Introduction

A voting right is a legal entitlement that ensures the participation of the general public in the decision-making processes of their government by casting a vote. This right is a fundamental pillar of democracy, empowering citizens to have a say in how their government operates and who represents them, thereby ensuring that power ultimately rests with the people.

Voter turnout, which refers to the percentage of eligible voters who actually cast their votes in an election, is a key indicator of electoral engagement and democratic participation. High voter turnout reflects robust engagement with the democratic process and helps ensure that election results accurately represent the will of the people. In contrast, low turnout can signal disengagement or dissatisfaction of people with the political system. Therefore, it is vital for all eligible voters to participate in elections to ensure high voter turnout and reinforce the democratic process.

This blog seeks to analyze voter turnout trends in Nepal, focusing on the recent general election held in 2022. It aims to explore the underlying causes behind the declining voter participation in Nepal and offers strategic recommendations to boost voter engagement in future elections. 

Voter Turnout in the Recent Election of Nepal

Voter turnout refers to the proportion of eligible voters who cast their votes on election day. It is typically expressed as the percentage of votes cast in an election, including any invalid or spoiled votes. The term "eligible voters" in the context of Nepal, denotes those whose names are enlisted in the finalized voters roll. Nepalese citizens aged 18 and above who are permanent residents of a municipality or rural municipality within a concerned constituency can be registered in the voter roll. 

According to the report of the Election Commission of Nepal, the number of registered voters in the federal election of 2022 was 18,001,566. Similarly, the number of actual votes cast in the electorate was 11,064,034 resulting in a turnout of 61.5% of the total registered voters. 

The voter turnout of 61.5% in Nepal's 2022 federal election suggests a moderate level of public engagement in the electoral process. However, the fact that nearly 40% of eligible voters did not cast their votes raises concerns about potential voter apathy, barriers to voting, or dissatisfaction with the political process. Moreover, this data is notably 8.5% lower than that of the 2017 federal election where the voter turnout was 69%.

Similarly, according to the Election Commission, the voters' turnout was 64 per cent in the recently held local election of 2022, which is less than the previous election of 2017. In 2017, it was 72.5%.

Fig 1: Graph showing decline in Voter turnout in Nepal

Source: Election Commission of Nepal

The declining turnout suggests that a substantial segment of the population is not participating in the electoral process, leading to concerns that their voices are not being heard. This can lead to policies that fail to address the concerns of all citizens, further deepening disillusionment. Therefore, it is crucial to identify and address the underlying factors contributing to voter non-participation and ensure that the government more accurately reflects the will and aspirations of the entire electorate.

Factors Affecting Voter Turnout in Nepal 

Low voter turnout is often the result of a combination of multiple factors. Some of the major factors affecting voter turnout in Nepal are listed below:

        1. Logistical and Bureaucratic Barriers:

- Register to Vote: In Nepal, turning 18 and obtaining citizenship does not automatically make one eligible to vote. Citizens must first register and appear on the finalized voter rolls prepared by the Election Commission. However, many eligible voters remain unregistered, which can impact voter turnout. A survey conducted after the 2022 local elections revealed that 28% of the sample size did not vote, and among those non-voters, 60% lacked voter cards because they were not registered on the voter rolls. This indicates that mandatory registration as a prerequisite itself may be a significant factor contributing to lower voter turnout, as many potential voters are excluded simply because they haven't registered. 

- Accessibility to the Voting Booth: Challenges in reaching voting booths can significantly reduce voter turnout, especially among vulnerable groups like the elderly, disabled, and sick. A study on voter behaviour conducted during the local elections of 2022 revealed that the accessibility of polling centres directly influences voter motivation to visit polling centres and make voting decisions. Factors such as polling booths located in inconvenient locations and physical barriers, such as polling stations lacking ramps or accessible entrances, make it difficult for these vulnerable groups to cast their votes. 

A survey made on the Access and Participation of People with Disabilities in the General Election 2022, revealed that almost half of the polling centres (47%) had some sort of accessibility problem despite the directive of ECN on 10 November 2022, to make polling locations accessible for persons with disabilities. Such inaccessibility likely contributed to difficulties in voting, discouraging these vulnerable groups from participating, and ultimately leading to lower voter turnout. 

- No Special Voting Arrangements: Special Voting Arrangements (SVAs) offer alternative methods for casting a ballot, enabling voters to exercise their right to vote even if they are unable to reach their designated polling station. 

In Nepal, the Voters Roll Act 2073 allows civil servants, security personnel, incarcerated persons, polling booth employees, and residents of government-authorized old age homes to register on a temporary voters roll for federal and provincial elections under the Proportional Representation System (PR).  In the general election of 2022, the Election Commission of Nepal (ECN) established 141 special polling centres for these groups. 

