Q

ABSENTEE 

VOTING AND

VOTE BY MAIL

www.eac.gov

October 2007

MANAGEMENT GUIDE
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Th e Quick Start Management Guide for Absen

Voting and Vote by Mail is part of a series of 

brochures designed to highlight and summariz

the information contained in the chapters of t

U.S. Election Assistance Commission’s (EAC) 

Election Management Guidelines (EMG). Th 

goal of the EMG is to provide a collection of 

election management guidelines, consolidated 

into one document, to assist State and local 

election offi cials eff ectively manage and 

administer elections. Th ese guidelines are sole

designed to serve as a source of information fo

election offi cials and not as requirements by 

which they must abide. Th e EAC expects the 

EMG to be completed in 2008. However, due 

to the urgent need for election management 

resources, EMG chapters and Quick Starts 

are released as they are completed.

Th e content of the EMG and the Quick Start 

Management Guides has been developed in 

collaboration with State and local election 

offi cials and other election professionals who 

have fi rst-hand experience managing election

Th e EAC is grateful for their participation and 

ensuring the guidelines are practical and 

applicable for jurisdictions regardless of their s

and resources. Th e EMG and the Quick Start

are available online 

at www.eac.gov.

ABSENTEE VOTING AND VOTE BY MAIL
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INTRODUCTION

Please note that this guide is designed to cover 

general processes and procedures regarding 

absentee voting/vote by mail. Laws and procedures 

regarding absentee voting/vote by mail vary by 

state (i.e. eligibility requirements, deadlines, 

processing, etc.)

 In most states, absentee voting requires a voter to 

make a formal request for an absentee ballot; the 

election offi ce then processes the application and 

mails the ballot to the voter; the voter receives 

and casts his or her ballot per the established

procedures; and the election offi ce then processes 

the returned ballot to determine its validity and, if 

valid, tabulates the vote into the offi cial vote tally. 

 A separate Quick Start Management Guide has 

been designed to discuss matters regarding 

absentee voting by uniformed and overseas 

military voters more in depth. 

BALLOT PREPARATION

AND MAILING

 Review all of the deadlines relating to preparation 

and distribution of ballots. Prepare a timeline 

detailing each activity in chronological order, 

including staff assignments and completion date. 
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 TIP: Highlight in BOLD any dates mandated by 

Federal or State law. Examples include, but are n

limited to:

 Last day to register to voter and/or update 

voter registration information.

 Date that the ballot fi le should be sent to 

the printer.

 Date that printed ballots should be delivered b

the printer.

 Date that military/overseas ballots must 

be mailed.

 Date to mail out-of-state ballots.

 Date to mail in-state ballots.

 Determine how many ballots to print by reviewin

State law and the history of voter turnout for a 

similar election. Develop “Plan B” for how to 

respond to a ballot shortage. For example:

 Will you utilize ballot on demand printers? 

 Do you have an action plan in place with your 

ballot printer? 

 Review outgoing and return ballot envelopes 

to determine ways to incorporate the use of 

technology to improve staff effi ciencies and 

implement voter user-friendly techniques, while 

ensuring that all statutory requirements are met.

 Consider using envelope printers to print vote

data directly onto each envelope instead of 

using labels.
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 Print envelopes in ballot order instead of 

alphabetical by voter name for ease of use 

and accuracy for pulling ballots and stuffi ng 

the envelopes.

 Incorporate the use of bar codes on the ballot 

envelopes for ease in receiving return envelopes 

and updating voter history. 

 If State law requires the voter to sign the return 

ballot envelope, consider incorporating a tear-off 

fl ap to cover the voter’s signature.

 Refer to State law to determine the need of 

a third secrecy envelope. Consider using a 

“blue lining” on the return ballot envelope. 

TIP: Develop internal policies and procedures 

requiring that the ballots be opened in steps by 

diff erent teams to ensure privacy of the voted ballo

instead of using a secrecy envelope.

 Consider paying for “business reply” postage. 

When undeliverable envelopes are returned, they 

can be opened and the unused ballot recycled.

 Review State law and local budgetary rules when 

evaluating whether to pay return postage for all 

absentee by mail ballots. TIP: If not paying return 

postage, be sure to note the amount of postage 

required on the return ballot envelope.

