# Ballot Building

## [Introduction]{.underline}

Correct and easily understood ballots are the foundation of a successful
election. Building a ballot is part science and part art. The science is
rather straightforward and will be presented in this chapter. The art is
learned through experience.

This chapter is organized in five major sections. The first section
discusses those issues that are common to all ballots. The next three
sections discuss issues that are specific to touch screen ballots,
optical scan ballots, and audio ballots. The final section addresses the
testing and validation of the completed ballots.

## [General Ballot Considerations]{.underline}

**Schedule Considerations:** As you approach an election there are
various time dependent events that have to occur. Some of these events
are specified by law, such as the deadline for mailing absentee ballots,
and others are dictated by necessity, such as the time it will take your
printer to produce the printed ballots. Some events are dependent upon
other events. For example, you cannot conduct Logic and Accuracy Tests
until the printed ballots are available.

Your election supervisor will build and publish a schedule that contains
all of the events leading up to the election. As a ballot builder you
need to be very familiar with the dates on this schedule that affect the
ballot building process.

Find out from your printer(s) the earliest and latest dates that they
can accommodate receiving your ballots. Note that the latest date must
be sufficiently after the close of qualifying to allow you ample time to
proof the finished ballots. Allow time to re-print any ballots that
contain errors. Be sure that these dates allow you to meet the
requirements for mailing absentee ballots.

Include in your schedule the dates that you will receive candidates and
resolutions for federal and state contests. Also include the dates for
the start and close of qualifying for local contests.

Verify that the jurisdiction election database is up to date and update
it if necessary. As soon as possible, you want to prepare the specific
election database that contains everything except the names of the
candidates and the specific wording of the questions and/or referendums.
This database will contain all precincts, districts, and races that will
be included in the election.

**Jurisdiction Election Database:** Almost all of the currently
available computer-based election management systems have a provision
for building a jurisdiction election database. This data base can be
built well in advance of any specific election. It contains all of the
political districts in your jurisdiction (precincts, county commission
districts, school board districts, state legislative districts,
congressional districts, etc.) and all of the offices that may be
elected (county commissioners, state senators, state representative, US
representatives). Once this database is built it remains fairly static
and only has to be updated if redistricting occurs or if offices are
added or deleted.

**Specific Election Database:** To plan for a specific election, the
districts and offices to be included in the election are selected from
the jurisdiction election database to create an election database. This
database will contain the precincts, districts, and races that will form
the election. This information in turn defines the ballot styles that
you need to prepare and which ballot styles are assigned to which
precincts.

**Type fonts and sizes:** The Guidelines presented below give
recommendations for type fonts and sizes. However, your state may have
laws and/or regulations that govern type font and sizes. Follow your
state laws and/or regulations if there is a discrepancy between the
Guidelines and your state laws and/or regulations.

**Chain of custody for ballots:** There should be a chain of custody for
the ballots. The chain of custody should begin when the ballot is
designed and continue to the final disposition of the voted ballots.
When developing your chain of custody assume that you are going to have
a court challenge and that you will have to prove that your ballots were
constantly in the possession of an election official or a sworn officer
and that there was absolutely no time when anyone could alter any
ballot, either before it was cast or afterwards.

**Voluntary Voting System Guidelines:** The current (draft) version of
the Voluntary Voting System Guidelines (VVSG)[^1] contains several
guidelines related to ballots. The current version of the VVSG is a
draft version that is undergoing public review prior to being finalized;
however, the sections related to ballots are unlikely to change in the
final version. Although the Guidelines are intended to provide guidance
for the design and testing of voting systems, many of the specific
guidelines can be implemented in the construction of the ballots.

Guidelines that say **SHALL** are mandatory. Those that say **SHOULD**
are recommendations.

**3.2.4-C.2** Context before action

*When an instruction is based on a condition, the condition*
**[should]{.smallcaps}** *be stated first, and then the action to be
performed.*

> For instance, use \"In order to change your vote, do X\", rather than
> \"Do X, in order to change your vote.\"

**3.2.4-C.3** Simple vocabulary

*The system* **[should]{.smallcaps}** *use familiar, common words and
avoid technical or specialized words that voters are not likely to
understand.*

> For instance, \"\... there are more contests on the other side \...\"
> rather than \"\...additional contests are presented on the reverse
> \..."

