Executive Summary | i 

 

ELECTION ADMINISTRATION 

AND VOTING SURVEY 2020 

COMPREHENSIVE REPORT 

A REPORT FROM THE 

U.S. ELECTION ASSISTANCE COMMISSION 

TO THE 117TH CONGRESS 
ii | Executive Summary

 
Executive Summary | i 

Executive Summary

Since 2004, the U.S. Election Assistance Commission (EAC) has conducted the Election 

Administration and Voting Survey (EAVS) following each federal general election. The EAVS asks all 

50 U.S. states, the District of Columbia, and five U.S. territories—American Samoa, Guam, the 

Northern Mariana Islands, Puerto Rico, and the U.S. Virgin Islands—to provide data about the ways

Americans vote and how elections are administered. Since 2008, this project has included a 

separate survey, the Election Administration Policy Survey (Policy Survey), that collects information 

about state election laws, policies, and practices.

The EAVS provides the most comprehensive source of state and local jurisdiction-level data about 

election administration in the United States. These data play a vital role in helping election officials, 

policymakers, and other election stakeholders identify trends, anticipate and respond to changing 

voter needs, invest resources to improve election administration and the voter experience, and 

better secure U.S. elections infrastructure. The EAVS data make it possible to examine the details of 

the U.S. election infrastructure and to produce a generalizable understanding of core aspects of the 

election process and the management challenges faced by election officials. The survey provides 

policymakers and the public with critical information every two years about how federal elections are 

conducted, and it helps the EAC fulfill its congressionally mandated reporting requirements. The 

EAVS is also invaluable to election officials who use the data to manage election oversight, conduct 

issue analysis and strategic planning, and create training and promotional materials. The EAC also 

uses EAVS data to create clearinghouse resources to advance the agency’s mission and to better 

support election officials and voters as well as to inform lawmakers and national-level stakeholders 

about the impact of federal voting laws and the changing landscape of U.S. elections.

The 2020 general election was heavily affected by the COVID-19 pandemic. The pandemic and the

ensuing public health emergency necessitated a variety of changes to existing election practices to 

accommodate social distancing and to slow the spread of the virus among voters, poll workers, and 

election officials and staff. In response, many states took action to expand the availability of inperson voting before Election Day and mail voting. Because of its status as the most comprehensive 

survey of election administration in the United States, the 2020 EAVS serves as a record of the 

extraordinary efforts by the nation’s election officials and poll workers to ensure that the 2020 

general election was conducted in a safe and secure manner. To this end, the EAC is pleased to 

present to the 117th Congress its report on the 2020 EAVS.

This report describes in detail how the 2020 federal general election was administered and how 

voters cast their ballots. Data from the EAVS and the accompanying Election Administration Policy 

Survey (Policy Survey) are used to provide an overview of each of the following aspects of the 

election process:

• Turnout, voting methods, polling places, poll workers, and election technology are covered in 

Chapter 1, “Overview of Election Administration and Voting in the 2020 General Election”; 
ii | Executive Summary

• Key laws, rules, policies, and procedures that govern U.S. elections are covered in Chapter 2, 

“Election Law and Procedure: The Policy Survey”; 

• Voter registration and list maintenance are covered in Chapter 3, “Voter Registration: The 

NVRA and Beyond”; 

• Voting by individuals covered under the Uniformed and Overseas Citizens Absentee Voting Act 

(UOCAVA) is described in Chapter 4, “Military and Overseas Voting in 2020: UOCAVA”; and

• Finally, the methodology of the EAVS and a description of the survey questions are discussed 

in Chapter 5, “Survey Methodology and Procedures.” 

Voting and Election Administration Findings

The 2020 EAVS confirms that the 2020 general election saw the highest turnout of any federal 

general election recorded by the EAVS to date, with 67.7% of the citizen voting age population (CVAP)

casting ballots that were counted, an increase of 6.7 percentage points from 2016 levels. Nearly 

every state saw an increase in turnout compared to the 2016 EAVS. Furthermore, more than 209 

million people were active registered voters for the 2020 general election, which represents an alltime high, and more than 161 million voters cast ballots that were counted for this election.

This election also saw sweeping changes in how voters cast their ballots. In the 2016 EAVS, 54.5% 

of voters cast their ballots in person on Election Day, and in the 2018 EAVS, 58.2% of voters did so. 

In 2020, only 30.5% of voters cast their ballots in person on Election Day. The percentage of the 

electorate that voted a mailed ballot increased to 43.1% of the electorate, nearly a 20-percentagepoint increase from 2016 levels. Jurisdiction-level analysis shows that the largest increases in mail

voting rates occurred in jurisdictions in states that newly instituted all-mail elections in 2020 and in 

jurisdictions in states that removed requirements to provide an excuse to request a mailed ballot. 

Although the total number of mailed ballots transmitted in 2020 was more than double the number 

transmitted in 2016, the percentages of mailed ballots that were returned by voters, that were 

counted, and that were rejected did not change significantly at the national level. 

States reported a total of 132,556 polling places at which 775,101 poll workers assisted voters with 

in-person early and Election Day voting. The data also show a shift in the age distribution of poll 

workers, with the percentage of poll workers ages 18 to 25 and 26 to 40 increasing to 6.2% and 

15.0%, respectively, and the percentage of poll workers ages 61 to 70 and 71 and older decreasing, 

to 27.3% and 20.1%, respectively. Jurisdictions also reported that poll worker recruitment was less 

difficult in 2020 than it was in 2016. In survey comments, many jurisdictions cited cross-cutting 

effects on their recruitment efforts. Jurisdictions reported that the COVID-19 pandemic made it 

difficult to retain long-time, older poll workers and caused last-minute poll worker shortages, but the 

efforts of the EAC, state election offices, and other organizations to encourage qualified individuals 

to serve as poll workers were cited as helping contribute to an oversupply of poll workers in some 

areas.

States reported that the use of electronic poll books (or e-poll books) increased since the 2018 

EAVS, and 17 states used e-poll books in all of their jurisdictions. Scanners and ballot marking 

devices (BMD) continued to be the most common types of voting equipment used, and the use of 
Executive Summary | iii 

direct-recording electronic (DRE) machines that were not equipped with a voter-verified paper audit 

trail (DRE without VVPAT) also continued to decline. In 2020, only 32 jurisdictions across the country 

relied solely on voting machines with no paper backup.

Election Administration Policy Survey Findings

To provide context to the data that states report in the EAVS, the EAC collects information about 

states’ election policies. Two-thirds of states reported having top-down registration systems hosted 

on a single, central platform or mainframe that is maintained by the state with information supplied 

by local jurisdictions; the remaining one-third of states reported having bottom-up or hybrid 

databases. To keep their voter registration rolls accurate and up to date, most states reported 

sharing information with motor vehicle agencies, government entities that maintain death records, 

and agencies that maintain felony or prison records. The percentage of states offering both sameday registration (51.8%) and online registration (80.4%) increased since the 2018 Policy Survey.

The Policy Survey also recorded an increase in state policies that make it safer for voters to cast a 

ballot or to reduce potential lines and crowds at in-person polling places. In 2020, a total of 14 

states reported having all-mail elections, in which all registered voters or all active registered voters 

were automatically sent a mailed ballot—10 of these states conducted all-mail elections statewide, 

whereas four of the states did so only in select jurisdictions. This was an increase from the 2018 

Policy Survey, which found that three states administered their elections entirely by mail and four 

states had all-mail elections in select local jurisdictions. In addition, 69.6% of states did not require 

voters to provide an excuse to be able to vote a mailed ballot (seven states had removed the excuse 

requirement since the 2018 Policy Survey), and 51.8% of states reported that there were some 

circumstances under which voters could receive ballots electronically. However, the Policy Survey did 

not collect information on whether policy changes made for the 2020 general election were 

permanent or temporary, or whether the changes were made in direct response to the COVID-19 

pandemic.

Nearly all states reported that voting systems must be tested and certified before approval, with the 

most common certification requirements being testing by an EAC-accredited voting system test 

laboratory (VSTL), certification according to the EAC-adopted Voluntary Voting System Guidelines

(VVSG), and both state and federal certification. In 2020, of the 40 states that reported using e-poll 

books, 55% required testing and certification to the state’s specifications before purchasing the 

e-poll books.

In the post-election period, 78.6% of states reported that they required a tabulation audit to verify 

the voting equipment used to count ballots worked properly. Of these states, about three-quarters

required a traditional tabulation audit (which examines a sample of ballots from a fixed percentage 

of randomly selected voting districts or voting machines), whereas about one-fifth of the states 

required a risk-limiting tabulation audit (in which statistical methods are used to select the audit 

sample size). All states reported having a mechanism for conducting election recounts, although the 

circumstances under which a recount would be conducted varied by state.
iv | Executive Summary

The National Voter Registration Act (NVRA) Findings

The 2020 EAVS data show the active voter registration rate for the 2020 general election was 88.2% 

of the CVAP, which represents an increase of 3.5 percentage points since the 2016 EAVS. More than 

103 million voter registration applications were submitted between the close of registration for the 

2018 general election and the close of registration for the 2020 general election, which represents a 

33.8% increase in the number of registration applications received in the period leading up to the 

2016 general election. Of the registration applications received, the most common outcome was an 

update to the voter’s existing registration record that did not involve a cross-jurisdiction change of 

address. This type of update accounted for nearly half of the registration applications received. New 

and valid registrations that resulted in the creation of a new voter registration record within the 

jurisdiction accounted for nearly one-third of the applications received.

As with previous iterations of the EAVS, state motor vehicle departments accounted for the largest 

share of these registration applications (39.3%). The second-most common source of these 

applications was online registration, which accounted for 28.2% of applications. Online registration 

also saw the fastest growth of any registration source tracked by the EAVS. 

The 29 states and territories that allow same-day voter registration (SDR) reported receiving more 

than 1.6 million SDRs during the voting period for the 2020 general election, approximately double

the number received during the 2018 EAVS. SDR allows individuals to register to vote on the same 

day that they cast their ballot for an election. Nationwide, more SDRs were received on Election Day

than were received during early voting.

Pursuant to the NVRA requirements, states reported sending more than 28 million confirmation 

notices and removing more than 18 million voter registration records from their voter registration 

rolls between the close of registration for the 2018 general election and the close of registration for 

the 2020 general election. The most common reasons cited for removing voter registration records 

were failure to respond to a confirmation notice and to vote in the two most recent federal general 

elections, moving from the jurisdiction in which the voter was registered to vote, and the voter’s 

death.

The Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA) 

Findings

States reported transmitting more than 1.2 million ballots to UOCAVA voters—a population that 

includes members of the uniformed services absent from their voting residence, their eligible family 

members, and U.S. citizens living overseas who receive special protections under the federal 

UOCAVA law. Of those transmitted ballots, more than 900,000 were returned by voters and nearly 

890,000 were counted in the election. 

Continuing a trend that began with the 2016 EAVS, in 2020, overseas citizens made up a larger 

proportion of the UOCAVA population than did uniformed services members and their eligible family 

members. In 2020, overseas citizens accounted for 57.4% of registered UOCAVA voters, and 
Executive Summary | v 

uniformed services members accounted for 42.3%. Three states—California, Florida, and 

Washington—accounted for slightly more than 40% of all the registered UOCAVA voters reported 

nationwide.

Among uniformed services voters, postal mail transmission was the most common method reported 

(accounting for nearly half of the ballots transmitted to uniformed services voters), whereas overseas 

citizens more commonly received their ballots through email (accounting for 70.9% of ballots 

transmitted to overseas citizens).

Nearly 98% of UOCAVA ballots returned by voters were reported as counted, with just over 2% of 

returned ballots reported as rejected. Nationwide, more than 33,000 Federal Write-In Absentee 

Ballots (FWAB) were reported as received. This form may be submitted by UOCAVA voters as an 

emergency backup ballot in case their official ballot is not received by local election officials in time 

to be counted. The FWAB allowed nearly 24,000 UOCAVA voters to have their votes counted in the 

2020 general election. 
vi | 

This report by the U.S. Election Assistance Commission is the result of a contract to collect and 

analyze data for the 2020 Election Administration and Voting Survey. The contract was performed by 

Fors Marsh Group LLC, an applied research company based in Arlington, VA.

Published August 2021

U.S. Election Assistance Commission

633 3rd Street NW, Suite 200

Washington, DC 20001

www.eac.gov
| vii 

Table of Contents

Executive Summary .................................................................................................................................... i

Voting and Election Administration Findings.......................................................................................... ii

Election Administration Policy Survey Findings..................................................................................... iii

The National Voter Registration Act (NVRA) Findings ........................................................................... iv

The Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA) Findings ................................ iv

Chapter 1. Overview of Election Administration and Voting in the 2020 General Election .................... 1

Key Findings ............................................................................................................................................. 1

Election Administration in the United States ......................................................................................... 2

The Election Administration and Voting Survey (EAVS) ......................................................................... 4

Turnout in the 2020 General Election.................................................................................................... 6

Polling Places and Poll Workers........................................................................................................... 18

Election Technology .............................................................................................................................. 23

Appendix A: Descriptive Tables ............................................................................................................ 27

Chapter 2. Election Law and Procedure: The Policy Survey ................................................................. 54

Key Findings .......................................................................................................................................... 54

Introduction ........................................................................................................................................... 54

Responding to the 2020 EAVS............................................................................................................. 55

Policies on Voter Registration and List Maintenance......................................................................... 56

Voting by Mail ........................................................................................................................................ 69

UOCAVA Voting ...................................................................................................................................... 73

In-Person Voting .................................................................................................................................... 75

Provisional Voting.................................................................................................................................. 77

Election Technology .............................................................................................................................. 79

Election Certification, Recounts, and Audits ....................................................................................... 81

Appendix A: Descriptive Tables ............................................................................................................ 85

Chapter 3. Voter Registration: The NVRA and Beyond ........................................................................ 114

Key Findings ........................................................................................................................................ 114

Introduction ......................................................................................................................................... 114

How Americans Registered to Vote for the 2020 General Election.................................................119

Voter Registration Rates for the 2020 General Election..................................................................126
viii | 

Types of Registrations Received for the 2020 General Election .....................................................130

Registration List Maintenance ........................................................................................................... 133

Appendix A: Descriptive Tables .......................................................................................................... 138

Chapter 4. Military and Overseas Voting in 2020: UOCAVA................................................................ 171

Key Findings ........................................................................................................................................ 171

Introduction ......................................................................................................................................... 171

Federal Laws Regulating Military and Overseas Voting....................................................................172

The UOCAVA Voting Process............................................................................................................... 173

UOCAVA Registration and Ballot Requests........................................................................................ 175

UOCAVA Ballots Transmitted .............................................................................................................. 177

UOCAVA Ballots Returned and Submitted for Counting ...................................................................182

Federal Write-In Absentee Ballots...................................................................................................... 187

Appendix A: Descriptive Tables .......................................................................................................... 189

Chapter 5. Survey Methodology and Procedures ................................................................................ 204

Survey Questions ................................................................................................................................ 205

Data Collection Procedures................................................................................................................ 212

Data Reporting and Calculations ....................................................................................................... 217

Recommendations for Analyzing and Interpreting the EAVS Data ..................................................218

Methodology Appendix A: Survey Response Rates...........................................................................220

Methodology Appendix B: Data Collection Template Validation Rules............................................223

Methodology Appendix C: Post-Submission Validations and Sample Rates...................................235

Methodology Appendix D: How to Calculate Selected EAVS Rates..................................................238
Overview of Election Administration and Voting | 1 

Chapter 1. Overview of Election 

Administration and Voting in the 2020 

General Election

Key Findings

The 2020 Election Administration and Voting Survey (EAVS) collected data on ballots cast, voter 

registration, overseas and military voting, voting technology, and other important issues related to 

voting and election administration. The 2020 general election was especially impacted by the COVID19 pandemic, which caused drastic changes to how the election was administered and how voters 

cast their ballots. Notable findings from the 2020 EAVS include:

• More than 209 million people were active registered voters for the 2020 general election, an 

all-time high for the EAVS. 

• Voter turnout for the 2020 general election reached the highest level documented in any EAVS 

thus far, at 67.7% of the citizen voting age population (CVAP). Turnout increased 6.7

percentage points from 2016 levels, and nearly all states reported an increase in turnout. 

More than 161 million voters cast ballots that were counted for the 2020 election.

• For the first time, a majority of voters cast their ballots before Election Day. Slightly more than 

43% of voters participated with a mailed ballot, and 30.6% of ballots were cast through inperson voting before Election Day. Ballots cast on Election Day at a physical polling place 

comprised 30.5% of the turnout for the 2020 general election. 

• The number of mailed ballots transmitted to voters more than doubled from 2016 to 2020, 

and the percentage of mailed ballots that were returned by voters, that were counted, and that 

were rejected held steady with 2016 levels. 

• The COVID-19 pandemic appears to have been associated with a change in both poll worker 

recruitment and the resulting age distribution of the poll worker workforce. States reported 

that the ages of their poll workers skewed younger during the 2020 general election compared 

to during the 2016 general election. However, states and jurisdictions reported that recruiting 

poll workers for this election was slightly easier due to national and state efforts that 

encouraged voters to serve as poll workers.

• The most common types of election equipment that were used were paper ballot scanners and 

ballot marking devices (BMD). The use of direct-recording electronic machines that were not 

equipped with a voter-verified paper audit trail (DRE without VVPAT) continued to decline 

among jurisdictions since the 2018 general election, and the use of electronic poll books (epoll books) continued to increase. More than 30% of jurisdictions reported using e-poll books 

(an increase of more than 5 percentage points from 2018), and 17 states reported that all 

jurisdictions used e-poll books. 
Election Administration in the United States

The United States is notable for having a largely decentralized system for administering federal 

elections. Local jurisdictions have the primary responsibility of administering state and federal 

elections and of tabulating, reporting, and certifying results. The U.S. Constitution and various federal 

laws govern specific aspects of federal elections, and a small number of federal agencies—such as 

the U.S. Election Assistance Commission (EAC) and the Federal Voting Assistance Program (FVAP)—

play a supportive role in election administration. Broad legal and procedural authority rests with the 

states,1 territories, the District of Columbia, and local jurisdictions. As a result, a wide variation exists 

among and within state election policies and practices, and the policies and practices are constantly 

evolving. Nevertheless, U.S. elections generally follow a standard process. As shown in Figure 1, the 

election process can be viewed as a cycle.

1. The legal and procedural framework for elections is generally established in advance of a

general election. This framework includes determining voter eligibility rules; how, when, and

where voters may cast their ballots; and what technology will be used to support elections.

Supported by state election offices, most of these policies and procedures are implemented

by election officials at the local level (e.g., county, township, municipality).

2. To participate in elections, eligible citizens typically must register to vote, pursuant to the

eligibility rules established by federal law and by their state.2 In many states, voters must

register in advance of a set registration deadline; in others, eligible individuals may register

and cast a ballot on the same day, whether during an early voting period or on Election Day.

Depending on state policy, eligible citizens may have multiple avenues for submitting their

registration applications, including by mail, fax, or email; online registration websites; in

person at an election office, at a motor vehicle office, at other state government agency

offices, or at an armed forces recruitment office; or through a registration drive. States are

also required to periodically examine their voter registration rolls and remove the records of

voters who are no longer eligible, for instance, because the voter no longer resides in the

state or jurisdiction in which they are registered, the voter has failed to respond to a notice

sent to them by mail and has not voted in the two most recent federal general elections, the

voter is deceased, or the voter has received a criminal conviction that disqualifies them from

voting. The voter may also directly inform the election office of a change in residency, which

begins the process of designating a voter as inactive and ultimately removing them from the

voter registration roll. The process of updating voter registration rolls and removing ineligible

voters is referred to as list maintenance.

3. When a federal general election is approaching, voting begins well in advance of Election Day

for many voters, including eligible military voters and overseas citizens who are absent from

their voting residence, for whom the right to participate in federal elections is protected

under the Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA). In addition, all

1 Throughout this report, unless otherwise specified, the term “state” can be understood to apply to the 50 U.S. states, the 

District of Columbia, and five U.S. territories (American Samoa, Guam, the Northern Mariana Islands, Puerto Rico, and the

U.S. Virgin Islands) that submit Election Administration Policy Survey and EAVS data.

2 North Dakota is the only state that does not require citizens to register before casting a ballot in an election. 

2 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 3 

states provide avenues for voters to cast ballots before Election Day. This may include voting 

a mailed ballot, casting a ballot in person at a dedicated early voting site, or receiving and 

casting a ballot at an election office. Some states allow any eligible voter to cast their ballot 

before Election Day, whereas others restrict early voting and mail voting only to certain 

segments of the population, such as voters who are absent from their home jurisdiction on 

Election Day, voters with illnesses or disabilities, voters over a certain age, or voters who 

provide a statutorily valid excuse. The voting options that are available to voters and the 

timelines for mail voting and in-person early voting vary by state and by local jurisdiction.

Figure 1. The U.S. Election Process

4. Voters who do not cast ballots beforehand may vote on Election Day at in-person voting sites 

staffed by poll workers. In most states, individuals whose eligibility cannot be verified at the 
time of voting may cast a provisional ballot. Election officials then investigate the eligibility of 

individuals who cast provisional ballots to determine whether their ballots should be 

counted, either in full or in part, or rejected. 

5. After the polls close on Election Day, the process of counting ballots to determine the final

election results begins. This may also be referred to as tabulation or canvassing. State

policies vary on when counting may begin—some states may begin pre-processing mailed

ballots (e.g., opening envelopes, verifying the mail voter’s eligibility to cast a ballot, removing

ballots from secrecy envelopes to prepare them for counting) before Election Day, whereas

other states require that in-person polls must be closed before any ballots can be counted.

Depending on state law and on what equipment is used to process the ballots, ballot

counting may take several days to complete.

6. Once the unofficial results of the election are known, state and local election officials review

the results for accuracy and certify them as final. After this is complete, many states conduct

audits of their election results and voting equipment to ensure that the established election

procedures were followed and that the equipment functioned correctly. Certain election

races may also be recounted if the margin of victory is close; if a candidate, party, or other

authorized group requests a recount; or if a court orders a recount to be conducted.

The election process can be viewed as a cycle in the sense that the experiences from previous 

elections are used to inform decision-making for the legal and procedural framework for subsequent 

elections. Often, the successful approaches and innovations implemented in one state or local 

jurisdiction during an election are adopted by other states or localities in subsequent elections.

The COVID-19 pandemic was declared in March 2020 and impacted nearly all aspects of the 2020 

voting process, from dates and deadlines to how voters were able to register to vote, options to cast 

a ballot, and how long it took to count the ballots. In some cases, certain state policies, such as 

those concerning mail and absentee voting, were expanded temporarily for the 2020 election cycle 

to address the COVID-19 restrictions.3 Throughout the election, state and local election 

administrators, staff, and poll workers worked heroically to ensure voters were able to exercise their 

right to vote in a safe and secure manner.

The Election Administration and Voting Survey (EAVS)

Since 2004, the EAC has conducted the EAVS following each federal general election.4 The EAVS 

asks all 50 U.S. states, the District of Columbia, and the five U.S. territories—American Samoa, 

3 The 2020 Policy Survey and EAVS did not collect information on when a policy change was made, why it was made, or

whether the change was temporary or permanent. 

4 The EAVS does not collect data on primary elections, run-off elections, or special elections. The data provided by states

were only for the November 3, 2020, federal general election. 

4 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 5 

Guam, the Northern Mariana Islands, Puerto Rico, and the U.S. Virgin Islands5—to provide data about 

the ways in which Americans vote and how elections are administered.

The EAVS provides the most comprehensive source of state and local jurisdiction-level data about 

election administration in the United States. These data play a vital role in helping election officials, 

policymakers, and other election stakeholders identify trends, anticipate and respond to changing 

voter needs, invest resources to improve election administration and the voter experience, and 

better secure U.S. elections infrastructure. The EAVS data make it possible to examine the details of 

the U.S. elections infrastructure and to produce a generalizable understanding of the core aspects of 

the election process and the management challenges faced by election officials. The survey provides 

policymakers and the public with critical information every two years about how federal elections are 

conducted, and it helps the EAC fulfill its congressionally mandated reporting requirements. The 

EAVS is also invaluable to election officials themselves. These officials use the EAVS to manage 

election oversight, conduct issue analysis and strategic planning, and create training and 

promotional materials.

The EAC also uses the EAVS data to create research and clearinghouse resources to advance the 

agency’s mission and to better support election officials and voters as well as to inform lawmakers 

and national-level stakeholders about the impact of federal voting laws and the changing landscape 

of U.S. elections. The EAVS helps the EAC meet its mandate under the Help America Vote Act (HAVA) 

to serve as a national clearinghouse and resource for the compilation of information and to review 

procedures with respect to the administration of federal elections. The EAVS sections related to voter 

registration and UOCAVA voting allow states to satisfy their data reporting requirements established, 

respectively, by the National Voter Registration Act (NVRA) and UOCAVA. The EAVS also helps FVAP 

fulfill its obligations under UOCAVA to reduce obstacles to ensure military and overseas voting 

success by collecting data about how UOCAVA voters participate in elections.

The EAVS data collection effort consists of two separately administered surveys: the Policy Survey 

and the EAVS. The Policy Survey, which is due in advance of each federal general election, collects 

data on state election policies and procedures to provide context for the quantitative data included 

in each state’s EAVS submission. The EAVS, which is due after each federal general election is 

complete, collects data on voter registration, UOCAVA voters, mail voting, in-person voting and polling 

operations, provisional ballots, voter participation, and election technology. Complete details about 

the methodology of the 2020 Policy Survey and the EAVS, including an outline of the survey 

questionnaires, the data collection templates, the data validation process, and technical assistance 

provided to respondents, can be found in Chapter 5, “Survey Methodology and Procedures,” of this 

report.

Providing EAVS data is frequently a joint task undertaken by state and local jurisdiction election 

officials. Although 25 states and territories were able to provide all EAVS data from their centralized 

election database, 31 states and territories relied on local jurisdictions to provide responses to some 

5 Puerto Rico provides EAVS data only in presidential election years, as it does not hold elections for federal candidates in 

midterm election years. American Samoa did not participate in the 2016 EAVS. The Northern Mariana Islands participated 

in the EAVS for the first time in 2020.
or all of the EAVS questions. An analysis of how states provide EAVS data can be found in Chapter 2

of this report.

Chapter 1 of this report covers turnout and modes of voting in the 2020 general election, polling 

places and poll workers, and election technology. This chapter also comprises a non-exhaustive 

overview of the data provided by states and jurisdictions in the EAVS. State election policies and 

practices are featured in Chapter 2, “Election Law and Procedure: The Policy Survey.” Voter 

registration is covered in greater detail in Chapter 3, “Voter Registration: The NVRA and Beyond.” 

UOCAVA voting is discussed further in Chapter 4, “Military and Overseas Voting in the 2020 General 

Election: UOCAVA.”

Overall EAVS Response Rates

The analysis in this report is based on information and data submitted and certified by the 50 U.S. 

states, five territories, and the District of Columbia. These 56 entities comprised 6,460 jurisdictions.6

The state-level response rate was 100% (56 of 56 entities provided data), and the jurisdiction-level 

response rate was 100% (6,460 of 6,460 jurisdictions provided data).7 During the data collection 

period, efforts were made to maximize the completeness and accuracy of the data reported. These 

efforts are outlined in the methodology of this report (Chapter 5). Instances when a state’s data were

not included in a calculation because of missing data or data quality issues are described in the 

footnotes and table notes that accompany the analysis in this report.

Turnout in the 2020 General Election

According to the EAVS data submitted by states, there were 228,004,364 voters who were 

registered to vote in the United States as of November 3, 2020. Of this total, 209,441,338 were 

considered active voters, which means they had no additional processing requirements to fulfill 

before voting, and 18,523,963 were considered inactive voters, which means they required address 

verification under the provisions of the NVRA before they would be permitted to vote.8 As a 

percentage of the 2019 CVAP estimate calculated by the U.S. Census Bureau, 88.2% of voting age 

6 What constitutes a jurisdiction for EAVS reporting is defined by how each state chose to provide data. For the 2020 EAVS, 

most states reported data on the county level (or county equivalent, such as parishes for Louisiana). Illinois, Maryland,

Missouri, and Virginia reported data for independent cities in addition to counties. The territories, the District of Columbia,

and Alaska each reported as a single jurisdiction. Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, 

Vermont, and Wisconsin reported data on the township level. Maine also reported its UOCAVA data in Section B as a

separate jurisdiction, because this information was only collected at the state level. Michigan reported data for the county

level, but most election administration activities take place in the 1,520 local election jurisdictions in the state. Two

jurisdictions in Wisconsin were consolidated or annexed into other jurisdictions partway through 2020. See Appendix A in

Chapter 5 of this report for a breakdown of the number of jurisdictions reported in each state and the response rate by 

survey section for each state. 

7 Appendix A of Chapter 5 of this report contains an analysis of state-level response rates to each section of the EAVS.

8 The total number of registered voters was collected in item A1a of the EAVS. The total number of active voters was

collected in item A1b. The total number of inactive voters was collected in item A1c. According to the 2020 Policy Survey,

six states (Guam, Idaho, North Dakota, New Hampshire, the U.S. Virgin Islands, and Wyoming) did not distinguish between 

active and inactive voters in their registration records. These states were not required to provide data in item A1c of the 

EAVS. Casewise deletion at the state level was used in this calculation. 

6 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 7 

citizens were registered as active voters for the 2020 general election.9 This is an increase of 3.6 

percentage points from the 2016 CVAP active voter registration rate of 84.6%. Further details about 

9 This report uses the 1-year American Community Survey (ACS) state estimate for 2019 instead of the 5-year estimate to 

ensure that the CVAP is as current as possible. The CVAP estimates for 2020 were not available by the time this report was 

finalized. The active CVAP registration rate was calculated as the total number of active voters (A1b of the EAVS) divided by 

CVAP. American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands were not included in this 

calculation because the U.S. Census Bureau does not calculate a CVAP for these territories. North Dakota was not included 

Calculating Turnout Rates When assessing election administration, one primary outcome of interest is voter turnout, which is 

calculated by dividing the number of people who participated in an election by the number of people who 

could have participated. The EAVS provides a measure of the total number of voters who cast a ballot 

that was counted in an election (item F1a) for the numerator in this equation. However, multiple 

denominators can be used:

• Number of registered voters or active voters. The number of people a state reports as registered 

and eligible to vote (A1a in the EAVS). Some states separately report the number of active voters 

who have no additional processing requirements to fulfill before voting (A1b in the EAVS). This 

number is available for states and sub-state EAVS jurisdictions.

FF1aa oooo EEEEEEEE

1aa oooo 1bb oooo EEEEEEEE × 100 = RRRRRRRRRRRR RRRR RR TTTT TT RR RRRR

• Citizen voting age population (CVAP). The estimate of the total number of U.S. citizens 18 years of 

age or older based on the U.S. Census Bureau’s ACS. This number is available for states and most 

sub-state EAVS jurisdictions but not for U.S. territories, except for Puerto Rico.

FF1aa oooo EEEEEEEE

CC CC × 100 = CC CC TTTT TT RR RRRR

• Voting Eligible Population (VEP). The measure of the CVAP minus those who are ineligible to vote 

(such as persons with disqualifying felony convictions) and persons who are in the military or 

citizens living overseas. This number is available for states, but not territories or for sub-state 

jurisdictions.

FF1aa oooo EEEEEEEE

 × 100 = TTTT TT RR RRRR

Relying on the number of registered or active voters can be problematic for calculating turnout because it 

is often challenging for states to keep voter registration rolls fully up to date (see Chapter 3 of this report 

for a discussion of list maintenance practices). Using VEP as the denominator in turnout calculations 

would somewhat overrepresent voter turnout—since EAVS data explicitly include persons covered by 

UOCAVA—and would restrict the ability to estimate turnout for sub-state jurisdictions. Although each 

denominator has its limitations, the EAC uses CVAP to calculate turnout in this report because of its 

availability for the majority of jurisdictions that report EAVS data and because it provides a more accurate 

picture of the population covered by the EAVS. Appendix D of Chapter 5 of this report contains 

recommendations on how to calculate additional EAVS rates.
voter registration, including how voters registered to vote, the use of same-day voter registration

(SDR), and list maintenance, can be found in Chapter 3 of this report.

States also reported that a total of 161,303,109 voters cast ballots that were counted for the 2020 

general election. This represents a CVAP turnout rate of 67.7% nationwide.10 Turnout for the 2020 

general election increased 6.7 percentage points from the 2016 CVAP turnout rate of 61%.11

Despite many election administration challenges related to the COVID-19 pandemic, the 2020 

election had the highest turnout rate of any EAVS to date.

Figure 2 shows that nearly all states experienced higher turnout rates in 2020 than they did for the 

2016 general election. Twenty-one states had more than 70% of their CVAP cast a ballot that was 

counted for the 2020 general election; only four states had turnout over 70% for the 2016 election. 

In addition, three states—Utah, Hawaii, and Texas—had turnout increases of more than 10

percentage points compared to the 2016 general election. The states with the highest turnout 

increases tended to be those that made mail voting easy for voters. Hawaii and Utah had both 

enacted all-mail elections in 2019, and Nevada, New Jersey, and Vermont did the same as a 

temporary measure in response to the COVID-19 pandemic. Arizona, California, Montana, and 

Washington had already been conducting their elections predominantly or entirely by mail before

2020. Michigan automatically sent mailed ballot request forms to all registered voters for the 2020 

general election. These states, along with Georgia, Tennessee, and Texas, each had turnout 

increases of more than 8 percentage points from 2016 to 2020. Only one U.S. territory—Puerto 

Rico—reported a decrease in turnout since the 2016 general election.

Another notable finding from the 2020 EAVS was a change in how voters cast their ballots. 

Historically, the majority of voters have cast their ballots in person at a physical polling place on 

Election Day. This method of voting was used by 54.5% of voters in 2016 and by 58.2% of voters in 

2018. However, in 2020, the percentage of these voters fell to 30.5%.12 For the first time in EAVS 

history, a majority of voters did not cast their ballots in person on Election Day; in 2020, Election Day 

in-person voting was less commonly used than mail voting or in-person early voting. The nationwide 

number of voters who vote in person on Election Day has likewise been steadily decreasing, from 

72,393,400 in 2016 to 67,133,886 in 2018 and to 47,148,389 in 2020. This is despite an overall 

in this calculation because this state does not have voter registration. Casewise deletion at the state level was used in this 

calculation.

10 The total number of voters who cast a ballot that was counted was reported in item F1a of the EAVS. The CVAP turnout 

rate was calculated by dividing F1a by CVAP. American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin 

Islands were not included in this calculation because the U.S. Census Bureau does not calculate CVAP for these territories.

Casewise deletion at the state level was used in this calculation.

11 For the 2020 EAVS, the question about voter participation was reworded. In 2016, this question collected data on ballots

cast (independent of outcome), whereas in 2020, it collected data on ballots cast and counted. Thus, it is likely that the 

2016 turnout calculation was higher than it would have been if the 2020 question wording had been used, thus, 

underestimating the true turnout change from 2016 to 2020. 

12 Election Day in-person turnout was calculated by dividing the total number of Election Day in-person voters who cast a

ballot that was counted (item F1b of the EAVS) by the total number of voters who cast a ballot that was counted (item F1a).

Oregon and Washington did not report any in-person Election Day voters because these states conduct their elections 

almost entirely by mail. Casewise deletion at the state level was used in this calculation. 

8 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 9

Figure 2. Nearly All States Experienced Turnout Increases in the 2020 General Election

Source: The CVAP turnout was calculated as F1a/CVAP x 100 for both 2016 and 2020. American Samoa, Guam, the 

Northern Mariana Islands, and the U.S. Virgin Islands were not included, as CVAP is not available for these territories. 

Casewise deletion was used at the state level in calculating turnout. Change between 2016 and 2020 is measured in 

percentage points.
increase in 2020 in the number of states with a policy that allows for vote centers (either on a 

statewide level or in certain jurisdictions), which allow voters to cast their ballots at any polling 

location or vote center within their jurisdiction rather than at an assigned polling location. Twenty-one 

states reported allowing vote centers for the 2020 general election compared to 17 states in 

2018.13

The percentage of voters who used a mailed ballot to vote surged, from 24.5% in 2016 and 25.6% in 

2018 to 43.1% in 2020. The number of voters who used in-person early voting also increased from 

previous years, although the increase was not as large. In 2016, 25.3% of voters cast their ballots 

early in person, and 22% did so in 2018, compared to 30.6% for the 2020 general election. The 

Figure 3. Mail Voting Was the Most Common Way for Voters to Cast Their Ballots in 2020

Source: Election Day turnout was calculated as F1b/F1a x 100 for all years. Mail turnout was calculated as (F1d+F1g)/F1a 

x 100 for all years. In-person early turnout was calculated as F1f/F1a x 100 for all years. UOCAVA, provisional, and other 

turnout was calculated as (F1c+F1e+F1h)/F1a x 100 for all years. Casewise deletion was used at the state level 

(percentages for each mode of voting were calculated independently, and only states that reported data for a given mode 

were included in the analysis), and because of this, percentages do not sum to 100%.