However, no such arrangements exist for voting under the First Past The Post (FPTP) system, nor are there provisions for general voters who are unable to be present at their registered polling locations due to various reasons. This gap in the electoral process, especially for Nepali citizens working abroad or living away from their registered constituencies, creates a barrier to participation preventing eligible voters from voting. 

      2. Socio-Economic Factors:

- Foreign Employment and Studies: According to the preliminary findings of the 2021 Census, there are more than 2.1 million Nepali citizens living outside the country, a figure that represents 7.4 per cent of the national population (CBS 2022).  According to data from the Department of Immigration, in 2023 alone, 808,415 people left the country for the purpose of foreign employment. 

Fig 2: Trend in Foreign Employment including New and Renewed Labour Approvals from Fiscal Year 2011/12 to 2023/24.

Source: Department of Foreign Employment

The graph overall illustrates a consistently high trend of foreign employment in Nepal. In the fiscal year 2022/23, 771,327 labour approvals were issued including new and renewed permits for foreign employment, and in 2023/24, the number slightly decreased to 741,297. The large-scale migration of Nepali workers abroad, particularly young people, has had a notable impact on the country’s electoral participation. This increasing trend suggests that unless addressed, foreign employment will continue to challenge the representativeness of Nepal's elections.

Moreover, the increasing trend of students moving abroad for further studies in Nepal also contributes to lower voter turnout. In 2023 alone, the Department of Immigration recorded 108,542 students travelling abroad for educational purposes. This growing number of Nepalese studying abroad directly impacts voter turnout, unless their right to vote is secured by alternative arrangements.

- Internal Migration: Internal migration is a common occurrence in Nepal, with many people moving from remote areas to cities in search of better opportunities. This migration often leads to difficulties in voting, as people may not be registered in their new locations. For instance, Kathmandu, one of the most populated cities in Nepal, has a population of 2,041,587. According to the 2021 Census Report, 1,639,643 of these residents were either youths or older adults, with all those above 18 eligible to vote. However, a significant portion of this population consists of temporary migrants who are not registered to vote in Kathmandu. As a result, despite the city's large population, only 652,686 voters were registered in Kathmandu to vote according to the Election Commission. Without Special Voting Arrangements, these migrants are unlikely to cast their votes if they cannot be physically present at their registered polling centres further reducing overall voter turnout in the election.

      3. Political and Psychological Factors:

- Voter Apathy: Voter apathy refers to the lack of interest or motivation among eligible voters to participate in the electoral process. Voter apathy can stem from various factors, including a perception that one's vote does not matter, disillusionment with political candidates, or a general distrust in the political system.

In Nepal, voter apathy has become a notable concern, especially following the elections of 2022, where voter turnout dropped by 8.5% from that of 2017. This decline is indicative of a growing disinterest among the people, particularly among the youth, who feel disconnected from the political process and are sceptical about the effectiveness of their participation. 

A significant factor behind this apathy is the widespread distrust in Nepal’s political system. Surveys show that political institutions in Nepal, including political parties and parliaments, are among the least trusted by the public, with trust levels as low as 30 to 40 per cent. Many young people express frustration with the current political leadership and feel that existing political parties do not represent their interests or address their concerns. This growing disenchantment and lack of trust in political institutions are major contributors to voter apathy, leading to reduced voter turnout and potentially undermining the democratic process.

- Dissatisfaction with Political Process: Dissatisfaction with the political process in Nepal reflects a deep sense of disillusionment among voters, particularly regarding how political systems and institutions operate. This dissatisfaction often arises from unmet expectations and pervasive corruption that has eroded trust in political institutions. According to Transparency International, Nepal ranked 108th out of 180 countries on the Corruption Perception Index in 2023. Additionally, the World Bank's Political Corruption Index for Nepal stands at 0.6, where a score of 1 indicates the highest level of corruption. These figures underscore the widespread perception of corruption within the country leading to distrust in the political institution.

One of the reasons for low turnout can also be attributed to the confusing patchwork of alliance politics. The alliances formed during the general election of 2022 diminished the role of ideology in Nepal's electoral alliance politics, where traditionally opposing parties were seen forming alliances solely for power rather than shared beliefs. Examples include the Nepali Congress aligning with the ultra-left Maoists and the CPN-UML partnering with pro-Hindu, pro-monarchical parties. This led to contradictory election manifestos within the same alliances, confusing voters and undermining their trust in the political process. 

This dissatisfaction could also be seen in the 2022 election’s result where many votes were cast for independent and new candidates. A research done on young voters also had a similar finding where three in four young people said they would vote for a new and young candidate even if the candidate might not win the elections. 

