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Accuracy * Efficiency * Compliance * Credibility
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THE WHAT AND HOW OF
BOUNDARY REDISTRICTING 2004
By Myrtle Palacio
What Is Boundary Redistricting?
Boundary Redistricting and Boundary Delimitation are terminologies used interchangeably for the process of fixing, drawing, altering and/or increasing electoral boundaries. It is done to decrease substantial differences in the population ratio between electoral divisions. A new Electoral List compiled after Re-registration in 1998, demonstrated a difference in population ratio between the largest and smallest electoral divisions of 3.5 to 1. By September 2003, the gap widened to 4.4 to 1. The growth of the Electoral Roll at September 2003 is evidence that ten Electoral Divisions have grown by 25% or more. Five of these Electoral Divisions are in the Belize District namely, Lake Independence, Queen's Square, Belize Rural South, Pickstock and Port Loyola, in descending order. Of the remaining five, one is the Orange Walk South Division, and all four Electoral Divisions in the Cayo District. Boundary Redistricting is most commonly associated with majority electoral systems as ours. Success at the polls in the First Past the Post Electoral System (FPP) relies on garnering a majority number of single member constituencies.
Did This Happen Before?
The last Boundary Redistricting exercise was conducted in 2002. Then, all communities located in the Stann Creek District that were placed in the Toledo East Electoral Division in 1997, were transferred to the Stann Creek West Electoral Division. The ultimate effect was the redrawing or adjusting of the boundaries of 2 Electoral Divisions -- Toledo East and Stann Creek West. The communities affected included the villages of Independence and Placencia. Voters registered in these communities, voted in the Stann Creek West Electoral Division in March 2003.
An increase in the number of Electoral Divisions occurred as follows:
1954 from 6 to 9; 1961 to 18; 1984 to 28; 1993 to 29
Also, Electoral Boundaries were altered in the following constituencies:
1993 in Port Loyola and Collet
1997 in Cayo Central and Cayo South
1998 in Belize District: Caribbean Shores, Freetown, Fort George, Pickstock, Belize Rural Central
1998 in Corozal District:
Corozal North, Corozal Bay, and Corozal South West
1998 in Orange Walk District:
Orange Walk North, Orange Walk East, Orange Walk Central
Who Decides On Boundary Redistricting?
The Elections and Boundaries Commission makes proposals to the National Assembly, guided by Section 90 of the Belize Constitution. The National Assembly may accept all or part of the proposals submitted by the Elections and Boundaries Commission. The National Assembly, which consists of Members of the House of Representatives and the Senate, makes the final decision. The Elections and Boundaries Commission consists of five Members headed by a Chairman as per Section 88 of the Belize Constitution.
What Is The Legal Framework?
The present legal guidelines as amended in 1988 are set out in Section 90 of the Belize Constitution.
Pre - 1988 Constitutional Amendment
"An electoral division shall consist of not less than 2,000 and not more than 3,000 registered electors"
Post - 1988 Constitutional Amendment
"Each electoral division shall have as nearly as may be, an equal number of persons eligible to vote"
Other Determinants:
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The total number of electoral divisions "shall be, not less than 28"
Interpretation of the Law:
The conclusion of the Solicitor General in a Report stated that
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The meaning of the phrase "As nearly as may be" as presently set out in section 90 (1) (a), was deliberately left for the determination by the Elections and Boundaries Commission to make proposals based on the population density
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In so doing the Elections and Boundaries Commission is to consider physical features, transportation needs and other characteristics of each division
- A division should have either a minimum number, or a maximum number of electors as determined by the Elections and Boundaries Commission
When Will The Public Be Made Aware Of The New Electoral Divisions?
The Representation of the People Act (ROPA), Chapter 9 of the Laws of Belize, states that after the redistricting becomes Law, the Chief Elections Officer of the Elections and Boundaries Department
(Department) is to:
- Adjust the Electoral Registers of the Electoral Divisions affected
Compile new Registers of electors if there are new Electoral Divisions
- Within 30 days publish Provisional Registers
At the end of 10 days the Provisional Registers are revised at a Revision Court located in Magistrate Courts countrywide.
The Chief Elections Officer heads the Department. It is an arm of government under the Ministry of the Public Service. All staff members are Public Officers as defined by the Belize Constitution.
Is There Gerrymandering In Belize?
