I A foundation for a stronger democracy GOVERNMENT > CASE STUDY Computerized voter registration in Benin G ateway to the continent, the Republic of Benin occupies a land area of 112,000 square kilometers. The country has a population of 8.8 million with 41% of Beninese residing in urban areas. Democratic representation in the balance The country gained full independence in 1960. Benin took steps to embrace multiparty democracy as early as 1989. As one of Africa's most stable democracies, Benin has held four presidential elections (in 1991, 1996, 2001 and 2006), five legislative elections (in 1991,1995, 1999, 2003 and 2007) and two local elections (in 2002 and 2008). The next round is slated for 2011, with simultaneous holding of presidential and legislative elections. Reforming Benin’s electoral process Despite the regularity of free and fair elections in Benin in the last 20 years, experts believe the lack of a computerized list of eligible voters reveals a serious inadequacy in the electoral process and runs the risk of hampering democracy in the long term. Several measures have been taken in Benin to date to maintain the integrity of the electoral process. These include the establishment of the Commission Electorale Nationale Autonome (CENA) in 1995, as well as introduction of transparent ballot boxes, adoption of a uniform ballot format and on-premises vote counting at polling places. Likewise, shortcomings in the current voter registration system have built broad consensus in favor of an overhaul. Both international and national stakeholders—including politicians, analysts and institutions directly involved in voter registration— point to the persistent flaws and failures that contribute to contestation of results and major difficulties in the administration of elections. The country is now instituting computerized voter registration to restore the credibility of the electoral process.
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I A foundation for a stronger democracy
GOVERNMENT > CASE STUDY
Computerized voter registrationin Benin
Gateway to the continent, theRepublic of Benin occupies aland area of 112,000 square
kilometers. The country has apopulation of 8.8 million with 41% ofBeninese residing in urban areas.
Democratic representation in thebalance
The country gained full independencein 1960. Benin took steps to embracemultiparty democracy as early as1989. As one of Africa's most stabledemocracies, Benin has held fourpresidential elections (in 1991, 1996,2001 and 2006), five legislativeelections (in 1991,1995, 1999, 2003and 2007) and two local elections (in2002 and 2008). The next round isslated for 2011, with simultaneousholding of presidential and legislativeelections.
Reforming Benin’s electoral process
Despite the regularity of free and fairelections in Benin in the last 20 years,experts believe the lack of acomputerized list of eligible votersreveals a serious inadequacy in theelectoral process and runs the risk ofhampering democracy in the long term.
Several measures have been taken inBenin to date to maintain the integrity ofthe electoral process. These includethe establishment of the CommissionElectorale Nationale Autonome (CENA)in 1995, as well as introduction oftransparent ballot boxes, adoption of auniform ballot format and on-premisesvote counting at polling places.
Likewise, shortcomings in the currentvoter registration system have builtbroad consensus in favor of anoverhaul. Both international andnational stakeholders—includingpoliticians, analysts and institutions
directly involved in voter registration—point to the persistent flaws and failuresthat contribute to contestation of resultsand major difficulties in theadministration of elections. The countryis now instituting computerized voterregistration to restore the credibility ofthe electoral process.
Computerized voter registrationin Benin
I A foundation for a stronger democracy
A pressing need for computerizedregistration
Enacted in May 2009, the Beninesegovernment’s initiative to implementcomputerized voter registration (Laliste électorale permanenteinformatisée, or LEPI) aims tosignificantly reduce the risk ofelectoral fraud and control the costsof holding elections.
By implementing secure biometricregistration and optimizing processmanagement, the government aims tocompile a national database enablingreliable authentication of all eligiblevoters. According to assessments byexperts, a four-month time-frame isrequired to complete the necessarycensus mapping and data exploitationbefore the next elections are held.
An invitation to bid for theprocurement of digital mobileregistration kits was issued in January
2010. Following stringent testing inreal-life situations and subsequentapproval by an independentcommittee, the contract was awardedto Gemalto June 9, 2010. The countryis now implementing Gemalto’sCoesys Solution for ElectoralEnrolment ahead of the March 2011presidential elections. Thecommission expects to register morethan 6 million voters.
Security to protect voter rights andprivacy
Gemalto’s mobile enrolment station isa portable version of the CoesysEnrolment solution. Self-contained andeasy to transport, the fully integratedsystem is designed specifically forbiometric registration campaigns. Itsrugged design and sturdy constructionmake it suitable for any environment.
Each station folds away neatly into arolling upright suitcase for maximummobility. The stand-alone unit comesready to deploy and requires no set-up, allowing officers to reach out tovast numbers of citizens in theshortest turnaround time possible andeliminating risks of loosing cables orother elements. This is especiallycrucial to meeting the tight deadline,given that Benin’s population isscattered across the country. It is alsoappreciated by citizens who very oftencome a long way to enroll.