**3.2.4-C.5** Use of positive

*The system* **[should]{.smallcaps}** *issue instructions on the correct
way to perform actions, rather than telling voters what not to do.*

> For example, "Fill in the oval for your write-in vote to count" rather
> than "If the oval is not marked, your write-in vote cannot be
> counted."

**3.2.4-C.6** Use of imperative voice.

*The system\'s instructions* **[should]{.smallcaps}** *address the voter
directly rather than use passive voice constructions.*

> For example, \"remove and retain this ballot stub\" rather than \"this
> ballot stub must be removed and retained by the voter.\"

**3.2.4-C.7** Gender-based pronouns

*The system* **[should]{.smallcaps}** *avoid the use of gender-based
pronouns.*

> For example, \"\...write in your choice directly on the ballot\...\"
> rather than \"\... write in his name directly on the ballot\...\"

**3.2.4-D** No bias among choices

*Consistent with election law, the voting system*
**[shall]{.smallcaps}** *support a process that does not introduce bias
for or against any of the contest choices to be presented to the voter.
In both visual and aural formats, the choices* **[shall]{.smallcaps}**
*be presented in an equivalent manner.*

> Certain differences in presentation are mandated by state law, such as
> the order in which candidates are listed and provisions for voting for
> write-in candidates. However, comparable characteristics such as font
> size or voice volume and speed must be the same for all choices.

**3.2.4-E.1** Contests split among pages or columns

*The voting system* **[should not]{.smallcaps}** *visually present a
single contest spread over two pages or two columns.*

> Such a visual separation poses the risk that the voter may perceive
> one contest as two, or fail to see additional choices. If a contest
> has a large number of candidates, it may be infeasible to observe this
> guideline.

**3.2.4-E.2** Indicate maximum number of candidates

*The ballot* **[shall]{.smallcaps}** *clearly indicate the maximum
number of candidates for which one can vote within a single contest.*

**3.2.4-E.3** Consistent representation of candidate selection

*The relationship between the name of a candidate and the mechanism used
to vote for that candidate* **[shall]{.smallcaps}** *be consistent
throughout the ballot.*

> For example, the response field where voters indicate their votes must
> not be located to the left of some candidates\' names, and to the
> right of others\'.

**3.2.4-E.4** Placement of instructions

*The system* **[should]{.smallcaps}** *display instructions near to
where they are needed.*

> For instance, only general instructions should be grouped at the
> beginning of the ballot; those pertaining to specific situations
> should be presented where and when needed.

**3.2.5-D** Minimum font size

*Voting systems* **[shall]{.smallcaps}** *provide a minimum font size of
3.0mm (measured as the height of a capital letter) for all text intended
for voters or poll workers.*

Font sizes are given in mm rather than type points because various
screen displays are not consistent with respect to printed type font.

*Note: The capital x (X) is the easiest letter to measure.*

**3.2.5-A**Number range req_subreq Use of sans serif font

*Text intended for the voter* **[should]{.smallcaps}** *be presented in
a sans serif font.*

> Research has shown that users prefer such fonts.
>
> *Note: Some voting systems do not support the sans serif font. This
> guideline is a 'should' not a 'shall' so you can substitute the Arial
> font or the Times New Roman font.*

**3.2.5-D.1** Legibility via font size

*The system* **[may]{.smallcaps}** *achieve legibility of paper records
by supporting the printing of those records in at least two font sizes,
3.0 - 4.0mm and 6.3 - 9.0mm.*

> Although the system may be capable of printing in several font sizes,
> the use of various font sizes in an actual election may be governed by
> local or state laws and regulations.

## [Touch Screen Ballots Considerations]{.underline}

Provide clear and unambiguous instructions for navigating the ballot.
Include instructions for any ancillary input devices such as
'sip-and-puff', paddles, etc. Provide the voter with clear and
unambiguous instructions for completing the voting process and casting
the ballot. Use color to distinguish the instructions from the ballot
content. It is a good idea to print these instructions and post them on
the voting station in addition to providing the instructions on the
touch screen.

If possible, keep all of the candidates for a given race in a single
column on a single page. Avoid mixing races with a large number of
candidates and races with a small number of candidates on a single
screen. Whenever practical, limit each screen to a single race.

*Recommendation: Do not use over three columns on a touch screen.*

If your voting system produces a Voter Verifiable Paper Audit Trail
(VVPAT) maintain a chain of custody for the VVPATs. The handling of this
chain of custody has the potential to become the object of severe
criticism form candidates and activists. Impress on your poll workers
the importance of adhering to and documenting the VVPAT chain of
custody.

