Terms of Reference for Comprehensive Analysis of Nigerian Election Funding and its Impact on Effective Elections
ActionAid Nigeria is an affiliate of the ActionAid Federation with footprints in over 70 countries across the globe. As an anti-poverty non-governmental organisation, we have been working in Nigeria to combat poverty and promote social justice across the 36 states of the federation and the FCT for over 20 years. ActionAid Nigeria believes that poverty can be eradicated if the right redistribution of resources and resilience are prioritised.
Within the Country Strategy Paper (CSP) 2024-2034, Citizens Action to End Poverty and Injustice, the Governance Programme focuses on enhancing transparency, accountability, and inclusiveness in governance structures and processes. The current political and economic landscape in Nigeria presents both opportunities and challenges in achieving these objectives.
The scope of the governance unit strategy within the CSP would be intentional in addressing environmental, economic, social, and institutional sustainability as well as promoting green growth (environment, social and economic). It will ensure engagement with citizens to promote their priorities and needs with their fundamental rights addressed through building their agency and organising demand for accountable governance. Governance is one of the key programme areas in ActionAid Nigeria and currently comprises three projects, namely, Strategic Partnership Agreement (SPAII), Citizens Led Engagements on Judicial Accountability in Post-Election Justice Delivery in Nigeria (CLEAP-Justice), and Leave No One Behind (LNOB).
A. Background
Since the transition to civilian rule in 1999, Nigeria has faced persistent electoral challenges, including vote buying, result falsification, and the misuse of state resources for electoral gain. The Independent National Electoral Commission (INEC), tasked with overseeing elections, is central to addressing these issues. However, concerns about its capacity, autonomy, and efficiency have raised questions about the effectiveness of its substantial expenditures.
Despite considerable financial investments in past elections, such as those in 2007, 2015, and 2023, these contests have been repeatedly marred by fraud and irregularities. For example, the 2023 elections saw the deployment of innovative technologies like the Bimodal Voter Accreditation System (BVAS) and the Election Results Viewing Portal, both of which were meant to increase transparency and reduce malpractice. Yet, logistical challenges, technological failures, and allegations of manipulation highlighted glaring inefficiencies, raising doubts about whether the financial outlay has translated into meaningful improvements in the quality of elections.
Proposals for electoral reforms, such as the Electoral Reform Committee's 2008 recommendations, have emphasised the need for INEC’s financial autonomy and stricter regulation of political party financing. The 2010 Electoral Act also attempted to cap campaign spending and regulate funding sources. However, weak enforcement mechanisms and the pervasive influence of money in politics have undermined these efforts. Political parties continue to exploit both legal and illicit funding avenues,
In light of these persistent challenges, the Independent National Electoral Commission (INEC) has proposed a substantial budget of approximately ₦126 billion for its 2025 operations and to commence preparations for the 2027 general elections. This proposal marks a significant increase from the ₦40 billion allocated in 2024, which was primarily sufficient only for personnel costs. INEC Chairman, Prof. Mahmood Yakubu, emphasised that the previous allocation constrained the Commission's ability to fund essential activities, such as the Continuous Voter Registration (CVR) exercise and logistical arrangements for off-cycle elections.
While the need for increased funding is evident, it is imperative to critically assess INEC's past expenditures concerning the quality of electoral outcomes. Despite significant financial investments, recent elections have continued to experience issues like logistical shortcomings, technological failures, and allegations of result manipulation. These persistent problems raise concerns about the efficiency and effectiveness of resource utilisation within the Commission.
Therefore, as INEC seeks additional funding, it is essential to implement a comprehensive review of its performance to ensure that increased financial allocations translate into tangible improvements in the electoral process. This review should focus on identifying areas where past expenditures have not yielded the desired outcomes and developing strategies to enhance operational efficiency, transparency, and accountability. By doing so, Nigeria can work towards a more credible and effective electoral system that justifies the substantial investments being made.
B. Overall Objectives for the Comprehensive Analysis of Nigerian Election Funding, use of Funds and Processes:
To engage a consultant with specialised knowledge in electoral systems and financial management to conduct a thorough investigation into the funding, allocation, processes and operational aspects of Nigerian elections toward the following objectives:
1. Evaluate the relationship between INEC’s expenditure and electoral outcomes – to assess how INEC’s financial investments in the recent elections have influenced the transparency, efficiency and credibility of electoral processes in Nigeria.
2. Identify key inefficiencies in Resource Utilisation – areas where INEC’s expenditures have not yielded results will be analysed, for example - deployment of technology, logistical arrangements, and voter engagement initiatives.
3. Examine the extent to which Financial Autonomy has impact on INEC’s Effectiveness – the impact of financial independence and adequate funding for INEC to improved electoral administration and outcomes.
