and staggered elections for local level government has resulted in an inability to form quora on the Dzongkhag, Gewog, and Thromde levels. Although elections were originally slated for 2008, various participatory hurdles, demarcation problems, and legal questions posed by the Election Commission regarding the constitutionality of election laws produced significant delays. Although demarcation is a basic requisite for the determination of electoral rolls, the task presented particular difficulty for the government. The electoral rolls themselves, and requirements behind registration, served to lower the level of participation. Electoral rolls Because of electoral rolls reflect census data on citizenship and origin, many would-be voters in 2011 were legally registered in Dzongkhags and Chiwogs other than where they reside. This is especially true in urban areas such as Thimphu, where some 6,000 were eligible to vote out of a population of over 86,000. Participation Between 2008 and 2011, recruitment and retention of Tshogpas, or local government council members, remained a serious issue. Obstacles range from lack of interest and lack of economic incentives to difficulty in compliance and obtaining accreditation under existing election laws. The functional literacy and skills test alone left many constituencies without the minimum of two candidates, leading to lengthy delay of the local government elections of 2011, originally slated for 2008. The first round of the functional literacy and skills test left many Gewogs with no representatives, though second round results showed a pass rate over 90%. Although women elected to office remained relatively few (14% before local elections according to the UNHCR), more than half of voters in initial local government elections were women. In initial local-level voting in 2011, voter turnout was about 50%. This has raised the question of whether women would benefit from quotas in public service, highlighting the need to encourage further female electoral and political participation. In contrast, many lay monks and former lay monks, facing Constitutional hurdles in voting as well as registering and certifying as candidates, have actively sought to participate in elections and government since democratization. Electronic voting machines In its elections, Bhutan uses 4,000 electronic voting machines (EVMs) produced in Hyderabad and Bangalore, India. The EVMs were used in National Assembly elections, National Council elections, and local elections. An incident of tampering similar EVMs in India had put their security into question, however the Chief Election Commissioner assured the public that last-minute randomized EVM distribution and adequate backup machines