 Partner with your area post offi ce to utilize the 

offi cial election postal logo on all outgoing and 

incoming ballot envelopes. Coordinate the 

design of the envelopes, placement of the 

wording, etc. with the postal authorities and 

request their written approval.

 Consider establishing a specifi c P.O. Box 

number for returned ballot envelopes. 

TIP: Establish separate P.O. Box numbers for voter 
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registration applications, absentee applications, 

to speed the sorting of incoming mail.

 Evaluate the area designated for pulling and stuffi 

ballots to determine space needs in order to deve

an effi cient work fl ow. Implement the policy of 

working in teams of two to ensure accuracy. Staff 

assignments should include individuals designat

as ballot pullers and ballot stuff ers. Be sure to 

implement “two person” integrity and separation 

duties throughout the process.

 If using an external mailing/distribution center f

ballot mailing, it is recommended that election st

be on-site at all times.

 Maintain a daily listing of all individuals who hav

been mailed a ballot. Follow State law regarding 

public/candidate access to this information. 

 Track numbers of ballots issued by quantity and 

ballot style on a daily basis. Use this information 

monitor ballot stock usage and availability.

BALLOT RECEPTION

 Consider investing in postal tracking soft ware to 

track the envelopes through the postal facilities 

and to confi rm the delivery of individual ballot 

envelopes to the postal carriers. Th is same 

tracking soft ware can track the route of the 

return ballot envelope. 

 Coordinate with the post offi ce on how you wish 

to receive the returned ballots. Will you schedul

special delivery from the post offi ce? Will you ha
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staff members pick up the ballots from the post 

offi ce? TIP: Always work in teams of two when 

receiving returned ballot envelopes. At no time 

should any one person be alone with the voted 

ballot envelopes. 

 Determine if you will provide off -site collection/

drop off receptacles for returned ballot envelopes. 

Establish procedures for securing and monitoring 

these locations. 

 Develop and post general rules for individuals 

wishing to observe the ballot reception process. 

For example: 

 Ask everyone observing the process to turn off o

silence their cell phones. 

 Observers must visibly wear identifying name 

tags/badges at all times.

 Develop training manuals and conduct training 

sessions for all temporary staff assigned to the ballo

reception operation. Maintain record of all staff 

involved in ballot reception by keeping a daily sign 

in/out sheet. TIP: Require that all ballot reception 

staff take lunch breaks at the same time, ensuring tha

the ballot reception area is locked down and secured 

during that time period.

 Date and time stamp each return ballot envelope. 

Implement daily logs (computerized or by hand) to 

account for all returned ballot envelopes. Th ese log

must be balanced on a daily basis to actual ballot 

envelopes on hand. 

 Update the voter record to indicate that the ballot 

envelope has been returned. Confi rm the voter’s 
name and address. If required, verify the voter’s 

signature on the envelope. TIP: Provide specialize

staff training on signature verifi cation. Consider 

implementing the “check it three times” policy for 

questionable signatures: fi rst check is conducted by 

regular staff ; second check is conducted by more 

experienced staff ; and third check is conducted by 

county canvass board. When a signature is 

fi rst questioned, consider sending a letter to the 

voter notifying them that their signature is being 

questioned.

 Separate and log any ballot envelopes that are 

challenged. Continue to balance all receiving log

to total ballot envelopes received on a daily basis

BALLOT TABULATION

 Develop procedures for managing exceptions 

during the ballot opening process. Examples 

include: “No ballot in the envelope”; “Too many 

ballots in the envelope”; or “Ballot from a wrong 

election in the envelope”. TIP: Before storing ballo

envelopes, recheck that all envelopes are empty.

 Follow State law and uniform administrative 

guidelines when determining voter intent. 

Establish procedures for managing physically 

damaged ballots, ballots that are marked in such 

a fashion that they will not be read by the scanne

and write-in votes.

 Establish written procedures for manual duplicat

of voted ballots. Assign a number to the original 

ballot and that same number to the duplicate 

ballot. Work in teams of two to duplicate each 

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ballot. Maintain a log indicating the assigned 

number, ballot style, and reason for duplication. 

Require that the two person duplication team 

initial the ballot log for auditing purposes. 

 Count the number of ballots sent to the scanner 

and balance with the scanner on a regular basis. 

Consider batching the ballots in bundles and assign 

batch numbers to each bundle to ensure that all 

ballots have been read by the scanner.