13 Information on vote center policies was provided in Q13 of the 2018 Policy Survey and Q25 of the 2020 Policy Survey.

Six states that did not offer vote centers in 2018 did so in 2020, and two states that offered vote centers in 2018 did not 

in 2020. 

10 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 11

EAVS data confirm that the ways voters cast their ballots changed because of the COVID-19 

pandemic. Many states took steps to reduce crowding at in-person polling places on Election Day by 

expanding the use of mail and early voting, and the EAVS data also confirm that voters made use of 

these options. Figure 3 shows the most commonly used modes of voting for the 2016, 2018, and 

2020 general elections.

Voting by Mail

All states and territories and the District of Columbia offer their citizens the opportunity to cast their 

ballots by mail in federal general elections, although the number of citizens who cast their ballots 

using this method and the circumstances under which citizens can vote a mailed ballot vary widely 

among states. Some states use the term “absentee voting” instead of “mail voting.”14 For purposes 

of this report, mail voting refers to the process by which:

1. An individual receives a ballot in the mail before the election. In some states or jurisdictions,

election offices automatically send a mailed ballot to all registered voters (often referred to

as “all-mail elections”), whereas others automatically send mailed ballots only to individuals

on a permanent mail voting list. In other states, individuals must file an application to

request a ballot for each election for which they wish to vote a mailed ballot.15

2. The individual marks the mailed ballot with their preferences at home instead of at an

election office or polling location.

3. The individual returns the voted ballot to election officials, typically by sending the voted

ballot through the mail, by returning the voted ballot to an in-person voting site or election

office, or by depositing the voted ballot in a secure designated drop box.16 The options voters

have for returning voted mailed ballots are dictated by state policy.

The 2020 Policy Survey results show that many states made changes to their mail voting policies 

since the 2018 general election. However, the Policy Survey did not record precisely when these 

changes were made, the reason behind the policy changes, or whether the policy changes were 

permanent or temporary. In 2020, 39 states did not require an excuse for voters to request a mailed 

ballot; six of these states and one territory (Delaware, Massachusetts, Michigan, Missouri, South 

Carolina, Virginia, and the U.S. Virgin Islands) required an excuse in 2018 but not in 2020. In 

addition, 14 states conducted all-mail elections. Ten states (California, Colorado, the District of 

Columbia, Hawaii, New Jersey, Nevada, Oregon, Utah, Vermont, and Washington) conducted all-mail 

elections on a statewide basis, and four states did so in select jurisdictions (Idaho, Minnesota, 

Montana, and Nebraska). However, states and jurisdictions that conducted their elections by mail 

14 In recognition of the fact that many states no longer require a person to be absent from their election jurisdiction in order 

to be permitted to cast a ballot by mail, the EAVS uses the term “mail voting.” 15 In some states, applications to vote by mail are valid for multiple elections, such as for the duration of a two-year election 

cycle or for all elections within a calendar year. The 2020 EAVS and Policy Survey did not collect data on how long mailed 

ballot applications are valid for. 16 The 2020 EAVS did not collect information on which states used drop boxes, how many drop boxes were in use, or how 

many ballots were returned via drop boxes. 
typically also offered some form of in-person voting. For a more thorough look at the policies 

surrounding mail voting, please see Chapter 2, “Election Law and Procedure: The Policy Survey.”

States reported that 69,486,968 ballots were cast using a mailed ballot and counted for the 2020 

general election, more than double the number of ballots cast using a mailed ballot for the 2016 

general election (33,140,080).17 The mailed ballot voting turnout rate increased by nearly 20 

percentage points, from 24.5% in 2016 to 43.1% in 2020. 

Table 1. Jurisdictions Saw Large Increases in Mail Turnout From 2018 to 2020

Type of Jurisdiction 2018 Average

Mail Turnout

2020 Average 

Mail Turnout

Turnout 

Change

Jurisdiction was in a state that introduced a statewide 

all-mail election in 2020 9.9% 72.0% 62.1% 

Jurisdiction was in a state that required an excuse for 

mail voting in 2018 but did not in 2020 5.9% 30.8% 24.9% 

Jurisdiction was in a state that did not conduct all-mail 

elections in either 2018 or 2020 11.4% 30.6% 19.2% 

Jurisdiction was in a state that did not change its 

excuse policy for mail voting from 2018 to 2020 10.2% 25.8% 15.6% 

Source: The mail turnout rate for both 2018 and 2020 was calculated as (F1d+F1g)/F1a x 100. Jurisdictions’ 

classification on their state’s all-mail election policy was based on their state’s responses to Q9a of the 2018 Policy Survey 

and Q18a of the 2020 Policy Survey; jurisdictions in states that had all-vote-by-mail elections in select jurisdictions only 

were excluded from the analysis of mail voting policies. Jurisdictions’ policies on whether to require an excuse for mail 

voting were based on their state’s responses to Q8 of the 2018 Policy Survey and Q17 of the 2020 Policy Survey; 

jurisdictions in states that conduct all-mail elections, either statewide or in select jurisdictions, were excluded from the 

analysis of mail voting excuse policies. Casewise deletion was used at the jurisdiction level (only jurisdictions that reported 

data in F1d and/or F1g as well as reported data in F1a in both 2018 and 2020 were included in the analysis). All mail 

turnout increases from 2018 to 2020 were statistically significant at p < 0.001.

Jurisdiction-level analysis also shows large increases in mail voting from the 2018 to the 2020 

general elections across a variety of policy configurations, particularly where mail voting was made 

more widely available. These increases are shown in Table 1. The largest increases occurred in 

states that did not have all-mail elections in 2018 but implemented this type of voting on a statewide 

level in 2020. Jurisdictions in these states had an average mail turnout level of 9.9% in 2018, which 

increased to 72% for the 2020 general election—an increase of 62.1 percentage points. The next 

largest increase occurred in jurisdictions whose states removed the requirement to provide an 

excuse in order to request a mailed ballot in 2020. These jurisdictions had an average mail turnout 

rate of 5.9% in 2018 and 30.8% in 2020, an increase of 24.9 percentage points. States that did not 

change their policies on all-mail elections or excuse-required mailed ballot voting also saw increases 

17 The total number of mail votes was calculated by adding the number of voters who cast a mailed ballot and whose

ballots were counted (item F1d of the EAVS) and the number of voters who cast a mailed ballot in a jurisdiction that

conducts elections entirely by mail and whose ballots were counted (item F1g of EAVS). Mail turnout was calculated by 

dividing this figure by the total number of ballots that were cast and counted (item F1a of EAVS). Casewise deletion at the 

state level was used in these calculations. 

12 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 13

in their mail voting rates from 2018 to 2020, but these average increases were smaller, at 19.2

percentage points and 15.6 percentage points, respectively.

States reported transmitting a total of 90,687,978 mailed ballots to non-UOCAVA voters for the 

November 2020 general election, of which 70,551,227 were returned by voters. This means that 

77.8% of the transmitted mailed ballots were returned by voters, and of the returned ballots, 98.8% 

were counted and 0.8% were rejected.18 Although the number of mailed ballots that were 

transmitted more than doubled since 2016—when 41,651,526 transmitted mailed ballots were 

reported—the mailed ballot return, count, and rejection rates were not significantly different between

the 2016 and 2020 general elections at the national level.19

Table 2 shows the most common reasons reported for rejecting mailed ballots in the 2020 general 

election. In this election, rejections for having a non-matching signature accounted for nearly onethird (32.8%) of the total rejected mailed ballots. The next most common reason (22.5%) was 

“other,” which comprised reasons such as the voter was not eligible to vote in the jurisdiction, the 

ballot was missing an important document (such as an affidavit or certification), the document was 

incomplete or insufficient, there were identifying marks on the ballot, the ballot was missing a 

secrecy envelope or was outside of the secrecy envelope, or a combination of reasons.20 Other 

common reasons for rejection included that the voter had already voted in person (13.5%), the ballot 

was received after the state’s deadline for submitting a mailed ballot (12.1%), and there was no 

voter signature on the mailed ballot or the mailed ballot envelope (12.1%).

Additional information about mail voting in the 2020 general election, including statistics by state, 

can be found in Appendix A of this chapter.

18 The mailed ballot return rate was calculated by dividing the total number of mailed ballots returned by voters (item C1b 

of EAVS) by the total number of mailed ballots transmitted (item C1a of EAVS). The mailed ballot count rate was calculated 

by dividing the number of counted mailed ballots (item C3a) by the total number of mailed ballots returned by voters (item 

C1b). The mailed ballot rejection rate was calculated by dividing the total number of mailed ballots rejected (item C4a) by 

the total number of mailed ballots returned by voters (item C1b). A total of 0.4% of the mailed ballots returned by voters 

(C1b) were not classified as having been either counted (C3a) or rejected (C4a). Alabama did not provide sufficient data to 

calculate the mailed ballot count and rejection rates. Casewise deletion at the state level was used in these calculations.

The EAVS data also show that nationwide, 1.4% of the transmitted mailed ballots were returned as undeliverable 

(C1c/C1a); 3.6% were surrendered, spoiled, or replaced (C1d/C1a); 0.5% were surrendered at the polls, so the voter could 

cast a provisional ballot (C1e/C1a); 16.8% had an unknown status, which included voters who were transmitted a mailed 

ballot but chose not to vote (C1f/C1a); and 1% of mailed ballots reached some other status ([C1g+C1h+C1i]/C1a). 

Casewise deletion at the state level was used in these calculations. 19 The comparisons were statistically insignificant at p > 0.05. 20 In the 2020 EAVS, states reported other reasons for rejecting mailed ballots in items C4p_Other, C4q_Other, and 

C4t_Other. 
14 | Overview of Election Administration and Voting 

Table 2. The Most Common Reason for Rejecting Mailed Ballots Was for a Non-Matching 

Signature

Reason Percentage of Rejected Ballots

Non-matching signature 32.8%

Other reason given 22.5%

Voter already voted in person 13.5%

Ballot not received on time/missed deadline 12.1%

No voter signature 12.1%

No witness signature 5.6%

Ballot returned in an unofficial envelope 4.2%

Multiple ballots returned in one envelope 2.1%

First-time voter without proper identification 2.0%

Voter deceased 1.6%

Ballot missing from envelope 1.5%

Envelope not sealed 0.9%

No resident address on envelope 0.8%

No ballot application on record 0.6%

No election official’s signature on ballot 0.1%

Source: Rejections for non-matching signature was calculated as C4e/C4a x 100. Rejections for other reasons was

calculated as (C4p+C4q+C4r)/C4a x 100. Rejections because the voter already voted in person was calculated as 

C4m/C4a x 100. Rejections because the ballot was not received on time was calculated as C4b/C4a x 100. Rejections 

because the ballot lacked a voter signature was calculated as C4c/C4a x 100. Rejections because the ballot lacked a 

witness signature was calculated as C4d/C4a x 100. Rejections because the ballot was in an unofficial envelope was

calculated as C4g/C4a x 100. Rejections because multiple ballots were returned in a single envelope was calculated as 

C4k/C4a x 100. Rejections because the first-time voter did not provide proper identification was calculated as C4n/C4a x 

100. Rejections because the ballot was from a deceased voter was calculated as C4l/C4a x 100. Rejections because the

ballot was missing from the envelope was calculated as C4h/C4a x 100. Rejections because the envelope was not sealed

was calculated as C4i/C4a x 100. Rejections because there was no resident address on the envelope was calculated as

C4j/C4a x 100. Rejections because there was no ballot application on record was calculated as C4o/C4a x 100.

Rejections because there was no election official’s signature on the ballot was calculated as C4f/C4a x 100. Casewise

deletion was used at the state level (percentages for each rejection reason were calculated independently and only states

that reported data for a given reason were included in the analysis), and because of this, percentages do not sum to

100%.

In-Person Voting Before Election Day

Most states allow some kind of in-person voting before Election Day. This type of voting generally 

falls into two categories:

• A voter may go to a polling place before Election Day, receive a ballot, vote their ballot while at

the polling place, and place their completed ballot into a ballot box or tabulator.
Overview of Election Administration and Voting | 15

• A voter may go to an election office to pick up a ballot over the counter. In some states, the

voter may be able to take their ballot home with them, whereas in other states, the ballot must

be completed in the office. The ballot is then sealed in an envelope and tabulated along with

ballots that are returned to the office by mail according to local procedures.

The type of in-person voting that takes place before Election Day and the populations that may use 

this method of voting are determined by state law. Different states use the terms “in-person early 

voting” and “in-person absentee voting” to describe both of the voting methods described above, 

although other terms exist as well (see Chapter 2 of this report).21 Some states offer both types of 

voting activities. For example, voters in Ohio may go to their county’s designated early voting site, 

vote in person, and cast their ballot on a direct-recording electronic device or scan their ballot in a 

precinct scanner. Voters also have the option of completing a ballot request form, picking up a ballot 

from their county’s election office, and returning their ballot in person, by drop box, or by mail at a 

later date.

Fifty-five of the states and territories (all but New Jersey) reported offering some form of in-person 

voting before Election Day to their population for the 2020 general election. Of these states, 12

required voters to provide an approved excuse to cast an early ballot, and 43 states allowed for noexcuse early voting.22 Overall, three more states offered no-excuse early voting for the 2020 general 

election compared to the 2018 general election. Further details about state policies on early voting 

can be found in Chapter 2 of this report. 

For the 2020 general election, states reported that 41,266,229 ballots were cast through in-person 

early voting and were counted, a 71.1% increase compared to the number cast by this method for 

the 2016 general election (24,124,466). Although the rate of early voting increased from 2016 to 

2020, from 25.3% to 30.6%, the rate of increase was not as large as it was for mail voting.23

It should be noted that some states may have reported mailed ballots returned via drop box with 

other early ballots. Currently, the EAVS does not collect data on the number of ballots returned via 

drop box, and some states’ data collection practices do not distinguish between early ballots and 

ballots returned via a drop box.

21 The EAVS questions use the term “in-person early voting” to refer to all types of in-person voting that take place before 

Election Day. The question instructions specify that in-person absentee voting should be reported as in-person early voting 

in EAVS data. However, some states’ data management systems do not distinguish in-person absentee voters from mail 

voters, so not all states with in-person absentee voting were able to report data on how many of their voters voted in this 

way.

22 The terminology a state used to refer to the process of allowing individuals to cast their ballots in person before Election 

Day was collected in item Q24 of the 2020 Policy Survey. Data on whether a state required a voter to provide an excuse to 

cast a ballot in person before Election Day was collected in item Q24a. 23 The total number of in-person early ballots cast and counted was collected in item F1f of the EAVS. The early voting 

turnout rate was calculated by dividing this figure by the total number of ballots that were cast and counted (item F1a of 

the EAVS). Alabama, Connecticut, Iowa, Missouri, Mississippi, Montana, New Hampshire, New Jersey, Oregon, 

Pennsylvania, and Rhode Island did not report data in F1f, either because they did not offer in-person early voting (in the 

case of New Jersey) or because the number of in-person early voters could not be tracked separately from other modes of 

participation. Casewise deletion at the state level was used in this calculation.
Provisional Voting

HAVA introduced provisional voting as a way for a voter to cast a ballot when the voter’s registration 

status cannot be verified at the time of voting, when there is some indication the voter may have 

already cast another ballot (for instance, by mail), or when the voter’s eligibility to vote is challenged. 

Provisional ballots are kept separate from other election ballots and are later fully counted, partially 

counted, or rejected depending on whether the provisional voter’s eligibility can be verified in the 

days following the election according to the state’s rules for this process. The provisional ballot 

process helps ensure each qualified voter casts only one ballot that is counted and allows the voter 

additional time to prove their eligibility to vote if necessary. Certain states are exempt from HAVA’s 

provisional ballot requirements because they allowed SDR at the time the law was enacted. In 

addition, North Dakota is exempt from this provision of HAVA because it does not require citizens to 

register to vote.

In the 2020 Policy Survey, 49 states and territories and the District of Columbia reported offering 

provisional ballots to voters. Five states and one territory—Idaho, Minnesota, North Dakota, New 

Hampshire, Vermont, and Puerto Rico—did not.24 States reported that the most common reasons for 

offering a voter a provisional ballot included that an election official challenged a voter’s eligibility to 

vote (46 states), the voter was not on the list of eligible voters (43 states), the voter lacked proper 

identification (40 states), the voter did not reside in the precinct in which they were attempting to 

vote (40 states), and another person (not an election officer) challenged a voter’s eligibility to vote 

(28 states).25 If a voter cast a provisional ballot in the wrong precinct, four states reported that they 

would fully count the entire ballot, 20 states would partially count the ballot (e.g., only count the 

items on the ballot for which the voter would have been eligible had they voted in the correct 

precinct), and 26 states would reject the entire ballot.26 For more information on provisional voting 

policies, including the deadlines by which provisional ballots needed to be adjudicated, please see 

Chapter 2 of this report.

States reported 1,316,945 provisional ballots were cast and counted for the 2020 general election. 

This represents a slight decline from previous years: 1,483,708 provisional ballots had been cast in 

2018 and 1,897,631 in 2016. Provisional voting as a percentage of turnout has continued its rate of 

decline in presidential elections, from 1.7% in 2012 to 1.4% in 2016 to 0.8% in 2020.27 The rate of 

provisional voting declined twice as fast between the 2016 and the 2020 general elections as it did 

between the 2012 and the 2016 general elections.

24 Information on states’ use of provisional voting was collected in Q32 of the 2020 Policy Survey.

25 Information on the circumstances under which a state uses provisional ballots was collected in Q32a of the 2020 Policy 

Survey.

26 Information on how a state would treat a provisional ballot cast in the wrong precinct was collected in Q32c. Percentages 

were calculated using the number of states who reported using provisional voting in Q32.

27 The total number of provisional ballots cast and counted was collected in item F1e of the EAVS. The provisional voting

turnout rate was calculated by dividing this figure by the total number of ballots that were cast and counted (item F1a of

the EAVS). Idaho, Minnesota, North Dakota, New Hampshire, and Vermont did not report data on provisional ballots in the

2020 EAVS because, as confirmed in the Policy Survey, these states do not offer provisional ballots to voters. Puerto Rico 

reported in the Policy Survey that it does not offer provisional ballots but reported data on provisional ballots in the EAVS. 

Casewise deletion at the state level was used in this calculation. 

16 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 17

Nationally, 78.3% of provisional ballots were counted,28 either in full or in part, with 21.3% being 

rejected.29 The most common reasons that states reported for rejecting provisional ballots included 

that the voter was not registered in the state (accounting for 54.8% of rejections), “other reasons” 

(21.2%), the voter attempted to vote in the wrong jurisdiction (12.4%), the voter had already cast a 

ballot through another mode of voting (5%), the voter attempted to vote in the wrong precinct (4.8%),

the voter failed to provide sufficient identification (3.4%), the envelope or ballot was incomplete or 

illegible (3.3%), and the voter’s signature did not match the signature on record (2.2%).30

Furthermore, 0.9% of the provisional ballots reached another adjudication aside from being either 

counted or rejected: the largest numbers of these ballots came from Ohio, Texas, Missouri, and 

Illinois.31

UOCAVA and Other Modes of Voting

Absentee and mail voting have long been used to provide individuals in the military or U.S. citizens 

who live overseas or who are absent from their residence with a way to participate in federal 

elections. The distinct needs of members of the uniformed services and overseas citizens remain an 

area of critical concern in election administration, and these individuals are given special voting 

protections under UOCAVA and its amendments.32 UOCAVA voters are provided certain rights to fully 

28 The total number of counted provisional ballots was calculated by summing the number of provisional ballots fully 

counted (item E1b of the EAVS) and the number of provisional ballots partially counted (item E1c). The percentage of 

counted provisional ballots was calculated by dividing the sum of E1b and E1c by the sum of all provisional ballot 

adjudications (items E1b, E1c, E1d, and E1e). Maine reported in its EAVS survey comments that all provisional ballots are 

counted. The data that New Jersey reported in E1e (provisional ballots that reached another adjudication) were included in 

this calculation, because the state explained in its survey comments that this item included provisional ballots that were 

accepted in part or in full. The data that El Dorado, San Bernardino, and Stanislaus counties in California reported in E1e 

were included in this calculation for the same reason. Casewise deletion at the state level was used in these calculations. 29 The total number of rejected provisional ballots was collected in item E1d of the EAVS. The percentage of rejected 

provisional ballots was calculated by dividing this figure by the sum of all provisional ballot adjudications (items E1b, E1c, 

E1d, and E1e). Casewise deletion at the state level was used in this calculation.

30 The number of provisional ballots rejected because the voter was not registered in the state was collected in item E2b of 

the EAVS. The number of provisional ballots rejected because the voter attempted to vote in the wrong jurisdiction was 

collected in item E2c. The number of provisional ballots rejected because the voter attempted to vote in the wrong precinct 

was collected in item E2d. The number of provisional ballots rejected because the voter did not provide sufficient 

identification was collected in item E2e. The number of provisional ballots rejected because the envelope and/or ballot 

were incomplete or illegible was collected in item E2f. The number of provisional ballots rejected because the voter’s 

signature did not match the signature on record was collected in item E2i. The percentage of provisional ballots rejected for 

each of these reasons was calculated by dividing the figure by the total number of provisional ballots rejected (item E2a). 

Casewise deletion at the state level was used in these calculations. 31 The total number of provisional ballots that reached an adjudication aside from being counted or rejected was collected 

in item E1e of the EAVS. The percentage of other provisional ballots was calculated by dividing this figure by the sum of all 

provisional ballot adjudications (items E1b, E1c, E1d, and E1e). As explained in footnote 28, the E1e data for the state of 

New Jersey and the counties of El Dorado, San Bernardino, and Stanislaus in California were included in the calculation for 

counted provisional ballots. Ohio explained in its survey comments that this data included provisional ballots cast under an 

APRI exception but did not provide a definition for this term. Missouri explained in its survey comments that this data 

included provisional ballots supplied to voters who were registered but did not have a form of identification. Casewise 

deletion at the state level was used in this calculation.

32 The uniformed services are the armed forces—the Army, Navy, Marine Corps, Air Force, and Coast Guard—as well as the 

U.S. Public Health Service Commissioned Corps, the National Oceanic and Atmospheric Administration (NOAA) 

Commissioned Officer Corps, and the U.S. Merchant Marine. Uniformed services members, their spouses, and their eligible 

dependents are, together, referred to as uniformed services voters. Overseas citizens are U.S. citizens living outside of the 

United States who are not uniformed services voters and are also protected by UOCAVA.
participate in federal elections and are given special considerations as to when their ballots are sent, 

how their blank ballots can be transmitted, and how and when they may return their voted ballots.

For the 2020 general election, states reported 938,297 UOCAVA ballots that were cast and counted. 

This total represents a sizeable increase from 2016 and 2018, when 649,427 and 358,137 

UOCAVA ballots were cast, respectively. However, despite the increase in the number of voters who 

participated in the 2020 general election, UOCAVA voting as a percentage of the overall electorate 

stayed relatively the same in 2020. In 2016, 0.5% of voters were UOCAVA voters, and in 2020, 

UOCAVA voters comprised 0.6% of the electorate.33 Nationwide, 97.6% of the UOCAVA absentee 

ballots that were returned by voters were counted, and 2.1% of the returned ballots were rejected.34

Chapter 4 of this report contains a complete discussion of the EAC’s history of collecting data on 

voters covered by UOCAVA; a full analysis of the data collected about these voters and their ballots in 

2020, including ballots transmitted, returned, counted, and rejected; and the use of the Federal 

Write-In Absentee Ballot (FWAB). Chapter 2 of this report contains a complete discussion of state 

policies regarding UOCAVA voting.

In addition to ballots that were cast at a physical polling place on Election Day, by mail, by in-person 

early voting, and by provisional voting, states had the opportunity to report data on any other modes 

of voting that were offered in the state in 2020.35 A total of 1,290,577 ballots were reported as cast 

and counted that could not be categorized according to one of the modes listed in the EAVS 

question. The highest numbers of these votes were reported in California (923,698 ballots), Florida 

(184,533 ballots), North Carolina (168,900 ballots), and Wisconsin (7,387 ballots). The most 

common reasons for reporting data in this item included mailed ballots that could not be 

distinguished as being from UOCAVA or non-UOCAVA voters, conditional voter registration (CVR) 

voters in California, curbside absentee voters in North Carolina, and “other,” “unknown,” or “not 

categorized” ballots. 

Polling Places and Poll Workers

For an election, each voter is assigned to a precinct according to their residential address as listed in 

their voter registration record. A precinct is a contiguous, bounded geographic area that is the basis 

for determining the contests and issues on which the voters legally residing in that area are eligible 

to vote.36 Precincts are then assigned to a polling place, which is a physical location where in-person 

voting takes place. As previously discussed, some states use an early voting or vote center model 

33 The total number of UOCAVA ballots that were cast and counted was collected in item F1c of the EAVS. The UOCAVA

turnout rate was calculated by dividing this figure by the total number of ballots that were cast and counted (item F1a of

the EAVS). Rhode Island did not report data in F1c. Their survey comment stated, “According to RI general law, all UOCAVA

mail ballots are consolidated into one mail ballot category.” Casewise deletion at the state level was used in this 

calculation.

34 The total number of UOCAVA absentee ballots that were returned by voters was collected in item B9a of the EAVS. The 

number of UOCAVA ballots counted was collected in item B14a, and the number of UOCAVA ballots rejected was collected

in item B18a. The UOCAVA ballot count rate was calculated by dividing B14a by B9a, and the rejection rate was calculated

by dividing B18a by B9a. Casewise deletion at the state level was used in this calculation; this calculation also did not

include returned UOCAVA ballots that were not categorized as either counted or rejected. 

35 Ballots cast by another mode that were counted were recorded in item F1h of the EAVS.

36 Some states use the terms “ward” or “voting district” to describe their voting precincts. 

18 | Overview of Election Administration and Voting 
Overview of Election Administration and Voting | 19

that allows voters to vote at any polling location within their jurisdiction rather than at a specifically 

assigned polling place.

States reported 176,933 precincts that were used for the 2020 general election. States reported 

that 107,457 polling places were used on Election Day and that 25,099 polling places were used

during the early voting period, for a total of 132,556 polling places for the 2020 general election.37

States also provided information on whether their polling places were located at election offices or at 

other sites, such as libraries, schools, or mobile voting locations. There continues to be differences in 

where states locate their early voting polling locations, as opposed to their Election Day polling 

locations. States reported that nationwide, 42.8% of early voting sites were located at election 

offices, and 57.3% were located at other sites.38 However, for Election Day polling places, only 9.6% 

of polling places were located at election offices, and 93.8% were reported as being located at other 

sites.39

Many of the laws, rules, policies, and procedures governing elections are enforced, in practice, by the 

poll workers who assist with elections.40 These poll workers are typically not full-time election 

workers or employees of election offices; rather, they are recruited and trained to assist in the voting 

process during an election. Typical activities that poll workers assist in include verifying the identities 

37 The total number of precincts was collected in item D2a of the EAVS. The total number of Election Day polling places was 

collected in item D3a. The total number of early voting polling places was collected in item D4a. Kansas and Washington 

did not provide data on the number of Election Day polling places. Connecticut, Iowa, Kansas, Missouri, Mississippi, New 

Hampshire, New Jersey, and Oregon did not provide data on the number of early voting polling places; several of these 

states noted that early voting opportunities are limited to special circumstances, so the number of early voting sites was

not tracked. Before this report’s finalization, Virginia notified the EAC that the statewide number of early voting polling 

places in D4a was 208, not 133. Data users should note that the question numbering in this section changed in 2020; 

these questions were numbered differently in the 2016 and 2018 EAVS. However, a year-over-year analysis of polling 

places as reported in the EAVS is cautioned against, as these items have been underreported in previous years.

38 The number of early voting polling places located at election offices was collected in item D4c of the EAVS. The number 

of early voting polling places located at other sites was collected in item D4b of the EAVS. The percentage of early voting 

polling locations located at each type of site was calculated by dividing the EAVS item by the sum of D4b and D4c. This

denominator was used instead of the reported total number of early voting polling locations (item D4a), because some 

states provided a total in D4a but not a breakdown in D4b and D4c. Of the states that reported offering in-person early 

voting, Connecticut, Iowa, Kansas, Missouri, Mississippi, New Hampshire, Oregon, and Wisconsin did not provide any data 

on early voting polling places in D4a, D4b, or D4c. Several of these states noted in their survey comments that early voting 

was offered only in very limited circumstances. Georgia and Rhode Island provided data on the total number of early voting 

polling places in D4a but did not provide a data breakdown in D4b and D4c. New Jersey did not provide data because it did 

not offer in-person early voting. Casewise deletion at the state level was used in these calculations, and because each 

category was calculated independently, the percentages do not sum to 100%.

39 The number of Election Day polling places located at election offices was collected in item D3c of the EAVS. The number 

of Election Day polling places located at other sites was collected in item D3b of the EAVS. The percentage of Election Day

polling locations located at each type of site was calculated by dividing the EAVS item by the sum of D3b and D3c. This 

denominator was used instead of the reported total number of Election Day polling locations (item D3a), because some 

states provided a total in D3a but not a breakdown in D3b and D3c. Casewise deletion at the state level was used in these 

calculations, and because each category was calculated independently, the percentages do not sum to 100%. 

Of the states that reported offering in-person early voting, Kansas and Washington did not provide any data on Election Day 

polling places in D3a, D3b, or D3c: Washington noted that data were not provided because the state votes almost entirely 

by mail. The District of Columbia, Georgia, Idaho, Massachusetts, Maine, Minnesota, Missouri, the Northern Mariana 

Islands, Ohio, Puerto Rico, Tennessee, and the U.S. Virgin Islands provided data on the total number of Election Day polling 

places in D3a but did not provide a data breakdown in D3b and D3c.

40 Some states and jurisdictions use other titles for poll workers, such as election judges, booth workers, wardens, or 

commissioners. The EAVS instructions stated that observers stationed at polling places, regular office staff who did not 

fulfill poll worker functions during the election, or temporary election staff who were not hired specifically to serve voters in 

either early or Election Day voting should not be counted as poll workers for purposes of the EAVS.
of those who come to vote, assisting voters with signing documents required to cast a ballot, 

providing ballots and setting up voting equipment, and performing other functions as dictated by the 

state or local election authority.

States reported the number of early voting and Election Day poll workers separately, and they also 

reported the total number of poll workers who assisted with the 2020 general election. States 

reported that a total of 775,101 poll workers assisted with the 2020 general election. This included 

690,346 poll workers who assisted with Election Day voting and 135,105 poll workers who assisted 

with early voting.41 Among states that reported data on poll workers for both the 2016 and the 2020 

EAVS, there was no statistically significant change in the number of poll workers reported.42

Thirty-six states also reported information on the ages of their poll workers.43 Among these states, 

the majority of poll workers were over the age of 40 in the 2020 general election, with nearly half of 

them over 60 years old. However, Figure 4, which compares the age distribution of poll workers in 

the 2016 general election to those in the 2020 general election, shows slight but statistically 

significant shifts in the age categories over time. In 2020, the percentage of poll workers who were 

ages 18 to 25 and 26 to 40 increased, and the percentage of poll workers who were ages 61 to 70 

and 71 or older decreased compared to 2016.44 Notably, the percentage of poll workers who were 

ages 26 to 40 nearly doubled, from 8% in 2016 to 15% in 2020. 

41 The total number of poll workers who assisted with the 2020 general election was collected in item D7a of the EAVS. The

total number of poll workers who assisted with Election Day voting was collected in item D5. The total number of poll

workers who assisted with early voting was collected in item D6. D7a does not match the sum of D5 and D6, because in

D7a, each poll worker was to only be counted once even if they assisted with both early voting and Election Day voting.

Oregon, Pennsylvania, Puerto Rico, Vermont, Washington, and Wisconsin were unable to provide poll worker data. Alabama,

Connecticut, Louisiana, Maine, Massachusetts, Missouri, Mississippi, New Jersey, and North Dakota did not provide data

on the number of early voting poll workers. North Dakota did not provide data on the number of Election Day poll workers.

New Hampshire provided data on the minimum number of poll workers required at each polling location by law but noted

that it may not reflect the number of poll workers who actually assisted.

42 T tests conducted on the national number of poll workers in 2016 and 2020 were statistically insignificant at p < 0.05. 

43 Poll worker age data were reported in item D7 of the EAVS for 2020, with D7a corresponding to the total number of poll

workers who assisted with the 2020 general election and items D7b–D7g corresponding to age categories. The

denominator used in this calculation was the sum of the age categories in D7b–D7g. Poll worker age data were reported in

items D3 and D4 for 2016, with D3a corresponding to the total number of poll workers and items D4a–D4f corresponding 

to age categories. The denominator used in this calculation was the sum of the age categories in D4a–D4f. In 2020, South 

Carolina only reported poll workers who were under the age of 18 and did not provide data for any other age categories. 

South Carolina was excluded from the calculations of the percentage of poll workers by age. Connecticut, Georgia, Hawaii,

Illinois, Louisiana, Massachusetts, Minnesota, New Hampshire, New Jersey, North Dakota, the Northern Mariana Islands,

Oregon, Pennsylvania, Puerto Rico, Rhode Island, the U.S. Virgin Islands, Vermont, Virginia, Washington, and Wisconsin

were unable to provide data on the ages of their poll workers. Casewise deletion at the state level was used in these 

calculations. 

44 T tests conducted that compared the percentage of poll workers in the 18 to 25, 26 to 40, 61 to 70, and 71 or older age 

categories between 2016 and 2020 were statistically significant at p < 0.05, with most being p < 0.01. Other age groups

did not have a statistically significant change. 

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Overview of Election Administration and Voting | 21

Figure 4. Poll Worker Age Distribution Was Slightly Younger in 2020 Than in 2016

Source: The percentage of poll workers under age 18 was calculated as D7b/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 

2020 and D4a/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 2016. The percentage of poll workers ages 18–25 was 

calculated as D7c/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 2020 and D4b/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 

2016. The percentage of poll workers ages 26–40 was calculated as D7d/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 

2020 and D4c/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 2016. The percentage of poll workers ages 41–60 was 

calculated as D7d/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 2020 and D4d/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 

2016. The percentage of poll workers ages 61–70 was calculated as D7e/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 

2020 and D4e/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 2016. The percentage of poll workers ages 71 or older was 

calculated as D7g/(D7b+D7c+D7d+D7e+D7f+D7g) x 100 for 2020 and D4f/(D4a+D4b+D4c+D4d+D4e+D4f) x 100 for 

2016. Casewise deletion was used at the state level (percentages for each age category were calculated independently 

and only states that reported data for a given age category were included in the analysis), and because of this, 

percentages do not sum to 100%.

The survey comments many jurisdictions provided indicated that this age shift was partially 

attributable to the COVID-19 pandemic. The U.S. Centers for Disease Control and Prevention (CDC) 

stated that older adults are at greater risk of severe illness from COVID-19, with adults 65 years or 

older in the highest risk category. This risk category overlaps with the group of adults who typically 

make up the majority of poll workers in federal general elections. The 2020 EAVS data confirm that a 

number of older poll workers did not assist with the 2020 general election and that many younger 

adults took their places.
The COVID-19 pandemic also affected state and local efforts to obtain a sufficient number of poll 

workers to assist with the 2020 general election. Although poll worker recruitment remains a 

challenge, with 52% of jurisdictions reporting that it was either very difficult or somewhat difficult to 

obtain a sufficient number of poll workers, Figure 5 shows that poll worker recruitment has gotten 

less difficult since the 2016 general election.45 In their survey comments, many jurisdictions cited 

cross-cutting effects on their recruitment efforts. Some long-time poll workers who had served in 

previous elections were unable to do so for the 2020 general election; some were unable to work 

because of age-related COVID-19 risks, and in many cases, jurisdictions needed to replace workers 

who called out sick close to the election to quarantine after COVID-19 exposure. On the other hand, 

many jurisdiction officials praised the efforts of the EAC and state election offices that encouraged

Figure 5. Poll Worker Recruitment Was Less Difficult in 2020 Than in 2016

Source: Ease of recruiting poll workers was collected in item D8 in the 2020 EAVS and D5 in the 2016 EAVS. For both 

years, jurisdictions that responded, “not enough information to answer,” “data not available,” “does not apply,” or left this 

item blank were excluded from this analysis.

45 Data on the ease of recruiting poll workers were collected in item D8 of the 2020 EAVS and item D5 of the 2016 EAVS. 

In 2020, 3,436 of 6,460 jurisdictions (53.2%) responded “not enough information to answer,” “data not available,” “does 

not apply,” or left this item blank. The comparison between 2016 and 2020 data was statistically significant at p < 0.01. 

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Overview of Election Administration and Voting | 23

qualified individuals to sign up as poll workers. Some jurisdictions noted that they had overwhelming 

interest from those who view assisting with elections as a way to help their community and recruited 

more poll workers than they had available slots to fill.

Notably, ease of poll worker recruiting appears to be highly correlated with the size of the jurisdiction. 

