Islamabad, November 27, 2025: The November 23rd by-elections for 13 National and Punjab Assemblies constituencies, though largely well-managed, were marked by recurring violations of campaigning restrictions, gaps in results transparency, and a worryingly low voter turnout, says the Free and Fair Election Network (FAFEN) in its by-election observation report.
FAFEN deployed 122 trained and accredited observers, who conducted a comprehensive observation of opening, voting, and counting processes at 373 polling stations and their 1,088 polling booths, including 626 male and 462 female booths. Observers also interviewed polling staff, security personnel, and 833 polling agents.
Weak enforcement of campaigning restrictions is among the persistent issues flagged in all recent elections. At 238 (64 percent) polling stations, at least 465 party camps were observed in close vicinity to the stations, and transportation facilitation was observed at 184 (49 percent) polling stations. Party camps were seen issuing voter slips at 216 (91 percent) polling stations, and campaign material was found inside 16 (four percent) polling stations. While most polling stations had basic accessibility infrastructure, arrangements for women, the elderly, persons with disabilities, and transgender voters were inconsistent.
Around 89 percent of Presiding Officers, 79 percent of Assistant Presiding Officers, and 77 percent of Polling Officers reported receiving training from the Election Commission of Pakistan (ECP). Ballot security and secrecy were generally upheld. All four required ballot box seals were intact at 1,072 (98 percent) booths, and secrecy screens were properly placed at 1,044 (96 percent) booths.
Observers closely monitored 366 polling booths and found polling organized and peaceful at 340 (93 percent) booths, while only four (one percent) were described as disorganized or poorly managed. Polling Officers were observed performing key legal tasks such as verifying National Identity Cards, applying thumb marks, recording voter details, and updating electoral rolls. However, at 92 (25 percent) booths, they did not announce voter names and serial numbers as required under Section 84(4)(a) of the Elections Act, 2017. At ten (three percent) booths, at least one eligible voter was turned away due to an expired NIC.
Assistant Presiding Officers generally followed proper ballot issuance procedures, but at 107 (29 percent) booths they pre-signed ballot papers, and at 102 (28 percent) booths they pre-stamped them. Although not illegal, these practices may increase the risk of ballot misuse.
Of the 79 polling stations selected for counting observation, access to observers was denied at two. Presiding Officers did not provide the Result of the Count (Form 45) to polling agents at six (eight percent) polling stations and to observers at 13 (17 percent) stations. Form 45 was also not displayed outside 15 (19 percent) polling stations. Similarly, Ballot Paper Account (Form 46) was not provided to polling agents at 15 (19 percent) stations and observers at 17 (22 percent) stations, and it was not posted outside 16 (21 percent) stations. At 33 (43 percent) polling stations, Presiding Officers did not ask polling agents to sign the result forms.
The overall turnout fell by 23 percent for both men and women, and only one constituency recorded turnout above 50 percent.
Around 97 percent of polling agents interviewed during the observation process expressed satisfaction with the polling process, while only two expressed concerns. All 137 polling agents interviewed after the counting phase reported satisfaction with the counting process.
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