Gerrymandering is a term coined in North America to reflect constituencies that are drawn to give advantage to one Political Party over the other, or to disproportionately favour one Political Party over the other. In the political history of Belize, this has not happened. Also voting patterns in Post-independent Belize demonstrate:
- Frequent change of governments
Change in the number of seats overwhelming on the side of the winning Political Party
- The winning Political Party barely garnering the popular vote, as follows:
1984 - 53%; 1989 - 50%; 1993 - 48.7%; 1998 - 59.9%; 2003 - 52.75%
What is Different about 2004?
The Elections and Boundaries Commission conducted a comprehensive and transparent review, with the following processes:
1. A Press Release inviting the Public to make written submissions
2. Appointment of a First Task Force who recommended 7 guiding principles for Boundary Delimitation. Copies of the Report were shared with the Public via hard copies and the Department's Website, www.belize-elections.org.
3. Appointment of a Second Task Force to implement the guiding principles. This Report was accepted by the Elections and Boundaries Commission to form its proposals to the National Assembly. Copies of the Report were shared with members of the House of Representatives and the Public via hard copies and the Department's Website, www.belize-elections.org.
4. Interaction with technocrats of the Land Information Center.
The Elections and Boundaries Department through its voter education endeavours sponsored several discussion sessions to bring awareness, targeting diverse Publics countrywide as follows:
1. Tertiary level education institutions à
UB Toledo, Stann Creek Ecumenical Sixth Form, UB Belize City, Wesley College Sixth Form, St. John's Junior College, Muffles College, Adventist Junior College, Corozal Community College
2. The fourth conference in the series "National Dialogue for a Culture of
Democracy", held at Fort George Hotel for members of the public, including Media, Civil Society Organizations and Political Activists. Presenters were Mr. Wilfred "Sedi" Elrington, Mr. Alexis Fairweather, and Mrs. Myrtle Palacio.
What is the Effect of the 2004 Proposals?
Voter Registration, since the Re-registration Exercise of 1997/1998 is continuous. At Re-registration, the population of registered electors in the largest division, Cayo South was three and one-half times more than that of the smallest, which is Pickstock. In September 2003 at the onset of the Boundary Redistricting Exercise, Cayo South was nearly five times larger than Pickstock (4.4 to 1). The constituencies of the Belize District showed the most substantive difference, with Lake Independence the largest being three times larger than Pickstock, the smallest (3.1 to 1).
With the 2004 Proposals, the wide gap has decreased substantially from a ratio of 4.4: 1 to 1.7: 1, nationally. In the Belize District, the gap has narrowed from a ratio of 3.1: 1 to 1.3: 1. This has been accomplished while keeping adjustments to a minimum, setting a tolerance limit, maintaining contiguity and geographic referencing, and ensuring that communities are not split between divisions.
Conclusion
Representation by population is as central to the concept of democracy as the concept of equality of voting power. However, the right to vote is not absolute as it is subject to legal restrictions. Then wherefore Belize? This can be summed up by the answers to two main questions. The first question is, what is called for by the law? A second question is regarding the consideration for boundary redistricting--Its purpose or intent, its effect--Is it in favour of one Political Party over the other?
In response to the first question, "What is called for by the law?"--According to the Solicitor General's Report, absolute and near absolute equality of voting power is not called on by the law. Because of the frequent movement of people, and the determination of residence, in a developing country such as Belize, it would be difficult to maintain absolute equality. It is then more a right to effective representation through relative equality of the number of votes per Area Representative. Historically, effective representation has been the culture, however, the gap or difference in electoral population between divisions has always been very wide. While the 1997/1998 Re-registration Exercise attempted to cleanse a "bloated" electoral list, the wide gap in population size between electoral divisions remained. The effort of the Elections and Boundaries Commission in setting guiding principles for the 2004 Boundary Redistricting Exercise, is a precedent for Belize. Also this exercise is the first endeavour at narrowing the gap in electoral population between divisions.
In response to the second question, "Is it in favour of one Political Party over the other?"--Over the past 20 years of electioneering, voter behaviour in Belize has demonstrated that gerrymandering has so far, not occurred or unattainable. As abovementioned, voting patterns in post-independent Belize show frequent change in governments with much overwhelming margin of win by number of seats on the winning side. Electoral administration is transparent by law and practice. To date, there is confidence in the electoral system as the will of the people is expressed in free and fair elections. Voting is free from violence, with a smooth transition to a new government every time. All power to the people!!