Jurisdictions that had 10,000 or fewer registered voters reported having an easier time recruiting 

poll workers than did jurisdictions with more than 10,000 registered voters.46

Election Technology

The use of technology in polling places and vote tally locations varies widely across and within the 

states. The EAVS collects data on the type of voting equipment that is used and the type of voting 

that the equipment is used for, the specific makes and models of the equipment and how many are 

deployed, and whether electronic poll books (or e-poll books) are used to assist at polling places. The 

voting equipment landscape continues to evolve with each election.

Voting Equipment

The EAVS collects data on the use of six types of voting equipment that voters can use to cast their 

ballots:47

• Direct-recording electronic (DRE) voting equipment, not equipped with a voter-verified paper

audit trail (VVPAT)48

• DRE voting equipment, equipped with a VVPAT49

• Electronic system that produces a paper record but does not tabulate votes. These are often

referred to as ballot marking devices (BMD)50

• Scanner (optical/digital) that tabulates paper records that voters mark by hand or via a ballot

marking device51

46 For this comparison, jurisdictions were classified according to the total number of registered voters as reported in item 

A1a of the EAVS. This comparison was statistically significant at p < 0.001. 47 Two jurisdictions in Arkansas and 21 jurisdictions in Kansas did not provide any information about their voting 

equipment in the EAVS. Two jurisdictions in Missouri did not provide responses on the use of DREs with VVPAT (F6 in the 

EAVS), and an additional jurisdiction in Missouri did not provide responses on the use of ballot marking devices (BMD; F7 in 

the EAVS) or scanners (F8 in the EAVS). Five jurisdictions in Texas did not provide responses on the use of DREs without 

VVPAT (F5 in the EAVS), DREs with VVPAT, BMDs, or scanners. Twenty-six jurisdictions in Utah responded “data not 

available” to questions about BMDs, and one responded “data not available” to questions about scanners (F8 in the EAVS). 

In Vermont, 101 jurisdictions responded “does not apply” to questions about scanners, and 145 jurisdictions did not 

provide responses to questions about hand counting ballots (F11 in the EAVS). No jurisdictions in Kansas provided 

responses to questions about the use of BMDs or hand counting ballots. Two jurisdictions—Maine – UOCAVA and Kalawao 

County, Hawaii—responded “does not apply” to all of these questions; however, that is because these jurisdictions report 

EAVS data with other jurisdictions in their state (see Chapter 5 for more details).

48 Data on DREs without VVPAT were collected in items F5a, F5b, F5c, and F5d of the EAVS. 49 Data on DREs with VVPAT were collected in items F6a, F6b, F6c, and F6d of the EAVS. 50 Data on BMDs were collected in items F7a, F7b, F7c, and F7d of the EAVS. 51 Data on scanners were collected in items F8a, F8b, F8c, and F8d of the EAVS.
• Punch card machines52

• Lever machines53

The EAVS also collects information on whether jurisdictions hand count paper ballots without the use 

of an optical or digital scanning system.54

Figure 6. Scanners and BMDs Were the Most Commonly Used Voting Methods in 2020

Source: The use of scanners was collected in item F8a of the 2020 EAVS. Use of BMDs was collected in item F7a. Use of 

hand counting was collected in item F11a. Use of DRE with VVPAT was collected in item F6a. Use of DRE without VVPAT 

was collected in item F5a. States in which at least one EAVS jurisdiction reported using the voting equipment are included 

in this graph. Kansas did not respond to F7a or F11a. 

52 Data on punch card machines were collected in items F9a, F9b, F9c, and F9d of the EAVS. No jurisdictions have reported

using this equipment since before the 2016 EAVS. 

53 Data on lever machines were collected in items F10a, F10b, F10c, and F10d of the EAVS. No jurisdictions have reported

using this equipment since before the 2016 EAVS. 

54 Data on hand counting paper ballots were collected in items F11a and F11d of the EAVS. 

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Nationally, states reported deploying 369,366 pieces of voting equipment to cast and tabulate votes 

for the 2020 general election.55 Figure 6 shows the number of states that reported using voting 

equipment in at least one jurisdiction. Most jurisdictions and states used more than one type of 

equipment. The most commonly used types of equipment were scanners (used in 55 states) and

BMDs (used in 45 states). Twenty-one states reported hand counting ballots without using any 

equipment to assist, and 20 states used DREs equipped with a VVPAT.

The use of DREs without VVPAT has been a particular concern to some experts, because these 

machines do not include a paper record of the votes that are cast, which raises security issues and 

can make it difficult to conduct certain types of post-election audits. In the 2018 EAVS, 14 states

reported using DREs without VVPAT in at least one of their jurisdictions. The 2020 EAVS data show 

that only nine states now use this equipment in at least one of their jurisdictions: Arkansas, Indiana, 

Kansas, Kentucky, Louisiana, Mississippi, New Jersey, Tennessee, and Texas. Of these states, 

Louisiana reported using DREs without VVPAT in each of its jurisdictions. Five states that reported 

using DREs without VVPAT in 2018 discontinued using those machines by the 2020 general election 

(Delaware, Florida, Georgia, Pennsylvania, and South Carolina).

Table 3. DRE Without VVPAT-Only Jurisdictions Declined Between 2018 and 2020

State

2018 2020 

Number of 

Jurisdictions

Percentage of 

Jurisdictions

Number of 

Jurisdictions

Percentage of 

Jurisdictions

Arkansas 1 1.3% 0 --

Indiana 16 17.4% 12 13.0%

Kansas 7 6.7% 0 --

Kentucky 5 4.2% 0 --

Pennsylvania 50 74.6% 0 --

Tennessee 6 6.3% 1 1.1%

Texas 32 12.6% 19 7.5%

Source: The number of jurisdictions that reported using only DRE without VVPAT voting machines was based on responses 

to items F5a, F6a, F7a, and F8a of the 2018 and 2020 EAVS. The percentage of jurisdictions using only DRE without 

VVPAT was calculated by dividing by the total number of jurisdictions in the state. One county in Florida that reported using 

a DRE without VVPAT in 2018 was not included in this table, because the county had listed a make and model of a 

scanner in item F5b_1 in its 2018 data, which indicates a possible data entry error. None of the counties in Kansas that 

did not provide voting equipment information for the 2020 EAVS reported using DREs without VVPAT in the 2018 EAVS.

55 The number of voting machines deployed was reported in items F5c_1, F5c_2, F5c_3, F6c_1, F6c_2, F6c_3, F7c_1, 

F7c_2, F7c_3, F8c_1, F8c_2, F8c_3, F9c_1, F9c_2, F9c_3, F10c_1, F10c_2, and F10c_3 of the EAVS. These items were 

summed for each jurisdiction to arrive at this total. American Samoa did not report the number of voting machines 

deployed, because this territory only uses hand-marked paper ballots that are manually counted. Oregon and Wisconsin 

reported that they do not track the number of voting machines deployed. Before this report’s finalization, Virginia notified 

the EAC that the statewide number of BMDs in F7c_1, F7c_2, and F7c_3 was 2,533, not “data not available.” 
The number of jurisdictions that reported using only DREs without VVPAT and not using any other 

type of voting equipment also declined between 2018 and 2020. Table 3 shows that for the 2020 

general election, only three states reported having jurisdictions that used only DREs without VVPAT 

as their voting equipment, and in each of those states, the percentage of their jurisdictions that used 

only DRE without VVPAT has also decreased since 2018.

Electronic Poll Books

When voters go into polling places, their identity is checked against voter registration information 

that is contained in poll books to ensure they are registered to vote and did not already cast a ballot 

during in-person early voting or with a mailed ballot. These poll books can be paper based and 

printed before the election, or they can be electronic. The use of e-poll books has steadily increased 

in recent elections. For the 2016 general election, 1,146 jurisdictions (17.7%) reported using e-poll 

books; this number rose to 1,684 (26.1%) in 2018 and to 1,991 (30.8%) in 2020. The number of 

jurisdictions that used e-poll books in 2020 represents an 18.2% increase from 2018.

As of the 2020 general election, 38 states reported using e-poll books in at least one of their 

jurisdictions, and 16 states and territories (Arizona, Delaware, Georgia, Iowa, Kentucky, Maryland, 

Michigan, Nevada, New Mexico, New York, North Carolina, North Dakota, Puerto Rico, Rhode Island, 

South Carolina, and the U.S. Virgin Islands) and the District of Columbia reported using e-poll books 

in all of their jurisdictions. Of the jurisdictions that reported using e-poll books, the most common 

usages were to sign voters in at polling places (98.9%), update voter history (87.8%), and look up 

polling places (79.5%), and 20.7% of jurisdictions reported using e-poll books for other uses as 

well.56

The 2020 Policy Survey also collected information on whether states have a testing or certification 

process in place for e-poll books.57 Of the 39 states that provided a response to this question, 12 

states (30.8%) indicated that the testing and certification process is required by statute, 10 states 

(25.6%) indicated that the testing and certification process is required by a formal administrative 

rule or as guidance, and 17 states (43.6%) indicated that testing and certification of e-poll books is 

not required.58 The EAC does not currently provide testing or certification of e-poll books; any testing

that states perform on their equipment is performed to the state’s specifications.

56 Use of e-poll books to sign voters in was reported in item F3a of the EAVS. Use of e-poll books to update voter history was

reported in item F3b. Use of e-poll books to look up polling places was reported in item F3c. Use of e-poll books for other

purposes was reported in item F3d. A jurisdiction was considered to have used e-poll books in 2020 if it responded “yes” to 

at least one of these items. 

57 Q16 of the 2020 Policy Survey collected information on whether the state, or any jurisdiction in the state, used e-poll

books. Colorado, Hawaii, and Massachusetts reported in the Policy Survey that they used e-poll books but did not report 

data on the usage of e-poll books in item F3 of the EAVS; Colorado noted in a comment in the Policy Survey that “CO’s

statewide voter registration system has an application that allows judges at vote centers to look up in-person voters and

see whether they’ve returned a ballot. There is no testing and certification because the application is developed and 

maintained by our VR development team in our IT department.” Puerto Rico reported data on the usage of e-poll books in

the EAVS but reported not using e-poll books in the Policy Survey.

58 Q16a of the 2020 Policy Survey collected information on what kind of testing or certification is required for e-poll books.

Illinois did not provide a response to this question. 

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Appendix A: Descriptive Tables

Overview Table 1: 2020 EAVS at a Glance

State Total 

Jurisdictions

Total Active 

Registered 

Voters

Total CVAP Total Voter 

Turnout

Turnout as % 

of Active 

Registration

Turnout 

as % of 

CVAP

Alabama [1] 67 3,438,213 3,731,336 2,329,047 67.7 62.4 

Alaska 1 595,647 533,151 361,400 60.7 67.8 

American Samoa [2] 1 16,341 -- 11,944 73.1 --

Arizona 15 4,275,729 5,137,474 3,420,481 80.0 66.6 

Arkansas 75 1,408,061 2,235,415 1,209,997 85.9 54.1 

California 58 21,795,538 26,032,160 17,720,746 81.3 68.1 

Colorado 64 3,803,762 4,244,210 3,320,607 87.3 78.2 

Connecticut [1] 169 2,335,860 2,619,474 1,863,479 79.8 71.1 

Delaware 3 711,287 725,178 514,656 72.4 71.0 

District of Columbia 1 517,890 536,768 346,491 66.9 64.6 

Florida 67 14,517,002 15,507,315 11,137,676 76.7 71.8 

Georgia 159 7,194,889 7,581,837 5,023,812 69.8 66.3 

Guam [2] 1 55,896 -- 29,377 52.6 --

Hawaii [3] 5 759,971 1,014,035 580,098 76.3 57.2 

Idaho 44 1,029,763 1,282,630 878,527 85.3 68.5 

Illinois 108 9,103,542 9,088,036 6,140,545 67.5 67.6 

Indiana 92 4,170,353 4,978,356 3,103,284 74.4 62.3 

Iowa [1] 99 2,094,770 2,348,787 1,700,130 81.2 72.4 

Kansas [4] 105 1,764,949 2,103,748 1,379,623 78.2 65.6 

Kentucky 120 3,319,307 3,367,502 2,149,444 64.8 63.8 

Louisiana 64 2,963,901 3,463,372 2,169,354 73.2 62.6 

Maine 497 1,135,008 1,078,770 822,534 72.5 76.2 

Maryland 24 4,142,347 4,316,921 3,059,603 73.9 70.9 

Massachusetts 351 4,400,254 5,057,192 3,658,005 83.1 72.3 

Michigan [5] 83 7,209,300 7,562,464 5,579,317 77.4 73.8 

Minnesota 87 3,731,016 4,157,556 3,290,013 88.2 79.1 

Mississippi [1] 82 1,982,632 2,246,323 1,334,155 67.3 59.4 

Missouri [1] 116 3,963,980 4,650,318 3,201,458 80.8 68.8 

Montana [1] 56 675,971 831,760 612,141 90.6 73.6 

Nebraska 93 1,168,708 1,388,950 966,786 82.7 69.6 

Nevada 17 1,835,401 2,111,932 1,407,761 76.7 66.7 

New Hampshire [1], [6] 320 1,087,145 1,070,215 814,499 74.9 76.1 

New Jersey [7] 21 5,896,836 6,170,130 4,494,659 76.2 72.8 

New Mexico 33 1,255,669 1,522,171 928,230 73.9 61.0 

New York 62 12,362,997 13,810,830 8,701,749 70.4 63.0 
28 | Overview of Election Administration and Voting 

State Total 

Jurisdictions

Total Active 

Registered 

Voters

Total CVAP Total Voter 

Turnout

Turnout as % 

of Active 

Registration

Turnout 

as % of 

CVAP

North Carolina 100 6,607,121 7,729,644 5,543,405 83.9 71.7 

North Dakota [8] 53 -- 567,545 364,499 -- 64.2 

Northern Mariana 

Islands [2] 1 18,526 -- 13,355 72.1 --

Ohio 88 8,073,829 8,879,469 5,974,121 74.0 67.3 

Oklahoma 77 2,021,846 2,875,059 1,564,886 77.4 54.4 

Oregon [9] 36 2,944,588 3,162,204 2,396,123 81.4 75.8 

Pennsylvania [10] 67 8,280,348 9,810,201 6,973,951 84.2 71.1 

Puerto Rico [11] 1 2,355,894 2,579,596 1,296,169 55.0 50.2 

Rhode Island [1] 39 735,195 800,798 519,412 70.6 64.9 

South Carolina 46 3,535,061 3,892,341 2,523,856 71.4 64.8 

South Dakota 66 578,683 653,394 427,406 73.9 65.4 

Tennessee 95 4,226,928 5,129,580 3,074,692 72.7 59.9 

Texas 254 15,279,870 18,875,542 11,449,044 74.9 60.7 

U.S. Virgin Islands [2] 1 53,341 -- 18,064 33.9 --

Utah 29 1,713,297 2,134,249 1,542,529 90.0 72.3 

Vermont [12] 246 440,920 498,705 368,075 83.5 73.8 

Virginia [13] 133 5,763,187 6,226,623 4,487,338 77.9 72.1 

Washington [14] 39 4,892,871 5,409,035 4,116,055 84.1 76.1 

West Virginia 55 1,062,685 1,420,289 801,667 75.4 56.4 

Wisconsin [15] 1,851 3,834,164 4,412,888 3,308,331 86.3 75.0 

Wyoming 23 303,049 434,852 278,503 91.9 64.0 

U.S. Total 6,460 209,441,338 237,998,330 161,303,109 76.8 67.7 
Overview of Election Administration and Voting | 29

State

Total In-Person 

Election Day 

Ballots Cast 

and Counted

Total Mailed 

Ballots Cast 

and Counted

Total In-Person 

Early Ballots 

Cast and 

Counted

Total Polling 

Places

Total Poll 

Workers 

Alabama [1] 2,014,242 300,684 -- 2,045 16,128 

Alaska 157,220 92,471 82,451 584 3,077 

American Samoa [2] 10,310 905 455 42 256 

Arizona 371,565 2,931,175 69,063 928 7,482 

Arkansas 258,836 84,910 830,561 20,889 6,549 

California 1,124,389 14,515,783 966,201 5,655 48,221 

Colorado 89,789 3,092,904 108,856 642 7,185 

Connecticut [1] 1,188,283 667,403 -- 718 3,590 

Delaware 345,809 161,135 5,236 267 3,157 

District of Columbia 29,036 229,459 80,959 127 4,467 

Florida 1,942,102 4,546,896 4,332,912 4,858 44,857 

Georgia 980,627 1,311,361 2,704,002 2,755 27,474 

Guam [2] 16,167 108 12,966 27 465 

Hawaii [3] 4,522 548,636 24,214 16 64 

Idaho 384,319 345,636 145,388 754 5,815 

Illinois 2,049,927 2,037,583 2,005,711 19,684 46,711 

Indiana 1,201,154 535,942 1,354,897 2,137 17,557 

Iowa [1] 698,557 994,300 -- 1,329 8,685 

Kansas [4] 505,132 463,909 375,196 -- 8,412 

Kentucky 477,612 631,497 1,024,965 879 8,528 

Louisiana 1,182,672 162,692 817,951 2,096 16,980 

Maine 311,560 359,331 151,535 1,040 6,054 

Maryland 439,094 1,502,852 987,373 401 14,033 

Massachusetts 1,256,443 1,521,052 852,926 1,611 13,044 

Michigan [5] 2,286,764 2,741,668 529,015 4,950 35,825 

Minnesota 1,380,309 1,286,660 607,304 2,581 29,785 

Mississippi [1] 1,085,337 234,500 -- 1,776 11,358 

Missouri [1] 2,288,607 899,695 -- 2,326 19,075 

Montana [1] 9,497 597,912 -- 43 1,592 

Nebraska 417,349 485,195 51,537 1,015 7,810 

Nevada 128,729 664,461 540,767 307 4,653 

New Hampshire [1], [6] 554,315 253,932 -- 308 --

New Jersey [7] 987 4,178,875 -- 1,549 7,603 

New Mexico 142,470 323,661 456,280 883 4,165 

New York 4,284,263 1,763,448 2,502,161 5,124 118,378 

North Carolina 896,818 974,351 3,460,562 3,203 26,608 

North Dakota [8] 91,803 183,161 87,882 128 1,607 

Northern Mariana 

Islands [2] 3,970 12,321 8,130 11 189 
30 | Overview of Election Administration and Voting 

State

Total In-Person 

Election Day 

Ballots Cast 

and Counted

Total Mailed 

Ballots Cast 

and Counted

Total In-Person 

Early Ballots 

Cast and 

Counted

Total Polling 

Places

Total Poll 

Workers 

Ohio 2,344,886 2,135,600 1,345,715 3,651 47,761 

Oklahoma 1,114,001 275,017 167,516 2,032 6,552 

Oregon [9] -- 2,379,544 -- 36 --

Pennsylvania [10] 4,214,277 2,623,867 -- 9,246 --

Puerto Rico [11] 1,092,637 145,244 48,724 1,612 --

Rhode Island [1] 198,611 318,313 -- 500 3,594 

South Carolina 1,182,726 428,704 894,078 2,091 17,135 

South Dakota 208,396 122,525 93,469 573 2,675 

Tennessee 766,552 216,074 2,071,168 2,066 17,831 

Texas 1,707,821 982,362 8,660,809 9,604 49,441 

U.S. Virgin Islands [2] 8,119 1,670 8,173 12 190 

Utah 81,970 1,386,385 35,048 196 1,619 

Vermont [12] 90,959 272,318 2,033 521 --

Virginia [13] 1,657,228 983,907 1,798,050 2,587 30,403 

Washington [14] -- 4,050,981 183 66 --

West Virginia 396,926 142,191 256,113 1,421 8,324 

Wisconsin [15] 1,337,269 1,298,346 651,791 2,467 --

Wyoming 135,426 85,454 55,903 187 2,137 

U.S. Total 47,148,389 69,486,966 41,266,229 132,556 775,101 

Overview Table 1 Calculation Notes: 

Total Jurisdictions uses a count of Federal Information Processing Standards (FIPS) code by state.

Total Active Registered Voters uses question A1b.

Total CVAP uses the 2019 1-year estimate of the CVAP from the U.S. Census Bureau.

Total Voter Turnout uses question F1a.

Turnout as % of Active Registration uses question F1a divided by A1b. 

Turnout as % of CVAP uses question F1a divided by the CVAP estimate.

Total In-Person Election Day Ballots Cast and Counted uses question F1b.

Total Mailed Ballots Cast and Counted uses the sum of questions F1d and F1g.

Total In-Person Early Ballots Cast and Counted uses question F1f.

Total Polling Places uses the sum of questions D3a and D4a.

Total Poll Workers uses question D7a.

Overview Table 1 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation. For example, since there was no CVAP

estimate for most U.S. territories, their turnout data (F1a) were not used for the calculation of

“Turnout as % of CVAP” at the national level.
Overview of Election Administration and Voting | 31

• The CVAP is an estimate of the number of U.S. citizens 18 years of age or older in the state. This

report used the 1-year American Community Survey (ACS) state estimate for 2019 instead of the

5-year estimate to ensure that the CVAP was as current as possible. The estimate for the year

2020 was not available by the time this report was finalized. The 2019 1-year CVAP does not

include data that were collected as part of the decennial Census conducted in 2020. Some states

may have reported more active registered voters than CVAP because the 2019 CVAP is being

compared to 2020 data.

• The Total Voter Turnout column includes voters who cast a ballot that was counted. The Total

Mailed Ballots Cast and Counted column does not include UOCAVA voters.

[1] Alabama, Connecticut, Iowa, Missouri, Mississippi, Montana, New Hampshire, and Rhode Island did not

report data in F1f, because the number of in-person early voters could not be tracked separately from

other modes of participation.

[2] American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands did not have a CVAP

available to use for the turnout as a percentage of CVAP calculation.

[3] For Hawaii, the numbers reported for the City and County of Honolulu include all mailed ballot

envelopes received and validated by the county. Certified turnout results were determined through

subsequent ballot envelope processing and counting by the State of Hawaii, pursuant to Hawaii State Law.

[4] Kansas did not provide data on polling places.

[5] Michigan noted in its survey comments that “walk-in absentee voting prior to Election Day is considered

early voting in [Michigan]. These absentee ballots are not tabulated until Election Day.” Data on these

walk-in absentee voters was reported in F1f.

[6] New Hampshire provided information on the minimum number of early voting and Election Day poll

workers required by law but noted that it may not reflect the number of poll workers actually deployed.

[7] New Jersey did not report data in F1f, because the state did not offer in-person early voting.

[8] North Dakota does not have voter registration.

[9] Oregon is a vote-by-mail state and does not have traditional early voting or traditional polling places.

[10] Pennsylvania reported that the state cannot systematically track data on poll workers.

[11] Puerto Rico reported that data on poll workers are not available and that poll workers were

volunteers, not PR-SEC employees (the abbreviation was not defined by the state).

[12] Vermont did not provide data on the number of poll workers. Prior to this report being finalized,

Vermont provided updated statewide totals for most items in F1 but was unable to provide jurisdictionlevel data that could be incorporated into the EAVS. The statewide vote totals are:

• Total number of voters who cast a ballot that was counted (F1a): 371,452

• Voters who cast a ballot at a physical polling place on Election Day and whose ballots were

counted (F1b): 91,079

• UOCAVA voters who cast a ballot via an absentee ballot or FWAB and whose ballots were counted

(F1c): 2,719

• Voters who cast a mailed ballot and whose ballots were counted (F1d): 225,621

• Voters who cast a ballot at an in-person early voting location and whose ballots were counted

(F1f): 2,033

[13] Before this report’s finalization, Virginia notified the EAC that the statewide number of early voting

polling places in D4a was 208, not 133.

[14] Washington is a vote-by-mail state. Voters can register and vote on or before Election Day. The total in

F1g (voters who cast a mailed ballot in a jurisdiction that conducts elections entirely by mail and whose

ballots were counted) includes in-person voters that were issued a mailed ballot packet at a voting center
32 | Overview of Election Administration and Voting 

that they could deposit into a ballot drop box or mail. Totals in F1f (voters who cast a ballot at an in-person 

early voting location and whose ballots were counted) include voters who used a disability access unit.

[15] The number of jurisdictions in Wisconsin changed several times over the two-year period covered by

the 2020 EAVS due to incorporations, mergers, and similar mechanisms. Wisconsin canvass data tracks

individual contests, and therefore, the total ballots cast in any election is highly unlikely to match the total

votes cast in any one contest. Wisconsin voters are not required to vote in each contest on the ballot and

undervotes are the likely cause of total ballots cast data being higher than the number of votes in a

contest.
Overview of Election Administration and Voting | 33

Overview Table 2: Voter Turnout by Mail

State Total Mail 

Voters

% Turnout by 

Mail

Total Mailed

Ballots 

Transmitted

Total Mailed

Ballots 

Returned

% Mailed

Ballots 

Returned

Alabama [1] 300,684 12.9 170,616 158,321 92.8

Alaska 92,471 25.6 121,223 97,344 80.3

American Samoa 905 7.6 911 911 100.0

Arizona 2,931,175 85.7 3,529,586 2,938,896 83.3

Arkansas 84,910 7.0 120,369 117,555 97.7

California 14,515,783 81.9 23,228,899 15,398,923 66.3

Colorado 3,092,904 93.1 3,904,381 3,122,440 80.0

Connecticut 667,403 35.8 832,542 673,899 80.9

Delaware 161,135 31.3 187,360 163,234 87.1

District of Columbia 229,459 66.2 416,660 235,486 56.5

Florida 4,546,896 40.8 6,065,500 4,750,645 78.3

Georgia [2] 1,311,361 26.1 1,759,036 1,316,165 74.8

Guam 108 0.4 193 129 66.8

Hawaii 548,636 94.6 748,944 551,383 73.6

Idaho [3] 345,636 39.3 407,323 344,893 84.7

Illinois 2,037,583 33.2 2,233,578 2,013,990 90.2

Indiana 535,942 17.3 547,602 538,860 98.4

Iowa 994,300 58.5 1,050,593 997,652 95.0

Kansas [4] 463,909 33.6 362,948 295,021 81.3

Kentucky 631,497 29.4 666,472 634,595 95.2

Louisiana 162,692 7.5 218,057 163,656 75.1

Maine 359,331 43.7 373,478 362,594 97.1

Maryland 1,502,852 49.1 1,699,070 1,505,791 88.6

Massachusetts 1,521,052 41.6 1,679,267 1,531,001 91.2

Michigan 2,741,668 49.1 3,009,891 2,762,148 91.8

Minnesota 1,286,660 39.1 1,545,345 1,295,908 83.9

Mississippi 234,500 17.6 247,855 239,488 96.6

Missouri 899,695 28.1 935,659 905,132 96.7

Montana 597,912 97.7 704,040 599,505 85.2

Nebraska 485,195 50.2 508,049 486,844 95.8

Nevada 664,461 47.2 1,833,795 670,091 36.5

New Hampshire 253,932 31.2 263,447 255,935 97.1

New Jersey 4,178,875 93.0 6,053,283 4,228,687 69.9

New Mexico 323,661 34.9 373,548 339,906 91.0

New York 1,763,448 20.3 2,366,172 1,832,724 77.5

North Carolina 974,351 17.6 1,350,883 981,816 72.7

North Dakota 183,161 50.3 214,506 183,544 85.6
34 | Overview of Election Administration and Voting 

State Total Mail 

Voters

% Turnout by 

Mail

Total Mailed

Ballots 

Transmitted

Total Mailed

Ballots 

Returned

% Mailed

Ballots 

Returned

Northern Mariana 

Islands [5] 12,321 92.3 1,670 1,670 100.0 

Ohio 2,135,600 35.7 2,314,198 2,144,504 92.7 

Oklahoma 275,017 17.6 344,600 280,106 81.3 

Oregon 2,379,544 99.3 2,924,063 2,397,091 82.0 

Pennsylvania 2,623,867 37.6 3,120,999 2,653,688 85.0 

Puerto Rico [6] 145,244 11.2 22,403 22,402 100.0 

Rhode Island 318,313 61.3 318,313 318,426 100.0 

South Carolina 428,704 17.0 447,697 430,229 96.1 

South Dakota 122,525 28.7 132,529 123,406 93.1 

Tennessee 216,074 7.0 229,768 218,149 94.9 

Texas 982,362 8.6 1,208,665 988,364 81.8 

U.S. Virgin Islands 1,670 9.2 1,846 1,682 91.1 

Utah 1,386,385 89.9 1,752,928 1,396,681 79.7 

Vermont 272,318 74.0 313,193 273,784 87.4 

Virginia 983,907 21.9 1,099,502 990,198 90.1 

Washington 4,050,981 98.4 5,042,956 4,082,581 81.0 

West Virginia 142,191 17.7 150,202 142,445 94.8 

Wisconsin [7] 1,298,346 39.2 1,441,825 1,305,082 90.5 

Wyoming 85,454 30.7 89,540 85,627 95.6 

U.S. Total 69,486,966 43.1 90,687,978 70,551,227 77.8 
Overview of Election Administration and Voting | 35

State

Mailed Ballots Counted Mailed Ballots Rejected

Total % of Returned Total % of Returned

Alabama [1] -- -- -- --

Alaska 96,701 99.3 643 0.7

American Samoa 905 99.3 6 0.7

Arizona 2,931,164 99.7 7,732 0.3

Arkansas 84,232 71.7 7,561 6.4

California 15,305,243 99.4 92,924 0.6

Colorado 3,092,904 99.1 29,536 0.9

Connecticut 667,403 99.0 6,496 1.0

Delaware 161,135 98.7 2,099 1.3

District of Columbia 234,758 99.7 728 0.3

Florida 4,740,149 99.8 13,919 0.3

Georgia [2] 1,311,361 99.6 4,804 0.4

Guam 108 83.7 21 16.3

Hawaii 548,636 99.5 2,747 0.5

Idaho [3] 352,641 102.2 3,613 1.0

Illinois 1,986,445 98.6 33,853 1.7

Indiana 535,942 99.5 2,918 0.5

Iowa 994,300 99.7 2,592 0.3

Kansas [4] 24,924 8.4 1,361 0.5

Kentucky 631,497 99.5 3,101 0.5

Louisiana 161,292 98.6 2,364 1.4

Maine 359,331 99.1 1,326 0.4

Maryland 1,502,852 99.8 2,939 0.2

Massachusetts 1,521,052 99.4 9,949 0.6

Michigan 2,741,668 99.3 20,480 0.7

Minnesota 1,286,660 99.3 9,248 0.7

Mississippi 233,925 97.7 5,563 2.3

Missouri 899,695 99.4 5,437 0.6

Montana 597,912 99.7 1,593 0.3

Nebraska 485,195 99.7 1,649 0.3

Nevada 664,461 99.2 5,630 0.8

New Hampshire 253,932 99.2 2,003 0.8

New Jersey 4,178,875 98.8 49,812 1.2

New Mexico 328,631 96.7 17,008 5.0

New York 1,763,448 96.2 66,746 3.6

North Carolina 974,351 99.2 7,465 0.8

North Dakota 183,152 99.8 392 0.2

Northern Mariana 

Islands [5] 1,193 71.4 144 8.6 
36 | Overview of Election Administration and Voting 

State

Mailed Ballots Counted Mailed Ballots Rejected

Total % of Returned Total % of Returned

Ohio 2,135,600 99.6 8,904 0.4

Oklahoma 275,017 98.2 5,089 1.8

Oregon 2,379,544 99.3 17,547 0.7

Pennsylvania 2,619,517 98.7 34,171 1.3

Puerto Rico [6] 22,402 100.0 -- --

Rhode Island 318,313 100.0 113 0.0

South Carolina 425,701 98.9 4,528 1.1

South Dakota 122,525 99.3 789 0.6

Tennessee 216,074 99.0 2,090 1.0

Texas 982,362 99.4 8,304 0.8

U.S. Virgin Islands 1,670 99.3 12 0.7

Utah 1,386,385 99.3 10,296 0.7

Vermont 272,318 99.5 1,465 0.5

Virginia 983,907 99.4 6,291 0.6

Washington 4,051,164 99.2 31,417 0.8

West Virginia 142,191 99.8 254 0.2

Wisconsin [7] 1,302,101 99.8 2,981 0.2

Wyoming 85,454 99.8 173 0.2

U.S. Total 69,560,318 98.8 560,826 0.8 

Overview Table 2 Calculation Notes: 

Total Mail Voters uses the sum of questions F1d and F1g.

% Turnout by Mail uses the sum of questions F1d and F1g divided by question F1a.

Total Mailed Ballots Transmitted uses question C1a.

Total Mailed Ballots Returned uses question C1b.

% Mailed Ballots Returned uses question C1b divided by question C1a.

Mailed Ballots Counted, Total uses question C3a.

Mailed Ballots Counted, % of Returned uses question C3a divided by question C1b.

Mailed Ballots Rejected, Total uses question C4a.

Mailed Ballots Rejected, % of Returned uses question C4a divided by question C1b.

Overview Table 2 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Because each percentage was calculated independently, the percentages of mailed ballots

counted and rejected may not sum to 100% for some states or at the national level.

• The Total Mail Voters column reflects the number of voters who cast a ballot by mail that was

counted. It does not include voters who cast a UOCAVA ballot or FWAB.
Overview of Election Administration and Voting | 37

• The Total Mailed Ballots Transmitted column captures the total number of mailed ballots that

states reported transmitting, regardless of whether the ballot was returned or not. The number of

ballots transmitted typically exceeds the number of ballots returned because some voters who

transmitted a mailed ballot choose to vote by another mode or to not vote at all. Total Mailed

Ballots Returned typically exceeds Total Mail Voters because some returned mailed ballots are

rejected for not meeting state requirements. Mailed Ballots Counted may not match Total Mail

Voters because states may have different methodologies for calculating these numbers.

• The Total Mailed Ballots Returned column includes both counted and rejected ballots that were

returned to election offices.

[1] Alabama reported mail and early in-person voting data together as the Total Mail Voters (300,684).

Both are considered absentee voting; thus, the data for transmission method are commingled and cannot

be reported separately.

[2] Data on rejected mailed ballots for Georgia include rejected ballots entered by counties into the state

voter registration system as of February 2021, which does not necessarily include all ballots rejected by

counties.

[3] Butte County and Valley County in Idaho responded “Data not available” to the number of mailed

ballots received (C1b) but reported data for the number of mailed ballots counted (C3a). Madison County

and Valley County in Idaho reported more mailed ballots counted than mailed ballots received. Because of

these responses, the total number of mailed ballots counted exceeds the number of mailed ballots

received at the state level for Idaho, and the percentage of returned ballots that were counted exceeds

100%.

[4] Kansas did not provide any survey comments to explain why the data reported in the Total Mail Voters

column exceeds that of the Total Mailed Ballots Transmitted column, nor why the percentage of mailed

ballots counted and rejected does not sum to 100%. Some jurisdictions that reported data on Total Mail

Voters did not provide data for Total Mailed Ballots Transmitted.

[5] The Northern Mariana Islands did not provide any survey comments to explain why the data reported in

the Total Mail Voters column exceeds that of the Total Mailed Ballots Transmitted column, nor why the

percentages of mailed ballots counted and rejected does not sum to 100%.

[6] Puerto Rico reported “data not available” in question C4. In addition, this territory noted in a survey

comment that the Total Mail Voters column may include ballots for non-federal elections and that its

response in the Total Mail Voters and % Turnout by Mail columns includes “voters who [cast] their vote

early but in their home, not in a polling location.”

