VVSG Version 2.0: Scope and Structure 

Introduction

At the February 14, 2017, Technical Guidelines Development Committee (TGDC) Meeting, the

Scope and Structure of the Voluntary Voting Systems Guidelines (VVSG) Version 2.0 were 

adopted unanimously. Although the structure and format of the document will be significantly 

different, the underlying scope will remain the same - voting systems as it defined by the Help 

America Vote Act (HAVA) of 2002. The approach at addressing the scope will however, take on 

a different look. All previous versions of the VVSG provided device specific guidelines and 

requirements. The VVSG Version 2.0 will refrain from providing device-specific guidance and 

instead provide guidelines on the functions that are performed within those devices. As 

previously mentioned, this new structure differs greatly from that of the previous versions of 

the VVSG, but aligns with the Objectives of the VVSG Version 2.0, as described in the VVSG 

Version 2.0 Project Charter that was adopted by the TGDC.

Structure

The structure of the VVSG Version 2.0 remains as proposed by the election community, EAC, 

NIST and the TGDC, and as depicted in the VVSG Version 2.0 Project Charter. This new version, 

as noted above, differs significantly from previous versions of the VVSG because it will be a high 

level principles and guidelines document. The VVSG Version 2.0 will also have accompanying

documents that detail requirements for how systems can meet the new guidelines and obtain 

certification, as well as test assertions for how the accredited test laboratories will validate that 

the system complies with those requirements. 

The new structure of the VVSG Version 2.0:

 Principles: High level system design goals; and

o Guidelines: Broad description of the functions that make up a voting system.

These items will comprise the new VVSG 2.0 to be voted on by the TGDC and adopted by a vote 

of the EAC Commissioners.

The structure of the accompanying documents:

 Requirements: Technical details necessary for manufacturers to design devices 

that meet the principles and guidelines of a voting system; 

 Test Assertions: Technical specifications required for laboratories to test a 

voting system against the requirements. 

These two items will be adjunct to the VVSG itself but will be subject to review by the Standards 

Board and Board of Advisors and a Public Comment period before implementation.
Scope

Generally, the scope of the VVSG Version 2.0 will continue to cover the ability to perform prevoting, voting, and post-voting operations. The primary difference, however, is that instead of 

creating guidelines based on the system or device, the VVSG will describe all of the functions 

that are incorporated in a device or devices that make up a system. A summary of the 

principles of a voting system and the guidelines for each of the functions is listed below.

The Help America Vote Act of 2002, Section 301 (b) defines a voting system as “the total 

combination of mechanical, electromechanical, or electronic equipment (including the 

software, firmware, and documentation required to program, control and support the 

equipment that is used to define ballots; to cast and count votes; to report or display election 

results; and to maintain and produce any audit trail information.” 

In order to provide an outline for how the structure of the VVSG Version 2.0 will be written, the 

presentation of the Scope of a voting system is depicted using the Principle and Guideline 

structure. 

Principles Defining Scope - HAVA. (Sections)

1. To define ballots; 

2. To cast and count votes;

3. To report or display election results; and 

4. To maintain and produce any audit trail information.

Guidelines Defining Scope – 17 Core Functions. (sub-sections)

a. Have the capability to input data necessary for constructing a ballot.

b. Have the capability to associate the data necessary for constructing a ballot.

c. Have the capability to layout the data necessary for constructing a ballot.

d. Have the capability to generate ballots.

e. Have the capability to transfer ballots.

f. Have the capability to retrieve a ballot or ballot set.

g. Have the capability to present a ballot or ballot set.

h. Have the capability to capture the vote selections on the ballot.

i. Have the capability to interpret the vote selections.

j. Have the capability to extract the vote selections.

k. Have the capability to present the vote selections.

l. Have the capability to transfer the vote selections.

m. Have the capability to store vote selections.

n. Have the capability to retrieve vote selections.

o. Have the capability to tabulate vote selections.

p. Have the capability to transfer tabulated results.

q. Have the capability to present the tabulated results.

Modifications to the method for defining the scope were designed to focus on the voting

system functions and are in line with the Objectives of the VVSG Version 2.0 as defined in the 

Project Charter. Below are the Objectives of the VVSG Version 2.0 and a description of how 

those Objectives are being met.
Objectives

 To assess the ability of the election systems to correctly execute secure, usable and 

accessible elections in order to provide assurance to voters that the election is an accurate 

reflection of the voters’ will.

o This will remain unchanged as each of these items will be assessed for each of the 

respective functions.

 To enable, not obstruct or impede, innovation and needed response to changing statutes, 

rules, jurisdictional and voters’ needs.

o By focusing on functions that make up a voting system, the combination of those 

functions in new, and even unforeseen, devices and technologies will still be able to be 

tested. 