4. Propose Strategies to enhance INEC’s accountability and efficiency in budget utilisation -
To recommend actionable reforms and policies that ensure future expenditures lead to measurable improvements in the quality of elections in Nigeria.
C. Scope of Work:
a. Data Collection on Election Funding:
i. Total Budget Analysis: Compile and analyse data on the total budget allocated for recent Nigerian elections, including both national and local elections (LGAs).
ii. Expenditure Breakdown: Provide a detailed breakdown of how funds were utilised, including but not limited to:
- Costs for printing ballot papers,
- Salaries and stipends for election personnel,
- Procurement of voting materials (e.g., BVAS machines)
- Logistical expenditures (transportation, venue setups, etc.)
- Public education and voter awareness campaigns
- Security arrangements and law enforcement costs
b. Financial Transparency and Accountability:
Audit and Reporting: Assess the transparency of financial reporting by political parties and INEC, including the adherence to legal requirements for disclosure of campaign finance and election expenses.
c. Compliance with Laws:
Evaluate compliance with the Electoral Act concerning campaign financing limits, expenditure ceilings, and donation regulations.
d. Election Process Evaluation:
· Election Management: Document the roles, responsibilities, and performance of the Independent National Electoral Commission (INEC) in managing elections.
· Voter Registration and Accreditation: Examine the costs and processes involved in voter registration, including the use of technology for voter accreditation.
· Polling Day Operations: Investigate the logistics of setting up polling units, staff training, voter turnout, and vote-counting procedures.
· Post-election Activities: Review the costs and procedures for result collation, announcement, and dispute resolution.
· The outcome of Elections and its reflection on accountability and transparency.
Recommendations:
i. Efficiency and Cost Reduction: Identify areas where cost efficiencies can be made without compromising the integrity of the electoral process.
ii. Policy and Legislative Suggestions: Propose amendments or new policies to enhance transparency, accountability, and effectiveness in election funding and management.
D. Methodology
The process will include desk reviews, structured interviews/key informant interviews and focus group discussions with field visits by the consultant where necessary. This would entail a deep consultative process with relevant stakeholders, including Youth Groups, Youth-led movements, Party Agents, Political parties and other relevant actors in Electoral Space including government agencies, Security and State INEC Offices.
E. Contract Period
The contract is for twenty (20) days.
Required profile for consultant:
The consultant (She/he) to be recruited should have the following experiences
· Advanced degree (Masters/PhD Preferred) in Political Science, Law, Human Rights, or a related field preferably in Advocacy and Politics.
· Have at least a minimum of 7 years of experience in carrying out such an assignment and capacity (a report of such work done in the last 2 years is required evidence).
· Demonstrated experience in tools, methods, and frameworks on the development of Analysis for the Nigerian Election
· Experience working with Electoral bodies, party agents, political parties and government agencies around elections.
· Strong analytical, research, writing, presentation, and facilitation skills.
· Been part of Election Observation to understand election processes
· Knowledge in Finance
· Excellent communication skills in English.
· Evidence of having undertaken such assignments or related work.
Deliverables:
1. Development of comprehensive analysis on Election funding, utilisation and effective elections.
2. Documentation of findings, policies on Election Funding and Utilisations.
3. Strategic advice report on tracking electoral funds and utilisation vis the impact on effective elections in Nigeria
4. Updated security and context analysis report with refined risk mitigation plans for Nigeria.
5. Final report summarising recommendations for future actions
Payment
The Consultant shall be paid a daily consultancy fee of N200,000. Fifty per cent of the total sum shall be paid in advance at the beginning of the consultancy period. The balance of 50% will be paid when the final reports have been submitted and signed off by the Director of Programmes.
ActionAid will deduct 5% withholding tax from the total sum following the Nigeria tax law for onward remittance to the Federal Inland Revenue Service.
Administrative Support
Where travel is required, ActionAid will cover the cost of per diem, transport, and accommodation according to ActionAid rates during this work.
Reporting Lines
The Governance Specialist will provide technical oversight to the Consultant during the work. The consultant shall be responsible for pulling together the comprehensive analysis and findings
around the election funds. Methods and Framework on Election fund usage and processes, Recommendation report for future engagement for submission to the Governance Specialist at ActionAid Nigeria who will confirm tools, methods, framework and report satisfactory before balance payments are made.
Ownership of Output
Outputs of the work done as stipulated in the call expression of interest belong to ActionAid Nigeria.
Submission of Expression of interest
Please send your Expression of Interest (detailing how you intend to accomplish this assignment) along with your profile to: procurement.nigeria@actionaid.org with the subject line: “Comprehensive Analysis of Nigerian Election Funding and its Impact on Effective Elections”, on or before May 28, 2025.
Applications should be submitted as a single Microsoft Word document. Submissions not following this format may be e disqualified. Please note that only shortlisted applicants will be contacted.