[7] Local election officials in Wisconsin were still recording voter participation method at the time data was

provided for this report; therefore, the Total Mail Voters data were incomplete. These data are currently

available from the state.
38 | Overview of Election Administration and Voting 

Overview Table 3: In-Person Voting and Other Modes of Voting

State

In-Person Election Day 

Voters In-Person Early Voters Provisional Voters

Total % Total % Total % 

Alabama [1] 2,014,242 86.5 -- -- 8,840 0.4 

Alaska [2] 157,220 43.5 82,451 22.8 11,509 3.2 

American Samoa 10,310 86.3 455 3.8 12 0.1 

Arizona 371,565 10.9 69,063 2.0 30,151 0.9 

Arkansas [3] 258,836 21.4 830,561 68.6 5,082 0.4 

California [4] 1,124,389 6.3 966,201 5.5 216,781 1.2 

Colorado 89,789 2.7 108,856 3.3 150 0.0 

Connecticut [1] 1,188,283 63.8 -- -- 104 0.0 

Delaware 345,809 67.2 5,236 1.0 107 0.0 

District of Columbia 29,036 8.4 80,959 23.4 1,738 0.5 

Florida [5] 1,942,102 17.4 4,332,912 38.9 7,169 0.1 

Georgia 980,627 19.5 2,704,002 53.8 9,347 0.2 

Guam 16,167 55.0 12,966 44.1 71 0.2 

Hawaii 4,522 0.8 24,214 4.2 6 0.0 

Idaho [6] 384,319 43.7 145,388 16.5 0 0.0

Illinois 2,049,927 33.4 2,005,711 32.7 42,003 0.7 

Indiana 1,201,154 38.7 1,354,897 43.7 1,348 0.0 

Iowa [1] 698,557 41.1 -- -- 1,293 0.1 

Kansas 505,132 36.6 375,196 27.2 36,107 2.6 

Kentucky 477,612 22.2 1,024,965 47.7 77 0.0 

Louisiana 1,182,672 54.5 817,951 37.7 658 0.0 

Maine 311,560 37.9 151,535 18.4 108 0.0 

Maryland 439,094 14.4 987,373 32.3 108,478 3.5 

Massachusetts [7] 1,256,443 34.3 852,926 23.3 1,724 0.0 

Michigan [8] 2,286,764 41.0 529,015 9.5 77 0.0 

Minnesota [6] 1,380,309 42.0 607,304 18.5 -- --

Mississippi [1] 1,085,337 81.4 -- -- 11,358 0.9 

Missouri [1] 2,288,607 71.5 -- -- 2,139 0.1 

Montana [1] 9,497 1.6 -- -- 364 0.1 

Nebraska 417,349 43.2 51,537 5.3 9,998 1.0 

Nevada 128,729 9.1 540,767 38.4 66,359 4.7 

New Hampshire [1],

[6] 554,315 68.1 -- -- -- --

New Jersey [9] 987 0.0 -- -- 293,894 6.5

New Mexico [10] 142,470 15.3 456,280 49.2 687 0.1

New York 4,284,263 49.2 2,502,161 28.8 84,884 1.0

North Carolina [11] 896,818 16.2 3,460,562 62.4 16,388 0.3

North Dakota [6] 91,803 25.2 87,882 24.1 -- --
Overview of Election Administration and Voting | 39

State

In-Person Election Day 

Voters In-Person Early Voters Provisional Voters

Total % Total % Total % 

Northern Mariana 

Islands 3,970 29.7 8,130 60.9 24 0.2 

Ohio 2,344,886 39.3 1,345,715 22.5 126,066 2.1

Oklahoma 1,114,001 71.2 167,516 10.7 1,986 0.1

Oregon [12] -- -- -- -- 45 0.0

Pennsylvania [13] 4,214,277 60.4 -- -- 106,951 1.5

Puerto Rico 1,092,637 84.3 48,724 3.8 8,977 0.7

Rhode Island [1], [14] 198,611 38.2 -- -- 2,488 0.5

South Carolina 1,182,726 46.9 894,078 35.4 5,442 0.2

South Dakota 208,396 48.8 93,469 21.9 65 0.0

Tennessee 766,552 24.9 2,071,168 67.4 6,222 0.2

Texas 1,707,821 14.9 8,660,809 75.6 37,760 0.3

U.S. Virgin Islands 8,119 44.9 8,173 45.2 94 0.5

Utah 81,970 5.3 35,048 2.3 31,652 2.1

Vermont [6] 90,959 24.7 2,033 0.6 -- --

Virginia 1,657,228 36.9 1,798,050 40.1 15,825 0.4

Washington [15] -- -- 183 0.0 43 0.0

West Virginia 396,926 49.5 256,113 31.9 4,222 0.5

Wisconsin [16] 1,337,269 40.4 651,791 19.7 57 0.0

Wyoming 135,426 48.6 55,903 20.1 15 0.0

U.S. Total 47,148,389 30.5 41,266,229 30.6 1,316,945 0.8 
40 | Overview of Election Administration and Voting 

State

UOCAVA Voters Other Voters

Total % Total % 

Alabama [1] 5,281 0.2 -- --

Alaska [2] 13,519 3.7 4,230 1.2 

American Samoa 214 1.8 -- --

Arizona 18,527 0.5 -- --

Arkansas [3] 30,512 2.5 174 0.0 

California [4] 93,452 0.5 923,698 5.2 

Colorado 28,908 0.9 -- --

Connecticut [1] 7,689 0.4 -- --

Delaware 2,369 0.5 -- --

District of Columbia 5,299 1.5 -- --

Florida [5] 116,364 1.0 184,533 1.7 

Georgia 18,475 0.4 -- --

Guam 65 0.2 -- --

Hawaii 2,720 0.5 -- --

Idaho [6] 3,184 0.4 -- --

Illinois 24,297 0.4 -- --

Indiana 9,943 0.3 -- --

Iowa [1] 5,980 0.4 -- --

Kansas 5,434 0.4 -- --

Kentucky 4,664 0.2 -- --

Louisiana 5,919 0.3 -- --

Maine 5,771 0.7 -- --

Maryland 21,806 0.7 -- --

Massachusetts [7] 25,331 0.7 529 0.0 

Michigan [8] 21,793 0.4 -- --

Minnesota [6] 15,740 0.5 -- --

Mississippi [1] 2,960 0.2 -- --

Missouri [1] 11,017 0.3 -- --

Montana [1] 4,368 0.7 -- --

Nebraska 2,707 0.3 -- --

Nevada 7,445 0.5 -- --

New Hampshire [1],

[6] 6,252 0.8 -- --

New Jersey [9] 20,903 0.5 -- --

New Mexico [10] 5,132 0.6 284 0.0

New York 66,993 0.8 -- --

North Carolina [11] 26,386 0.5 168,900 3.0

North Dakota [6] 1,653 0.5 -- --

Northern Mariana 

Islands 0 0.0 -- --
Overview of Election Administration and Voting | 41

State

UOCAVA Voters Other Voters

Total % Total % 

Ohio 21,854 0.4 -- --

Oklahoma 6,366 0.4 -- --

Oregon [12] 16,534 0.7 -- --

Pennsylvania [13] 28,014 0.4 842 0.0 

Puerto Rico 587 0.0 -- --

Rhode Island [1], [14] -- -- -- --

South Carolina 12,906 0.5 -- --

South Dakota 2,951 0.7 -- --

Tennessee 14,676 0.5 -- --

Texas 60,292 0.5 -- --

U.S. Virgin Islands 8 0.0 -- --

Utah 7,474 0.5 -- --

Vermont [6] 2,986 0.8 -- --

Virginia 32,328 0.7 -- --

Washington [15] 64,848 1.6 -- --

West Virginia 2,215 0.3 -- --

Wisconsin [16] 13,481 0.4 7,387 0.2 

Wyoming 1,705 0.6 -- --

U.S. Total 938,297 0.6 1,290,577 2.5 

Overview Table 3 Calculation Notes: 

In-Person Election Day Voters, Total uses question F1b.

In-Person Election Day Voters, % uses question F1b divided by question F1a.

In-Person Early Voters, Total uses question F1f.

In-Person Early Voters, % uses question F1f divided by question F1a.

Provisional Voters, Total uses question F1e.

Provisional Voters, % uses question F1e divided by question F1a.

UOCAVA Voters, Total uses question F1c.

UOCAVA Voters, % uses question F1c divided by question F1a.

Other Voters, Total uses question F1h.

Other Voters, % uses question F1h divided by question F1a.

Overview Table 3 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Question F1f includes all voters who participated in the election in person prior to Election Day.

This includes in-person early voting, in-person absentee voting, and any other terminology the

state used to refer to in-person early voting (as reported in question Q24 of the 2020 Policy

Survey).
42 | Overview of Election Administration and Voting 

• Question F1h was not mandatory. States only reported data in this item if they offered another

mode of voting aside from those listed in questions F1b–F1g or if there were counted ballots that

could not be categorized in questions F1b–F1g.

• Because each percentage was calculated independently, the percentages of turnout by mode in

this table and the previous table may not sum to 100% for some states or at the national level.

[1] Alabama, Connecticut, Iowa, Mississippi, Missouri, Montana, New Hampshire, and Rhode Island did not

report data in F1f, because the number of in-person early voters could not be tracked separately from

other modes of participation.

[2] Alaska’s F1h data included ballots transmitted by electronic transmission (online or fax) delivery.

[3] Arkansas’s F1h data included nursing home patients who refused their ballots and votes by bearer,

“admin,” or delivered by another person.

[4] California’s F1h data included conditional voter registration (CVR) voters, SDR voters, manual voter

history updates, “confidentials,” mailed ballots from domestic and UOCAVA voters that could not be

separated by mode, and other counted ballots not reported in other F1 items.

[5] Two counties in Florida—Duval and Indian River counties—combined their reported number of UOCAVA

and domestic mailed ballots in F1h in lieu of reporting them separately within F1c and F1d, respectively.

[6] Idaho, Minnesota, New Hampshire, and Vermont are exempt from the NVRA requirement to offer

provisional ballots. North Dakota is exempt from offering provisional ballots because it does not require

voter registration.

[7] Massachusetts’s F1h data included “non-UOCAVA AV [absentee voting] ballots not returned by mail.”

[8] Michigan’s data in the In-Person Early Voters columns reflect those who voted absentee at the local

clerk’s office prior to Election Day.

[9] New Jersey did not report data in F1f because the state did not offer in-person early voting.

[10] New Mexico’s F1h data included ballots cast because of “emergency (medical reasons).”

[11] North Carolina’s F1h data included curbside absentee voters.

[12] Oregon is a vote-by-mail state and traditional early voting does not exist.

[13] Pennsylvania reported that the state cannot systematically track data on poll workers. Pennsylvania’s

F1h data included ballots for which “vote method not identified in the system.”

[14] Rhode Island reported that data for question F1c is unavailable.

[15] Washington is a vote-by-mail state. Voters can register and vote on or before Election Day. Totals in

F1f (voters who cast a ballot at an in-person early voting location and whose ballots were counted) include

voters who used a disability access unit.

[16] Wisconsin reported that state statute does not require the state to track data on poll workers.

Wisconsin’s F1h data included ballots for which voter method data was not yet available.
Overview of Election Administration and Voting | 43

Overview Table 4: Polling Places and Poll Workers

State Total 

Precincts

Total Polling Places Total Poll Workers

Election Day Early Voting Election Day Early Voting

Alabama [1] 2,111 1,976 69 16,028 --

Alaska [2] 441 420 164 2,817 260

American Samoa 41 41 1 0 256

Arizona 1,494 767 161 7,409 1,091

Arkansas 2,519 11,055 9,834 6,440 2,379

California 20,497 3,704 1,951 46,762 25,680

Colorado [3] 3,215 341 301 7,185 7,185

Connecticut [1], [4] 718 718 -- 3,590 --

Delaware 439 264 3 3,157 3

District of Columbia 144 95 32 2,407 2,549

Florida 6,128 4,433 425 42,247 11,173

Georgia [2] 2,648 2,419 336 22,401 5,073

Guam 67 22 5 485 48

Hawaii [2], [5] 250 8 8 64 64

Idaho 948 722 32 5,532 303

Illinois [2] 10,075 17,169 2,515 43,299 3,412

Indiana 5,169 1,835 302 15,313 2,211

Iowa [1] 1,681 1,329 -- 8,632 1,003

Kansas [6] 2,601 -- -- 5,789 1,120

Kentucky 3,692 682 197 7,947 4,658

Louisiana [2], [7] 3,934 1,991 105 16,980 --

Maine [8] 551 520 520 6,054 --

Maryland [9] 1,991 320 81 12,469 8,210

Massachusetts [2],

[10] 2,173 1,220 391 13,044 --

Michigan [11] 4,751 3,367 1,583 35,825 0 

Minnesota [2] 4,110 2,344 237 28,646 1,139 

Mississippi [1] 1,776 1,776 -- 11,358 --

Missouri [1] 4,373 2,326 -- 19,075 --

Montana 663 21 22 1,592 1,427 

Nebraska 1,379 922 93 7,695 115 

Nevada 1,990 217 90 2,692 2,200 

New Hampshire [1],

[2] 340 308 -- 3,576 --

New Jersey [2], [12] 6,346 1,549 -- 7,603 --

New Mexico 1,949 664 219 3,631 953 

New York 15,551 4,838 286 73,198 15,065 

North Carolina [13] 2,663 2,752 451 24,742 12,310 
44 | Overview of Election Administration and Voting 

State Total 

Precincts

Total Polling Places Total Poll Workers

Election Day Early Voting Election Day Early Voting

North Dakota [2], [14] 422 110 18 -- --

Northern Mariana 

Islands [2] 7 7 4 135 54 

Ohio [15] 8,933 3,563 88 47,761 0

Oklahoma 1,950 1,950 82 5,993 559

Oregon [16] 1,328 36 -- -- --

Pennsylvania [2], [17] 9,158 9,155 91 -- --

Puerto Rico [2], [18] 1,365 1,259 353 -- --

Rhode Island [2] 461 461 39 3,516 78

South Carolina [19] 2,262 1,975 116 16,618 517

South Dakota 715 506 67 2,562 177

Tennessee 1,961 1,852 214 16,641 2,757

Texas 9,949 6,580 3,024 41,092 17,740

U.S. Virgin Islands [2] 12 9 3 150 40

Utah 2,943 123 73 2,015 521

Vermont [2], [20] 275 275 246 -- --

Virginia [21] 2,454 2,454 133 27,984 2,419

Washington [22] 7,436 -- 66 -- --

West Virginia 1,706 1,361 60 8,143 271

Wisconsin [23] 3,698 2,467 -- -- --

Wyoming 480 179 8 2,052 85

U.S. Total 176,933 107,457 25,099 690,346 135,105 
Overview of Election Administration and Voting | 45

State

Poll Workers’ Ages

% Age <18 % Age 

18–25 

% Age 

26–40 

% Age 

41–60 

% Age 

61–70 % Age 71+

Alabama [1] 2.5 2.9 7.9 25.7 31.4 29.6

Alaska [2] -- -- -- -- -- --

American Samoa 0.0 20.7 25.4 42.6 11.3 0.0

Arizona 1.1 4.4 12.3 27.7 30.3 24.1

Arkansas 0.7 4.3 6.8 21.8 36.3 30.0

California 12.7 9.5 22.8 30.4 16.3 8.3

Colorado [3] 6.8 3.6 8.9 24.5 32.7 23.5

Connecticut [1], [4] -- -- -- -- -- --

Delaware 3.6 6.7 11.7 32.1 29.9 15.9

District of Columbia 1.8 8.8 49.6 24.6 11.4 3.7

Florida 0.9 4.3 10.8 30.5 29.9 23.6

Georgia [2] -- -- -- -- -- --

Guam 0.0 24.5 25.8 32.3 9.0 8.4

Hawaii [2], [5] -- -- -- -- -- --

Idaho 5.3 4.4 8.6 21.4 39.3 21.0

Illinois [2] -- -- -- -- -- --

Indiana 4.3 7.0 17.4 31.7 24.1 15.4

Iowa [1] 0.3 3.9 10.9 25.8 34.1 24.9

Kansas [6] 4.0 3.9 12.9 24.4 29.6 25.1

Kentucky 0.2 6.2 13.2 37.4 26.5 16.4

Louisiana [2], [7] -- -- -- -- -- --

Maine [8] 0.6 4.4 11.4 33.0 31.8 18.7

Maryland [9] 2.8 6.6 13.8 41.3 25.0 10.5

Massachusetts [2],

[10] -- -- -- -- -- --

Michigan [11] 3.9 3.8 6.6 22.9 33.6 29.1 

Minnesota [2] -- -- -- -- -- --

Mississippi [1] 0.0 0.0 0.0 5.0 50.2 44.8 

Missouri [1] 5.4 6.1 10.1 24.2 30.5 23.8 

Montana 0.0 2.0 7.5 27.8 35.7 27.0 

Nebraska 1.1 4.1 17.0 31.1 26.3 20.4 

Nevada 4.1 10.0 14.0 27.5 25.1 19.3 

New Hampshire [1], [2] -- -- -- -- -- --

New Jersey [2], [12] -- -- -- -- -- --

New Mexico 2.8 6.7 11.6 27.9 30.1 20.9 

New York 0.4 8.5 22.2 29.7 22.1 17.1 

North Carolina [13] 2.9 4.6 11.7 30.3 31.3 19.2 

North Dakota [2], [14] -- -- -- -- -- --
46 | Overview of Election Administration and Voting 

State

Poll Workers’ Ages

% Age <18 % Age 

18–25 

% Age 

26–40 

% Age 

41–60 

% Age 

61–70 % Age 71+

Northern Mariana 

Islands [2] -- -- -- -- -- --

Ohio [15] 2.1 5.4 14.1 32.1 28.6 17.8

Oklahoma 0.0 2.1 6.3 18.5 31.6 41.4

Oregon [16] -- -- -- -- -- --

Pennsylvania [2], [17] -- -- -- -- -- --

Puerto Rico [2], [18] -- -- -- -- -- --

Rhode Island [2] -- -- -- -- -- --

South Carolina [19] -- -- -- -- -- --

South Dakota 0.0 1.3 7.6 21.2 38.4 31.6

Tennessee 3.6 4.4 9.2 23.8 32.7 26.3

Texas 6.7 9.5 14.4 27.9 26.0 15.5

U.S. Virgin Islands [2] -- -- -- -- -- --

Utah 1.2 11.7 25.3 40.9 15.8 5.2

Vermont [2], [20] -- -- -- -- -- --

Virginia [21] -- -- -- -- -- --

Washington [22] -- -- -- -- -- --

West Virginia 0.0 5.3 13.1 30.1 28.6 22.8

Wisconsin [23] -- -- -- -- -- --

Wyoming 1.3 3.0 9.7 24.5 38.2 23.3

U.S. Total 3.2 6.2 15.0 28.4 27.3 20.1 

Overview Table 4 Calculation Notes: 

Total Precincts uses question D2a.

Total Polling Places, Election Day uses question D3a.

Total Polling Places, Early Voting uses question D4a.

Total Poll Workers, Election Day uses question D5.

Total Poll Workers, Early Voting uses question D6.

Poll Workers % Age <18 uses question D7b divided by the sum of questions D7b–D7g. 

Poll Workers % Age 18–25 uses question D7c divided by the sum of questions D7b–D7g. 

Poll Workers % Age 26–40 uses question D7d divided by the sum of questions D7b–D7g. 

Poll Workers % Age 41–60 uses question D7e divided by the sum of questions D7b–D7g. 

Poll Workers % Age 61–70 uses question D7f divided by the sum of questions D7b–D7g. 

Poll Workers % Age 71+ uses question D7g divided by the sum of questions D7b–D7g. 

Overview Table 4 Data Notes

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.
Overview of Election Administration and Voting | 47

• Because percentages for each age category were calculated independently, the percentages for

each age category may not sum to 100% for some states or at the national level.

• In calculating percentages for poll worker age categories, the sum of questions D7b–D7g was

used instead of D7a because some states did not report data in all age categories.

[1] Alabama, Connecticut, Iowa, Mississippi, Missouri, and New Hampshire did not report complete data on

early voting because some of this data could not be tracked separately from Election Day voting data.

[2] Alaska, Georgia, Hawaii, Illinois, Louisiana, Massachusetts, Minnesota, New Hampshire, New Jersey,

North Dakota, the Northern Mariana Islands, Pennsylvania, Puerto Rico, Rhode Island, the U.S. Virgin

Islands, and Vermont do not track data on the ages of their poll workers.

[3] Colorado did not distinguish between early voting and Election Day voting in collecting information on

poll workers. Because Colorado counties automatically mail ballots to every active voter and most voters

choose to vote the mail ballot, a large number of poll workers are needed to process the mail ballots. That

work begins in the early voting period and continues through Election Day and the eight-day post-election

period when military and overseas voters can return their ballot and voters with signature or ID issues can

cure their ballots.

[4] Connecticut provided data on the total number of poll workers in question D7a but was unable to

provide the age breakdown in questions D7b–D7g.

[5] In Hawaii, in-person voting locations are called Voter Service Centers and provide accessible in-person

voting, SDR, and collection of voted ballots.

[6] Kansas did not report data on the number of polling places in questions D3 and D4.

[7] Louisiana reported both its early voting and Election Day poll workers in question D5.

[8] Maine reported that data on the number of early voting poll workers in question D6 was not available.

[9] The number of Election Day voting locations in Maryland for the 2020 general election was greatly

reduced due to the COVID-19 pandemic and the lack of poll workers. The 320 Election Day voting locations

reported in D3a all served as county-wide vote centers. In a typical election, the number of Election Day

polling places generally corresponds to the numbers of precincts, and each polling place only serves the

precinct(s) assigned to it.

[10] Massachusetts reported that “Those who worked early voting were not called ‘poll workers’ and varied

each day of early voting.”

[11] Michigan reported data in D4 and noted that “early voting takes place at a clerk’s office or their

satellite offices for in-person absentee voting only.” All Michigan jurisdictions reported zero for the number

of early voting poll workers in D6; regular office staff operated clerk’s offices and satellite locations.

[12] New Jersey did not report data in questions D4a nor D6 because the state did not offer in-person

early voting.

[13] Precinct, polling place, and early voting site counts are based on data that election officials entered

into North Carolina’s Statewide Election Information Management System (SEIMS) and may be marginally

different than the number of sites that were actually open during early voting and Election Day voting.

[14] North Dakota provided data on the total number of poll workers in question D7a but was unable to

provide the totals for Election Day and early voting poll workers in questions D5 and D6 or the age

breakdown in questions D7b–D7g.

[15] Ohio reported zero early voting poll workers with a comment that regular office staff operated the

early voting sites.

[16] Oregon is a vote-by-mail state and does not have or track traditional poll workers for in-person voting.

[17] Pennsylvania provides in-person absentee and mail-in voting at county election offices and satellite

county election offices. Absentee and mail-in ballots cast in person are secured until Election Day to be

tabulated by the county board of elections. Pennsylvania reported that the state cannot systematically

track data on poll workers.
48 | Overview of Election Administration and Voting 

[18] Puerto Rico reported that data on poll workers are not available and that poll workers were

volunteers, not PR-SEC employees.

[19] South Carolina only reported poll workers who were under the age of 18 and did not provide data for

any other age categories. South Carolina’s data on poll worker ages has been excluded from this table.

[20] Vermont did not provide data on the number of poll workers.

[21] Virginia does not capture or track information on the age of poll workers. Before this report’s

finalization, Virginia notified the EAC that the statewide number of early voting polling places in D4a was

208, not 133.

[22] Washington is a vote-by-mail state and does not have traditional polling places. Washington has

voting centers that are open for the entire voting period, not just a single day. Each county is required to

have two certified election administrators and can hire election workers to assist with processing returned

ballots.

[23] Wisconsin state statute does not require the state to track data on early voting physical polling

locations and poll workers. Partial data are available through the state.
Overview of Election Administration and Voting | 49

Overview Table 5: Election Technology and Voting Methods

State

Total Number of 

Voting Machines 

Deployed

DRE without VVPAT DRE with VVPAT

Total % Total % 

Alabama 4,864 -- -- -- --

Alaska 758 -- -- 152 20.1

American Samoa [1] -- -- -- -- --

Arizona 1,539 -- -- 19 1.2

Arkansas 4,480 76 1.7 92 2.1

California 33,163 -- -- 23 0.1

Colorado 1,851 -- -- -- --

Connecticut 2,154 -- -- -- --

Delaware 1,057 -- -- 1,050 99.3

District of Columbia 694 -- -- -- --

Florida 14,015 -- -- 67 0.5

Georgia 30,824 -- -- -- --

Guam 11 -- -- -- --

Hawaii 292 -- -- 276 94.5

Idaho 1,506 -- -- 72 4.8

Illinois 20,043 -- -- 2,215 11.1

Indiana 14,868 5,775 38.8 956 6.4

Iowa 2,874 -- -- -- --

Kansas [2] 5,871 43 0.7 4,700 80.1

Kentucky 4,246 528 12.4 570 13.4

Louisiana 9,828 9,747 99.2 -- --

Maine [3] 1,088 -- -- -- --

Maryland 3,651 -- -- -- --

Massachusetts 4,386 -- -- -- --

Michigan 8,118 -- -- -- --

Minnesota 5,710 -- -- -- --

Mississippi 7,048 5,820 82.6 20 0.3

Missouri 5,346 -- -- 330 6.2

Montana 248 -- -- -- --

Nebraska 1,422 -- -- -- --

Nevada 5,765 -- -- 5,646 97.9

New Hampshire 652 -- -- -- --

New Jersey 2,207 1,495 67.7 632 28.6

New Mexico 1,461 -- -- -- --

New York 18,792 -- -- -- --

North Carolina 9,468 -- -- -- --

North Dakota 524 -- -- -- --
50 | Overview of Election Administration and Voting 

State

Total Number of 

Voting Machines 

Deployed

DRE without VVPAT DRE with VVPAT

Total % Total % 

Northern Mariana 

Islands [4] 4 -- -- -- --

Ohio 25,164 -- -- 7,028 27.9

Oklahoma 2,263 -- -- -- --

Oregon [5] -- -- -- -- --

Pennsylvania 24,413 -- -- -- --

Puerto Rico 6,075 -- -- -- --

Rhode Island 612 -- -- -- --

South Carolina 16,873 -- -- -- --

South Dakota 630 -- -- -- --

Tennessee 9,199 5,483 59.6 -- --

Texas 42,151 20,978 49.8 2,211 5.2

U.S. Virgin Islands 80 -- -- -- --

Utah 41 -- -- -- --

Vermont [6] 530 -- -- -- --

Virginia [7] 4,057 -- -- -- --

Washington 186 -- -- -- --

West Virginia 5,401 -- -- 1,887 34.9

Wisconsin [8] -- -- -- -- --

Wyoming 863 -- -- -- --

U.S. Total 369,366 49,945 13.5 27,946 7.6 
Overview of Election Administration and Voting | 51

State Ballot Marking Devices Scanners Hand Counting (Total 

Jurisdictions) Total % Total % 

Alabama 2,044 42.0 2,820 58.0 0

Alaska 289 38.1 317 41.8 1

American Samoa [1] -- -- -- -- 1

Arizona 1,093 71.0 427 27.7 1

Arkansas 3,373 75.3 939 21.0 5

California 31,770 95.8 1,370 4.1 0

Colorado 1,668 90.1 183 9.9 1

Connecticut -- -- 2,154 100.0 0

Delaware -- -- 7 0.7 3

District of Columbia 562 81.0 132 19.0 0

Florida 4,723 33.7 9,225 65.8 0

Georgia 27,078 87.8 3,746 12.2 0

Guam 8 72.7 3 27.3 0

Hawaii -- -- 16 5.5 0

Idaho 881 58.5 553 36.7 12

Illinois 9,313 46.5 8,515 42.5 0

Indiana 4,807 32.3 3,330 22.4 0

Iowa 1,402 48.8 1,472 51.2 0

Kansas [2] -- -- 1,128 19.2 --

Kentucky 564 13.3 2,584 60.9 3

Louisiana -- -- 81 0.8 0

Maine [3] 496 45.6 592 54.4 187

Maryland 1,729 47.4 1,922 52.6 0

Massachusetts 2,173 49.5 2,213 50.5 58

Michigan 3,367 41.5 4,751 58.5 0

Minnesota 2,794 48.9 2,916 51.1 2

Mississippi 507 7.2 701 9.9 0

Missouri 2,402 44.9 2,614 48.9 1

Montana 136 54.8 112 45.2 10

Nebraska 1,265 89.0 157 11.0 0

Nevada 80 1.4 39 0.7 0

New Hampshire 310 47.5 342 52.5 123

New Jersey -- -- 80 3.6 0

New Mexico -- -- 1,461 100.0 33

New York 7,768 41.3 11,024 58.7 62

North Carolina 6,001 63.4 3,467 36.6 0

North Dakota 260 49.6 264 50.4 0

Northern Mariana 

Islands [4] -- -- 4 100.0 0 
52 | Overview of Election Administration and Voting 

State Ballot Marking Devices Scanners Hand Counting (Total 

Jurisdictions) Total % Total % 

Ohio 12,510 49.7 5,626 22.4 0

Oklahoma -- -- 2,263 100.0 0

Oregon [5] -- -- -- -- 0

Pennsylvania 10,860 44.5 13,553 55.5 0

Puerto Rico -- -- 6,075 100.0 1

Rhode Island 78 12.7 534 87.3 0

South Carolina 14,129 83.7 2,744 16.3 0

South Dakota 533 84.6 97 15.4 0

Tennessee 2,205 24.0 1,511 16.4 11

Texas 15,250 36.2 3,712 8.8 15

U.S. Virgin Islands 50 62.5 30 37.5 0

Utah 29 70.7 12 29.3 0

Vermont [6] 312 58.9 218 41.1 101

Virginia [7] -- -- 4,057 100.0 0

Washington 108 58.1 78 41.9 0

West Virginia 2,743 50.8 771 14.3 0

Wisconsin [8] -- -- -- -- 705

Wyoming 496 57.5 367 42.5 0

U.S. Total 178,166 48.2 113,309 30.7 1,336 

Overview Table 5 Calculation Notes: 

Total Number of Voting Machines Deployed uses the sum of questions F5c_1, F5c_2, F5c_3, F6c_1, 

F6c_2, F6c_3, F7c_1, F7c_2, F7c_3, F8c_1, F8c_2, F8c_3, F9c_1, F9c_2, F9c_3, F10c_1, F10c_2, and 

F10c_3. 

DRE without VVPAT, Total uses the sum of questions F5c_1, F5c_2, and F5c_3.

DRE without VVPAT, % uses the sum of questions F5c_1, F5c_2, and F5c_3 divided by the total number of 

voting machines deployed (Column 1).

DRE with VVPAT, Total uses the sum of questions F6c_1, F6c_2, and F6c_3.

DRE with VVPAT, % uses the sum of questions F6c_1, F6c_2, and F6c_3 divided by the total number of 

voting machines deployed (Column 1).

Ballot Marking Devices, Total uses the sum of questions F7c_1, F7c_2, and F7c_3.

Ballot Marking Devices, % uses the sum of questions F7c_1, F7c_2, and F7c_3 divided by the total 

number of voting machines deployed (Column 1).

Scanner, Total uses the sum of questions F8c_1, F8c_2, and F8c_3.

Scanner, % uses the sum of questions F8c_1, F8c_2, and F8c_3 divided by the total number of voting 

machines deployed (Column 1).

Hand Counting (Total Jurisdictions) uses a count of the number of jurisdictions in each state that 

responded “yes” to question F11a.
Overview of Election Administration and Voting | 53

Overview Table 5 Data Notes: 

General Notes: 

• Although other descriptive tables in this chapter used casewise deletion at the state level in

calculating percentages, this table did not. When a state reported not using a type of equipment,

the number of devices of that type was filled with zero to better capture at the national level the

quantity and percentage that each voting technology accounted for in the 2020 general election.

[1] American Samoa reported only hand counting ballots in the 2020 general election.

[2] Kansas did not respond to question F7a on the use of BMDs or question F11a on the use of hand

counting.

[3] The data depicted in this table for Maine underreported the number of BMDs (accessible voting

solution) deployed by the state’s jurisdictions. Each voting place was provided with at least one BMD, and

some larger jurisdictions used multiple devices. In the data previously provided to the EAC, Maine reported

that each jurisdiction used only one device. The actual number of devices deployed statewide was 527.

[4] The Northern Mariana Islands reported using BMDs in question F7a and provided a description of

“pencils.”

[5] Oregon reported in question F8a that each of its jurisdictions used scanners, but for the purposes of

this report, data on the number of scanners deployed was not tracked.

[6] Vermont provided a response of “valid skip” for all jurisdictions in question F6a and provided a

response of “does not apply” for 41.1% of its jurisdictions in question F8a.

[7] Virginia reported using BMDs in all 133 of its jurisdictions, but initially did not report jurisdiction-level

data on the number of BMDs deployed. Before this report’s finalization, Virginia notified the EAC that the

statewide number of BMDs in F7c_1, F7c_2, and F7c_3 was 2,533.

[8] Wisconsin does not permit the use of DREs without a VVPAT. Wisconsin also does not permit the use of

punch card machines or lever machines. The state tracks the machine types employed in each jurisdiction

and not the number of machines deployed in each jurisdiction.
54 | Election Law and Procedure 

Chapter 2. Election Law and 

Procedure: The Policy Survey

Key Findings

The 2020 Election Administration Policy Survey (Policy Survey) asked states to identify the election 

laws and procedures that govern voter registration, election technology, voter eligibility, modes of 

voting, and election audits in their state. Notable findings from this survey include:

• In 2020, more states reported providing Election Administration and Voting Survey (EAVS)

responses at the state level for every EAVS section compared to 2018.

• Fourteen states reported conducting all-mail elections for the 2020 general election, either

statewide or in certain jurisdictions. This is double the number of states from the 2018 Policy

Survey, but in some cases, all-mail voting was implemented in response to the COVID-19

pandemic, and it was not a permanent change.

• More states reported having an online voter registration system in the 2020 Policy Survey (45

states) compared to in the 2018 Policy Survey (40 states). In the majority of cases, individuals

can use this system to register to vote and to update their registration.

• About half of the states reported allowing non-military voters residing in the United States to

receive their ballots through an electronic format, such as email, fax, through an online voter

registration portal, or through a mobile phone app, under certain circumstances.

• Roughly half of the states reported allowing permanent absentee status when a Uniformed

and Overseas Citizens Absentee Voting Act (UOCAVA) voter registration is submitted via a

Federal Post Card Application (FPCA), a decrease from 2018.

• Forty-four states reported requiring a post-election tabulation audit that verifies that voting

equipment used during an election properly counts a sample of voted ballots after an election.

Introduction

Although quantitative data from state1 and local election officials provide an important window into 

how the 2020 general election was run, these data must be understood in the context of state laws 

and policies. In 2008, the U.S. Election Assistance Commission (EAC) introduced a component of the 

EAVS that collects information on state election laws. Since 2018, this data has been collected 

through the Policy Survey, which uses closed-ended questions to capture states’ broad policies. It is 

important to remember that state election laws are nuanced, and this report simplifies them for the 

purpose of providing an overview of election policies that offers important context to understanding 

the EAVS data. This report provides an overview and summary of the Policy Survey’s findings. 

1 Throughout this report, unless otherwise specified, the term “state” can be understood to apply to the 50 U.S. states, the 

District of Columbia, and five U.S. territories (American Samoa, Guam, the Northern Mariana Islands, Puerto Rico, and the 

U.S. Virgin Islands) that submit Policy Survey and EAVS data.
Election Law and Procedure | 55

Additional information about state responses is available in Appendix A of this chapter. The 2020 

Policy Survey included updates to some of the 2018 items to better capture state policy nuances. 

The 2020 Policy Survey collected data on states’ election laws, policies, and practices that would be 

in place for the November 2020 general election. Most states submitted this information before the 

election. The Policy Survey was also used to validate 2020 EAVS data prior to states certifying their 

data as final. The goal of the 2020 Policy Survey was to create comparisons between states across 

broad policy categories and to provide context in understanding the EAVS data submitted by states. 

Because of the nature of the closed-ended survey questions, some of the nuances in state election 

policies could not be accounted for. States were encouraged to forward additional information and 

context behind their Policy Survey responses to allow their data to be interpreted as accurately as 

possible. 

For further information about how the Policy Survey data were collected and used to validate EAVS 

data, please see Chapter 5 of this report.

Responding to the 2020 EAVS

The 2020 Policy Survey asked states to describe who provides the data to respond to the questions 

in each section of the EAVS: the state election office, local election offices, or both the state and 

local offices. Some states indicated that all sections are completed by the state election office, and 

some gather data for all sections from their local jurisdictions.2 Many states answered certain 

sections at the state level and other sections at the jurisdiction level.

With the exception of sections A and F of the EAVS, roughly half of the states provided responses at 

the state level, whereas about one-fifth of states reported that responses are provided by local 

officials. For sections A and F, about 60% of states reported providing responses at the state level, 

and slightly less than 15% of states reported providing responses at the local level.3 Roughly onequarter to one-third of the responses for each section were provided by both state and local officials. 

In 2020, more states reported providing EAVS responses at the state level for every EAVS section 

compared to in 2018 (see Table 1). 

The findings from this question illustrate the complexities that state and local election officials 

experience when answering the EAVS. Many states with a large number of jurisdictions reported 

2 What constitutes a jurisdiction for EAVS reporting is defined by how each state chose to provide data. For the 2020 EAVS, 

most states reported data on the county level (or county equivalent, such as parishes for Louisiana). Illinois, Maryland, 

Missouri, and Virginia reported data for independent cities in addition to counties. The territories, the District of Columbia, 

and Alaska each reported as a single jurisdiction. Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, 

Vermont, and Wisconsin reported data on the township level. Maine also reported its UOCAVA data in Section B as a 

separate jurisdiction, because this information was only collected at the state level. Michigan reported data for the county 

level, but most election administration activities take place in the 1,520 local election jurisdictions in the state. 3 Information on how states answer Section A of the EAVS was collected in item Q3_1 of the Policy Survey. Information on 

how states answer Section B of the EAVS was collected in Q3_2. Information on how states answer Section C of the EAVS 

was collected in Q3_3. Information on how states answer Section D of the EAVS was collected in Q3_4. Information on how 

states answer Section E of the EAVS was collected in Q3_5. Information on how states answer the Section F of EAVS was

collected in Q3_6.
56 | Election Law and Procedure 

providing EAVS data entirely at the local level. Furthermore, some states reported providing EAVS 

data for some sections at the state level while relying on local officials for other sections.

Table 1. More States Are Providing EAVS Responses at the State Level

Number of States Providing EAVS Responses at the State Level

EAVS Section Number of States in 2018 Number of States in 2020

Section A 31 34

Section B 27 28

Section C 27 29

Section D 23 26

Section E4 25 28

Section F 26 33

Source: Information on answering the EAVS was collected in Q3 of the Policy Survey.