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Elections and Boundaries Department
Awarding Excellence 2004
Press Release
21 December 2004
In awarding excellence for 2004, the Elections and Boundaries Department recognized the commitment of staff members, criteria for awards is based on five predefined areas initiative and creativity, productivity, leadership, professional competence and service delivery. Individuals as well as entire units who excelled in 2004 received certificates, gifts and plaques as follows:
v Data Entry Unit--Most Productive
v Orange Walk Office--Most Initiative
v Toledo Office--Most Enhanced Office
v Eneida Vargas of Orange Walk--Best Community Outreach
v Gustavo Pech of San Ignacio--Continuous Data Accuracy and Reliability
v Ernie Carballo--Best Support
The most coveted award "The Staff of The Year" was won by Ms. Shelmadine Bowden who holds the post of Secretary III at the Central Office in Belize City.
Awards were distributed during the Department's Retreat and General Assembly on Friday December 17, 2004, and initiated in 1999; the objective of the award system is to encourage efficiency, initiative, team spirit and professionalism in the work place. The theme for this year's retreat was "None of us is as good as all of us: Each One Teach One is Empowerment for Success".
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(Continued from page 1)
Before the presentations, the staff received regrets from Mr. Karl Menzies, Chairman of the Elections and Boundaries Commission for not being able to be present due to illness. Mrs. Palacio in addressing the staff reminded them this was the Fifth Annual Staff Retreat where we have been speaking of Our Journey since she came on board. Mrs. Palacio said we have come a long way in our journey through reform-- workshops, expansion of offices, self and career development. In a unified effort, Mrs. Palacio continued, we formulated the department's goal, objectives and Mission Statement. Referring to the values of the department such as integrity, transparency and efficiency, these Mrs. Palacio emphasized, 'we have to live'. Mrs. Palacio then shared some definitions of key terms such as: Self Governance - which is the ability of individuals/organizations to exercise power and authority over themselves, What is a Mission Statement- that which communicates the essence/being of the organization, what should be in a Mission Statement - what organizations seeks to accomplish and what is the ultimate result. The challenge therefore to staff was: can we improve on our Mission? The other challenge was to map out a Vision. The remarks of the Chief Elections Officer is indicative of the seriousness about 'our journey' in achieving the department's objectives with integrity, and at the same time reiterates the theme: "None of us is as good as all of Us…"
The stage was then set for the guest presenters, Mrs. Margaret Nicholas, Director, Belize Family Court. Mrs. Nicholas first gave a background on the Family Court, which was established in 1989 and is entirely holistic and private. Mrs. Nicholas shared the various legal issues concerning family: maintenance, divorce and common-law Union. The entire Family Court sessions are held in closed door and confidentiality. The Staff was shocked to hear about the types and number of cases that have to be dealt by the Court on a daily basis. At the same time are pleased to be now well informed on the procedures to take should they or any of their colleagues encounter any of the domestic problem they will now be equipped to advice them.
The second presenter was Dr. Claudina Cayetano who spoke on the topic: How to Deal with Stress. It was interesting to learn that we can allow stress to overcome us, hence can lead to illness. Dr. Cayetano highlighted some areas that are stressors, these are: Family (Partner), Illness, School, Job and Money. Physical symptoms: Weight, sleep and sweating. To cope with stress, she offered the following solutions: Awareness (emotions, body), Breathe (take deep breaths), Control (personal). Whilst we may encounter some problems at our workplace or at home and readily call it stress, with this presentation, I believe that Staff can now distinguish between stress and some other forms of illnesses.
Following the presentations, the moment of excitement came with the presentations of Awards for Excellence. On hand to present the awards was Mrs. Samira Musa Pott, member of the Elections and Boundaries Commission.
- Staff of the Year - Ms Shelmadine Bowden, Secretary III
Continuous Data Accuracy and Reliability - Mr. Gustavo Pech, Registering Officer
Best Community Outreach - Mrs. Eneida Vargas, Registering Officer
Best Staff Support - Mr. Ernie Carballo, Office Assistant
Most Productive - Data Entry Unity
Most Initiative - Orange Walk Office
- Most Enhanced Office - Toledo Office
Whilst it was not an award, they however deserved to be honored for their hard work and relentless zeal in moving the department. For a gesture of appreciation, Mrs. Myrtle Palacio, Chief Elections Officer and Mrs. Sharole Saldivar, Acting Assistant Chief Elections Officer were respectively given a small token. Also receiving a reward as Honorary Staff Member was Mr. Carl Smith, Facilitator.