**Voluntary Voting Systems Guidelines for touch screen voting systems:**
The following Guidelines pertain to issues involving touch screen voting
system.

**3.2.4-E.1** Contests split among pages or columns

*The voting system* **[should not]{.smallcaps}** *visually present a
single contest spread over two pages or two columns.*

> Such a visual separation poses the risk that the voter may perceive
> one contest as two, or fail to see additional choices. If a contest
> has a large number of candidates, it may be infeasible to observe this
> guideline.

**3.2.4-F** Conventional use of color

*The use of color by the voting system* **[should]{.smallcaps}** *agree
with common conventions: (a) green, blue or white is used for general
information or as a normal status indicator; (b) amber or yellow is used
to indicate warnings or a marginal status; (c) red is used to indicate
error conditions or a problem requiring immediate attention.*

**3.2.5-E** Available font sizes

*A [voting station](#glossvotingstation) that uses an electronic image
display* **[shall]{.smallcaps}** *be capable of showing all information
in at least two font sizes, (a) 3.0-4.0 mm and (b) 6.3-9.0 mm, under
control of the voter. The system* **[shall]{.smallcaps}** *allow the
voter to adjust font size throughout the [voting
session](#glossvotingsession) while preserving the current votes.*

> While larger font sizes may assist most voters with poor vision,
> certain disabilities such as tunnel vision are best addressed by
> smaller font sizes. Larger font sizes may also assist voters with
> cognitive disabilities. This requirement mandates the availability of
> at least two font sizes, but additional choices (including continuous
> variability) are allowed.

**3.2.5-J**Number range req_subreq Accommodation for color blindness

*The default color coding* **[shall]{.smallcaps}** *support correct
perception by voters with color blindness.*

> There are many types of color blindness and no color coding can, by
> itself, guarantee correct perception for everyone. However, designers
> should take into account such factors as: red-green color blindness is
> the most common form; high luminosity contrast will help colorblind
> voters to recognize visual features; and color-coded graphics can also
> use shape to improve the ability to distinguish certain features.

**3.2.5.K** No reliance solely on color

*Color coding* **[shall not]{.smallcaps}** *be used as the sole means of
conveying information, indicating an action, prompting a response, or
distinguishing a visual element.*

> While color can be used for emphasis, some other non-color mode must
> also be used to convey the information, such as a shape or text style.
> For example, red can be enclosed in an octagon shape.

**3.2.6-A** No page scrolling

*Voting systems* **[shall not]{.smallcaps}** *require page scrolling by
the voter.*

> That is, the page of displayed information must fit completely within
> the physical screen presenting it. Scrolling is not an intuitive
> operation for those unfamiliar with the use of computers. Even those
> experienced with computers often do not notice a scroll bar and miss
> information at the bottom of the \"page.\" Voting systems may require
> voters to move to the next or previous \"page.\"

**3.2.6-A.1** Size and separation of touch areas

*On touch screens, the sensitive touch areas* **[shall]{.smallcaps}**
*have a minimum height of 0.5 inches and minimum width of 0.7 inches.
The vertical distance between the centers of adjacent areas*
**[shall]{.smallcaps}** *be at least 0.6 inches, and the horizontal
distance at least 0.8 inches.*

## [Optical Scan Ballots Considerations]{.underline}

**General considerations for optical scan ballots:** If possible, use a
printer that has been certified by your voting system vendor. If this is
not possible, be sure that the printer is able to meet your voting
vendor's specifications. If you use multiple printers verify the
consistency of the ballots between the printers. Require the printer(s)
to send a 'test deck' of ballots to use to conduct logic and accuracy
testing prior to all ballots being printed.

Have the ballots shrink wrapped in quantities small enough for you to
verify the number of ballots in a pack (100 or less is recommended).
Review the ballots in all packets. Do not assume that because one (or
several) packet of ballots is correct that all the other packets will
also be correct.

When reviewing the ballots check for:

-   Text relative to fold,

-   Timing mark positions,

-   Bleed through,

-   Poor print quality,

-   Ink density,

-   Smudging,

-   Paper opaqueness, and

-   Verify that the folds do not interfere with the timing mark
    positions or the ovals.