In almost all states, the chief state election official is responsible for certifying the state’s EAVS data 

submission and/or receiving and certifying the spending of Help America Vote Act (HAVA) funds on 

behalf of the state. In 2020, 75% of states reported that the chief election official selects the state 

representative for and supervises local election officials’ selection as representatives to the EAC 

Standards Board. The Standards Board consists of 55 state and 55 local election officials who assist 

the EAC in carrying out its mandates.5

Policies on Voter Registration and List Maintenance

The primary federal law governing voter registration in the United States is the National Voter 

Registration Act (NVRA), which became effective after the 1994 general election.6 The NVRA 

expands voter registration opportunities for voters by creating more standardized registration 

processes and by designating more places as voter registration agencies. It also requires that states 

conduct a uniform and nondiscriminatory general program to remove from their lists the records of 

individuals who are no longer eligible to vote.

Congress also passed HAVA in 2002, requiring states to adopt a computerized statewide voter 

registration list.7 States use these registration lists to determine who is eligible to participate in 

elections. States also face the challenge of keeping these lists up to date, as voters commonly move 

4 Minnesota did not provide a response to Section E of this item for the 2020 Policy Survey. 5 Information on the EAC-related duties of chief state election officials was collected in item Q1a of the Policy Survey.

Eleven states provided additional information for cases in which another official performs these functions. The District of 

Columbia noted that it does not have any local election officials.

6 Several states are not covered by the NVRA. North Dakota is exempt because it does not have voter registration. U.S. 

territories are also not subject to the NVRA, and the states of Idaho, Minnesota, New Hampshire, Wisconsin, and Wyoming 

are exempt because they had same-day registration (SDR) in 1994 and have continued to make this option available 

uninterrupted since that time.

7 52 U.S.C. § 21083.
Election Law and Procedure | 57 

to different jurisdictions or states, die, or become otherwise ineligible to vote. North Dakota is the 

only state that does not require voter registration.

Between 2018 and 2020, some states passed laws allowing individuals to register to vote online, 

register in person on Election Day, or register through an automated process. In 2020, states 

reported receiving a record number of registration applications. Further information on state 

registration data is included in Chapter 3 of this report.

Database Systems

States responded to the HAVA voter registration requirements in different ways. Some states 

adopted a single, central platform at the state level that connects to terminals in local jurisdictions. 

This type of system is typically referred to as a “top-down” voter registration system. Other states 

implemented a state voter registration database that gathers and aggregates information from their 

local jurisdictions’ voter registration databases. This type of system is typically referred to as a 

“bottom- up” system.8 If a system has a mix of top-down and bottom-up characteristics, then it is 

referred to as a “hybrid” system. The specific characteristics of hybrid systems vary state by state. 

The Policy Survey asks states to report the type of voter registration database they have and how 

often information is shared between states and local jurisdictions.9 Figure 1 shows that a majority of 

states (67.9%) reported having voter registration databases that function in a top-down manner. 

About 20% of states reported having a bottom-up registration system that uploads jurisdiction-level 

information at regular intervals to form the statewide voter registration list, and only 10.7% of states 

reported having a hybrid system that combines elements of both.10 In practice, these state 

registration system categories can be fluid. Some top-down registration systems may implement 

processes of the bottom-up registration system and vice versa.

States that reported having either a bottom-up or hybrid system were asked to report how often their 

jurisdictions transmit voter registration information to the statewide database.11 For these two

systems, real-time data transmissions were most common (reported in 58.8% of the states with 

bottom-up or hybrid systems), whereas 23.5% of the states reported that voter registration 

information is transmitted daily.12 Texas reported that information is transmitted both ways:

transmissions from “online” counties happen in real time, whereas in “offline” counties, it happens

8 For a bottom-up voter registration system to be considered a statewide system, the state database, the data, and the 

data flow must be defined, maintained, and administered by the state. U.S. Election Assistance Commission. (2005, July). 

Voluntary Guidance on Implementation of Statewide Voter Registration Lists. https://www.eac.gov/sites/default/files/eac

_assets/1/1/Implementing%20Statewide%20Voter%20Registration%20Lists.pdf. 9 One state did not provide a response to this item.

10 Information on the type of voter registration system states have was collected in item Q4 of the Policy Survey. 11 Minnesota did not provide a response to this item. 12 Information on how often local jurisdictions transmit information to the state voter registration database was collected in 

item Q4a of the Policy Survey.
58 | Election Law and Procedure 

Figure 1. Over Two-Thirds of States Have Top-Down Voter Registration Systems

Source: Information on voter registration database system type was collected in Q4 of the Policy Survey. This graph shows 

the number of states that reported having each type of voter registration database.

daily.13 Similarly, in Illinois, if the jurisdiction vendor has web services, the information is uploaded in 

real time, whereas a batch is sent daily from those jurisdictions without web services. The Northern 

Mariana Islands reported that information is retrieved upon request.

Data Linkages

Election officials must accomplish two primary activities related to voter registration: adding 

individuals to the database who are eligible to vote and maintaining the accuracy of the database.14

A state accomplishes these goals by accessing or “linking” to other databases to verify the voter 

13 The 2016 Statutory Overview found that several Texas jurisdictions use the Texas statewide voter registration database 

to directly manage registration data, and other Texas jurisdictions manage their own voter registration data using a thirdparty vendor. Texas refers to these as “online” and “offline” jurisdictions. Although online counties transmit information in 

real time through an online voter registration system, offline jurisdictions transmit information in batches through a web 

browser application.

14 National Research Council. 2010. Improving State Voter Registration Databases: Final Report. Washington, DC: The 

National Academies Press. https://www.eac.gov/documents/2010/5/14/improving-state-voter-registration-databasesfinal-report. 
Election Law and Procedure | 59 

registration information in its database. The NVRA also outlines steps that states are required to 

take to keep voter registration information current and to remove ineligible voters and duplicate 

registrations from the voter lists. This task requires comparing voter lists to records in other 

databases to prevent duplicate registration records and to avoid adding individuals who are ineligible 

to register.15

As the National Academy of Sciences (NAS) notes, HAVA requires the chief election official in each 

state to attempt to verify the information for first-time voter registration applications against driver’s 

license numbers in that state’s motor vehicle licensing agency’s database or against the Social 

Security Administration’s database of social security numbers. If no match is found, election officials 

in most states attempt to contact the applicant for additional information, but they manage this 

process in various ways. HAVA requires that applicants who cannot be matched against one of these 

databases be allowed to vote on Election Day provided they present appropriate identification.16

The Policy Survey asks states how they share information electronically with other state and federal 

government entities.17 These linkages are illustrated in Figure 2. Most states reported that they link 

their voter registration data with the agency that handles their state’s driver’s licenses (85.7%) and 

with entities that maintain the death records (80.4%). The other most commonly reported linkages 

were with entities that maintain felony or prison records, such as state courts and parole agencies 

(62.5%). States that reported linking with the agency that handles driver’s licenses most often 

reported transferring voter registration data daily (63.3%), followed by in real time (18.4%) and by 

some other measure of time that is neither weekly nor monthly (10.2%). Of the states that reported 

linking with entities that maintain death records, the most common type of data transfer was 

monthly (58.7%), followed by weekly (21.7%). States that reported linking registration data with 

entities that maintain felony records most often reported transferring data monthly (58.3%).18

Less commonly reported linkages included entities that maintain records of individuals who are 

declared mentally incompetent, state public assistance agencies, agencies for people with 

disabilities, other state agencies that are not required by the NVRA (e.g., public libraries or local 

government offices), federal agencies, and military recruiting offices.

15 Ibid. 16 52 U.S.C. § 21083. 17 Although North Dakota does not have voter registration, the state does share information electronically with other 

government entities and is included in these analyses.

18 Information on which entities states link their voter registration databases with and how often data transfers occur was

collected in item Q5 of the Policy Survey.
60 | Election Law and Procedure 

Figure 2. States Most Commonly Link Voter Registration Databases With Government Agencies 

That Maintain Driver’s Licenses and Death Records

Source: Information on the entities that are linked to state voter registration databases was collected in Q5 of the Policy 

Survey. This graph shows the number of states that reported linking their voter registration databases with the specified 

government agency.

Automatic and Automated Voter Registration

In 2020, 42.9% of states reported that voters may be registered to vote via an automated process, 

whether online or in person, during a transaction with a state government agency.19 Examples of 

these automated processes included those that force a choice, such as when an individual cannot 

proceed with a transaction without selecting whether or not they wish to be registered to vote, or 

processes that register a person to vote as a default, after which the individual may choose to opt 

out. In the event that an individual wishes to decline to register, the vast majority of states reported 

that they allow the declination to occur at the point of service. About one-third of states reported that 

they allow declinations via a mailer sent to the individual after the transaction.20

19 Information on automatic and automated voter registration was collected in item Q6 of the Policy Survey. 20 Information on when an individual can decline to register to vote was collected in item Q6b of the Policy Survey.
Election Law and Procedure | 61 

States that have some kind of automatic or automated voter registration process linked to a state 

agency transaction all reported that their state motor vehicle agency participates in this program, 

and about one-quarter of the states indicated that public assistance agencies also participate. Less 

common program participants included agencies for people with disabilities and other designated 

state agencies. Florida also reported linking their voter registration process with tax collector offices 

and any office that issues state ID cards. Colorado reported linking with the state’s Department of 

Health Care Policy and Financing, and Alaska reported linking with the state’s Permanent Fund 

Dividend Division. Maryland noted the state agencies that participate in the automatic or automated 

voter registration program are designated by the Maryland General Assembly.21

Preregistration

In the 2020 Policy Survey, most states (87.5%) reported allowing individuals under the age of 18 to 

preregister to vote and become automatically registered once they turn 18 years old. Over half of 

states that had a preregistration program reported that they allow individuals to preregister at age 

17 (51%), whereas fewer states reported allowing individuals to preregister at age 16 (38.8%). Five 

states (10.2%) indicated that they allow individuals to preregister at age 17 and a half.22

Online Voter Registration

Arizona became the first state to adopt online voter registration in 2002, and by 2016, the number 

of states that offered online voter registration jumped to 32.23 Online voter registration generally 

mirrors the process of registering to vote using a paper form, but the information that is necessary to 

process the registration application is completed and submitted electronically, without the need of a 

paper form to be submitted or created. 

Forty-five states (80.4%, an increase from 72.7% in 2018) reported having an online voter 

registration portal in which individuals can register on their own, fully online, and without having to 

submit a paper form. In almost all of those states, individuals can both register to vote and update 

their registration via the system. Two states reported that individuals can only update their 

registration online and cannot use the online system to submit a new registration application. A 

majority of states with an online voter registration system (82.2%) reported that only individuals with 

a valid driver’s license or state-issued ID card can use it.24 Figure 3 shows the prevalence of online 

voter registration across states.

21 Information on which state agencies participate in automatic voter registration was collected in item Q6a of the Policy 

Survey. 22 Information on preregistration was collected in item Q10 of the Policy Survey. 23 ”EAVS Deep Dive: Registering to Vote“, https://www.eac.gov/documents/2017/09/20/eavs-deep-dive-registering-tovote/ U.S. Election Assistance Commission. (2017, September 20). EAVS Deep Dive: Registering to Vote: 

https://www.eac.gov/documents/2017/09/20/eavs-deep-dive-registering-to-vote/. 24 Information on states’ online voter registration policies was collected in item Q7 of the Policy Survey. Information on 

whether a driver’s license or state-issued ID card is needed to register to vote online was collected in item Q7a of the Policy 

Survey.
62 | Election Law and Procedure 

Figure 3. More Than Three-Quarters of States Offer Online Registration

Source: Information on online registration policy was collected in items Q7 and Q7a of the Policy Survey.

States were also asked to describe the technological and user experience features of their online, 

web-based voter registration system and how voters use it. The most common feature was the use of 

a motor vehicle agency signature to register to vote (84.4%), followed by mobile phone optimization 

(75.6%) and sending a confirmation email to each registrant (60%). Slightly less than half of all 

states reported having custom web page URLs to track where the voter came from to enter the 

online registration process (e.g., a state agency or third-party organization), providing a confirmation 

number to each registrant, and supporting languages other than English. About one-quarter of states 

also reported the use of a third-party application programming interface (API), which allows different 

software components to communicate with each other.25

Same-Day Registration

Instead of requiring voters to register in advance of an election, some states reported allowing

individuals to register to vote and to cast a ballot on the same day. Roughly half of the states 

reported having same-day registration (SDR) or a period of overlap between in-person early voting 

and the close of voter registration in which a person can register to vote and cast a ballot on the 

25 Information on the features of state online, web-based voter registration systems was collected in item Q7b of the Policy 

Survey.
Election Law and Procedure | 63 

same day (see Figure 4).26 Among states with SDR, it was most common to have SDR on Election 

Day (72.4%). Additionally, the majority of states indicated that they allow SDR during in-person early 

voting (69%).27

Twelve states reported having SDR during an overlap between the start of early voting and the close 

of voter registration. Some states noted that SDR only occurs in special cases, such as Alaska and

Rhode Island for presidential elections. New residents who move to Nebraska after the close of voter 

registration can register to vote and can vote only for president in the general election; former 

residents who move to another state after the close of registration can also vote only for president in 

the general election. In North Carolina, citizens who have become eligible to vote between the “close 

of books” and Election Day may register on the same day as they vote.28

Figure 4. Half of the States Offer Some Form of Same-Day Voter Registration

Source: Information on SDR policy was collected in items Q9 and Q9a of the Policy Survey. “ED” stands for “Election Day.” 

“Other Cases” includes instances in which states may allow for SDR during in-person early voting only, during an overlap 

between the start of early voting and the close of voter registration, and other specific cases.

26 The timeline does not include an overlap between the mail balloting period and the close of voter registration. 27 Information on state SDR policies was collected in item Q9 of the Policy Survey. Information on the circumstances of SDR 

was collected in item Q9a of the Policy Survey. 28 North Carolina did not provide clarification on what was meant by “close of books.”
64 | Election Law and Procedure 

State Election Office Website

The 2020 Policy Survey also asked states about which voter information search tools and other tools 

are available on each state’s election office website. Almost all of the states indicated that voters 

can check their registration status and check their polling site location on the state election office 

website. Most states reported having tools that track ballot status, including UOCAVA ballots (87.5%),

mailed ballots (82.1%), and provisional ballots (51.8%), and that check voter-specific ballot 

information (76.8%). Additionally, most states reported that their website allows voters to request to 

receive a mail or absentee ballot (67.9%).29

List Maintenance

The NVRA establishes a process for states to keep their voter registration lists accurate. Under this 

law, a registrant can be removed from a state’s list for the following reasons:

• The registrant requests to be removed;

• The registrant dies;

• The registrant is declared mentally incapacitated, if a state law requires it;

• The registrant is convicted of a specified crime, if state law requires it; or

• The registrant changes residences outside of the jurisdiction, in which case the removal 

process must be conducted in accordance with procedures set forth in the NVRA.30

Under the process established by the NVRA, when a registrant appears to have moved outside of 

their jurisdiction due to returned or undeliverable mail, the state must follow a specific process to 

verify that the individual is no longer eligible to vote. An address confirmation procedure must be 

followed before removing the voter from the registration list.

The 2020 Policy Survey asked states whether they differentiate between active and inactive voters in 

their voter registration records. Active voters are individuals who require no additional processing 

before they can vote, whereas inactive voters will require address verification before being permitted 

to vote. Forty-six states, three territories, and the District of Columbia indicated that they differentiate 

between the two types of voters, although according to state comments, the definitions for an active 

and inactive voter vary widely.31 Guam, Idaho, North Dakota, New Hampshire, the U.S. Virgin Islands, 

and Wyoming reported not distinguishing between active and inactive voters. Some states indicated

using specific terminology: Nebraska uses “in NVRA” to refer to inactive voters, Texas uses the term 

“suspense voters,” and American Samoa uses the term “purged voter.” West Virginia indicated that 

inactive voters are those “flagged as moving and receiv[ing] a confirmation notice.” According to the 

29 Information on state election office website lookup tools was collected in item Q8 of the Policy Survey. 30 52 U.S.C. § 20507 31 Information on whether states differentiate between active and inactive voters was collected in item Q11 of the Policy 

Survey. Minnesota is NVRA exempt and does not define inactive voters as “voters who remain eligible to vote but require 

address verification under the provisions of the National Voter Registration Act,” as defined in the EAVS item A1c; 

therefore, the EAVS item A1c does not apply to the state. Additionally, North Dakota does not have voter registration but 

does define inactive voters in the state voter file. Inactive voters are defined as those who have never voted before or have 

not voted in the last two federal elections. Although Wyoming does not keep an inactive list of eligible voters, the statewide 

voter registration system keeps a historical record of previously registered voters.
Election Law and Procedure | 65 

NVRA, voters marked as inactive are still able to vote in elections unless they have not voted for two 

consecutive federal elections and have not updated their information.

Almost three-quarters (70%) of states that reported differentiating between active and inactive 

voters also reported that they will move an active voter to the inactive voter list if mail that is sent by 

an election office to the voter’s residence is returned as undeliverable, whereas 62% of states 

reported that they will move an active voter to the inactive voter list if the voter fails to return a 

confirmation notice. Fifteen states commented with several additional actions, including change in 

address, not voting in a certain number of elections, determining a person is a felon, determining a 

person is deceased, and the existence of duplicate voter records.32

Figure 5. States That Differentiate Active and Inactive Voters Will Most Often Reactivate an 

Inactive Voter if the Voter Initiates a Registration Update

Source: Information on policy regarding reactivating inactive voters was collected in Q11b of the Policy Survey.

On the other hand, certain actions can result in moving an inactive voter to the active voter list. 

Figure 5 shows the reasons states report for reactivating inactive voters, if the state differentiates 

between active and inactive voters. Most states that distinguish between active and inactive voters 

32 Information on moving an active voter to the inactive list was collected in item Q11a of the Policy Survey.
66 | Election Law and Procedure 

Thirty-five states indicated that only local officials are responsible for modifying or removing voter 

registration records, and 12 states reported that modifying voter registration records is done by both 

state and local officials.34

reported that they will move an inactive voter to the active voter list if an individual initiates an 

update to their registration record (96%), returns a confirmation notice (88%), votes in a federal 

election (78% for general and 76% for primary), votes in a state or local primary or general election 

(both 76% respectively), and/or requests a mail or UOCAVA ballot (68%). Furthermore, roughly half of 

the states reported that they will move an inactive voter to the active voter list if there is an online 

confirmation of the voter’s registration record. Less common reasons for moving an inactive voter to 

the active voter list included if a voter signs a petition or completes a certificate of candidacy. 

Thirteen states indicated some other reason, including providing documentation (e.g., appropriate 

identification or a signed affidavit) at a polling place, submitting a new registration, and receiving an 

address change through the state motor vehicle agency.33

Alaska, American Samoa, Delaware, the District of Columbia, Guam, South 

Carolina, and the U.S. Virgin Islands all indicated that they only modify records at the state level.35

Table 2 illustrates data sources used to identify potentially ineligible voters. Across states, the most 

common data sources were the state vital statistics office, reports from other states indicating a 

former resident registered to vote, a voter request for removal, entities that maintain prison records, 

and any mail (not including ballots) sent from an election office that was returned as undeliverable.36

Most states reported sending confirmation notices to voters to help identify individuals who may be

ineligible to vote, but the reasons for sending confirmation notices differ by state. Of the states that 

send confirmation notices, 41 (85.4%) reported sending confirmation notices pursuant to Section 8 

(d) (1) (B) and Section 8 (d) (2) of the NVRA, 31 states (64.6%) reported sending confirmation 

notices pursuant to a state statute, and seven states (14.6%) reported sending confirmation notices 

pursuant to a formal administrative rule or guidance. Eight states reported that they do not send 

confirmation notices.37

States most commonly reported sending confirmation notices to voters whose mail from an election 

office was returned as undeliverable (81.3%), to voters whose addresses may have changed 

(72.9%), to voters who have not voted in two consecutive general elections (41.7%), to voters who 

have been convicted of a disqualifying felony (35.4%), and to voters who requested removal from the 

voter registration list (29.2%). Less than one-third of states reported sending confirmation notices to

voters who have been declared mentally incompetent, voters who have obtained a driver’s license in

a new state, and voters who have not made contact with their state for a specified length of time.

33 Information on moving an inactive voter to the active list was collected in item Q11b of the Policy Survey. 34 The District of Columbia and American Samoa noted that they do not have local election officials; Puerto Rico noted that 

state and local officials have the same roles and responsibilities. 35 Information on who is responsible for modifying or removing voter registration records was collected in item Q12 of the 

Policy Survey. Nevada did not provide a response, and North Dakota indicated that this question does not apply because 

the state does not have voter registration.

36 Information on the data sources used to identify potentially ineligible voters was collected in item Q14 of the Policy 

Survey.

37 Information on whether and how states send confirmation notices to help identify ineligible voters was collected in item 

Q13 of the Policy Survey.
Election Law and Procedure | 67

Table 2. States Most Often Use State Vital Statistics Office and Reports From Other States to 

Identify Ineligible Voters

Source of Data on Potentially Ineligible Voters Percentage of States That Report Using 

Data From the Data Source

State vital statistics office death records 92.9%

Reports/notices from other states that a former resident has 

registered to vote 89.3%

Requests from voters for removal 85.7%

Entities that maintain felony/prison records 82.1%

Other mail from the election office (not ballots) that was

returned as undeliverable 69.6%

Newspaper death notices/obituaries 66.1%

National Change of Address (NCOA) reports 58.9%

Data from an interstate data-sharing compact 57.1%

Social Security Administration death records 57.1%

Mailed ballots returned as undeliverable 55.4%

Motor vehicle agencies 46.4%

Entities that maintain records of individuals declared mentally 

incompetent 42.9% 

Applications for mailed ballots 26.8%

Jury questionnaires 26.8%

Returned jury summons 16.1%

State public assistance agencies 16.1%

State agencies that serve persons with disabilities 12.5%

Canvassing 8.9%

Other 8.9%

State agencies that are not specified in the NVRA 7.1% 

State tax filings 1.8%

Source: Information on the data sources used to identify ineligible voters was collected in Q14 of the Policy Survey. This 

question also collected information on whether states use commercial data sources, but no state selected that option.

Five states (10.4%) reported that all registered voters routinely receive a non-forwardable notice 

during a specified increment of time; this time frame ranges from one to four years. Just under 30% 

of states reported sending confirmation notices for some other reason.38 For example, some states 

or certain jurisdictions within states indicated that they routinely send confirmation notices as part of 

their list maintenance procedures. States that are members of the Electronic Information 

Registration Center (ERIC) send confirmation notices to individuals who are eligible to vote but are 

38 Information on which voters states send confirmation notices to was collected in item Q13a of the Policy Survey.
68 | Election Law and Procedure 

unregistered. Other states indicated that notices are sent when there may be a change other than 

address (e.g., name). Washington, a state in which nearly all voters cast their ballots by mail, 

reported that the mailing information provided by a returned or forwarded ballot serves as the start 

of the confirmation process.

Criminal Convictions and Voting

The NVRA allows states to remove voters from their registration lists if the voter receives a 

disqualifying criminal conviction or is incarcerated. The Policy Survey asks three questions about 

removing voters from registration lists due to disqualifying felony convictions and about the 

restoration of voting rights:

• Which populations have their voting eligibility suspended due to a criminal conviction?

• For how long does a person with a felony conviction lose their right to vote?

• How can a person with a felony conviction become an eligible voter again?

The District of Columbia, Guam, Maine, Puerto Rico, and Vermont reported that they do not limit a 

person’s right to vote based on a criminal conviction. Conversely, 42 states reported that the 

conviction of any felony will limit a person’s right to vote. About one-fifth of states reported that they 

limit the voting rights of individuals convicted only of certain felonies, and nine states reported that 

they limit the voting rights of individuals who are convicted of other crimes that are not felonies (e.g.,

election-related crimes).39

There is variation in the disqualification time periods and in the processes for restoring voting rights. 

Of the states that have some form of felon disenfranchisement, most reported revoking the right to 

vote during the period of incarceration (90.4%) and/or any period of probation and parole (61.5%). 

Some states also reported revoking voting rights during an additional length of time (19.2%), such as 

a statutorily mandated waiting period and/or until the payment of outstanding fines, restitution, or 

penalties (25%).40

The Policy Survey also asks states to indicate how disenfranchised individuals go about restoring 

their eligibility to vote.41 Minnesota, Missouri, and the U.S. Virgin Islands reported automatically 

restoring the previous voter registration of persons with felony convictions once the period of 

disenfranchisement has passed, requiring no further action by the voter.42 Of the 49 states that

indicated requiring some type of action, 79.6% reported that a person is immediately eligible to vote 

and must reregister through the same process as the general public. Some states reported having 

other conditions, such as presenting documentation during the registration process that shows that 

the person has completed the voter registration requirements (12.2%) and having voting rights 

39 Information on state policies for suspending or revoking voting rights due to criminal convictions was collected in item 

Q37 of the Policy Survey. This item does not distinguish a felony conviction from the subsequent period of incarceration. 40 Information on the length of time a disqualifying felony conviction will restrict voting rights was collected in item Q37a of 

the Policy Survey. 41 Due to North Dakota not having voter registration, a person who is no longer incarcerated is automatically eligible to vote 

without any further action needed. In Delaware, felony convictions result in permanent disqualification from voting. 42 Guam law prohibits incarcerated persons from voting. However, once the period of incarceration has ended, voting rights

are restored. A non-incarcerated felon is able to vote, and the individual is not removed from the voter registration roll. 
Election Law and Procedure | 69

restored through a formal administrative process (16.3%). Thirteen states provided survey 

comments that further explained their policies.43 In Louisiana, for example, if a person is under an 

order of imprisonment for a felony conviction but “has not been incarcerated pursuant to the order 

within the last five years,” then that person is eligible to register. Florida and Iowa reported that the 

type of felony conviction determines the restoration of voting rights. Arizona indicated that for a first 

felony conviction, civil rights are automatically restored upon the completion of the sentence, parole, 

probation period, and payment of restitution; otherwise, voting rights must be restored through a 

formal process. 

Voting by Mail

All states and territories and the District of Columbia offer their citizens the opportunity to cast their 

ballots by mail in federal general elections.44 Some states use the term “absentee voting” to refer to 

mail voting. The 2020 Policy Survey demonstrates that there were wide variations among the states 

in which voters are eligible to vote by mail, what documentation voters must provide in order to 

receive a mailed ballot, how mailed ballots may be returned to election officials, and the deadlines 

for mailed ballots to be postmarked and received by election offices for the 2020 general election. 

The COVID-19 restrictions pushed many states to expand their mail voting policies, and states 

reported more than double the number of mailed ballots cast in the 2020 general election compared 

to the 2016 general election.45

In 2020, 39 states reported that they do not require voters to provide a reason for why they are 

requesting a mailed ballot and for why they cannot vote in person on Election Day; seven of those 

states reported requiring an excuse in 2018 but not in 2020. Conversely, one-third of states 

reported requiring voters to provide an excuse, a decrease from 40% in the 2018 Policy Survey 

responses.46 Twenty-six states reported that voters can request to be on a permanent absentee list 

from which they will automatically receive ballots for all future elections. Either any registrant can 

request to be a permanent absentee voter (21.4% of states) or only individuals who meet specific 

criteria can request to be a permanent absentee voter (25% of states).47

States have special criteria for individuals who make the request to be granted permanent absentee 

status.48 The most common requirement was that the requester must have a disability (78.6% of 

states that have permanent absentee voting); Delaware,49 Massachusetts, New York, Tennessee,

and Wisconsin reported that they will also grant permanent absentee status to those who are infirm,

43 Information on state policies for restoring voting rights to persons with disqualifying felony convictions was collected in 

item Q37b of the Policy Survey. 44 Some states use the term “in-person absentee voting” to refer to the process by which a voter visits an election office to 

request a mailed ballot, completes the ballot, and returns the ballot in one trip. However, EAVS considers this to be a form 

of in-person early voting and asks states to report their data as such. 45 For more information, see Chapter 1 of this report. 46 Information on whether states require an excuse for mail voting was collected in item Q17 of the Policy Survey. 47 Information on whether states have permanent absentee voting was collected in item Q19 of the Policy Survey. 48 Information on who can become a permanent absentee voter was collected in item Q19a of the Policy Survey. 49 Delaware also includes federal or state public service workers and their spouses or dependents, members of the 

uniformed services, and voters who are temporary residents.
70 | Election Law and Procedure 

Figure 6. Number of States Offering Entirely Vote-By-Mail Elections Doubled From 2018 to 2020

Source: Information on the policy of all-mail elections was collected in items Q9 and Q9a of the 2018 Policy Survey and in 

items Q18 and Q18a of the 2020 Policy Survey.
Election Law and Procedure | 71

have a permanent illness, or can provide a note from a medical professional. West Virginia indicated 

allowing address confidentiality program participants to be permanent absentee voters, and 

Louisiana indicated requiring individuals to be over a specified age. Despite conducting all-mail 

elections, Oregon uses the term “absentee voter” for individuals who may be away from their 

residences when ballots are transmitted. 

With 2020’s overall shift toward mail voting, the number of states that conducted all-mail elections, 

in which all registered voters or all active registered voters are automatically sent a mailed ballot, 

doubled since the 2018 Policy Survey. Figure 6 shows the 14 states that have some type of vote-bymail system. Four states reported having some vote-by-mail jurisdictions. Ten states reported having 

statewide vote-by-mail systems, a significant increase from three states in 2018.50 The Policy Survey 

did not record whether the states that altered their all-mail voting policy between the 2018 and the 

2020 general elections did so temporarily or permanently or whether the change was made in direct 

response to the COVID-19 pandemic. It should be noted that although these states mailed registered 

voters a ballot, most states also provided in-person voting options during early voting and/or on 

Election Day.

The Policy Survey also collected data on the circumstances under which voters could receive ballots 

through electronic means. This question applied specifically to non-military voters residing in the 

United States, as voters who are members of the uniformed services or who are overseas citizens 

who wish to receive ballots electronically are covered under UOCAVA. Twenty-nine states reported 

that they allow non-military voters residing in the United States to receive their ballots through an 

electronic format, such as email, fax, through an online voter registration portal, or through a mobile 

phone app. Alaska, Guam, Kentucky, Maryland, Oregon, and Washington reported that voters may 

receive a ballot electronically for any circumstance.51 Other states reported having special 

circumstances.52 For example, 19 states indicated allowing voters with disabilities to receive ballots 

electronically, including seven states where voters must have specific disabilities and 12 states 

where voters may have any disability status.53 Massachusetts specified that the voter must have a 

disability that prevents them from marking a paper ballot independently and privately, and Maine 

noted that the voter must self-identify as having a print disability.

Hawaii, Nevada, and the U.S. Virgin Islands reported that they allow electronic ballot transmission 

when a replacement ballot is need, and seven states reported that they allow electronic ballot 

transmission during emergency situations that hinder in-person voting, such as a natural disaster.54

50 Information on which states have an all-vote-by-mail system was collected in item Q18 of the Policy Survey. Information 

on whether the state’s all-vote-by-mail system is used only in certain jurisdictions or is statewide was collected in item 

Q18a of the Policy Survey. California and Utah reported conducting all-mail elections statewide in 2020. In 2018, both 

states reported that only certain jurisdictions had all-mail elections. 51 California did not report that voters may receive a ballot electronically under any circumstance but commented that any 

voter may cast a ballot using a certified, remote-accessible vote-by-mail system regardless of disability status or whether 

they are an overseas or uniformed services voter.

52 Information on the circumstances under which voters may receive their ballots electronically was collected in item Q23 

of the Policy Survey. 53 The U.S. Virgin Islands chose both of these response options. Delaware noted that disability status includes those who 

are ill or temporarily physically disabled. In Pennsylvania, voters may have any disability as defined by the Americans with 

Disabilities Act (ADA).

54 Hawaii noted that a replacement ballot must be requested within five days of an election.
72 | Election Law and Procedure 

New York and Mississippi extended their requirements to emergency responders, and in Mississippi, 

according to the state UOCAVA statute, emergency responders qualify for an electronic ballot if they 

are deployed outside of their county of residence during an emergency.

Mailed Ballot Tracking and Deadlines

The 2020 Policy Survey asked states to report on their deadlines for mailed ballots from non-military 

voters residing in the United States. Ballot deadlines for voters covered by UOCAVA were reported in 

separate questions, as UOCAVA ballot deadlines are typically different from those for other mailed

ballots. The postmark deadline is Election Day for just under half (46.4%) of states; however, 

Alabama, Iowa, North Dakota, Ohio, and Utah reported having a postmark deadline one day before 

Election Day.55 In 55.4% of states, mailed ballots must be received by Election Day, and in 42.9% of 

states, mailed ballots must be received by a specified number of days after Election Day, with 

responses ranging from one to 20 days after Election Day.56 Louisiana reported that mailed ballots 

must be received by one day before Election Day.57

States also reported how long mailed ballots that arrive past the above deadlines are tracked for 

reporting in Section C of the EAVS.58 These mailed ballots are tracked indefinitely in 42.9% of states, 

or until canvassing is complete in 44.6% of states. Five states have a specific length of time for 

mailed ballot tracking; four of these states reported a date between November 17, 2020, and 

February 1, 2021.59

States vary in what satisfies postmark requirements for mailed ballots.60 In states that require 

postmarks, the most commonly reported required feature was a physical postmark (76.7%),61

followed by hand cancellation or a private express delivery service date stamp (both 44.2% 

respectively) and postal processing markings (41.9%). Less commonly required features were 

intelligent barcodes (23.3%) and a date on a voter affidavit (14%).62 Some states specified other

ways of satisfying postmark requirements.63 Additionally, Ohio indicated accepting an ID tag date, 

and Kansas indicated accepting any other indicia from the U.S. Postal Service. In California, if the 

postmark is missing or damaged and no additional information is provided by the U.S. Postal Service 

or other mail delivery service, the ballot identification envelope will be date stamped upon receipt by 

an election official on or before Election Day. The District of Columbia Board of Elections reported 

55 Twenty-two states indicated that the item asking for a postmark deadline for voters does not apply to them. 56 States that reported having a ballot receipt deadline after Election Day require ballots to be postmarked by Election Day. 57 Information on deadlines for returning mailed ballots was collected in item Q20 of the Policy Survey. 58 Two states did not provide a response to this item. 59 Information on the length of time that ballots are tracked for reporting in EAVS Section C was collected in item Q21 of the 

Policy Survey. Maine reported tracking until November 3, 2022. 60 Thirteen states reported not requiring a postmark for mailed ballots; six states did not provide a response to this item.

South Dakota explained that they do not honor postmarks for ballots; Minnesota also commented that they do not use 

postmarks.

61 Florida specified that physical postmarks are only required for 10-day overseas ballots. See https://dos.myflorida.com/

elections/for-voters/voting/military-and-overseas-citizens-voting/ for more detail on these ballots. 62 In Washington, the postmark requirement may be met by a date on a voter affidavit for UOCAVA ballots that lack a

postmark.

63 Information on mailed ballot postmark requirements was collected in item Q22 of the Policy Survey.
Election Law and Procedure | 73

that they make ballot drop boxes available to voters through Election Day, which satisfies postmark 

requirements.

UOCAVA Voting

UOCAVA requires that all states offer uniformed services members, their eligible family members, 

and overseas citizens the ability to vote absentee in all federal elections. UOCAVA-protected citizens 

have the option of using the FPCA, which serves as both a registration and ballot request application 

and is accepted in all U.S. states and territories. All states accept FPCAs submitted by postal mail. In 

addition, the Military and Overseas Voter Empowerment (MOVE) Act amended UOCAVA, requiring that 

all states offer an electronic means for FPCA submission. UOCAVA voters may submit their FPCA by 

fax, online (either by email or through the state’s online voter registration portal), or by other modes, 

as allowed by state law.

All states are required to accept FPCAs by postal mail. In 2020, the most common additional 

methods for accepting FPCAs were email and fax; both modes were allowed in over 90% of states. 

Twenty-four states (42.9%, an increase from 36.4% in 2018) reported accepting FPCAs submitted 

through the state’s online voter registration portal.64 Some states reported that FPCAs can be 

submitted by some other method; South Carolina and Colorado indicated allowing in-person returns, 

and Louisiana indicated allowing returns by commercial carrier. Oklahoma reported allowing UOCAVA 

voters to email their ballot materials to FVAP’s electronic transmission service, after which the email 

is converted to fax and sent to the appropriate county election board. Maine specified allowing 

UOCAVA voters to request an absentee ballot through the state’s online absentee ballot request 

service. A voter registration submitted via FPCA is considered permanent in 53.6% of states (a 

decrease from 72.7% in 2018) and temporary in 46.4% of states (an increase from 25.5% in

2018).65

States differ in the length of time an FPCA absentee ballot request remains valid; that is, the period 

of time or number of elections for which a voter can retain their UOCAVA status and have an 

absentee ballot transmitted to them.66 Almost half (46.4%) of states reported that the length of time 

the FPCA will serve as a ballot request mechanism is a specified number of calendar years; in most 

of those states, the length of time is one year, although in North Dakota, Utah, and Virginia, it is two 

years. In other states, the length of time is measured by the number of general election cycles 

(12.5%); most of those states specified a length of one general election cycle, although Minnesota 

and Oklahoma specified two general election cycles. Some states (8.9%) reported that they will use 

the FPCA as a ballot request mechanism until the voter moves from their residence.67

64 Maryland reported allowing the three listed options if the voter is already registered and is using the FPCA to request an 

absentee ballot. If the FPCA is used to register, it must be submitted by mail or through Maryland’s online voter registration 

portal. In Wisconsin, non-military UOCAVA voters cannot submit registrations, including the FPCA, by email or fax. 65 Information on the methods by which UOCAVA voters can submit an FPCA, other than by postal mail, was collected in 

item Q26 of the Policy Survey. Information on whether a voter registration submitted through an FPCA is permanent or 

temporary was collected in item Q27 of the Policy Survey. 66 Information on how long UOCAVA voters remain eligible to receive absentee ballots was collected in item Q28 of the 

Policy Survey.

