. %# 4bid.3 1)K1!. %1 4bid.3 3#. %% 4bid.3 31K%. %3 4bid.3 143 %#.

Referendum results displa#ed at the ""CRC &ompound 4n a number of res'ects3 t+e /byei /rea .ommunity "eferendum exceeded t+e

%-

wou(d t+erefore (ike to make a number of recommendations for t+e conduct of any future referendum 7or3 indeed3 e(ections8 in /byei /rea. 1. Any future referendum or ele tions should in lude a lon!er pre"re!istration period# so that e$tensive voter edu ation and proper staff trainin! an be ondu ted. Staff were briefed a+ead of re istrations3 and received a''ro'riate written uidance3 on;t+e;0ob trainin and su'ervision. Mobi(isation teams 'roceeded from /byei to t+e furt+est 'arts of /byei /rea to increase awareness of t+e 'rocess durin re istration. <owever3 we be(ieve t+at more extensive voter education wou(d +ave increased re istrations in / ok and reduced t+e need for assistance at t+e fina( sta e of t+e 'rocess3 makin it easier to 'reserve t+e secrecy of t+e ba((ot. Staff trainin s+ou(d inc(ude dry runs w+ere staff 'ractice 'o((in day 'rocedures in t+e 'resence of .ommission members. *+is cou(d +ave miti ated t+e 'rob(ems faced at ,un o'3 reso(ved t+e 'rob(ems faced at Ma(ua( /(eu before t+e start of 'o((in rat+er t+an 'art;way into t+e first day3 and ensured voters at "eferendum .entre number 1 were not disenfranc+ised by t+e fai(ure to aut+enticate ba((ot 'a'ers. *rainin s+ou(d a(so inc(ude uidance on w+at 0ourna(ists can and cannot fi(m. 2. Future e$er ises should ensure the same level of transparen y# %ith observers and &ournalists able to enter any Referendum Centre and the data entre at any time. 3. Ade'uate time should be pro!rammed into the timetable# even delayin! pollin! if ne essary# to ensure the voter re!istry is available to the publi # and there is suffi ient time for ob&e tions and appeals before re!istration starts. /(t+ou + t+e 'rocess was of a sufficient(y +i + standard t+at t+ere were no ob0ections or a''ea(s made durin t+e /byei

/rea .ommunity "eferendum3 we 0ud e t+at if t+e "eferendum is conducted by an externa( body3 t+ere is a +i +er (ike(i+ood t+at ob0ections and a''ea(s wi(( be made. *+is wi(( es'ecia((y be t+e case if t+ere is an increased ex'ectation t+at t+e referendum resu(ts wi(( be reco nised externa((y. (. Any referendum ondu ted under the auspi es of the Afri an )nion should onsider adoptin! the same stru tures as the Abyei Area Community Referendum# to ensure that lo al *no%led!e and e$pertise is appropriated. /ny future referendum s+ou(d ensure "eferendum .ommittees are com'osed of 9 ok ,inka 7t+e tar et community for t+e referendum8 from eac+ .ounty of /byei and +ave a +i + (eve( of autonomy3 so t+at decisions about t+e (ocation and number of 'o((in centres are made by t+ose w+o understand t+e concentration and needs of (oca( 'o'u(ations. *+e .ommission s+ou(d consider +irin t+e same staff +ired by t+e //.".3 w+o +ave a(ready been t+rou + t+e 'rocess once and wi(( +ave va(uab(e insi +ts. //.". members cou(d be invo(ved in an advisory ca'acity. .+iefs and e(ders from t+e - 9 ok .+iefdoms must +ave a ro(e as identifiers and be 'resent at "eferendum .entres if t+e voter re istry is to +ave t+e same (eve( of inte rity as was t+e case in t+e /byei /rea .ommunity "eferendum.

Celebrations as results 'ere announ&ed

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