If the ballot is double sided, print clear instructions to the voter, on
both sides of the ballot, to turn the ballot over. Print the words
"**VOTE BOTH SIDES**" or a similar instruction at the bottom of both
sides of the ballot.

If you use ballot-on-demand it is advisable to test scan the ballot
prior to issuing it to the voter. This is to insure that the paper was
correctly aligned in the printer and that the scanner will recognize the
timing marks.

*Important: Maintain and document a chain of custody for all blank
ballots. Some election officials tell their staff to pretend that the
ballots are five dollar bills and treat them accordingly.*

**Voluntary Voting Systems Guidelines for optical scan voting systems:**
The following Guidelines pertain to issues involving optical scan voting
systems.

**3.2.4-E.1** Contests split among pages or columns

*The voting system* **[should not]{.smallcaps}** *visually present a
single contest spread over two pages or two columns.*

> Such a visual separation poses the risk that the voter may perceive
> one contest as two, or fail to see additional choices. If a contest
> has a large number of candidates, it may be infeasible to observe this
> guideline.

**3.2.5-D** Minimum font size

*Voting systems* **[shall]{.smallcaps}** *provide a minimum font size of
3.0mm (measured as the height of a capital letter) for all text intended
for voters or poll workers.*

Font sizes are given in mm rather than type points because various
screen displays are not consistent with respect to printed type font.

*Note: The capital x (X) is the easiest letter to measure.*

**3.2.5-B**Number range req_subreq Use of sans serif font

*Text intended for the voter **SHOULD** be presented in a sans serif
font.*

> Research has shown that users prefer such fonts.
>
> *Note: Some voting systems do not support the sans serif font. This
> guideline is a 'should' not a 'shall' so you can substitute the Arial
> font or the Times New Roman font.*

**3.2.5-D.1** Legibility via font size

*The system* **[may]{.smallcaps}** *achieve legibility of paper records
by supporting the printing of those records in at least two font sizes,
3.0 - 4.0mm and 6.3 - 9.0mm.*

> Although the system may be capable of printing in several font sizes,
> the use of various font sizes in an actual election may be governed by
> local or state laws and regulations.

## [Audio Ballot Considerations]{.underline}

**General Considerations for audio ballots:** Do not begin to build your
audio ballots until you have completed and verified your touch screen
ballot.

For audio ballots it is important that each section of the ballot be in
the same voice. For example, one voice can present the title and another
voice can present the instructions. *However, all candidate names on the
ballot must be in the same voice.* As stated in Guidelines section
3.2.4-D (see above), it is important for the volume and speed to be the
same for all choices on the ballot. A recording of the candidates saying
their names can be useful as a guide to pronouncing the name; however,
this recording should not be used on the ballot.

Some voting systems have a provision for using synthesized voices.
Select between natural voices and synthesized voices based on the
preference of your disabled community. If you use natural voices,
consider using trained voices, such as actors, radio announcers,
pastors, etc. If you live in a region of the country that has a strong
local dialect prepare the audio in that dialect. You do not want Gomer
Pyle preparing the audio for New York.

*Recommendation: Use natural voices to the extent possible.*

If you have to prepare the audio ballots in one or more languages other
than English, make every effort to use persons for whom the language(s)
are their first language. If a language has more than one dialect,
determine which dialect is used by a majority of your voters.

## [Verifying the Ballot]{.underline}

Every ballot style must be reviewed and verified for correctness in
every format (touch screen, optical scan, and audio) and every language.
This should be done before the ballots are sent to the printers for
printing.

Verifying a ballot style requires that the ballot style is loaded onto a
touch screen voting station and a copy of the optical scan ballot style
is available for comparison. You can use the photo-ready copies of the
ballot styles for this verification.

The persons that review and verify the ballots should not be the same
persons that built the ballots.

*Reminder: Remember the two person rule when verifying ballots.*

One person should read the information from the optical scan ballot and
the second person should verify that the information is *identical* on
both the touch screen and the audio ballot. When testing the audio
ballot it is recommended that the ballot be played on a speaker so that
both reviewers can hear and check the audio.

If possible, have a visually impaired person review the audio ballot.
Also, if possible, have native language speakers review the alternate
language audio ballots.

[^1]: All references to the VVSG in this chapter refer to the *Voluntary
    Voting Systems Guidelines Recommended to the Election Assistance
    Commission*, August 31, 2007.