67 This information is provided by the U.S. Postal Service or the voter.
74 | Election Law and Procedure 

About one-third (32.1%) of states provided a description of another length of time that was unlisted 

in the Policy Survey question, with some states making distinctions between general and primary 

elections and others reporting a time linked with either a specific election timeline or a length of time 

tied to the submission of the FPCA. Nevada reported that voters retain their status until the end of 

the following calendar year, and Maine reported that the status remains eligible for 18 months. 

American Samoa, Oregon, and Washington specified a timeline based on changes to a voter’s 

registration record. California, New Jersey, and North Carolina reported that eligibility remains 

permanent. Voters also continue to remain eligible in Pennsylvania, as long as they are registered to 

vote and they reapply for an absentee ballot each election cycle. The Northern Mariana Islands also 

reported that they require all registered voters to request their absentee ballots each election year.

UOCAVA Voting Deadlines

In addition to reporting deadlines for mailed ballots from non-UOCAVA voters, the 2020 Policy Survey 

asked states to report deadlines for ballots submitted by both uniformed services voters residing in 

the United States and overseas UOCAVA voters. States provided information on both postmark 

deadlines and ballot receipt deadlines, as applicable. In 2020, the postmark deadline was Election 

Day in about half of the states (48.2%) for domestic uniformed services voters; however, in Iowa, 

North Dakota, and Pennsylvania, the postmark deadline was one day before Election Day.68 Just 

under half of the states (41.1%) reported that ballots had to have been received by Election Day, and 

58.9% of the states indicated that the ballots must have been received by a specified number of 

days after Election Day, with responses ranging from two to 20 days after Election Day.69

For overseas UOCAVA voters, Election Day was the postmark deadline in half of the states. The three 

states mentioned above also reported having a postmark deadline one day before Election Day for 

these voters.70 Ballots in 39.3% of the states were required to be received by Election Day; in the 

remaining 60.7% of states ballots could arrive after Election Day and still remain eligible to be 

counted, with the deadlines ranging from two to 20 days after Election Day. The majority of states 

(83.7%) reported that they have the same postmark requirements for UOCAVA ballots and mailed

ballots from non-UOCAVA voters.71 Eight states indicated that the requirements are different.72

For more information about how UOCAVA voters participated in the 2020 general election, including 

ballots transmitted, returned, counted, and rejected, and the use of the Federal Write-In Absentee 

Ballot (FWAB), see Chapter 4 of this report.

68 Twenty-three states indicated that the item asking for a postmark deadline for domestic military UOCAVA voters does not 

apply to them.

69 Information on deadlines for ballots submitted by uniformed services voters residing in the United States was collected 

in item Q29 of the Policy Survey. 70 Twenty-two states indicated that the item asking for a postmark deadline for overseas UOCAVA voters does not apply to 

them.

71 Seven states did not provide a response to this item. West Virginia does not require postmarks. 72 Information on deadlines for ballots submitted by overseas UOCAVA voters was collected in item Q30 in the Policy 

Survey. Information on the differences between postmark requirements for UOCAVA and non-UOCAVA voters was collected 

in item Q31 in the Policy Survey.
Election Law and Procedure | 75

In-Person Voting

The traditional image of voting in America involves voters physically traveling to a polling location and 

casting their ballots in person. In some cases, however, an individual may vote in person without 

having to go to a polling place on Election Day.

In-Person Voting Before Election Day

Most states reported that they allow individuals to cast their ballots in person before Election Day 

(not including the hand delivery of mailed ballots).73 This type of voting generally falls into two 

categories:

• A voter may go to a polling place before Election Day, receive a ballot, vote their ballot while at

the polling place, and place their completed ballot into a ballot box or tabulator.

• A voter may go to an election office to pick up a ballot over the counter. In some states, the

voter may be able to take their ballot home with them, whereas in other states, the ballot must

be completed in the office. The ballot is then sealed in an envelope and tabulated along with

ballots that are returned to the office by mail according to local procedures.

Different states use the terms “in-person early voting” and “in-person absentee voting” to describe 

both of the voting methods above, although other terms exist as well. Some states offer both types of 

voting activities.

Table 3. Examples of Unique Descriptions of In-Person Early Voting 

State Description of In-Person Early Voting

American Samoa Local absentee voting

Connecticut Can request an absentee ballot, vote on the spot, and not return 

it by mail

Georgia Advance voting

Hawaii In-person voting

Kansas In-person advance voting

North Carolina One-stop and early voting

Oregon Some populations can go to county elections office and receive a 

ballot, which they can then use to vote

Pennsylvania Mailed ballots can be completed over the counter at an election 

office

Puerto Rico Voting in their houses via USPS mail

Washington In-person voting

Source: Information on the descriptions of in-person early voting was collected in Q24 of the Policy Survey.

73 New Jersey does not have in-person voting before Election Day.
76 | Election Law and Procedure 

Twenty-nine states (51.8%) reported having in-person early voting, and 27 states (48.2%) reported 

having in-person absentee voting.74 Ten states specified unique descriptions for early voting, as seen 

in Table 3. Twelve states (21.4%) reported requiring an excuse to vote in person before Election Day, 

a decrease from the 15 states that reported this policy in 2018.75

Vote Centers

The EAC describes vote centers as centralized, consolidated polling sites that serve as alternatives to 

traditional polling places.76 Jurisdictions that use vote centers allow voters to cast their Election Day 

ballots at any vote center in their jurisdiction, rather than needing to vote at a specifically assigned 

polling place. The 2020 Policy Survey asked whether any of the state’s jurisdictions allow voters to 

cast ballots at any polling place or vote center in their jurisdiction and to describe how vote centers 

operate.

Over one-third of states (37.5%) reported having vote centers or allowing voters to cast ballots at any 

polling place in the voter’s jurisdiction. Eight of those states (38.1%) indicated that they require the 

use of vote centers statewide. Another eight reported having vote centers, but jurisdictions have the 

option not to implement them. Alabama, Arkansas, Missouri, Tennessee, and Texas (comprising 

23.8% of the states) reported having vote centers, but only in jurisdictions that meet specific 

requirements.77

Voter Identification

Under HAVA, Congress established minimum identification standards that an individual must meet in 

order to register to vote:

• Individuals who register to vote at their state’s motor vehicle agency, another government

agency, or using an online registration portal are typically authenticated by presenting

appropriate documentation to the government agency and by the state matching the person’s

driver’s license number or last four digits of their social security number to an existing state

record.

• Individuals who register by mail and who have not voted before for federal office in their state

of residence are required to present, at some point before voting, either a current and valid

photo identification or a copy of a utility bill, bank statement, government check, paycheck, or

other government document that shows the person’s name and address.

74 Information on the terminology used to describe the process of voting in person before Election Day was collected in item 

Q24 of the Policy Survey. States were able to select multiple response options. 75 Information on whether an excuse is required to vote in person before Election Day was collected in item Q24a of the 

Policy Survey.

76 U.S. Election Assistance Commission. (2017, November 11). EAVS Deep Dive: Poll Workers and Polling Places: U.S. 

Election Assistance Commission. https://www.eac.gov/documents/2017/11/15/eavs-deep-dive-poll-workers-and-pollingplaces. 77 Information on whether any jurisdictions within a state will allow voters to cast ballots at any polling location or vote 

center in their jurisdiction was collected in item Q25 of the Policy Survey. Information on how vote centers operate was 

collected in item Q25a of the Policy Survey.
Election Law and Procedure | 77

• Individuals who are entitled to vote by absentee ballot under UOCAVA or entitled to vote other

than in person under the Voting Accessibility for the Elderly and Handicapped Act or other

federal law are exempt from HAVA’s identification requirements.

The definition of voter identification varies by state. In some states it can mean a government-issued 

document with a photograph, whereas in other states, it can mean a voter-executed affidavit 

affirming identity. For in-person, non-first-time voting whether before or on Election Day, most states 

(53.6%) reported that they require voters to present a government-issued photo identification as 

proof of their identity.78 Twenty states (35.7%) reported allowing voters to present a governmentissued, non-photo identification, and 24 states (42.9%) reported allowing non-government-issued, 

non-photo identification. Some states reported allowing a proof of residence (32.1%), a signed 

affidavit affirming identity with no further action required (37.5%) or with the requirement of 

presenting proper identification before a provisional ballot is counted (23.2%), or in some cases, 

voters may have a person registered to vote within that jurisdiction vouch for their identity (12.5%). 

Five states (8.9%) reported that they do not have identification requirements for in-person voting.79

Provisional Voting

The EAC has provided best practices on the development of provisional voting procedures and notice 

to voters to ensure provisional voting procedures are fair, transparent, effective, and consistently 

applied to all voters in the state. The EAC states in its Best Practices on Provisional Voting report: 

Section 302 of the Help America Vote Act (HAVA) creates the right for potential voters to cast 

provisional ballots in the event their names do not appear on the registration list or the 

voters’ eligibility is challenged by an election official. The issuance of a provisional ballot is 

best described as a safety net or fail safe for the voter, in that:

• It maintains the person’s intent to vote and selections until election officials determine that

the person does or does not have the right to cast a ballot in the election.

• It allows the determination of the voter’s eligibility to be made at a time when more perfect

or complete information is available either from the voter or from the election jurisdiction.80

HAVA specifies minimum requirements for notice to voters and provides opportunities for voters to 

resolve eligibility issues. Within the federal framework, states have different methods of complying 

with the provisional notification to voter requirements, using different technology and different 

timetables. State and local election officials ultimately apply their policies, procedures, and state 

legal requirements when making a determination as to whether or not to count a provisional ballot. 

For example, a state that has a stricter standard for the identification of voters than is contained in 

HAVA would apply its standard to determine if a given provisional ballot meets the state’s ID 

standard.

78 Two states did not provide a response to the item asking about identification requirements. 79 Information on establishing a voter’s identity during in-person voting was collected in item Q36 of the Policy Survey. 80 U.S. Election Assistance Commission. (2017, February 27). Best Practices on Provisional Voting. 

https://www.eac.gov/documents/2017/02/27/eac-best-practices-on-provisional-voting/. 
78 | Election Law and Procedure 

Table 4. States That Use Provisional Ballots Most Often Do So When an Election Official Asserts 

That an Individual Is Ineligible to Vote

Reason for Offering Voters a Provisional Ballot

Percentage of States That Use

Provisional Voting and Offer Provisional 

Ballots for the Listed Reason

An election official asserts that an individual is not eligible to 

vote 92%

A voter’s name does not appear on the list of eligible voters 86%

A voter does not have proper identification 80%

A voter is not a resident of the precinct in which they are 

attempting to vote 80%

Another person (not an election official) challenges a voter’s 

qualifications, and the poll worker is not able to resolve the 

challenge

56%

A voter was issued a mailed ballot, but chooses to vote in 

person on Election Day and does not have the mailed ballot to 

surrender to poll workers

54%

A voter has changed their name or address but has not 

updated their voter registration 52%

A federal or state judge extends polling place hours in a federal 

election 48% 

Other 26%

Source: Information on the circumstances for the use of provisional ballots was collected in Q32a of the Policy Survey.

Fifty states reported using provisional ballots for different reasons. The most common reason was an 

election official has asserted an individual is not eligible to vote.81 Table 4 provides a full list of 

reasons the states use provisional ballots.

If a voter casts a provisional ballot as a result of not having acceptable identification during voting, 

the deadline by which they must present appropriate identification to election officials to verify their 

identity and to have their provisional ballot accepted was most commonly reported as a specified 

number of days after Election Day. The 11 states that have this policy reported a range of one to 

nine days after Election Day. However, in Massachusetts and Wisconsin, the deadline for 

adjudicating provisional ballots for the 2020 general election was a specified date: November 6, 

2020.82

81 Information on whether states use provisional ballots was collected in item Q32 of the Policy Survey. Information on the 

circumstances under which a state will use provisional ballots was collected in item Q32a of the Policy Survey. 82 Information on deadlines for presenting appropriate identification to have a provisional ballot counted was collected in 

item Q36a of the Policy Survey.
Election Law and Procedure | 79

After the election, many states have a limited amount of time in which to adjudicate provisional 

ballots and decide whether the ballots will be counted (either in full or in part) or rejected.83 Twentysix percent of the states that use provisional ballots reported that the deadline is by a specified date; 

for the November 3, 2020, general election, these dates ranged from November 3, 2020, to 

November 24, 2020. Most states (70%) indicated that this deadline is specified as a number of days 

after Election Day, with responses ranging between one day and 28 days.84

Eight percent of the states that use provisional ballots reported provisional ballots cast in the wrong 

precinct would be fully counted, and 40% of the states reported that they would be partially 

counted.85 Slightly more than half of the states (52%) reported that these ballots would be

rejected.86

Election Technology

Voting system testing and certification are required in the majority of states (83.9%) by statute, and a 

few states (10.7%) indicated that they require testing and certification through a formal 

administrative rule or guidance. American Samoa, Mississippi, and Oklahoma reported that voting 

system testing and certification before the system’s approval for purchase is not required. The 2020 

Policy Survey then asked states to describe their policies regarding the role of the EAC and federal 

testing and certification. States most commonly reported requiring testing by an EAC-accredited 

Voting System Test Laboratory (VSTL; 45.3%), certification to the EAC-adopted Voluntary Voting 

System Guidelines (VVSG; 43.4%), and/or state and federal certification (41.5%; see Figure 7).87

Some states provided clarifying comments: The District of Columbia reported that it requires that 

voting systems must meet or exceed HAVA standards and/or be federally certified. Similarly, Oregon

reported that the system must be EAC certified or examined by a federally accredited VSTL. New York

indicated that a secondary source code review is performed by an independent security expert.

Alaska reported that it may approve a voting system upon consideration by an election 

administrator,88 and Guam indicated having an independent entity that conducts testing to 

determine the integrity of voting machines as deemed appropriate by election commissioners. 

Wisconsin reported having the statutory authority to certify systems without federal certification, but 

in practice, state testing typically does not start until federal certification is acquired.

Although there is no testing or certification of electronic poll books, sometimes called e-poll books, 

on the federal level, many states have their own process for testing or certifying these machines 

83 One state did not provide a response to this item. In Maine, provisional ballots are automatically counted unless a 

recount results in a contested election and the number of challenged ballots can affect the outcome.

84 Information on the deadlines for adjudicating provisional ballots is collected in Policy Survey item Q32b. 85 For example, a state might only count items on the ballot for which the voter would have been eligible had they voted in 

the correct precinct.

86 Information on what happens to provisional ballots cast in the wrong precinct is collected in Policy Survey item Q32c. 87 Information on voting system testing and certification policies was collected in items Q15 and Q15a of the Policy Survey. 88 AK Stat § 15.20.910 (2016)
80 | Election Law and Procedure 

Figure 7. States That Require Voting System Testing Most Commonly Require Testing From an 

EAC-Accredited VSTL

Source: Information on voting equipment testing and certification policy was collected in Q15a of the Policy Survey.

before approving them for purchase. Of the 40 states (71.4%) that reported using e-poll books either 

statewide or only in certain jurisdictions, 42.5% indicated that they do not require testing or 

certification before the e-poll books’ approval for purchase.89 In about one-third of the states that 

reported having e-poll book requirements, the testing and certification are required by statute, 

whereas in one-fourth of the states, testing and certification are required by formal administrative

rule or guidance.90

The 2020 Policy Survey asked whether any jurisdictions in the state use e-poll books and whether 

testing and certification are required before e-poll books’ “approval for purchase.” The Policy Survey 

and EAVS did not collect data on other procedures a jurisdiction may require before authorizing the 

89 Colorado, Hawaii, and Massachusetts reported in the Policy Survey that they use e-poll books but did not report data on 

the usage of e-poll books in item F3 of the EAVS. Puerto Rico reported data on the usage of e-poll books in the EAVS but 

reported not using e-poll books in the Policy Survey. 90 Information on poll books was collected in items Q16 and Q16a of the Policy Survey. Illinois did not provide a response 

to this item.
Election Law and Procedure | 81

use of e-poll books, including but not limited to pre-election testing, secure physical storage, 

contingency planning, chain-of-custody practices, and poll worker training.

Recounts, Audits, and Election Certification

Before local election officials certify the results of an election, they take steps to verify that all 

established election procedures were followed and that all voting equipment functioned properly. 

Many states require additional post-election verification that the counting process was accurate. 

These additional verifications may take the form of a partial recount (in which ballots in randomly 

selected precincts are counted a second time to ensure that the initial tabulation of votes was 

accurate) or a more detailed audit (in which the entire voting process is reviewed and key steps are 

verified).

Recounts 

An election recount is a repeat tabulation of all votes cast in an election, and it is used to determine 

the accuracy of an initial count. The EAVS Policy Survey did not ask if the reasons for a recount were 

automatic, mandatory, or triggered. The information collected in these questions quantifies what is 

generally allowed by law in a specified state. Figure 8 displays the reasons why states may have 

conducted an election recount for the 2020 general election. States reported that the most common 

reason a recount may be conducted is at the request of an affected candidate or party (55.4%). Less 

common reasons were if the results of a contest are within a specified margin (37.5%), another 

person or group requests a recount (30.4%),91 or if the results of a contest are within a specified 

margin and it is requested by an affected candidate or party (28.6%). Arizona, Mississippi, New 

Jersey, New York, the Northern Mariana Islands, and Tennessee reported that recounts are only 

authorized if a court orders it.92

91 Based on state comments, this reason can include voters or groups of voters, a county board of canvassers, a county 

election commission, a political party chair, or a person opposing a state or local measure. Washington specified that a 

group of five or more voters may request a recount for an issue, and Nevada specified that any person or group could 

request a recount of a ballot measure by November 18, 2020. 92 Information on state policies regarding election recounts was collected in item Q34 of the Policy Survey.
82 | Election Law and Procedure 

Figure 8. Post-Election Recounts Most Often May Be Conducted at the Request of an Affected 

Candidate or Party

Source: Information on post-election recount policy was collected in Q34 of the Policy Survey.

Post-Election Tabulation Audits

A post-election tabulation audit verifies that the voting equipment used to count ballots during an 

election properly counts a sample of voted ballots after an election. The majority of states (78.6%) 

indicated requiring some form of post-election tabulation audit, with some variation.93 States most 

commonly indicated that a post-election audit is conducted as a statutory requirement, but Missouri 

and Nebraska stated that they conduct an audit as required by a formal administrative rule or 

guidance. Tennessee indicated only requiring a post-election tabulation audit for jurisdictions using 

optical scan voting systems. In Oklahoma, the secretary of the state election board can direct the 

secretary of a county election board to conduct post-election audits to ensure that voting devices 

and software correctly tabulated votes. Louisiana reported that it does not statutorily require 

tabulation audits, but audits are conducted in all parishes. The Policy Survey did not collect 

93 Information on whether a state requires a post-election tabulation audit was collected in item Q35 of the Policy Survey. 

Louisiana is not included in this calculation because it reported that “Our state does not statutorily require audits, but they 

are conducted in every parish.” 
Election Law and Procedure | 83

information on whether these audits were mandatory, triggered, or conducted only in certain 

circumstances.

The 2020 Policy Survey asked states to report which of the following post-election tabulation audits

would be required for the 2020 general election. States could select multiple options as applicable:

• A traditional tabulation audit that comes from a fixed percentage of randomly selected voting

districts or voting machines and is compared to the results produced by the voting system;

• A risk-limiting tabulation audit that is a protocol designed to limit the risk of certifying an

incorrect election outcome by using statistical methods to select the audit sample size; or

• Another type of audit.

Roughly three-quarters of the states reported requiring a traditional tabulation audit, and about onefifth of the states reported requiring a risk-limiting tabulation audit.94 Thirteen states (28.9%) 

provided comments detailing alternative procedures.95 For example, California stated that a 

jurisdiction may choose to conduct a risk-limiting audit instead of a traditional tabulation audit, and

Nevada noted that after an initial pilot tabulation audit conducted after the 2020 general election, 

the state will require risk-limiting tabulation audits starting after the 2022 primary election. 

Pennsylvania also reported that it piloted a risk-limiting tabulation audit after the 2020 general 

election in addition to their statutory requirement. 

Some states reported having additional steps in their tabulation audit processes. For example, 

Maryland stated that it conducts a traditional manual audit as well as a completely automated 

tabulation audit using ballot images. Louisiana noted that its tabulation audit includes a comparison 

between the number of times a machine was used for voting, the number of voters that signed a 

precinct register, the names written in the precinct poll books, and the voters who were given credit 

for voting in the statewide database. Washington reported that local election officials can choose 

among three methods to meet the state post-election tabulation audit requirement, including the 

option for a risk-limiting audit.

Election Certification

Although some local jurisdictions might have earlier deadlines for finalizing election results, elections 

are not officially certified until the state provides a final result. The 2020 Policy Survey asked states 

to provide their election certification deadlines for the 2020 general election.96 The range was 

broad,97 with 41 states reporting a date between November 10, 2020, and November 30, 2020.98

94 Information on the type of post-election tabulation audit that states require was collected in item Q35a of the Policy 

Survey. States were able to make multiple selections in this item’s response options. 95 In Louisiana, post-election tabulation audits were conducted by comparing all voting machine results to the number of 

voters that signed the precinct register, the names written in the precinct poll books, and the voters given credit for voting 

in the statewide database. However, Louisiana specified that post-election tabulation audits were not statutorily required

for the 2020 general election. 96 Hawaii does not have an election certification deadline; results are certified within 20 days of the election unless the 

Supreme Court has contested an election.

97 The range was as early as November 4, 2020, in Puerto Rico and as late as December 11, 2020, in California. 98 Information on deadlines for certifying the November 2020 general election results was collected in item Q33 of the 

Policy Survey. 
84 | Election Law and Procedure 

States provided clarifying comments on their specific policies regarding their certification deadline. 

For example, Puerto Rico, Hawaii, Pennsylvania, Tennessee, and Rhode Island reported not having a 

specific state certification deadline,99 and the District of Columbia and Guam noted that their 

reported dates were tentative deadlines. Additionally, Alaska commented that their reported date 

was a target deadline, and North Carolina noted their reported deadline was barring recounts or 

protests in individual races.

99 Tennessee and Pennsylvania noted that their reported deadlines apply to county officials, not state officials.
Election Law and Procedure | 85

Appendix A: Descriptive Tables

Policy Survey Table 1: Voter Registration Database Type

State Top down Bottom up Hybrid

If bottom up or hybrid: 

How often do jurisdictions 

transmit registration 

information?

Alabama ✓ -- -- --

Alaska ✓ -- -- --

American Samoa ✓ -- -- --

Arizona -- -- ✓ Real time

Arkansas -- ✓ -- Daily

California -- ✓ -- Real time

Colorado ✓ -- -- --

Connecticut -- ✓ -- Real time

Delaware ✓ -- -- --

District of Columbia ✓ -- -- --

Florida ✓ -- -- --

Georgia ✓ -- -- --

Guam ✓ -- -- --

Hawaii -- -- ✓ Real time

Idaho ✓ -- -- --

Illinois [1] -- ✓ -- Other

Indiana ✓ -- -- --

Iowa ✓ -- -- --

Kansas ✓ -- -- --

Kentucky ✓ -- -- --

Louisiana ✓ -- -- --

Maine -- -- ✓ Real time

Maryland ✓ -- -- --

Massachusetts ✓ -- -- --

Michigan ✓ -- -- --

Minnesota [2] -- -- -- --

Mississippi -- ✓ -- Real time

Missouri ✓ -- -- --

Montana ✓ -- -- --

Nebraska ✓ -- -- --

Nevada -- ✓ -- Daily

New Hampshire ✓ -- -- --

New Jersey ✓ -- -- --

New Mexico ✓ -- -- --

New York -- ✓ -- Real time

North Carolina ✓ -- -- --
86 | Election Law and Procedure 

State Top down Bottom up Hybrid

If bottom up or hybrid: 

How often do jurisdictions 

transmit registration 

information?

North Dakota ✓ -- -- --

Northern Mariana Islands 

[3] -- -- ✓ Other

Ohio -- ✓ -- Real time

Oklahoma ✓ -- -- --

Oregon ✓ -- -- --

Pennsylvania ✓ -- -- --

Puerto Rico -- ✓ -- Real time

Rhode Island -- -- ✓ Real time

South Carolina ✓ -- -- --

South Dakota ✓ -- -- --

Tennessee -- ✓ -- Daily

Texas [4] -- -- ✓ Other

U.S. Virgin Islands ✓ -- -- --

Utah -- ✓ -- Daily

Vermont ✓ -- -- --

Virginia ✓ -- -- --

Washington ✓ -- -- --

West Virginia ✓ -- -- --

Wisconsin ✓ -- -- --

Wyoming ✓ -- -- --

Policy Survey Table 1 Calculation Notes: 

Top down, Bottom up, and Hybrid uses question Q4.

How often do jurisdictions transmit registration information uses question Q4a.

Policy Survey Table 1 Data Notes: 

General Notes: 

• States were only able to select single responses to both Q4 and Q4a.

[1] Illinois reported that “If the jurisdiction[’]s vendor has web services, the information is uploaded in real

time. However, those without web [servers] send a batch every night.”

[2] Minnesota did not provide a response to these items.

[3] In the Northern Mariana Islands, “Information [is] retrieved upon request.”

[4] Texas reported that the approximately 215 counties categorized as “online” counties transmit

registration information in real time, whereas the 39 counties categorized as “offline” counties transmit

registration information daily.
Election Law and Procedure | 87

Policy Survey Table 2: Electronic Information Sharing With Government Entities

State

Motor 

vehicles 

agencies

Agencies for 

people with 

disabilities

State public 

assistance 

agencies

Other state 

agencies

Federal 

agencies

Alabama Daily -- -- -- --

Alaska [1] Daily -- -- Other --

American Samoa -- -- -- -- --

Arizona Real time -- -- -- --

Arkansas Daily -- -- -- --

California Real time -- -- -- --

Colorado Daily -- -- -- --

Connecticut [2] Real time -- -- -- --

Delaware [3] Real time -- Other -- --

District of Columbia [4] Real time -- -- -- --

Florida Daily -- -- -- --

Georgia Daily -- -- -- --

Guam -- -- -- -- --

Hawaii [5] Other -- -- -- --

Idaho -- -- -- -- --

Illinois Daily Daily Daily Real time --

Indiana Daily -- -- -- --

Iowa Daily -- -- -- --

Kansas Daily -- -- -- --

Kentucky [6] Real time Daily Daily -- --

Louisiana Daily -- -- -- --

Maine -- -- -- -- --

Maryland [7] Daily Daily Daily Daily --

Massachusetts Daily -- Daily -- --

Michigan Daily -- -- -- --

Minnesota Daily -- -- -- --

Mississippi Daily -- -- -- --

Missouri -- -- -- -- --

Montana Weekly -- -- -- --

Nebraska [8] Other -- -- -- --

Nevada Daily -- -- -- --

New Hampshire [9] Other -- -- -- Other

New Jersey Daily -- -- -- --

New Mexico Daily -- -- -- --

New York Daily -- -- -- --

North Carolina Daily -- -- -- --
88 | Election Law and Procedure 

State

Motor 

vehicles 

agencies

Agencies for 

people with 

disabilities

State public 

assistance 

agencies

Other state 

agencies

Federal 

agencies

North Dakota Daily -- -- -- --

Northern Mariana 

Islands [10] -- -- -- -- --

Ohio Daily -- -- -- --

Oklahoma [11] Other -- -- -- --

Oregon [12] Other -- -- -- --

Pennsylvania Daily Real time Real time -- --

Puerto Rico -- -- -- -- --

Rhode Island Real time -- -- -- --

South Carolina Weekly Weekly Weekly -- --

South Dakota Daily -- -- -- --

Tennessee Monthly -- -- -- --

Texas Daily -- -- -- --

U.S. Virgin Islands [13] -- -- -- Other --

Utah [14] Daily Weekly Weekly Weekly Weekly

Vermont Daily -- -- -- --

Virginia Real time -- -- -- --

Washington Real time Real time Real time Real time --

West Virginia Daily -- -- -- --

Wisconsin [15] Daily -- -- -- --

Wyoming Daily -- -- -- --
Election Law and Procedure | 89

State Military 

recruiting offices

Entities that 

maintain death 

records

Entities that 

maintain felony 

records

Entities that 

maintain records 

of individuals 

declared 

mentally 

incompetent

Alabama -- Daily Daily --

Alaska [1] -- -- -- --

American Samoa -- Monthly Monthly --

Arizona -- -- -- --

Arkansas -- Monthly Monthly --

California -- Weekly Monthly Monthly

Colorado -- Monthly Weekly --

Connecticut [2] -- Monthly Monthly Other

Delaware [3] -- Monthly -- --

District of Columbia [4] -- Other -- --

Florida -- Daily Daily --

Georgia -- Weekly Monthly Monthly

Guam -- -- -- --

Hawaii [5] -- Monthly -- --

Idaho -- Monthly Monthly --

Illinois -- Monthly Monthly --

Indiana -- Monthly Monthly --

Iowa -- Monthly -- --

Kansas -- Weekly Weekly --

Kentucky [6] Other Weekly Weekly Daily

Louisiana -- Monthly Monthly --

Maine -- Monthly -- --

Maryland [7] -- Monthly Monthly Other

Massachusetts -- -- -- --

Michigan -- Weekly Daily --

Minnesota -- Monthly Monthly Monthly

Mississippi -- Monthly Daily --

Missouri -- Monthly Monthly --

Montana -- Monthly Weekly --

Nebraska [8] -- Weekly Monthly --

Nevada -- Daily -- --

New Hampshire [9] -- Other -- --

New Jersey -- Weekly Weekly --

New Mexico -- -- -- --

New York -- Monthly Monthly Monthly

North Carolina -- Monthly Daily --

North Dakota -- -- -- --
90 | Election Law and Procedure 

State Military 

recruiting offices

Entities that 

maintain death 

records

Entities that 

maintain felony 

records

Entities that 

maintain records 

of individuals 

declared 

mentally 

incompetent

Northern Mariana 

Islands [10] -- -- -- --

Ohio -- Monthly -- --

Oklahoma [11] -- Monthly Monthly --

Oregon [12] -- -- -- --

Pennsylvania -- Weekly -- --

Puerto Rico -- Real time -- --

Rhode Island -- -- -- --

South Carolina -- Monthly Monthly --

South Dakota -- Daily Daily --

Tennessee -- Monthly Monthly --

Texas -- Weekly Weekly --

U.S. Virgin Islands [13] -- -- -- --

Utah [14] Monthly Other Monthly Other

Vermont -- -- -- --

Virginia -- Monthly Monthly Monthly

Washington -- Monthly Monthly Monthly

West Virginia -- Monthly Monthly --

Wisconsin [15] -- Monthly Daily --

Wyoming -- Weekly Weekly --

Policy Survey Table 2 Calculation Notes: 

Motor vehicles agency uses questions Q5a_1 and Q5a_2.

Agencies for people with disabilities uses questions Q5b_1 and Q5b_2.

State public assistance agencies uses questions Q5c_1 and Q5c_2.

Other state agencies uses questions Q5d_1 and Q5d_2.

Federal agencies uses questions Q5e_1 and Q5e_2.

Military recruiting offices uses questions Q5f_1 and Q5f_2.

Entities that maintain death records uses questions Q5g_1 and Q5g_2. 

Entities that maintain felony records uses questions Q5h_1 and Q5h_2. 

Entities that maintain records of individuals declared mentally incompetent uses questions Q5i_1 and 

Q5i_2.

Policy Survey Table 2 Data Notes: 

General Notes: 

• States were only able to select a single response to Q5a_2–Q5i_2.

[1] Alaska reported that electronic information sharing with other, non-NVRA-required state agencies

occurs after the March 31 deadline to apply for the Permanent Fund Dividend has passed. This typically

involves one data file transfer.
Election Law and Procedure | 91

[2] Connecticut reported sharing electronic information with entities that maintain records of individuals

declared mentally incompetent on an as-needed basis.

[3] Delaware reported that information is transmitted to state public assistance agencies at the moment

the information is submitted to the voter portal by a client.

[4] The District of Columbia reported that information is shared with entities that maintain death records

on a quarterly basis.

[5] Hawaii reported that voter information is shared with its motor vehicle agency upon request.

[6] Kentucky reported that it shares voter information with military recruiting offices as requests occur.

[7] Maryland reported that it is notified as needed by the Maryland Judiciary when a person is declared

mentally incompetent by order of the courts.

[8] Nebraska conducts real-time checks of driver’s license, state identifications, and SSN information on

file with the motor vehicles agency. Daily transfers are conducted with the motor vehicle agency for voter

registrations that occur at the agency, surrendered IDs, changed IDs, or SSNs needing verification from the

Social Security Administration.

[9] New Hampshire reported that it shares voter information with the motor vehicles agency, federal

agencies, and entities that maintain felony records in a one-way exchange from the agencies to the

election office.

[10] The Northern Mariana Islands did not provide a response to these items.

[11] Oklahoma reported that offices that have converted to the Department of Public Safety’s (DPS) new

system share data daily. Offices that have not yet converted to the new system can only send address

change data, and that data is sent weekly. Information regarding Oklahoma driver’s licenses surrendered

in another state is received monthly.

[12] Oregon reported that information is exchanged with the motor vehicles agency Monday through

Friday.

[13] The U.S. Virgin Islands reported that information is exchanged with other state agencies at the

request of the court.

[14] Utah reported that information is exchanged with entities that maintain death records on a bimonthly

basis and entities that maintain records of individuals declared mentally incompetent as needed.

[15] Wisconsin receives competency data electronically from the courts.
92 | Election Law and Procedure 

Policy Survey Table 3: Online Voter Registration Policies

State

Individuals can register 

to vote and update their 

registration via the 

system

Individuals can update 

their registration via the 

system

State-issued driver's 

license or ID is required 

to use this system

Alabama ✓ -- Yes

Alaska ✓ -- Yes

American Samoa -- -- --

Arizona ✓ -- Yes

Arkansas -- -- --

California ✓ -- No

Colorado ✓ -- Yes

Connecticut ✓ -- Yes

Delaware ✓ -- Yes

District of Columbia ✓ -- No

Florida ✓ -- Yes

Georgia ✓ -- Yes

Guam ✓ -- Yes

Hawaii ✓ -- Yes

Idaho ✓ -- Yes

Illinois ✓ -- Yes

Indiana ✓ -- Yes

Iowa ✓ -- Yes

Kansas ✓ -- Yes

Kentucky ✓ -- No

Louisiana ✓ -- Yes

Maine -- -- --

Maryland ✓ -- Yes

Massachusetts ✓ -- Yes

Michigan ✓ -- Yes

Minnesota ✓ -- No

Mississippi -- ✓ Yes

Missouri ✓ -- No

Montana -- -- --

Nebraska ✓ -- Yes

Nevada ✓ -- Yes

New Hampshire -- -- --

New Jersey ✓ -- Yes

New Mexico ✓ -- Yes

New York ✓ -- Yes

North Carolina ✓ -- Yes

North Dakota [1] -- -- --

Northern Mariana 

Islands -- -- --
Election Law and Procedure | 93

State

Individuals can register 

to vote and update their 

registration via the 

system

Individuals can update 

their registration via the 

system

State-issued driver's 

license or ID is required 

to use this system

Ohio ✓ -- Yes

Oklahoma ✓ -- No

Oregon ✓ -- Yes

Pennsylvania ✓ -- No

Puerto Rico -- -- --

Rhode Island ✓ -- Yes

South Carolina ✓ -- Yes

South Dakota -- -- --

Tennessee ✓ -- Yes

Texas -- ✓ Yes

U.S. Virgin Islands -- -- --

Utah ✓ -- Yes

Vermont ✓ -- No

Virginia ✓ -- Yes

Washington ✓ -- Yes

West Virginia ✓ -- Yes

Wisconsin ✓ -- Yes

Wyoming -- -- --

Policy Survey Table 3 Calculation Notes: 

Individuals can register to vote and update their registration via the system uses question Q7.

Individuals can update their registration via the system uses question Q7.

A driver’s license or state-issued ID is required to use this system uses question Q7a.

Policy Survey Table 3 Data Notes: 

General Notes: 

• States were only able to select a single response to both Q7 and Q7a.