 When tabulation is completed, balance the total 

number of envelopes received, minus exceptions to 

the total number of voted ballots scanned.

STORAGE AND SECURITY

CONSIDERATIONS

 Install appropriate security in areas where ballots 

are stored (i.e. alarms, locks, cameras, etc.).

 Enforce the two-person rule anytime ballots are 

handled. Maintain a listing of employees who are 

authorized to access the ballot area. Establish an 

access log to include access date, employee name(s)

and reason for access.

 Store the empty return envelopes and voted ballots 

in separate tamper-evident sealed containers.

VOTER EDUCATION

 Publish advertisements in newspapers, area 

neighborhood association newsletters, city/

chamber/school district newsletters, church 
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publications, multilingual media publications, et

reminding voters to update any change to their 

voter registration information (i.e. name change, 

address change, party affi liation change, and 

signature update). TIP: Partner with your State 

Offi ce to develop a statewide media blitz.

 Create an informational brochure with instructio

on how to vote absentee by mail. Include a copy 

the vote by mail ballot application form as a “tear 

off return mail page” on the brochure. Make the

brochures readily available in your community b

distributing them at community events and dive

locations (i.e. city hall, libraries, schools, registration drives, etc.) TIP: Be sure to include informatio

about all aspects of voting by mail, including, but n

limited to, how to request a replacement ballot and 

how to qualify to become a “permanent” vote by m

voter, if permitted by State law.

 Post information about absentee vote by mail 

procedures on your jurisdiction’s Web site. 

Information on all deadlines should be posted al

with dates that voters can expect the ballots to be 

mailed. If voted ballots must be received in your 

offi ce by a certain date, be sure to include that da

in BOLD. If possible, include a downloadable co

of the vote by mail ballot application form, if 

required. TIP: Consider including a link that allow

the voter to confi rm their voter registration status 

on your Web site. If their information needs to be 

updated, provide another link to a voter registratio

form, allowing the voter to manage their own upd

at their convenience.
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 Provide information to high schools, community 

colleges, and universities. Partner with these 

learning institutions to distribute voter registration 

and absentee voting instructions with enrollment 

packets. Encourage them to communicate Election 

Day deadlines for voter registration and absentee 

voting through the use of e-mail, podcasting, and 

text messaging. 

 Encourage candidates to provide information to 

voters about how to vote absentee by mail. 

TIP: Provide a scripted handout to all candidates and 

encourage them to use it for all campaign literature 

to ensure consistency in all printed material.

 Distribute absentee voting procedures to special 

interest groups: nursing homes, assisted living 

centers, hospitals, military installations, etc.

 Provide copies of the Vote by Mail Ballot 

Application forms to post offi ces, supermarkets, 

churches, etc.

 Utilize brochures, fl yers, and your jurisdiction’s 

Web site to inform voters how to ensure their ballot 

is counted. Provide answers to “frequently asked 

questions” such as: 

 May I drop my voted absentee ballot at the polls 

on Election Day? 

 Will my ballot be counted if I mail it ON 

Election Day?

 I made a mistake while voting my ballot – 

How do I get a new ballot?
www.eac.gov

FOR INFORMATION REGARDING THIS PUBLICATION OR

TO REQUEST ADDITIONAL COPIES, PLEASE CONTACT: 

U.S. ELECTION ASSISTANCE COMMISSION

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WASHINGTON, DC 20005

ATTN: ELECTION MANAGEMENT GUIDELINES

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FAX (202) 566-3127

E-MAIL ADDRESS HAVAINFO@EAC.GOV

WEB SITE WWW.EAC.GOV

THE EAC IS AN INDEPENDENT BIPARTISAN COMMISSION CREATED B

THE HELP AMERICA VOTE ACT OF 2002 (HAVA). IT IS CHARGED

WITH ADMINISTERING PAYMENTS TO STATES AND DEVELOPING

GUIDANCE TO MEET HAVA REQUIREMENTS, IMPLEMENTING ELECTIO

ADMINISTRATION IMPROVEMENTS, ADOPTING VOLUNTARY VOTING

SYSTEM GUIDELINES, ACCREDITING VOTING SYSTEM TEST LABORATOR

AND CERTIFYING VOTING EQUIPMENT AND SERVING AS A NATIONA

CLEARINGHOUSE AND RESOURCE OF INFORMATION REGARDING

ELECTION ADMINISTRATION.