Benin’s voter registration kit: a customizedenrolment solution
Benin’s mobile enrolment kit is a robust, waterproof,self-powered plug-and-enrol solution tested to USmilitary standards (MIL-STD-810) and customized tospecifications. The Gemalto solution comprises over3,200 Coesys Mobile Enrolment Stations as well as afull suite of software designed to capture citizens’demographic data, fingerprints and digital photographsin the field. Gemalto is also to provide softwaresolutions for national data consolidation, as well astraining, technical assistance and relevant logisticssupport.
Coesys Mobile Enrolment Stations are delivered with allcomponents needed to register voters, including:
• Digital camera• Fingerprint capture device• Laptop PC• Electronic power supply board• All necessary software
600 units ready to be shipped
Coesys electoral enrolment solutionsdraw on proven, secure registrationsolutions developed by Gemalto foridentity documents, such as identitycards, passports and driver’slicenses. The full range of solutionswas developed specifically forelectoral boards that need to performenrolment campaigns at regularintervals in order to prepare forelections.
Contract fulfillment: a four-pronged challenge
Lead time, logistics, training andsecurity presented very specificissues to address in order to meetBenin’s ambitious deadline.
> Lead timeGiven that the contract was awardedon June 9, 2010, with a deadline fordelivery of all kits by August 14, 2010,tight turnaround presented the chiefchallenge for Gemalto to overcome.
> LogisticsTo manufacture 3,215 mobileenrolment kits from June 24 to August14, a dedicated supply chainoptimized to manage rapid componentsupply, kit assembly, quality controland delivery was set up especially forthe Beninese government. The fullshipment of kits came to 70 tons andwas shipped from Paris to Cotonou forstorage in public stadium. Four cargoflights were also scheduled to ship3,215 power units comprising agenerator, battery and charger fromHong Kong. A dedicated platform wasset up to install Coesys Enrolmentsoftware on all of the kits on thepremises.
> TrainingIn July and August, Gemaltodispatched a team of instructors totrain government personnel assignedto operate the mobile units. Devisedto ensure fast, efficient knowledgetransfer, the program featuredspecially developed training methodsfor effective skills building. A firstshipment of 120 kits was delivered onJuly 2. Using the “Train the Trainer”principle, 120 instructors were trainedJuly 5-9 in Cotonou. Subsequently,100 workshops were held and 4,525operators completed training byAugust 18.
> SecurityTo meet the high security standardsrequired to protect personal dataprivacy, both front-office and back-
office software were customized toBenin’s specifications. Special carewas taken to ensure the integrity of alldata collected, from biometricauthentication of officers manning thestation to the use of electronicsignatures supported by certificates.Throughout the campaign, DVDscontaining encrypted data gathered inthe field will be sent on a daily basis tothe national center.
Quick facts on Benin’s CoesysEnrolment solution
• Fully customized enrollment softwaresolution
• 3,215 enrolment kits and power unitsshipped in under 2 months
• Over 230 tons of equipment • 1,200 square meters of securestorage in Cotonou
• 4,525 operators trained in 6 weeks• 6 million voters to be registered
Next step: live enrolment for 6million voters
Benin’s voter registration campaign isscheduled for deployment in the fieldin September 2010. Officers will bereaching out to the population,inviting citizens to visit specially set-up registration centers located in thetown halls of villages and districts. Apublic service announcementcampaign has been launched to getthe word out across the country.
Power units
Each unit provides an 8-hour power supply to the mobile enrolment unit in areas wherethere is no power, such as isolated villages. In cities where there are frequent poweroutages, the power unit can be used in tandem with grid power. The enrolment kit powerboard transparently manages the automatic switch between grid power and the externalpower source. A generator supplied with the kit can be used to restore the battery to fullcharge at the end of the day.
The power unit comprises:• An external power supply (choice of lead battery, solar panel or lithium-ion battery)
• A battery charger and tester used to charge and test the battery
• A generator used to charge the battery• All necessary cables, including a security cable and lock for the generator
Custom software solution
The voter registration software customized to Benin’s specifications spans the biometricenrolment software modules, the consolidation application developed for themunicipalities which aggregates all data collected by the enrolment kits and the nationalapplication for consolidation of all records sent by municipalities to generate the nationalelectoral rolls. This application checks for duplicate enrolment and other irregularities. Itsdata will form the base for the LEPI.
Coesys Enrolment unit at work – July “Trainthe Trainer” session in Cotonou
“To put it in the simplestof terms, the LEPI is aBeninese innovationserving the publicinterest—indeed servingthe public good.”