Strategies For an Engaged Electorate in Nepal

Voting is the primary way citizens participate in a democracy, allowing them to influence government decisions and hold leaders accountable. However, low voter turnout can undermine the legitimacy of the elected government, leading to representation gaps, particularly if marginalized or disillusioned groups are underrepresented. Persistent low turnout is also a sign of civic disengagement, suggesting that citizens feel disconnected from the political process, thereby weakening democracy. Hence, it is crucial to maintain a high voter turnout to ensure a healthy and representative democracy. 

Some of the strategies that can be adopted to ensure a more engaged electorate in Nepal are as follows:

    1. Registration and Voting Accessibility:

- Automatic Voter Registration: Automatic voter registration (AVR) is a process that automatically registers eligible citizens to vote when they interact with certain government agencies unless the individual declines such registration. AVR can significantly increase voter turnout by simplifying the registration process and ensuring that more eligible citizens are included on voter rolls. By integrating voter registration with routine interactions at government agencies, such as when renewing a driver's license, AVR removes the need for individuals to take separate steps to register, reducing barriers to participation. In countries like Argentina, Chile, Hungary, Israel, and the Netherlands, such registration is automatic, based on government records such as census counts. This captures a broader segment of the population, including those who might not have registered on their own due to lack of awareness, time, or motivation.

- Special Voting Arrangements: Alternative voting arrangements can significantly boost voter turnout in Nepal by enabling individuals to vote even when they are away from their registered constituency. This is particularly important given the impact of internal migration in Nepal, which often prevents many voters from participating in elections. 

According to International IDEA’s database, the most common special voting arrangements (SVAs) used worldwide include early voting, mobile ballot boxes, postal voting, and proxy voting. 

Fig 3: Use of different kinds of SVAs for in-country voters around the world

Source: International IDEA

Early voting enables registered voters to cast their ballots before Election Day, often over an extended period. This approach provides flexibility, reduces congestion at polling stations, and increases voter participation by offering more convenient options.

Likewise, Mobile ballot boxes bring the voting process directly to individuals who cannot visit polling stations, such as those with disabilities or the elderly. Election officials visit voters at their homes or institutions, ensuring that these individuals can still participate in elections.

Postal voting, also known as absentee voting, allows voters to submit their ballots by mail, making it an ideal option for those unable to vote in person due to being away from their home constituency, having a disability, or working in essential services on Election Day.

Proxy voting allows a registered voter to designate someone else to cast their vote on their behalf, ensuring that those unable to vote personally can still have their voices heard in the electoral process.

In the context of Nepal, the provision of such SVAs can significantly help and motivate voters to cast their votes. From the practices of other countries, Nepal can look upon the feasibility of these alternatives and provide any or combination of these arrangements for better turnouts. 

- Out-of-Country Voting (OCV) or External Voting: External voting, or Out-of-Country Voting (OCV) enables citizens living abroad to participate in their home country's elections. This method can take various forms, including postal voting, in-person voting at diplomatic missions, or electronic voting, and is often legally enshrined in electoral laws. 

Many countries allow voters abroad to choose from multiple voting methods. In Australia, Denmark, Japan, Latvia, and Thailand, citizens abroad can choose between personal and postal voting. A combination of postal and proxy voting is applied in France, India, the Netherlands, and the UK. In Estonia and Switzerland, abroad voters can vote in person, by post, or cast their ballot via the Internet. In Panama, citizens outside must vote either by post or via the Internet. In Poland and New Zealand, voters can even cast their vote by fax. According to the International IDEA, 125 states and territories allow people living abroad to participate in legislative elections in various ways.

Fig 4: Voting from abroad: adoption by countries

Source: International IDEA

In Nepal, there are currently no electoral laws that provide for the voting rights of citizens living outside the country. However, the Supreme Court of Nepal in 2018 issued an order requiring legal provisions for external voting, ensuring that migrant workers could exercise their right to vote from abroad. This mandate aimed to secure their participation in the 2022 general election, but no such provisions were made by the Election Commission, leaving these citizens unable to vote. 

Currently, efforts are underway to draft a new bill that will secure the voting rights of Nepali migrant workers abroad according to the annual report of the Election Commission.. Enabling External Voting would ensure that the voices of a significant portion of the population, including those contributing to the economy through remittances, are heard in the electoral process. 