 To create a set of implementable guidelines that allows effective deployment of systems by 

jurisdictions constrained by election calendars, schedules and budgetary restrictions.

o When a modification is made to a voting system usually only certain functions are 

changed within a device. Instead of re-testing the device as a whole, testing can be 

limited to the requirements for the specific function defined by the guideline. 

 To facilitate the interoperability of election systems.

o There is the ability for quicker development of common data formats (CDFs), as each 

function has a set of data inputs and outputs that can be focused on individually and 

simultaneously, instead of trying to create CDFs for devices that are ever changing. 

 To facilitate an open and transparent process that allows voters and election jurisdictions to 

assess the performance and capability of the election systems.

o The guidelines are the functions of the capabilities of the election systems. By defining 

each of those functional capabilities, creating requirements around those functional 

capabilities allows everyone to know how they should perform. Providing that 

information in conjunction with CDFs and enhanced auditability requirements makes it 

more transparent for anyone to assess the performance.

 To provide a set of testable requirements that a jurisdiction can understand and use to 

evaluate the performance of election systems and to procure new systems.

o Providing requirements for specific functions allows jurisdictions to determine which 

functions are required for the election systems they are trying to procure, as every 

election system is just a combination of multiple functions. Additionally, providing the 

test assertions for those requirements then allows jurisdictions to perform their own 

testing for the combination of functions that make up the device are procuring and/or 

have already purchased.
Use Cases

Since the approach to VVSG Version 2.0 is vastly different format from previous versions, the 

following section provides a list of commonly known devices along with the functions that make 

up those devices.

Election Management System

The functional requirements for an election management system in the VVSG 1.1 are as follows:

An EMS is used to prepare ballots and programs for use in casting and counting votes, and to 

consolidate, report, and display election results. An EMS shall generate and maintain a 

database, or one or more interactive databases, that enables election officials or their designees 

to perform the following functions: 

 Define political subdivision boundaries and multiple election districts as indicated in the 

system documentation 

 Identify contests, candidates, and issues 

 Define ballot formats and appropriate voting options 

 Generate ballots and election-specific programs for voting equipment 

 Install ballots and election-specific programs 

 Test that ballots and programs have been properly prepared and installed 

 Accumulate vote totals at multiple reporting levels as indicated in the system 

documentation 

 Generate the required post-voting reports

Process and produce audit reports
Diagram 1.0 depicts a graphic and provides descriptions of how each of the functions from VVSG 1.1, 

described above, intersects or aligns with the functions described for VVSG Version 2.0.

Diagram 1.0
Electronic Ballot Markers

The functional requirements for an electronic ballot marker in the VVSG 1.1 are as follows:

1. Ballot and program installation

2. Activating the ballot

3. Casting a ballot

a. Multiple requirements for displaying the ballot

b. Multiple requirements for marking the ballot

c. Allow the voter, before the ballot is printed, to review his or her choices and, if the voter 

desires, to delete or change his or her choices before the ballot is printed

d. Ensure that the votes printed accurately represent the actual votes cast

Diagram 2.0 depicts a graphic of two different electronic ballot markers, one that has typically been 

considered to be in scope and the other out of scope. However, both electronic ballot markers contain 

the same functions. Therefore, in VVSG Version 2.0 either could be tested as part of a voting system.

Diagram 2.0

Ballot is retrieved Ballot transferred Voter transfers votes to ballot System captures votes on ballot System extracts interpreted votes EMAIL or SERVER

System presents vote selections on screen VOTER DOWNLOAD E-BALLOT VOTER OPENS DOWNLOADED E-BALLOT VOTER REVIEWS VOTES ON SCREEN PRINTS PAPER CAST VOTE RECORD 5 System presents ballot to voter System interprets votes from ballot VOTER MARKS BALLOT

9 10 11 12 8 6 7 13

ELECTRONIC BALLOT MARKERS

System transfers votes to ballot

Remote EBM

EBM in Vote Location

ACTIVATE E-BALLOT MANUALLY or WITH ACTIVATOR E-BALLOT IS DISPLAYED ON SCREEN VOTER REVIEWS VOTES ON SCREEN PRINTS PAPER CAST VOTE RECORD VOTER MARKS BALLOT E-BALLOT FILES LOADED ON EBM VIA MEDIA or NETWORK
Conclusion

To fulfill the Objectives of the Voluntary Voting System Guidelines (VVSG) Version 2.0 as 

described in the Project Charter adopted by the United States Election Assistance Commission’s 

(EAC) Technical Guidelines Development Committee (TGDC), the TGDC moved to adopt the 

scope and structure contained within this document. Moving forward, the VVSG Version 2.0 

will refrain from focusing on specific voting devices and components. Instead, it will focus on 

the functions that those devices and components perform. Further, the structure of the VVSG 

document will focus on Principles and Guidelines, along with associated documents that 

prescribe the Requirements and Test Assertions. This Scope and Structure document will 

facilitate the continued work on the VVSG Version 2.0 and lay the framework for the scope and 

structure of the final set of guidelines.