[1] North Dakota does not have voter registration.
94 | Election Law and Procedure 

Policy Survey Table 4: State Voting by Mail Election Policies

State

Excuse 

required for 

mail voting

State or jurisdiction 

conducts all-mail 

election

Permanent 

absentee voting 

allowed

Who can be a permanent 

absentee voter

Alabama ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

Alaska -- -- -- --

American Samoa ✓ -- -- --

Arizona -- -- Yes, any registrant --

Arkansas ✓ -- -- --

California -- Statewide Yes, any registrant --

Colorado -- Statewide -- --

Connecticut ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

Delaware -- --

Yes, individuals 

who meet specific 

criteria

Federal or state workers 

and their spouses or 

dependents, members of 

the uniformed services, 

voters who are sick or 

disabled (temporarily or 

permanently), voters 

temporarily residing 

outside the United States

and their spouses or 

dependents

District of 

Columbia -- Statewide Yes, any registrant --

Florida ✓ -- -- --

Georgia -- -- -- --

Guam ✓ -- -- --

Hawaii -- Statewide -- --

Idaho -- Only certain 

jurisdictions -- --

Illinois -- -- -- --

Indiana ✓ -- -- --

Iowa -- -- -- --

Kansas -- --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

Kentucky ✓ -- -- --

Louisiana ✓ --

Yes, individuals 

who meet specific 

criteria

Individuals over a 

specified age, persons 

with disabilities

Maine -- -- -- --

Maryland -- -- -- --
Election Law and Procedure | 95

State

Excuse 

required for 

mail voting

State or jurisdiction 

conducts all-mail 

election

Permanent 

absentee voting 

allowed

Who can be a permanent 

absentee voter

Massachusetts -- --

Yes, individuals 

who meet specific 

criteria

Persons who provide a 

note from a medical 

professional

Michigan -- -- Yes, any registrant --

Minnesota -- Only certain 

jurisdictions Yes, any registrant --

Mississippi ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

Missouri -- --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

Montana -- Only certain 

jurisdictions Yes, any registrant --

Nebraska -- Only certain 

jurisdictions -- --

Nevada -- Statewide Yes, any registrant --

New Hampshire ✓ -- -- --

New Jersey -- Statewide Yes, any registrant --

New Mexico -- -- -- --

New York ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities, 

voters who claim

permanent illness

North Carolina -- -- -- --

North Dakota -- -- -- --

Northern 

Mariana Islands -- -- -- --

Ohio -- -- -- --

Oklahoma -- -- -- --

Oregon [1] -- Statewide

Yes, individuals 

who meet specific 

criteria

Persons registered as 

Oregon voters but who are 

away from their Oregon 

residences when ballots 

are available

Pennsylvania [2] ✓ -- Yes, any registrant --

Puerto Rico ✓ -- -- --

Rhode Island -- --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities

South Carolina -- -- -- --

South Dakota -- -- -- --

Tennessee ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities, 

persons who have a 

doctor certify that they are 

unable to go to the polls

Texas ✓ -- -- --

U.S. Virgin 

Islands -- -- -- --
96 | Election Law and Procedure 

State

Excuse 

required for 

mail voting

State or jurisdiction 

conducts all-mail 

election

Permanent 

absentee voting 

allowed

Who can be a permanent 

absentee voter

Utah -- Statewide Yes, any registrant --

Vermont -- Statewide -- --

Virginia -- -- Yes, any registrant --

Washington -- Statewide Yes, any registrant --

West Virginia ✓ --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities, 

participants in the West 

Virginia Address 

Confidentiality Program

Wisconsin -- --

Yes, individuals 

who meet specific 

criteria

Persons with disabilities; 

persons who certify that 

they are indefinitely 

confined due to age, 

illness, infirmity, or 

disability

Wyoming -- -- -- --

Policy Survey Table 4 Calculation Notes: 

Excuse required for mail voting uses question Q17.

State or jurisdiction conducts all-mail election uses questions Q18 and Q18a. 

Permanent absentee voting allowed uses question Q19.

Who can be a permanent absentee voter uses questions Q19a_1, Q19a_2, and Q19a_3.

Policy Survey Table 4 Data Notes: 

General Notes: 

• States were only able to select a single response to Q17–Q19. Multiple responses were accepted

for the Q19a items.

• The Policy Survey did not collect information on whether changes in states’ laws regarding all-voteby-mail elections for 2020 were permanent or temporary or whether the changes were made in

direct response to the COVID-19 pandemic.

[1] Although Oregon is a vote-by-mail state, there are still individuals who are considered absentee voters.

Anyone who is registered as an Oregon voter but is away from their Oregon residence when ballots are

available can request to be a permanent absentee voter if Oregon remains their primary residence.

[2] Pennsylvania provides both absentee and mail voting options. Voters who apply for an absentee ballot

must give a reason for voting absentee. Voters who apply for a mailed ballot are not required to give a

reason.
Election Law and Procedure | 97

Policy Survey Table 5: Mail Voting Deadlines for UOCAVA and Non-UOCAVA Voters

State

Mail voters Domestic military 

UOCAVA voters Overseas UOCAVA voters

Postmarked 

by Received by Postmarked by Received by Postmarked by Received by

Alabama 1 day before 

Election Day Election Day Election Day 7 days after 

Election Day Election Day 7 days after 

Election Day

Alaska Election Day 10 days after 

Election Day Election Day 10 days after Election Day Election Day 15 days after Election Day

American Samoa Election Day Election Day Election Day Election Day Election Day Election Day

Arizona -- Election Day -- Election Day -- Election Day

Arkansas [1] -- Election Day -- 10 days after 

Election Day -- 10 days after 

Election Day

California [2] Election Day 17 days after 

Election Day Election Day 17 days after Election Day Election Day 17 days after Election Day

Colorado -- Election Day -- 8 days after 

Election Day -- 8 days after 

Election Day

Connecticut Election Day Election Day Election Day Election Day Election Day Election Day

Delaware -- Election Day -- Election Day -- Election Day

District of 

Columbia Election Day 10 days after Election Day Election Day 10 days after Election Day Election Day 10 days after Election Day

Florida [3] -- Election Day -- Election Day -- 10 days after 

Election Day

Georgia -- Election Day Election Day 3 days after 

Election Day Election Day 3 days after Election Day

Guam [4] Election Day 10 days after 

Election Day Election Day 10 days after 

Election Day Election Day 10 days after 

Election Day

Hawaii [5] -- Election Day -- Election Day -- Election Day

Idaho -- Election Day -- Election Day -- Election Day

Illinois Election Day 14 days after 

Election Day Election Day 14 days after Election Day Election Day 14 days after Election Day

Indiana [6] -- Election Day Election Day 10 days after 

Election Day Election Day 10 days after 

Election Day

Iowa [7] 1 day before 

Election Day

6 days after 

Election Day

1 day before 

Election Day

6 days after 

Election Day

1 day before 

Election Day

6 days after 

Election Day

Kansas Election Day 3 days after 

Election Day Election Day Election Day Election Day Election Day

Kentucky [8] Election Day Election Day Election Day 3 days after 

Election Day Election Day 3 days after Election Day

Louisiana -- 1 day before 

Election Day -- Election Day -- Election Day

Maine [9] -- Election Day -- Election Day -- Election Day

Maryland Election Day 10 days after 

Election Day Election Day 10 days after 

Election Day Election Day 10 days after 

Election Day

Massachusetts Election Day 3 days after 

Election Day Election Day 3 days after Election Day Election Day 10 days after Election Day
98 | Election Law and Procedure 

State

Mail voters Domestic military 

UOCAVA voters Overseas UOCAVA voters

Postmarked 

by Received by Postmarked by Received by Postmarked by Received by

Michigan Election Day Election Day Election Day Election Day Election Day Election Day

Minnesota [10] -- Election Day -- Election Day -- Election Day

Mississippi [11] Election Day 5 days after 

Election Day Election Day 5 days after 

Election Day Election Day 5 days after 

Election Day

Missouri -- Election Day Election Day 3 days after 

Election Day Election Day 3 days after Election Day

Montana Election Day Election Day Election Day Election Day Election Day Election Day

Nebraska [12] -- Election Day -- Election Day -- Election Day

Nevada Election Day 7 days after 

Election Day Election Day 7 days after 

Election Day Election Day 7 days after 

Election Day

New Hampshire 

[13] -- Election Day -- Election Day -- Election Day

New Jersey [14] Election Day 7 days after 

Election Day Election Day 7 days after 

Election Day Election Day 7 days after 

Election Day

New Mexico [15] -- Election Day -- Election Day -- Election Day

New York Election Day 7 days after 

Election Day Election Day 13 days after 

Election Day Election Day 13 days after 

Election Day

North Carolina 

[16] Election Day 9 days after Election Day -- 9 days after Election Day -- 9 days after Election Day

North Dakota 1 day before 

Election Day

6 days after 

Election Day

1 day before 

Election Day

6 days after 

Election Day

1 day before 

Election Day

6 days after 

Election Day

Northern 

Mariana Islands Election Day 14 days after Election Day Election Day 14 days after Election Day Election Day 14 days after Election Day

Ohio 1 day before 

Election Day

10 days after 

Election Day -- 10 days after 

Election Day -- 10 days after 

Election Day

Oklahoma [17] -- Election Day -- Election Day -- Election Day

Oregon [18] -- Election Day -- Election Day -- Election Day

Pennsylvania 

[19] -- Election Day 1 day before Election Day

7 days after 

Election Day

1 day before 

Election Day

7 days after 

Election Day

Puerto Rico [20] Election Day 14 days after 

Election Day Election Day 14 days after 

Election Day Election Day 14 days after 

Election Day

Rhode Island -- Election Day -- 7 days after 

Election Day -- 7 days after Election Day

South Carolina -- Election Day -- 2 days after 

Election Day -- 2 days after 

Election Day

South Dakota 

[21] -- Election Day -- Election Day -- Election Day

Tennessee [22] -- Election Day -- Election Day -- Election Day

Texas [23] Election Day 1 day after 

Election Day -- 6 days after Election Day Election Day 5 days after Election Day

U.S. Virgin 

Islands [24] Election Day 10 days after Election Day Election Day 10 days after Election Day Election Day 10 days after Election Day

Utah [25] 1 day before 

Election Day

13 days after 

Election Day Election Day 13 days after Election Day Election Day 13 days after Election Day
Election Law and Procedure | 99

State

Mail voters Domestic military 

UOCAVA voters Overseas UOCAVA voters

Postmarked 

by Received by Postmarked by Received by Postmarked by Received by

Vermont -- Election Day -- Election Day -- Election Day

Virginia [26] Election Day 3 days after 

Election Day Election Day 3 days after Election Day Election Day 3 days after Election Day

Washington [27] Election Day 20 days after 

Election Day -- 20 days after 

Election Day -- 20 days after 

Election Day

West Virginia 

[28] Election Day 5 days after Election Day -- 5 days after Election Day -- 5 days after Election Day

Wisconsin [29] Election Day Election Day Election Day Election Day Election Day Election Day

Wyoming -- Election Day -- Election Day -- Election Day

Policy Survey Table 5 Calculation Notes: 

Mail voters, Postmarked by uses questions Q20_1_1, Q20_1_1OE, Q20_1_2, and Q20_1_3. 

Mail voters, Received by uses questions Q20_2_1, Q20_2_1OE, Q20_2_2, Q20_2_3, Q20_2_3OE, and 

Q20_2_4. 

Domestic military UOCAVA voters, Postmarked by uses questions Q29_1_1, Q29_1_1OE, Q29_1_2, and 

Q29_1_3. 

Domestic military UOCAVA voters, Received by uses questions Q29_2_1, Q29_2_1OE, Q29_2_2, 

Q29_2_3, Q29_2_3OE, and Q29_2_4. 

Overseas UOCAVA voters, Postmarked by uses questions Q30_1_1, Q30_1_1OE, Q30_1_2, and Q30_1_3. 

Overseas UOCAVA voters, Received by uses questions Q30_2_1, Q30_2_1OE, Q30_2_2, Q30_2_3, 

Q30_2_3OE, and Q30_2_4. 

Policy Survey Table 5 Data Notes: 

General Notes: 

• States were able to select multiple responses to each set of postmark and receipt deadline items

through Q20, Q29, and Q30, although none of the states did so.

[1] Arkansas noted in a survey comment that mailed ballots must be received by 7:30 p.m. (close of polls).

[2] California noted in a survey comment that “For the November 3, 2020, general election, the deadline

for a [mailed] ballot to be received by county elections officials is extended from 3 to 17 days after Election

Day.”

[3] Florida noted in a survey comment that the deadline for mailed ballots is “7 pm local time deadline for

domestic ballots 10 day extension for overseas voters.”

[4] Guam noted in a survey comment that “[B]allots must be received 10 business days after the election.”

[5] Hawaii noted in a survey comment that “Regardless of postmark date, ballots must be received by the

County Elections Division by 7:00 p.m. on Election Day.”

[6] Indiana noted in a survey comment that the deadline for mailed ballots is “Noon, local prevailing time.”

[7] Iowa noted in a survey comment that “[mailed] ballots must be postmarked or the ImB [Intelligent Mail

barcode] tracking bar code must show that the ballot was entered into the mail stream before election

day. Ballots must be received by 12:00 noon on the Monday after the election.”

[8] Kentucky noted in a survey comment that “If a [mailed] ballot is postmarked on or before 11/3 it must

be received by 11/6. If a ballot is placed in a drop-box or delivered to a Clerk’s office, it must be delivered

by 6PM local time, 11/3.”
100 | Election Law and Procedure 

[9] Maine noted in a survey comment that “[Mailed] ballot[s] must be received by 8:00 pm on Election

Day.”

[10] Minnesota noted in a survey comment that for mailed ballots in the 2020 general election, “consent

decree changes this to postmarked on or before election day and received by 11/10.”

[11] In Mississippi, ballots returned by mail must be postmarked by Election Day and received by the end

of five business days after Election Day. Mail ballots returned by email or fax must be returned by 7:00

p.m. on the date of the election.

[12] Nebraska noted in a survey comment that “[Mailed ballots] must be received by close of polls on

election day.”

[13] New Hampshire noted in a survey comment that “Absentee ballots, including all UOCAVA voters

absentee ballots, must be received no later than 5 p.m. on Election Day.”

[14] New Jersey noted in a survey comment that the deadline for UOCAVA ballots is “Email and fax 8:00

pm election day.”

[15] New Mexico noted in a survey comment that “ballots must be received by 7pm on election day.”

[16] North Carolina noted in a survey comment that the “change from 3 days to 9 days approved by

consent judgment in settlement between NCSBE [North Carolina State Board of Elections] and plaintiffs in

the NC Alliance case which included extension of the civilian ballot mail return deadline for 2020. For

remaining elections in 2020, a ballot shall be considered postmarked by Election Day if it has a postmark

affixed to it or if there is information in BallotTrax, or another tracking service offered by the USPS or a

commercial carrier, indicating that the ballot was in the custody of USPS or the commercial carrier on or

before Election Day.”

[17] Oklahoma noted in a survey comment that “State law requires that a returned absentee ballot be

received in the hands of the County Election Board Secretary by 7 p.m. (CST) on election day for it to be

processed and counted.”

[18] Oregon noted that all ballots, including UOCAVA ballots, must be received by 8:00 p.m.

[19] Pennsylvania noted that, by law, civilian ballots must be received by 8:00 p.m. on Election Day to be

eligible for canvassing.

[20] Puerto Rico noted in a survey comment that the “PR Electoral Code haven’t established a certain date

to finish the General Election Scrutiny (canvass). Electoral Code establish that the ballot must be

receive[d] before the General [Election] Scrutiny finished. Refer to Article 10.7 of Act 58 of 2020. Generally

it took around 30 days after the election date. We established 14 days because it[’]s one of the options

given by the system.”

[21] South Dakota noted in a survey comment that “The voted [mailed] ballot MUST be received by your

County Election Official on Election Day in enough time to deliver your ballot to your voting precinct before

the polls close.”

[22] Tennessee noted in a survey comment that mailed ballots must be received by “close of polls.”

[23] Texas noted in a survey comment that “For [mailed] ballots arriving by 5 p.m. the day after election

day, they must be post marked no later than election day.”

[24] The U.S. Virgin Islands noted in a survey comment that “The [mailed] ballot must be placed in the mail

by Election Day (postmark not required) and the ballot has ten (10) days to arrive to our office.”

[25] Utah noted in a survey comment that “20a-3a-401(5)(d)(ii) = if the election officer receives the

affidavit no later than 5 p.m. the day before the canvass, count the individual’s [mailed] ballot.”

[26] Virginia noted in a survey comment that “Further extensions apply if the [mailed] ballot was requested

prior to the 45-day deadline and not sent by that date.”

[27] Washington noted in a survey comment that “The ballot must be received by the day before the

County Canvassing Board certifies the county’s election results. In November 2020, that certification date

is November 24, so ballots must be received by November 23. This gives voters a 20-day window for the
Election Law and Procedure | 101

November General Election.” For “overseas voters and service voters,” the date on the declaration to 

which the voter has attested determines the validity of the time of voting for that ballot.

[28] West Virginia noted that ballots must be received by the fifth day after the election that is not a

Saturday, Sunday, or legal holiday.

[29] Wisconsin state statutes do not contain a postmark requirement. Absentee ballots may be delivered

to the local clerk so long as they are received before polls close.
102 | Election Law and Procedure 

Policy Survey Table 6: Electronic Ballot Transmission for Voters

State

Voters cannot 

receive 

ballots 

electronically

During 

emergency 

situations

When a 

replacement 

ballot is 

needed

Voters 

with 

specific 

disability

Voters with 

any 

disability

Any 

circumstance Other

Alabama ✓ -- -- -- -- -- --

Alaska -- -- -- -- -- ✓ --

American Samoa ✓ -- -- -- -- -- --

Arizona ✓ -- -- -- -- -- --

Arkansas ✓ -- -- -- -- -- --

California [1] -- -- -- -- ✓ -- ✓

Colorado -- ✓ -- -- ✓ -- --

Connecticut ✓ -- -- -- -- -- --

Delaware [2] -- -- -- -- ✓ -- ✓

District of 

Columbia -- -- -- -- ✓ -- --

Florida ✓ -- -- -- -- -- --

Georgia ✓ -- -- -- -- -- --

Guam -- -- -- -- -- ✓ --

Hawaii [3] -- -- -- -- ✓ -- ✓

Idaho ✓ -- -- -- -- -- --

Illinois ✓ -- -- -- -- -- --

Indiana ✓ -- -- -- -- -- --

Iowa ✓ -- -- -- -- -- --

Kansas ✓ -- -- -- -- -- --

Kentucky -- -- -- -- -- ✓ --

Louisiana -- -- -- -- ✓ -- --

Maine [4] -- ✓ -- -- -- -- ✓

Maryland -- -- -- -- -- ✓ --

Massachusetts [5] -- -- -- -- -- -- ✓

Michigan ✓ -- -- -- -- -- --

Minnesota -- -- -- -- ✓ -- --

Mississippi [6] -- -- -- -- -- -- ✓

Missouri -- ✓ -- -- -- -- --

Montana -- -- -- ✓ -- -- --

Nebraska ✓ -- -- -- -- -- --

Nevada -- ✓ ✓ -- ✓ -- --

New Hampshire -- -- -- ✓ -- -- --

New Jersey ✓ -- -- -- -- -- --

New Mexico -- -- -- ✓ -- -- --

New York [7] -- -- -- -- ✓ -- ✓

North Carolina -- -- -- ✓ -- -- --

North Dakota ✓ -- -- -- -- -- --
Election Law and Procedure | 103

State

Voters cannot 

receive 

ballots 

electronically

During 

emergency 

situations

When a 

replacement 

ballot is 

needed

Voters 

with 

specific 

disability

Voters with 

any 

disability

Any 

circumstance Other

Northern Mariana 

Islands ✓ -- -- -- -- -- --

Ohio -- -- -- -- ✓ -- --

Oklahoma ✓ -- -- -- -- -- --

Oregon -- -- -- -- -- ✓ --

Pennsylvania [8] -- -- -- -- -- -- ✓

Puerto Rico ✓ -- -- -- -- -- --

Rhode Island ✓ -- -- -- -- -- --

South Carolina ✓ -- -- -- -- -- --

South Dakota ✓ -- -- -- -- -- --

Tennessee ✓ -- -- -- -- -- --

Texas ✓ -- -- -- -- -- --

U.S. Virgin Islands -- ✓ ✓ ✓ ✓ -- --

Utah -- ✓ -- -- ✓ -- --

Vermont ✓ -- -- -- -- -- --

Virginia -- ✓ -- ✓ -- -- --

Washington -- -- -- -- -- ✓ --

West Virginia -- -- -- ✓ -- -- --

Wisconsin ✓ -- -- -- -- -- --

Wyoming ✓ -- -- -- -- -- --

Policy Survey Table 6 Calculation Notes: 

Voters cannot receive ballots electronically uses question Q23_1.

During emergency situations uses question Q23_2.

When a replacement ballot is needed uses question Q23_3.

Voters with specific disability uses question Q23_4.

Voters with any disability uses question Q23_5.

Voters may receive a ballot electronically for any circumstance uses question Q23_6.

Other uses question Q23_7.

Policy Survey Table 6 Data Notes: 

General Notes: 

• States were able to select multiple responses to Q23 items; however, selecting Q23_1 excluded

all other response choices.

• Q23 collected information on electronic ballot transmission for non-UOCAVA voters only. Voters

covered by UOCAVA may receive ballots electronically under the MOVE Act.

[1] In the November 3, 2020, general election, California county election officials permitted any voter to

cast a ballot using a certified remote accessible vote-by-mail system.

[2] Delaware specified that voters who are sick or physically disabled, whether temporarily or permanently,

can receive ballots electronically.
104 | Election Law and Procedure 

[3] Hawaii reported allowing voters to receive ballots electronically when a replacement ballot is needed

and is requested within five days of the election.

[4] Maine reported allowing voters who self-identify as having a print disability to receive ballots

electronically.

[5] Massachusetts specified that voters with a disability that prevents them from privately and

independently marking a paper ballot can receive ballots electronically.

[6] Mississippi’s UOCAVA state statute allows emergency responders to qualify for electronic ballots if they

are deployed outside their county of residence during a state of emergency.

[7] New York reported allowing emergency responders to receive ballots electronically.

[8] Pennsylvania specified that voters with any disability as defined by the Americans with Disabilities Act

can receive a ballot electronically.
Election Law and Procedure | 105

Policy Survey Table 7: In-Person Voting Before Election Day

State Terminology used to describe casting a ballot in 

person before Election Day

Excuse required for 

in-person voting 

before Election Day

Alabama In-person absentee voting ✓

Alaska In-person early voting, in-person absentee voting --

American Samoa Local absentee voting ✓

Arizona In-person early voting --

Arkansas In-person early voting --

California In-person early voting --

Colorado In-person early voting --

Connecticut [1] Other ✓

Delaware In-person absentee voting ✓

District of Columbia In-person early voting --

Florida In-person early voting --

Georgia Advance voting --

Guam In-person absentee voting --

Hawaii In-person voting --

Idaho In-person early voting, in-person absentee voting --

Illinois In-person early voting --

Indiana In-person absentee voting --

Iowa In-person absentee voting --

Kansas In-person advance voting --

Kentucky In-person early voting --

Louisiana In-person early voting --

Maine In-person absentee voting --

Maryland In-person early voting --

Massachusetts [2] In-person early voting, in-person absentee voting ✓

Michigan In-person absentee voting --

Minnesota In-person absentee voting --

Mississippi In-person absentee voting ✓

Missouri In-person absentee voting ✓

Montana In-person absentee voting --

Nebraska In-person early voting --

Nevada In-person early voting --

New Hampshire In-person absentee voting ✓

New Jersey -- --

New Mexico In-person early voting, in-person absentee voting --

New York In-person early voting --

North Carolina 

In-person early voting, in-person absentee voting, 

one stop voting, early voting --

North Dakota In-person early voting, in-person absentee voting --
106 | Election Law and Procedure 

State Terminology used to describe casting a ballot in 

person before Election Day

Excuse required for 

in-person voting 

before Election Day

Northern Mariana Islands In-person early voting ✓

Ohio In-person early voting, in-person absentee voting --

Oklahoma In-person absentee voting --

Oregon [3] Other ✓

Pennsylvania [4] Other ✓

Puerto Rico [5] In-person early voting, other ✓

Rhode Island In-person absentee voting --

South Carolina [6] In-person absentee voting --

South Dakota In-person absentee voting --

Tennessee In-person early voting --

Texas In-person early voting --

U.S. Virgin Islands In-person early voting, in-person absentee voting --

Utah In-person early voting --

Vermont In-person early voting, in-person absentee voting --

Virginia In-person early voting --

Washington [7] In-person voting --

West Virginia In-person early voting --

Wisconsin In-person absentee voting --

Wyoming In-person absentee voting --

Policy Survey Table 7 Calculation Notes: 

Terminology used to describe casting a ballot in person before Election Day uses questions Q24_1, 

Q24_2, and Q24_3.

Excuse required for in-person voting before Election Day uses question Q24a.

Policy Survey Table 7 Data Notes: 

General Notes: 

• States were able to select multiple responses to Q24 items; however, selecting Q24_4 excluded

all other response items and is not depicted in the table. States were only able to select a single

response to Q24a.

[1] Connecticut reported that a person can request an absentee ballot and cast it on the spot and not

return it by mail.

[2] In Massachusetts, in-person absentee voting before Election Day requires an excuse but early voting

does not.

[3] Oregon reported that members of specific populations (e.g., those who will not be in Oregon or have

access to a regular mailing address when ballots are available) can receive and return a ballot at their

county election office. They may choose to cast their vote then and there or take it with them and return

via mail or drop box.

[4] Pennsylvania’s 2019 election reforms allow for absentee and mail-in ballots to be completed over the

counter at an election office.
Election Law and Procedure | 107

[5] Puerto Rico reported that in addition to in-person early voting, voters may cast their ballot from their

residence via mail.

[6] South Carolina requires an excuse for in-person absentee voting; however, this requirement was

temporarily suspended for elections held in 2020.

[7] Washington is a vote-by-mail state. In-person voters were issued a vote-by-mail ballot packet at a voting

center that they could deposit into a ballot drop box or mail. Alternatively, voters could use a disability

access unit to vote in person before Election Day.
108 | Election Law and Procedure 

Policy Survey Table 8: Election Certification, Recounts, and Audits

State

General 

election 

certification 

deadline

Reasons why a jurisdiction in the state may conduct a postelection recount of ballots

Post-election 

tabulation 

audit policy

Results 

are within 

a certain 

margin 

By 

candidate 

or party 

request

Results 

are within 

a certain 

margin 

and a 

candidate 

or party 

has 

requested

a recount

Request 

by other 

person or 

group 

By court 

order only

Alabama 11/25/2020 -- ✓ -- -- -- Not required

Alaska [1] 11/25/2020 ✓ ✓ -- ✓ -- Required by 

statute

American Samoa 11/10/2020 -- ✓ ✓ -- -- Not required

Arizona 11/30/2020 -- -- -- -- ✓ Required by 

statute

Arkansas [2] 11/18/2020 -- ✓ -- ✓ -- Required by 

statute

California [3] 12/11/2020 ✓ ✓ ✓ ✓ -- Required by 

statute

Colorado 11/25/2020 ✓ ✓ -- -- -- Required by 

statute

Connecticut 11/25/2020 ✓ -- -- -- -- Required by 

statute

Delaware [4] 11/5/2020 ✓ -- -- -- -- Required by 

statute

District of 

Columbia [5] 11/24/2020 ✓ ✓ -- -- -- Required by statute

Florida [6] 11/17/2020 ✓ -- -- -- -- Required by 

statute

Georgia [7] 11/20/2020 -- -- ✓ ✓ -- Required by 

statute

Guam [8] 11/19/2020 ✓ -- -- -- -- Not required

Hawaii [9] -- ✓ -- -- -- -- Required by 

statute

Idaho [10] 11/13/2020 -- ✓ -- ✓ -- Not required

Illinois 12/4/2020 -- -- ✓ -- -- Required by 

statute

Indiana [11] 11/16/2020 -- ✓ -- ✓ -- Required by 

statute

Iowa 11/30/2020 -- ✓ -- -- -- Required by 

statute

Kansas [12] 12/1/2020 -- ✓ -- ✓ -- Required by 

statute

Kentucky 11/23/2020 -- ✓ -- -- -- Not required

Louisiana [13] 11/19/2020 -- -- ✓ ✓ -- Other 

Maine [14] 11/23/2020 -- ✓ -- -- -- Not required

Maryland 12/8/2020 -- ✓ -- -- -- Required by 

statute

Massachusetts

[15] 11/18/2020 -- ✓ -- ✓ -- Required by statute

Michigan [16] 11/23/2020 ✓ ✓ -- ✓ -- Required by 

statute
Election Law and Procedure | 109

State

General 

election 

certification 

deadline

Reasons why a jurisdiction in the state may conduct a postelection recount of ballots

Post-election 

tabulation 

audit policy

Results 

are within 

a certain 

margin 

By 

candidate 

or party 

request

Results 

are within 

a certain 

margin 

and a 

candidate 

or party 

has 

requested

a recount

Request 

by other 

person or 

group 

By court 

order only

Minnesota [17] 11/24/2020 ✓ ✓ -- ✓ -- Required by 

statute

Mississippi 11/13/2020 -- -- -- -- ✓ Not required

Missouri 12/8/2020 -- -- ✓ -- -- Required by 

formal rule

Montana 11/30/2020 -- -- ✓ -- -- Required by 

statute

Nebraska [18] 11/30/2020 ✓ ✓ -- -- -- Required by 

formal rule

Nevada [19] 11/16/2020 -- ✓ -- ✓ -- Required by 

statute

New Hampshire

[20] 11/12/2020 -- ✓ -- -- -- Not required

New Jersey 12/8/2020 -- -- -- -- ✓ Required by 

statute

New Mexico 11/24/2020 ✓ ✓ -- -- -- Required by 

statute

New York 12/7/2020 -- -- -- -- ✓ Required by 

statute

North Carolina 

[21] 11/24/2020 -- -- ✓ -- -- Required by statute

North Dakota 

[22] 11/13/2020 ✓ ✓ ✓ ✓ -- Required by statute

Northern Mariana 

Islands 11/17/2020 -- -- -- -- ✓ Required by statute

Ohio [23] 11/24/2020 ✓ ✓ -- ✓ -- Required by 

statute

Oklahoma [24] 11/10/2020 -- ✓ -- -- -- Other 

Oregon [25] 12/3/2020 ✓ ✓ -- ✓ -- Required by 

statute

Pennsylvania [26] 11/23/2020 ✓ -- -- ✓ -- Required by 

statute

Puerto Rico [27] 11/4/2020 ✓ -- -- -- -- Not required

Rhode Island [28] 11/20/2020 -- -- ✓ -- -- Required by 

statute

South Carolina 

[29] 11/13/2020 ✓ -- -- -- -- Other 

South Dakota 11/10/2020 -- -- ✓ -- -- Not required

Tennessee [30] 11/23/2020 -- -- -- -- ✓ Other 

Texas [31] 12/7/2020 -- ✓ -- -- -- Required by 

statute

U.S. Virgin Islands 11/13/2020 -- ✓ -- -- -- Not required

Utah 11/17/2020 -- ✓ ✓ -- -- Required by 

statute

Vermont 11/10/2020 -- -- ✓ -- -- Required by 

statute
110 | Election Law and Procedure 

State

General 

election 

certification 

deadline

Reasons why a jurisdiction in the state may conduct a postelection recount of ballots

Post-election 

tabulation 

audit policy

Results 

are within 

a certain 

margin 

By 

candidate 

or party 

request

Results 

are within 

a certain 

margin 

and a 

candidate 

or party 

has 

requested

a recount

Request 

by other 

person or 

group 

By court 

order only

Virginia [32] 11/16/2020 -- -- ✓ -- -- Required by 

statute

Washington [33] 12/3/2020 ✓ ✓ ✓ ✓ -- Required by 

statute

West Virginia 12/3/2020 -- ✓ -- -- -- Required by 

statute

Wisconsin [34] 12/1/2020 -- -- ✓ -- -- Required by 

statute

Wyoming [35] 11/11/2020 ✓ ✓ -- -- -- Other 

Policy Survey Table 8 Calculation Notes: 

General election certification deadline uses question Q33.

Recount reason, Results are within a certain margin uses question Q34_1.

Recount reason, By candidate or party request uses question Q34_2.

Recount reason, Results are within a certain margin and a candidate or party has requested a recount 

uses question Q34_3. 

Recount reason, Request by other person or group uses question Q34_4.

Recount reason, By court order only uses question Q34_5.

Post-election tabulation audit policy uses question Q35.

Policy Survey Table 8 Data Notes: 

General Notes: 

• States were able to specify a calendar date for item Q33, select multiple responses to item Q34,

and only a single response to item Q35. Selecting Q34_5 excluded all other responses to Q34.

[1] Alaska reported that the certification deadline is the target date for the Alaska Division of Elections to

certify the election. According to Alaska statute, a defeated candidate or 10 qualified voters who believe

there has been a mistake in counting votes in an election may file an application for a recount of votes for

any precinct or house district and for any office, proposition, or question. This application must be filed

within five days after the completion of state review. However, the application may only be filed within

three days after the completion of the state review after the general election for a recount of votes cast for

the offices of governor and lieutenant governor. A recount is required if a contest is tied.

[2] Arkansas reported that the County Election Commission may also come to a decision to recount an

election.

[3] California reported that anybody who is allowed by state law can request a recount.

[4] The Delaware Boards of Canvass convene at 10:00 a.m. on the Thursday immediately following the

federal general election.

[5] The District of Colombia included the November 24 date in a public calendar as a tentative date for

certifying results rather than a set deadline.
Election Law and Procedure | 111

[6] Florida specified that the state Elections Canvassing Commission meets at 9:00 a.m. on the ninth day

after a primary election and at 9:00 a.m. on the 14th day after a general election to certify the election. For

the November 3, 2020, federal general election, the deadline for jurisdictions to certify their results to the

state fell on November 15, 2020.

[7] Georgia reported that “In Georgia precincts where paper or scanning ballots have been used, the

superintendent may, either of their own motion or upon petition of any candidate or political party, order a

recount of ballots for a particular precinct for one or more offices in which it appears an error has been

made. In precincts where voting machines were used, if there appears to be a discrepancy or error in the

returns recorded for any voting machine, the superintendent may, either of their own motion or upon

sworn petition of three electors of any precinct, order a recanvass of the votes shown on that particular

machine or machines. This recanvass may be conducted at any time prior to the certification of the

consolidated returns by the superintendent.”

[8] Guam reported that the certification deadline was a tentative date. The Guam Election Commission

(GEC) cannot certify a general election until all administrative complaints received within 15 days after the

election have been addressed.

[9] Hawaii explained that there is no set deadline for certifying election results. If there are no election

contests filed with the Supreme Court within 20 days of the election, the results will be certified.

[10] Idaho reported that the county board of canvassers must certify results within 10 days of the general

election, prior to the state board of canvassers meeting within 15 days of the general election. Idaho

reported that a person supporting or opposing a state, jurisdiction, or city measure may request an

election recount.

[11] The Indiana Election Division (IED) tabulates final results for all federal, statewide, state legislative,

and judicial offices and completes that tabulation no later than the last Tuesday of November (i.e.,

November 24, 2020). The Secretary of State certifies results immediately after receiving IED’s tabulation.

For presidential electors, the Secretary of State’s part of the 2020 Indiana Election Commission would be

signed by that date. Since the governor is required to issue commissions to each presidential elector by

noon on the first Tuesday of December (i.e., December 1, 2020), and in order to issue those commissions

the governor must certify his part of the 2020 Indiana Election Commission certificate of ascertainment,

the certification of the presidential election results and Indiana electors also occurs on the first Tuesday of

December. Indiana reported that a candidate’s political party chair (state chair for federal and statewide

candidates or county chair for a state legislative candidate from any jurisdiction where the legislative

district is located) may file a recount if the candidate does not file the recount by the candidate recount

filing deadline.

[12] Kansas county board of canvassers can request a recount within their jurisdictions of any race if there

are manifest errors.

[13] Louisiana reported that election results are final after compilation and promulgation by the Secretary

of State. Louisiana voters that voted in the proposition election may request a recount if the number of

absentee and early ballots would make a difference in the outcome of the proposition election. Louisiana

does not statutorily require audits, but they are conducted in every parish.

[14] Maine reported that the Secretary of State must submit the official tabulation to the governor by the

20th day after the election.

[15] Massachusetts local election officials must certify their election results and transmit to the Secretary

of the Commonwealth within 15 days after the election. Thereafter, the Secretary of the Commonwealth

tabulates the totals and presents them to the governor and the council for certification. Any registered

Massachusetts voter can petition for a recount of ballot questions.

[16] Michigan specified that recounts are conducted automatically if the statewide vote margin is less than

2,000 votes. Candidates can request a recount regardless of the margin. Groups may request a recount of

ballot proposals. The voted ballots in at least one statewide contest must be reviewed as part of an audit
112 | Election Law and Procedure 

(MCL 168.31a[2]). Separate audit procedures are used to complete both a traditional tabulation audit and 

a risk-limiting audit. Precincts are randomly selected for audit and all ballots for one statewide race were 

hand counted and compared to the tabulator totals to complete a traditional tabulation audit. Additionally, 

ballots for a statewide race are randomly selected from ballot containers statewide using a risk-limiting 

audit formula, and ballots were reviewed and compared to statewide totals.