     2. Legislative and Electoral Reforms

- Inclusion of Right to Reject: Voting is a formal expression of the public's will or opinion in an electoral process, and the right to reject candidates is an important aspect of this. The "None of the Above" (NOTA) option allows voters to reject all candidates if they find none suitable, providing a way for dissatisfied or apathetic voters to still participate in the electoral process. By introducing NOTA, elections can become more inclusive, giving a voice to those who might otherwise abstain from voting due to dissatisfaction with the available choices.

In Nepal, the Supreme Court recognized the right to reject in a landmark ruling of 2074, affirming that voters should have the option to reject all candidates. However, despite this ruling, NOTA has yet to be implemented in Nepalese elections. If adopted, NOTA could encourage greater voter turnout by engaging those who are disillusioned with the current political options, allowing them to express their discontent constructively.

In countries like India, where NOTA is in use, it has led to increased accountability among political parties, prompting them to nominate more competent and appealing candidates. However,  NOTA is counted as a neutral vote rather than a negative vote in India. Hence though it compels parties to field candidates with integrity, it doesn’t really make a difference in a final count of voting. But there are various other procedural responses that are possible if a majority of voters choose NOTA, such as leaving the office vacant, renewing nominations, or holding a fresh election. 

For Nepal, implementing NOTA could serve as a powerful tool to increase voter turnout, particularly among those frustrated with the political process. By allowing voters to express their dissatisfaction in this way, Nepal can encourage broader participation, making elections more representative and responsive to the will of the people. However, what will be the implication of NOTA (negative or neutral), is subject to various considerations if it is to make a difference in election results.

- Compulsory Voting: Compulsory voting has a significant impact on increasing voter turnout, as evidenced by countries like Australia, where voting is legally required. When citizens are legally obliged to vote, turnout rates can dramatically increase because the act of voting transitions from being a mere right to a civic duty. Global data since 1945 shows that countries with compulsory voting tend to have higher voter turnout compared to those without such provisions.

Fig 5: Impact of compulsory voting on voter turnout rates

Source: International IDEA

Currently, 23 countries around the world have laws mandating compulsory voting, often with penalties or fines for those who fail to comply. These measures help to combat voter apathy and disengagement by requiring citizens to participate in the electoral process. As a result, compulsory voting can help create a more politically active and informed population, as citizens are encouraged to educate themselves about the candidates and issues before casting their ballots. As a strategy to ensure higher voter turnout, Nepal can also explore the idea of compulsory voting and its feasibility, however, it may be rendered futile in the absence of efficiency to enforce it.

   3. Technological Enhancements:

- EVM (Electronic Voting Machines) or Machines to Reduce Invalid Votes: The introduction of Electronic Voting Machines (EVMs) in Nepal can replace traditional paper ballots, allowing voters to cast their votes with a simple button press, which is then recorded electronically. This method reduces the time required to vote, minimizes errors, and includes features that assist voters with disabilities, ensuring a more inclusive process. Additionally, the secure and quick nature of EVMs fosters greater public trust in the electoral process, encouraging broader participation.

The pilot test of EVM was done in Kathmandu during the Constituent Assembly Election of 2008, which went well with promising signs for future elections.  However, despite this potential, the technology has not been utilized in subsequent elections after 2008. By adopting EVMs in future elections, Nepal could enhance voter turnout by making the process more user-friendly, accurate, and trustworthy, ultimately leading to more representative and democratic outcomes.

     4. Civic Engagement and Awareness:

- Voter Education Emphasizing New Voters and Minorities: Educating first-time voters, vulnerable groups, and minorities about the importance of participating in elections and the voting process is crucial for increasing voter turnout. These groups often lack access to reliable information and are more susceptible to misinformation or manipulation, which can lead to disengagement from the electoral process. For first-time voters, the absence of clear guidance on how to vote, how to evaluate candidates, and the significance of their vote can result in opting out of the process altogether.

Targeted awareness programs, educational campaigns, and mock elections can play a transformative role in ensuring these groups are well-informed and confident in exercising their voting rights. The 2013 Constituent Assembly election in Nepal is a powerful example of the impact of voter education, with a record turnout of nearly 80%, demonstrating that when voters are informed and engaged, they are more likely to participate.

Conclusion

Voting is a vital tool for ensuring that the voices of the people are heard and that elected representatives are accountable to those they serve. It is a fundamental pillar of democracy that holds the essence of democracy. So, high voter turnout is particularly important because it reflects the engagement and participation of the entire population, leading to a government that is more representative and responsive to the needs of its citizens. By implementing targeted voter education programs, improving access through alternative voting arrangements, and fostering a stronger sense of civic responsibility, Nepal can create an environment where every citizen feels empowered to participate in the electoral process. Ensuring that all voices are heard is crucial for the health of Nepal's democracy, and concerted efforts to increase voter turnout will contribute to a more inclusive and representative political system.