Final item for the day was the presentations by staff on the theme. They were in the forms of presentations, poems and act out by the respective offices. At the conclusion, prizes were awarded for creativity and originality. The judges were really put to task because of the impressive presentations, however all could not received prizes, emerging as the top three were: First Place: Data Entry Unit (Ms Bailey, Ms Spencer, Ms. Moh and Mr. Palmerston), Second Place: Racecourse Street Office (Mr. Zuniga & Ms. Bruce), and Third Place: Records Office (Mr. Leslie & Mr. Mahler).
Aside from the presentation of awards which was the highlights of this occasion, the Staff also was blessed with the traditional Christmas Luncheon which was one of Old Belize's delicacies. We were honored with the presence of friends of Elections and Boundaries Department - Ms Annemarie Williams of the Reporter Press, Mrs. Samira Musa Pott, Commission Member and Dr. Claudina Cayetano, Guest Presenter.
Following the dinner and presentations, time was 'waiting for no man', in other words, the scheduled group exercise for the formulation of the Vision Statement was deferred. However, because of the commitment, the officers in their respective groups were tasked to identify a group leader and then submit their suggestive ideas on the statement and this will be discussed at the first possible Registering Officers' meeting in 2005. The party may be over, but the unfinished work has to be completed.
Finally, united we stand, divided we fall, we were once together in both a formal gathering at the business session of our retreat and then informal when socializing. Divided we fall however, when the time for us to return back to our respective destination, whether the same day or not. The 2004 Annual Staff Retreat and General Assembly have concluded. Monday December 20, 2004, the first working day after our retreat, should be a day to reflect on the ideas learnt and most importantly the reminder Mrs. Palacio made in her address on 'Our Journey'. Remember; "None of us is as good as all of Us: Each One Teach One: Empowerment for Success."
On behalf of the Chief Elections Officer and Staff of the Elections and Boundaries Department, I wish to express our sincere appreciation and heartfelt thanks for the hospitality we received from the Management and Staff of Old Belize Cucumber Beach Marina for hosting our 5th Annual Staff Retreat, the Novelos Bus Company for transporting the Staff and the Chairman and Members of the Elections and Boundaries Commission for their support.
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National Dialogue for a Culture of Democracy
"Distributed Governance - Widening the Sphere of Accountability"
COMMENTARY
"Participate Now? Or Wait and See"
By Mr. Francisco Zuniga, Registering Officer
The Elections and Boundaries Department through the driving force of Mrs. Myrtle Palacio, Chief Elections Officer, on Wednesday, 20 October 2004, held its Fifth in the Series National Dialogue for a Culture of Democracy, in collaboration with the University of Belize, under the theme "Distributed Governance - Widening the Sphere of Accountability". The theme is indeed appropriate especially at a time when the Prime Minister recently unveiled a Belize Governance Improvement Commission.
In the overview for the conference, the following was highlighted: "The Representation of the People Act empowers Electors to participate in ensuring the integrity of the Electoral List in three ways: through Objections, Scrutineering and Perusing the binders. In practice this is not occurring. The Electoral List is the lifeblood of our democracy as it is instrumental in determining a fair election long before Election Day. Therefore the role of the elector in helping to maintain integrity at this level is very important."
As the theme suggests, the conference is geared towards bringing to the attention of the electorate their role in the Registration Process to "Participate now or wait and see."
The participants at the conference were a cross section of the community, politicians, trade unions, educators, researchers, students and public officers. The presenters eloquently covered their respective topics in the Legal Perspective and the Practice of Objections, Scrutineering and Appeals in the Registration Process, and Governance.
The topics are crucial in the entire electoral process because it paves the way for inclusion of an elector into the Register of Electors after the Re-registration in 1997. The participation of the University of Belize by collaborating in this endeavor is a way forward. There were several questions/comments which were adequately answered by the presenters, including the Chief Elections Officer.
Some comments made about the law were that they were too confusing and involved too many dates, and that it seems to cater to the political parties represented in the House. On the issue of the practice, Hon. Godwin Hulse adequately described our Belizean complacency by using the words "da unu" or "da dem". He stated that through his extensive travel he has not yet met any of these persons though he would be anxious to do so.
The Elections and Boundaries Department has committed itself to the enhancement of democracy through the promotion of voter education. Will you the participants and electorate do your part now or will you wait and see when yet another sun rises from the horizon?
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