[17] Minnesota did not specify the other person or group who may request a recount of votes.

[18] Nebraska specified that if there is a state-level recount, it would be conducted on December 2, 2020,

at 9:00 a.m.

[19] In Nevada, any person or group was able to request a recount of a ballot question by November 18,

2020.

[20] New Hampshire specified that its certification dates vary depending on the office. For presidential

electors, United States senators, representatives in Congress, state senators, and state representatives,

the deadline was December 2, 2020. For governor, executive council, and county officers, the deadline

was January 6, 2021.

[21] North Carolina specified that their reported date is barring recounts and/or protests in individual

races.

[22] North Dakota specified that a defeated candidate or 10 qualified electors may contest the nomination

or election of any person or the approval or rejection of any question or proposition submitted to a vote of

the electorate, pursuant to chapters 16.1-04, 16.1-05, 16.1-06, 16.1-07, 16.1-08.1, 16.1-09, 16.1-10,

and 16.1-11.

[23] Ohio specified that issue groups may request an election recount.

[24] The Oklahoma County Election Boards certify final election results in their jurisdictions at 5:00 p.m. on

the Friday following the general election. In 2020, that was 5:00 p.m. on November 6. The State Election

Board certifies final statewide results at 5:00 p.m. on the Tuesday following the general election. In 2020,

that was 5:00 p.m. on November 10. The secretary of the state election board shall have the authority to

direct the secretary of a county election board to conduct a post-election audit of election results, for the

purpose of maintaining the security of the election system by ensuring that voting devices and software

used in a particular election correctly tabulated votes.

[25] Oregon reported that any voter can request a recount on a measure. The county clerk may also

request a recount of a candidate contest or measure.

[26] Pennsylvania reported that the November 23, 2020, certification deadline was imposed on

jurisdiction officials and not on the Secretary of the Commonwealth. Pennsylvania reported that a group of

voters may request a recount of specific precincts.

[27] The Puerto Rico Electoral Code does not establish a certain date for certification. However, it does

establish partial result certification for the next day. If an election does not require a recount, the winner

can be certified by the Puerto Rico State Election Commission.

[28] Rhode Island does not have a specified certification deadline but certified all elections, with the

exception of three local races that were awaiting write-in ballots to be tallied on November 20, 2020.

[29] South Carolina reported that post-election hand count audits are required by State Election

Commission mandate.

[30] Tennessee’s reported deadline applies to the certification of election results by county election

commissions. There is no specified deadline for the state to certify results.

[31] The Texas governor’s canvass must be performed between 18 and 33 days after the election.

[32] The Virginia State Board of Elections meets on the third Monday in November as required by state

law.

[33] In Washington, in addition to the mandatory recounts, if a contest is within a specified margin, a

group of five or more voters may request a recount for an issue or question.
Election Law and Procedure | 113

[34] Wisconsin law permits a recount within specified margins and by a qualified party who makes a

request, or when ordered by a court of law.

[35] The Wyoming State Canvassing Board meeting was set at 10:00 a.m. on November 10, 2020.

Wyoming reported that the post-election tabulation uses the same sample ballots used for the logic and

accuracy testing before the election. The county clerk conducts a random audit of ballots by processing the

pre-audited group of test ballots on 5% of the automated tabulating equipment for that jurisdiction, but on

not less than one machine, within 30 days of any election in which the tabulating equipment was used.
114 | Voter Registration: The NVRA and Beyond 

Chapter 3. Voter Registration: The 

NVRA and Beyond

Key Findings

The Election Administration and Voting Survey (EAVS) collected data on voter registration between 

the 2018 and the 2020 general elections in Section A of the survey. Election officials were asked a 

variety of questions relating to registration and list maintenance, including the number of persons 

registered and eligible to vote in the 2020 general election, the number of registration forms 

processed, the number of confirmation notices sent pursuant to the National Voter Registration Act 

(NVRA) and for other purposes, and the number of records removed from the voter registration rolls. 

Notable findings from Section A of the 2020 EAVS include:

• The number of registrations received between the 2018 and the 2020 general elections

reached 103,701,513, a 33.8% increase in registrations received compared to the period

leading to the 2016 general election.

• The states’ departments of motor vehicles (DMV) were once again the most commonly used

registration source and accounted for 39.3% of the total registrations received between the

2018 and the 2020 general elections.

• Online registration continued to be the second-most used registration method, accounting for

28.2% of the total registrations received, and it was the registration method with the largest

growth in the two-year period leading to the 2020 general election.

• The total number of reported active registrants reached 209,441,338 nationwide. The total

number of active registrations for the 2020 general election increased 8.3% compared to the

2016 general election.

• States reported removing 18,781,054 voter records from voter registration rolls between the

2018 and the 2020 general elections. More than half of these removals occurred because a

registrant failed to return a confirmation notice and did not vote in the following two general

elections, or because the registrant moved out of the voting jurisdiction.

Introduction

Voter registration is required in 49 states,1 all of the U.S. territories, and the District of Columbia, 

making registration the first step toward election participation for most voters.2 Registration serves 

multiple purposes: It allows election officials to confirm if a person is eligible to vote; permits officials 

to efficiently allocate resources such as ballots, poll workers, and voting equipment, depending on 

1 Throughout this report, unless otherwise specified, the term “state” can be understood to apply to the 50 U.S. states, the 

District of Columbia, and five U.S. territories (American Samoa, Guam, the Northern Mariana Islands, Puerto Rico, and the 

U.S. Virgin Islands) that submit Election Administration Policy Survey and EAVS data. 2 North Dakota is the only state that does not require voter registration.
Voter Registration: The NVRA and Beyond | 115

the number of registrants per precinct and jurisdiction;3 and allows the tracking of voter 

participation. 

Congress passed the NVRA in 1993 to “establish procedures that will increase the number of eligible 

citizens who register to vote in elections for federal office.”4 This act, commonly known as the “Motor 

Voter Law,” requires that states offer the opportunity to register to vote at their motor vehicle 

licensing offices (known as the DMV in many states). The law also requires states to offer voter 

registration at offices that provide public assistance or state-funded programs that primarily engage 

in providing services to persons with disabilities, and at armed services recruitment offices. The 

NVRA also provides guidelines on registration list maintenance and sets limits on how voters can be 

removed from the rolls.5

The Help America Vote Act (HAVA) of 2002 charged the U.S. Election Assistance Commission (EAC) 

with collecting data on voter registration and list maintenance procedures. The EAC meets its 

statutory requirement to report to Congress on the impact of the NVRA via Section A of the EAVS.6

This chapter of the EAVS report not only fulfills this requirement, but also provides insight about the 

changes in the registration behaviors of Americans in federal general elections and about the 

changes in the state policies affecting the registration process.

Federal Laws Regulating Voter Registration

The National Voter Registration Act of 1993 

The NVRA is the primary federal law governing voter registration in the United States. In this law, 

Congress provides a clear statement regarding the importance of voter registration:

(1) the right of citizens of the United States to vote is a fundamental right;

(2) it is the duty of the Federal, State, and local governments to promote the exercise of that

right; and

3 What constitutes a jurisdiction for EAVS reporting is defined by how each state chose to provide data. For the 2020 EAVS, 

most states reported data on the county level (or county equivalent, such as parishes for Louisiana). Illinois, Maryland, 

Missouri, and Virginia reported data for independent cities in addition to counties. The territories, the District of Columbia, 

and Alaska each reported as a single jurisdiction. Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, 

Vermont, and Wisconsin reported data on the township level. Maine also reported its UOCAVA data in Section B as a 

separate jurisdiction, because this information was only collected at the state level. Michigan reported data for the county 

level, but most election administration activities take place in the 1,520 local election jurisdictions in the state. 4 52 U.S.C. § 20501.

5 This report generally uses the term “voter registration rolls” to refer to the computerized databases of registered voters 

that are maintained by states and localities. Other common terms for these databases include “voter registration lists” and 

“voter registration records.”

6 Before 2016, the EAC administered a separate survey called the NVRA Survey, which collected similar information. This 

survey was consolidated with the EAVS for the 2016 general election. Before the creation of the EAC, the NVRA Survey was 

administered by the Federal Election Commission.
116 | Voter Registration: The NVRA and Beyond 

(3) discriminatory and unfair registration laws and procedures can have a direct and

damaging effect on voter participation in elections for Federal office and disproportionately

harm voter participation by various groups, including racial minorities.7

The primary purposes of the NVRA are: 

(1) to establish procedures that will increase the number of eligible citizens who register to

vote in elections for Federal office;

(2) to make it possible for Federal, State, and local governments to implement this Act

[NVRA] in a manner that enhances the participation of eligible citizens as voters in elections

for Federal office;

(3) to protect the integrity of the electoral process; and

(4) to ensure that accurate and current voter registration rolls are maintained.8

The NVRA’s first purpose is to expand opportunities for voters to register by creating more uniform 

processes for voter registration and designating more places and methods to register to vote. The 

NVRA requires that states allow multiple methods and places to register to vote, including (1) motor 

vehicle departments when a person obtains, renews, or updates the address on their driver’s 

license; (2) through the mail, using a standard registration form;9 (3) at all state offices providing 

public assistance (e.g., the Supplemental Nutrition Assistance Program [SNAP]); (4) at all offices that 

provide state-funded programs focused on services to people with disabilities; (5) at armed forces 

recruitment offices; and (6) at other state designated offices such as public libraries and local 

government offices. All these offices are mandated under the NVRA to provide their users with 

information on voter registration and assistance in the registration process when required.

The NVRA also sets some fundamental guidelines that states must follow. For example, states may 

set their own deadline for citizens to register to vote in a general election for federal offices, but that 

deadline can never be more than 30 days before the date of the election. The NVRA also sets the 

7 52 U.S.C. § 20501

8 52 U.S.C. § 20507

9 States can make available the standard National Mail Voter Registration Form provided by the EAC

(https://www.eac.gov/voters/national-mail-voter-registration-form) or their own version of a mail registration form following 

the NVRA’s requirements.

The NVRA was fully implemented after the 1994 general election. Several states are not covered by the 

NVRA. North Dakota is exempt because it does not have voter registration. The U.S. territories are also 

not subject to the NVRA, and the states of Idaho, Minnesota, New Hampshire, Wisconsin, and Wyoming 

are exempt because they had same-day registration (SDR) in 1994 and have continued to make this 

option available uninterrupted since that time.
Voter Registration: The NVRA and Beyond | 117

process that states need to follow to maintain their voter registration rolls and to conduct removal 

processes.

Help America Vote Act of 2002 (HAVA) 

HAVA was enacted with the goal of updating the voting administration system in the United States 

and creating a commission to assist in the administration of federal elections. In addition to 

legislating the update of the administration process for federal elections in the United States, HAVA 

mandates that states create and maintain a “computerized statewide voter registration list” that 

serves as “the official voter registration list for the conduct of all elections for Federal office in the 

State.”10 The computerized registration list must be centralized and “defined, maintained and 

administered at the State level.”11 However, although the registration list is administered at the state 

level, local election officials must be able to access the registration list and are required to enter any 

updated voter registration information in the computerized system. HAVA also specifies that the 

maintenance of the implemented computerized registration list will be carried out according to the 

NVRA’s mandates and that duplicate names or registrations will be removed from the state’s 

registration list.

State Voter Registration Policies

States have wide latitude on how to conduct their voter registration activities, as long as the state 

policies do not interfere with federal laws such as the NVRA and HAVA. This flexibility allows states to 

adapt their laws as they see appropriate to better serve the interests of their citizens. During the 

period between the 2018 and the 2020 general elections, a number of states changed their laws 

regarding voter registration, such as implementing online voter registration, allowing voters to 

register at the polls on Election Day, or implementing automatic registration.12

These types of laws usually take years between when they are first proposed and when they are fully 

implemented. However, states can make short-term changes to their registration policies with the 

aim of addressing unforeseen circumstances. For example, the state of Massachusetts changed its 

registration deadline to allow its citizens an additional 10 days to register given the extraordinary 

circumstances caused by the COVID-19 pandemic.13 Additionally, some states briefly extended their 

registration deadlines due to issues with their online registration sites that made it impossible to 

register to vote in the hours before the end of the registration period—these issues were in some 

cases caused by an unprecedented volume of attempted visits.14

10 52 U.S.C. § 21083 11 Ibid. 12 These registration policies will be covered in more detail in the following section of this chapter. More information on 

state’s voting and registration policies can be found in Chapter 2 of this report.

13 Elections Division of the Secretary of the Commonwealth of Massachusetts. (2020, September 23). Important Elections 

Updates. https://www.sec.state.ma.us/ele/covid-19/covid-19.htm. 14 For example, Florida extended the deadline from October 5 to October 6, 2020, for a web malfunction before the 

deadline (https://dos.myflorida.com/communications/press-releases/2020/public-notice-secretary-of-state-laurel-m-leeprovides-update-about-voter-registration-in-florida/), and a federal court extended Virginia’s registration deadline from 

October 13 to October 15, 2020, because of an accidentally severed fiber optic cable that disabled the Department of 

Elections’ website hours before the registration deadline (https://www.elections.virginia.gov/news-releases/virginia-voterregistration-deadline-extended-by-federal-court.html). 
118 | Voter Registration: The NVRA and Beyond 

The Registration Process

The typical voter registration process is depicted in Figure 1. Citizens in the United States can 

register to vote using different methods, some of them mandated by federal law and others offered 

at the discretion of the state. Once a registration form is completed and submitted, the state or local 

election office must confirm the eligibility of the applicant. Eligible applicants are added to the voter 

registration rolls and are notified of their registration status, whereas applicants who submitted 

ineligible or incomplete applications are contacted for further information to complete their 

applications.

Figure 1. The Voter Registration Process

Note: Figure 1 does not represent automatic registration, in which the voter does not submit a registration application.
Voter Registration: The NVRA and Beyond | 119

Voter registration also serves to assign each voter to a precinct—a bounded geographic area to which 

voters are assigned according to their residential address as listed in their voter registration record—

so that voters receive the correct ballot. The voter registration system tracks each voter’s electoral 

participation so that an individual can be given credit for voting in an election, which helps ensure 

each person casts only one ballot per election.

Every person with a valid registration is considered an active, registered voter. However, at times, a 

question arises as to whether a person still resides at the address at which they are registered. The 

election official may receive notification via the U.S. Postal Service national change of address from 

the voter of a new resident address. In these situations, the state or local election office may send 

the registrant a confirmation of address notice. In many states, if the person fails to return the form 

or the form is returned to the election office as undeliverable, the person is placed on a list of 

inactive voters. Inactive voters are still part of the voter registration rolls and are included in the 

registration totals in most jurisdictions.15 However, before they can vote, inactive voters are typically 

required to show approved documentation of their eligibility (most commonly, proof of living at an 

address within the voting jurisdiction). In some cases, inactive voters may be required to cast a 

provisional ballot when their eligibility cannot be established at the polls.

The NVRA also requires states to maintain their voter registration rolls by removing registrants who 

are no longer eligible to vote. For example, the NVRA provides that if a registrant fails to return a 

confirmation notice and does not vote in two subsequent federal general elections, the registrant

can be removed from the voter registration roll of the jurisdiction that sent the confirmation notice. In 

addition, a registrant can be removed for other reasons such as death, upon the registrant’s request, 

or due to a disqualifying criminal conviction or mental incompetence, as provided by a state’s laws.

This process is referred to as “list maintenance.” When an individual is removed from the voter 

registration roll because of a change in residence of the voter under the NVRA process, this is called 

“address list maintenance.” Election offices may share data with other state agencies or entities that 

maintain death records or felony and prison records for the purposes of identifying potentially 

ineligible voters.16

How Americans Registered to Vote for the 2020 General Election

Between the close of registration for the 2018 general election and the close of registration for the 

2020 general election, states and territories reported receiving a record 103,701,513 registration 

applications—26,184,917 more applications than were received in the same period leading up to the 

2016 general election.17 The most used method of registration was the motor vehicle departments, 

which accounted for 39.3% of the total registrations received (39,705,812 registration 

15 According to the 2020 Policy Survey, six states (Guam, Idaho, North Dakota, New Hampshire, the U.S. Virgin Islands, and 

Wyoming) reported that they do not distinguish between active and inactive voters in their registration records. In the

survey comments in the EAVS, Oregon reported, “Do not track number of inactive voters,” and Minnesota stated, 

“Minnesota is NVRA exempt. Minnesota does not classify voters as inactive per NVRA.”

16 More information about state policies on voter registration database linkages is found in Chapter 2 of this report. 17 The total number of registration applications received during the two-year period leading to a federal general election 

was reported in item A3a in the 2020 EAVS and item A5a in the 2016 EAVS.
120 | Voter Registration: The NVRA and Beyond 

applications).18 Registration by mail accounted for 12.9%, in-person registration accounted for 8.3%, 

and online registration accounted for 28.2% of the total registration applications.19 The rest of the 

registration applications that were received during this period were from sources such as registration 

drives (2.2%), public assistance offices (1.6%), and armed forces recruiting offices (0.1%) among 

other sources.20

The primary sources of registration have remained fairly consistent throughout multiple elections. 

For instance, motor vehicle departments have been the most common source of voter registration 

for over a decade, accounting for more than 30% of the received registrations since at least 2006.21

Figure 2 shows that other sources for filing registration applications, such as in person at election 

offices, by mail/fax/email, and other means (e.g., public assistance offices, registration drives), were

used at very similar rates as for the 2018 general election.

Online registration has been the second-most popular registration mode since 2016 and accounted 

for a proportionately larger share of registration applications for the 2020 general election. In 2020, 

online applications increased 12.1 percentage points compared to the registration period leading to 

18 The percentage of registrations received by the motor vehicle department was calculated by dividing the number of 

registration applications received at motor vehicle departments (item A4d of the EAVS) by the total number of registration 

applications received (item A3a of the EAVS). American Samoa, Idaho, New Hampshire, North Dakota, the Northern 

Mariana Islands, Puerto Rico, Rhode Island, the U.S. Virgin Islands, Wisconsin, and Wyoming were not included in the 

calculation because they did not report data on item A4d. Casewise deletion at the state level was used in this calculation. 19 The percentage of registrations received by mail, in person, and online used items A4a, A4b, and A4c of the EAVS 

respectively, and were divided by the total number of registration applications received (item A3a of the EAVS). Guam, 

North Dakota, Puerto Rico, Rhode Island, and the U.S. Virgin Islands were not included in the calculation of the percentage 

of registrations received by mail because they did not report data on item A4a. North Dakota and Rhode Island were not 

included in the calculation of the percentage of registrations received in person because they did not report data on item 

A4b. American Samoa, Arkansas, Maine, Mississippi, Montana, New Hampshire, New York, North Dakota, the Northern 

Mariana Islands, Puerto Rico, Rhode Island, South Dakota, the U.S. Virgin Islands, and Wyoming were not included in the 

calculation of the percentage of registrations received online because they did not report data on item A4c. Casewise 

deletion at the state level was used in these calculations. 20 The percentage of registrations received from registration drives, public assistance offices, and armed forces recruiting 

offices used items A4i, A4e, and A4g of the EAVS respectively, and were divided by the total number of registration 

applications received (item A3a of the EAVS). American Samoa, Georgia, Guam, Louisiana, Maryland, Massachusetts, 

Mississippi, Missouri, Nebraska, New Hampshire, New Jersey, North Dakota, the Northern Mariana Islands, Oklahoma, 

Oregon, Puerto Rico, Rhode Island, South Carolina, Tennessee, the U.S. Virgin Islands, West Virginia, and Wyoming were not 

included in the calculation of the percentage of registrations received from registration drives because they did not report 

data on item A4i. American Samoa, Guam, Idaho, Maine, Minnesota, New Hampshire, North Dakota, the Northern Mariana 

Islands, Puerto Rico, Rhode Island, the U.S. Virgin Islands, Vermont, West Virginia, Wisconsin, and Wyoming were not 

included in the calculation of the percentage of registrations received at public assistance offices because they did not 

report data on item A4e. American Samoa, Guam, Hawaii, Idaho, Maine, Massachusetts, Minnesota, Mississippi, New 

Hampshire, New York, North Dakota, the Northern Mariana Islands, Oregon, Puerto Rico, Rhode Island, the U.S. Virgin 

Islands, Vermont, West Virginia, Wisconsin, and Wyoming were not included in the calculation of the percentage of 

registrations received at armed forces recruiting offices because they did not report data on item A4g. Casewise deletion at 

the state level was used in these calculations. The instructions for this question noted that registration applications should 

be classified according to the mode used to submit it. For example, if the voter submits a registration form online using the

state’s online voter registration portal, this is considered an online voter registration. If the voter accessed the online voter 

registration system at a state public assistance office or at the office of an agency that primarily serves individuals with 

disabilities, this would also be considered an online registration.

21 The EAC’s National Voter Registration Act Studies, which contain information on voter registration activities prior to 2016 

when this information began being included in the EAVS Comprehensive Report, can be found at https://www.eac.gov/

voters/national-voter-registration-act-studies.
Voter Registration: The NVRA and Beyond | 121

Figure 2. Motor Vehicle Departments Are the Most Common Source of Registration Applications

Source: The percentage of registrations received at motor vehicle departments was calculated as A4d/A3a x 100 for the 

2018 and the 2020 EAVS and A6d/A5a x 100 for the 2016 EAVS. The percentage of registrations received online was 

calculated as A4c/A3a x 100 for the 2018 and the 2020 EAVS and A6c/A5a x 100 for the 2016 EAVS. The percentage of 

registrations received by mail/fax/email was calculated as A4a/A3a x 100 for the 2018 and the 2020 EAVS and A6a/A5a 

x 100 for the 2016 EAVS. The percentage of registrations received in person was calculated as A4b/A3a x 100 for the 

2018 and the 2020 EAVS and A6b/A5a x 100 for the 2016 EAVS. The percentage of registrations received by other 

means was calculated as (A4e+A4f+A4g+A4h+A4i+A4j+A4k+A4l)/A3a x 100 for the 2018 and the 2020 EAVS and 

(A6e+A6f+A6g+A6h+A6i+A6j+A6k+A6l+A6m+A6n+A6o)/A5a x 100 for the 2016 EAVS. Casewise deletion was used at 

the state level in these calculations.

the 2018 general election and was the registration source with the largest growth. Some of this 

growth in online registration applications could have been because of the effects of the COVID-19 

pandemic, as many of the typical in-person modes of registration were restricted starting in March 

2020. The percentages of registrations received at motor vehicle departments and in person at 

election offices saw small decreases from 2018 to 2020.
122 | Voter Registration: The NVRA and Beyond 

Another explanation for the growth in the use of online registration between 2018 and 2020 is that 

three states (Minnesota, New Jersey, and Oklahoma) began to offer online registration.22 This 

resulted in a total of 43 states that allowed voters to submit new registration applications online for 

the 2020 general election.23 These registrations are typically reviewed electronically, and data from 

other state databases are used to verify a person’s identity, address, and eligibility. Most of the 

states (81.4%) using online registration reported that applicants must have a driver’s license issued

by the state to register online.24 Two more states (Mississippi and Texas) reported that they allow 

voters to update their registration records online, but voters may not submit new registration 

applications online.

States reported receiving 27,681,700 online registrations during the 2018–2020 registration 

period.25 Nineteen states reported receiving more than 30% of their registrations online in 2020 (see 

Table 2 of the Appendix). Among states that reported receiving online registrations in 2018 and 

2020, only Iowa and Connecticut reported a decrease in the percentage of their registrations 

received online (a 5.2- and 3.6-percentage-point decrease, respectively), and 26 states reported an 

increase of 10 percentage points or more.26 As in 2018, Massachusetts (67.4%) was the state with 

the highest percentage of online registrations.27 The first state to implement online registration, 

Arizona, also remained among the states with the highest levels of registrations received online 

(45.2%).

Same-Day Voter Registration

Same-day registration (SDR) allows voters to register to vote and cast their ballot on the same day. 

SDR can be offered on Election Day, in which case it may be referred to as Election Day registration, 

or it can be offered during in-person early voting.28 SDR depends on local laws and, thus, is only 

allowed in some states and territories. Some states reported allowing SDR in narrow circumstances, 

such as only for particular elections (e.g., Alaska and Rhode Island reported only allowing SDR for

voting for the U.S. President and Vice President) or particular cases (e.g., North Carolina reported 

22 Information was collected from responses to items Q7 in the 2020 Policy Survey and Q6 in the 2018 Policy Survey. The 

states of Minnesota, New Jersey, and Oklahoma reported using online registration for the 2020 general election, but not in 

2018. Mississippi and Texas reported offering an online option only to update registrations and did not report any online 

registration in item A4c of the EAVS.

23 More information about state policies on online registration is found in Chapter 2 of this report. 24 The percentage of states requiring a driver’s license or other ID issued by the state to register to vote used item Q7a in 

the 2020 Policy Survey and was calculated by dividing the number of states that require a state-issued ID by the total 

number of states that reported allowing individuals to register to vote online in Q7 of the 2020 Policy Survey. 25 The total number of online registration applications received during the two-year period leading to a federal general 

election was reported in item A4c in the 2020 EAVS. 26 The percentage of registrations received online in 2020 used item A4c of the 2020 EAVS divided by the total number of 

registration applications received (item A3a of the 2020 EAVS). The calculation of online registrations received in 2018 

used the same item number from the 2018 EAVS data set. The comparison subtracted the percentage of registrations 

received online in 2020 from the percentage of registrations received online in 2018 to obtain the percentage point 

difference. Texas was not included among the states that received online registrations in 2018 and 2020, because they 

reported zero as the response for A4c in all of the counties. 27 Illinois reported 96.4% of online registrations but was omitted here, because it reported more than twice as many 

registrations in the categories’ breakdown than were reported in the item reporting total registrations received (A3a). 28 Some states may have an overlap between their mail voting period and the close of their voter registration, during which 

it is possible for a person to register on the same day that they cast a mailed ballot; however, this is not considered SDR for 

purposes of the EAVS, and many states have noted in the past that it is not possible to track the number of mail voters who 

register to vote on the same day that they cast their mailed ballot. 
Voter Registration: The NVRA and Beyond | 123

allowing SDR to citizens who became eligible to vote due to naturalization or who had their voting 

rights restored after a conviction or felony and only if they became eligible between the close of 

books and Election Day).

In 2020, 29 states reported allowing some form of SDR. Twenty-one states reported allowing voters 

to register to vote on Election Day. Twelve states reported allowing SDR during an overlap between 

the start of early voting and the close of voter registration, 20 states reported allowing for SDR 

during in-person early voting, and four states reported allowing for SDR in very specific cases.29 The 

states that indicated allowing SDR were mostly the same as in 2018, with the exception of South 

Carolina, which allowed SDR for the 2018 general election but not in 2020, and American Samoa, 

Massachusetts, Michigan, and Nevada, which did not allow for SDR in 2018 but did for the 2020 

general election.30

The total number of SDRs recorded in 2020 was 1,634,346 and accounted for 3.5% of the total 

registrations received among states allowing for SDR.31 For the first time, the 2020 EAVS asked 

states to break down SDRs between those that were received before and on Election Day. Election 

Day SDRs added up to 934,238, and early voting SDRs summed to 665,108 registrations.32 There 

was a wide variability in how the two types of SDRs were distributed among states that reported 

both, with Election Day SDRs accounting for between 5.9% and 100% of the total SDRs that states 

reported.33

The use of SDR varied considerably, and similar to previous elections, the five NVRA-exempt states—

which gained NVRA exemption for allowing SDR continuously since 199434—were among the states 

where SDR accounted for the largest percentages of registration applications. In Wyoming, 55.6% of 

the registration applications were SDR, followed by Idaho with 40.7% and Wisconsin with 30.4%.35

The NVRA states where SDR accounted for the largest portions of their registration applications 

received were Vermont (24.4%) and Maine (24%). However, for most of the NVRA states, SDR 

accounted for less than 5% of registration applications.

29 These results were obtained from item Q9a of the 2020 Policy Survey. More information about state policies on SDR is 

found in Chapter 2 of this report.

30 These results were obtained from item Q9 of the 2020 Policy Survey and item Q7 of the 2018 Policy Survey. 31 The total number of SDR applications received during the two-year period leading to a federal general election was

reported in item A2a in the 2020 EAVS. The percentage of registrations received that were SDRs was calculated by dividing 

the number of SDRs received (item A2a of the EAVS) by the total number of registration applications received (item A3a of 

the EAVS). The total and percentage correspond to the 26 states that reported allowing SDR and reported data for it. Guam 

and Massachusetts, which allow for some form of SDR, reported “Data not available” for this field. American Samoa 

reported zero total SDRs. Casewise deletion at the state level was used in this calculation. 32 The total number of Election Day SDRs was reported in item A2b in the 2020 EAVS, and the total number of early voting 

SDRs was reported in item A2c in the 2020 EAVS. The sum of Election Day SDRs and early voting SDRs does not add up to 

the total SDRs reported because some states either did not break down SDR by type (Alaska) or their submissions in A2b 

and A2c did not sum to A2a (California, Illinois, and Utah). 33 The percentage of SDRs that were Election Day SDRs was calculated by dividing the number of Election Day SDR

applications received (item A2b of the EAVS) by the total number of SDR applications received (item A2a of the EAVS). 34 North Dakota is also NVRA exempt because it does not require voter registration, and the U.S. territories are also NVRA

exempt.

35 The percentage of registration applications that were SDRs was calculated by dividing the number of SDR applications 

received (item A2a of the EAVS) by the total number of registration applications received (item A3a of EAVS).
124 | Voter Registration: The NVRA and Beyond 

Automatic Voter Registration

Beginning in 2016, states started implementing laws allowing for automatic voter registration (AVR). 

These laws allow for non-registered persons to be added to the voter registration rolls during or after

an interaction with a designated state agency, such as the motor vehicle department, unless the 

person specifically declines to be registered. The most common differences between the types of 

AVR policies were the point at which the individual must decline or “opt out” of being registered—

either at the point of service or at a later time through a mailer sent to the individual—and which 

state agencies participate in the AVR program.

In 2016, Oregon was the first state to implement AVR at the state level. Since then, 23 states have 

also started using some form of AVR.36 For the most part, states reported that individuals must opt

out of AVR at the point of service. A very common example is that a person is provided the 

opportunity to register to vote while completing a transaction at their local motor vehicle department 

and is asked to provide a response of “yes” or “no” to be able to continue with the voter registration 

transaction. Only the states of Colorado and Oregon reported not asking individuals during their

transactions and later requiring that they actively respond to a mailer if they do not want to be 

included in the voter registration rolls.37 All states that reported allowing AVR did so at least through 

the state’s motor vehicle department, with nine states reporting additional agencies (e.g., agencies 

for people with disabilities, public assistance offices) participating in the AVR program in their 

state.38

The EAVS does not include any questions about the number of AVRs processed by states. However, 

the EAVS data show an increase in registrations submitted through motor vehicle departments 

(which data from the 2020 Policy Survey show is the most common state agency that processes 

AVRs) between 2016 and 2020. Although the increase of 14.3 million voter registrations processed 

through the motor vehicle department in this time span is likely the result of multiple factors, AVR

may be one of them.39 When comparing the change in motor vehicle department registrations 

recorded between 2016 and 2020 among states with and without AVR, states with AVR reported an 

increase of 80% in the number of registrations received at the motor vehicle department, whereas

states without AVR reported a 10.1% increase.40 These increases may be, in part, driven by the fact 

that there was a 33.8% increase in the total number of registrations received between 2016 and 

36 The number of states with AVR was obtained through item Q6 in the Policy Survey. More information about states with 

AVR is found in Chapter 2 of this report.

37 Information on the point at which the individual has the opportunity to opt out of AVR was obtained through item Q6b in 

the Policy Survey.

38 Information on state agencies participating in the AVR program for each state was obtained through item Q6a in the 

Policy Survey.

39 Total registrations received at motor vehicle departments was obtained through items A4d in the 2020 EAVS and A6d in 

the 2016 EAVS.

40 The percentage change in total number of registrations received at the motor vehicle department between 2016 and 

2020 was calculated by dividing the number of registration applications received at the motor vehicle department in 2020 

(item A4d of the 2020 EAVS) by the number of registration applications received at the motor vehicle department in 2016 

(item A6d of the 2016 EAVS) for states that did and did not allow for AVR as reported in item Q6 of the Policy Survey. 

Classification of states as having AVR and not having AVR used item Q6 of the 2020 Policy Survey. Casewise deletion at the 

state level was used in this calculation.
Voter Registration: The NVRA and Beyond | 125

2020.41 However, the trend of AVR states having an increase in motor vehicle department

registration holds when comparing the percentage of registration applications received through 

motor vehicle departments in states with and without AVR for the 2016 and 2020 elections. Figure 3 

shows that among states without AVR, motor vehicle department registrations accounted for a 

similar portion of the total registrations in 2016 and 2020. There has been a notable increase 

among the states that have implemented AVR in recent years.

Figure 3. Motor Vehicle Department Registrations Accounted for a Larger Portion of Total 

Registrations Received in AVR States

Source: The percentage of registrations received at motor vehicle departments was calculated as A4d/A3a x 100 for the 

2020 EAVS and A6d/A5a x 100 for the 2016 EAVS. Classification of states as having AVR and not having AVR used item 

Q6 of the 2020 Policy Survey. Casewise deletion at the state level was used in this calculation.

Alaska is the only state that reported AVRs as a separate category in its EAVS data, as this state 

processes most of its AVRs through the Permanent Fund Dividend program. Alaska reported in its 

41 The percentage change in the total number of registrations received between 2016 and 2020 was calculated by dividing 

the number of registration applications received in 2020 (item A3a of the 2020 EAVS) by the number of registration 

applications received in 2016 (item A5a of the 2016 EAVS). North Dakota was not included in this calculation because it 

does not have voter registration. American Samoa and the Northern Mariana Islands were not included in this calculation 

because they did not complete the 2016 EAVS. Casewise deletion at the state level was used in this calculation.
126 | Voter Registration: The NVRA and Beyond 

survey comments that in 2016, the state approved a ballot initiative requiring AVR through the 

Permanent Fund Dividend. Since the implementation of the initiative, the total number of registration 

applications that the state reported receiving increased from 259,227 in 2016 to 1,079,008 in 

2020.42 AVRs through the Permanent Fund Dividend program accounted for 68.1% of Alaska’s total 

registrations in 2020 and 59.8% in 2018.43

Other Modes of Registration

In addition to in-person, online, mail/fax/email, and motor vehicle department registrations, states 

reported data on registration applications received from other sources, which in 2020 accounted for 

12.9% of the applications received at the national level.44 Some of these modes of registration are 

NVRA mandated, such as registrations through armed forces recruitment offices, public assistance 

offices, and state-funded agencies serving persons with disabilities. These NVRA-mandated modes 

of registration accounted for 1.8% of the national registrations in 2020.45 States also reported 

registrations completed through other modes that are not required by the NVRA and that are 

authorized at the discretion of the state, such as at registration drives (2.2%) and other agencies 

required by the state (3%).46

Voter Registration Rates for the 2020 General Election

The NVRA requires each state to report its total number of registered and eligible, active, and 

inactive registrants for each federal general election.47 Most states reported the total “registered 

and eligible” voters as the sum of active and inactive registrants. However, data on registered and 

eligible voters as reported in the EAVS should be used with caution, as these totals can include 

registrants who were no longer eligible to vote in that state but who had not been removed from the 

voter registration rolls because the removal process from the inactive list laid out by the NVRA can 

take up to two election cycles to be completed.48 In addition, preliminary data from the 2020 U.S. 

42 The number of total registrations received was obtained from item A3a in the 2020 EAVS and from item A5a in the 2016 

EAVS.

43 Alaska reported data on the number of registrations received through the Permanent Fund Dividend program in item A4j 

of the 2020 and 2018 EAVS. The percentage of the total registrations that were processed through the Permanent Fund 

Dividend program was calculated by dividing the number of the program registration applications (item A4j for Alaska in the 

2020 and the 2018 EAVS) by Alaska’s total registrations received (item A3a in the 2020 and the 2018 EAVS). 44 The percentage of registrations received by other sources different than in person, online, mail/fax/email, and the motor 

vehicle department was calculated as (A4e+A4f+A4g+A4h+A4i+A4j+A4k+A4l)/A3a x 100 for the 2020 EAVS. Casewise 

deletion was used at the state level in these calculations. 45 The percentage of registrations received from NVRA-mandated sources different than in person, mail/fax/email, and the 

motor vehicle department was calculated as (A4e+A4f+A4g)/A3a x 100 for the 2020 EAVS. Casewise deletion was used at 

the state level in these calculations.

46 The percentage of registrations received from registration drives and from state agencies not mandated by the NVRA 

used items A4i and A4h of the 2020 EAVS, respectively, and were divided by the total number of registration applications 

received (item A3a of the EAVS). Casewise deletion at the state level was used in these calculations. 47 Twelve states (American Samoa, Guam, Idaho, