As Prof. Mahmood Yakubu’s tenure as the Chairman of the Independent National Electoral Commission (INEC) comes to an end, his legacy is one of modernisation, inclusion, and hard-won reforms, but also marred by controversial elections, shaken public confidence, and unanswered questions, writes Deputy Political Editor RAYMOND MORDI
As Prof. Mahmood Yakubu’s historic tenure as Chairman of the Independent National Electoral Commission (INEC) comes to an end, his legacy reflects a push for modernisation and inclusion, yet it is equally marked by controversial elections, eroded public confidence, and lingering questions.
Over two terms from 2015 to 2023, Yakubu presided over general elections, numerous by-elections, off-cycle polls, and reruns. His leadership was not only defined by the conduct of these elections but by his reform agenda, aimed at reshaping the electoral body into a more independent, transparent institution. These reforms were ambitious, but were often tested by Nigeria’s political volatility and the complexities of scale.
Institutional reforms
One of Yakubu’s most notable achievements was strengthening INEC’s autonomy and professionalism. The commission under his leadership worked to insulate itself from executive interference, striving to be more than a procedural body—to act as a truly independent referee in Nigeria’s turbulent electoral arena.
Though no electoral body is entirely immune from political pressure, INEC under Yakubu made concerted efforts to assert operational independence. He led a revamp of internal processes, with a focus on capacity building, streamlined procurement, and staff training—measures that helped reduce ad hoc decision-making and improved logistical coordination.
Procedural reforms were also introduced. During the 2016 Bayelsa governorship election, INEC implemented simultaneous accreditation and voting; a relatively small change that nonetheless reflected a deeper effort to improve the voter experience. This innovation drew from the Commonwealth Observer Mission’s recommendations after the 2015 general election.
Yakubu further prioritised early preparation. Tools like the Election Project Plan (EPP) and the Election Management System (EMS) helped standardise INEC’s electoral calendar, reducing the chaos and last-minute improvisation that had marred past elections.
Technological innovations
INEC’s introduction of technology was a hallmark of Yakubu’s leadership; intended to curb fraud and modernise operations. The Bimodal Voter Accreditation System (BVAS) replaced the controversial Smart Card Readers, allowing secure voter authentication using both fingerprint and facial recognition. Though technical limitations remained, especially in areas with poor connectivity and insufficient staff training, the introduction of BVAS marked a significant advance in the country’s electoral journey.
Another breakthrough was the INEC Results Viewing Portal (IReV), designed to upload polling unit results in real-time. While IReV initially raised hopes for increased transparency, it faltered during the 2023 general election due to glitches and delayed uploads. Yakubu attributed the failures to technical issues, but public trust took a major hit.
Mr. Austin Aigbe, Regional Advocacy Officer at the West Africa Democracy Solidarity Network, explained: “The IReV is Prof. Yakubu’s idea. Before he came in, results were pasted at polling units on Form EC60E. But they were often torn down. The IReV turned that form into an electronic version, reducing the risk of tampering.
“Unfortunately, INEC did not have the full legal backing to implement some of the technological innovations introduced by Prof. Yakubu, such as the IReV. This lack of legal support complicated the deployment of what could have been a game-changer.”
Expanding voter access, participation
Yakubu also worked to widen the democratic space. A major Continuous Voter Registration (CVR) drive before the 2023 general election added over 12 million new voters, mostly young people, raising the total to over 93 million, the highest in Nigeria’s history.
The commission also created more than 56,000 new polling units to replace the outdated system that forced voters to travel long distances or crowd limited venues. While this did not eliminate logistical issues entirely, it significantly eased voter congestion.
Inclusivity became a policy priority, not just rhetoric. From multilingual voter education to Braille materials for the visually impaired, INEC sought to expand participation across diverse communities.
According to Aigbe, “INEC under Yakubu made genuine attempts to broaden the participation of marginalised communities. But these gains were often overshadowed by post-election disputes and perception issues.”
Legal backing for reform
A cornerstone of Yakubu’s tenure was his role in shaping and advocating for the Electoral Act 2022, which provided a more robust legal framework for INEC’s reforms.
This new law authorised the use of technology in elections, improved nomination timelines, and clarified the process for transmitting results. Notably, it empowered INEC to review results declared under duress within seven days; a provision inspired by the 2019 Imo North senatorial election, where a returning officer claimed to have been coerced.
“That amendment came from the Imo experience,” said Aigbe. “Before 2022, only the courts could change a declared result. Now, INEC can act within a window of time to review issues of coercion or irregularity.”
This legal grounding informed how the commission handled the controversial 2023 Adamawa governorship election, where an unauthorised declaration by Resident Electoral Commissioner Hudu Yunusa Ari was eventually nullified.
Communication: The Achilles’ heel
Yakubu’s record on public communication was mixed. While he prioritised engagement through press briefings, digital platforms, and stakeholder consultations, critics argue he failed to communicate effectively during moments of crisis.
Mr. Paul James, Election Manager at Yiaga Africa, observed: “There is a disconnect between what INEC intends and how it is perceived. Yakubu often avoided direct explanations when issues arose. He focused too much on finishing the process, rather than listening and responding in real-time.”
He cited the lack of timely explanations following the 2023 presidential election glitches and earlier controversies like pre-circulated result sheets during the Kogi governorship election. “During these crises, silence or defensiveness eroded public confidence further,” James noted. “You can’t build trust without dialogue.”
Defending INEC’s restraint, Yakubu argued that premature statements during disputes could compromise neutrality. “While we value transparency, we must respect legal processes,” he said in April 2023. “Institutional caution should not be mistaken for indifference.”
Persistent logistical challenges
Despite technological upgrades and planning reforms, logistics remained a challenge. Delayed starts, missing materials, and last-minute postponements, like that of the 2019 general election, continued to undermine confidence.
“The 2019 postponement was a major setback,” said James. “It showed that even with better tools, the human and logistical elements still need urgent overhaul.”
Some observers argue that managing elections across 176,000 polling units is too complex for any single institution. Others contend that while perfection is unrealistic, systemic improvement remains essential.
Cracks in the system
The 2023 general election revealed the limits of reform. Despite improved procedures and tools, many Nigerians lost faith in the system. The phrase “Go to court”—once a legitimate legal recourse—became shorthand for resignation and cynicism.
“It’s no longer just legal advice,” said James. “It’s now a political strategy, even tolerated by INEC, which sometimes fails to enforce its standards. It suggests the commission is reluctant to confront misconduct head-on.”
Yakubu maintained that INEC’s role is administrative, not judicial: “Where allegations arise, the courts are constitutionally empowered to interpret the law and adjudicate disputes,” he stated. “INEC cannot override legal procedures based on sentiment or pressure.”
Still, critics argue that enforcement at the polling unit and collation stages must improve if the courts are not to bear the burden of every disputed result.
A mixed but meaningful legacy
Prof. Yakubu leaves behind a more technologically capable, policy-driven INEC—but also one dogged by mistrust and structural fragility. His tenure shows that reform is more than passing laws or introducing gadgets. It’s about building and sustaining public confidence.
“Yakubu moved the commission forward in many ways,” said Aigbe. “But what good are reforms if people no longer trust the outcome of elections?”
As he steps down in October, the task for INEC’s next leadership will be not just to manage elections more efficiently, but to win back the trust of a disillusioned electorate. Because in a democracy, credibility is the most vital currency an electoral body can hold.
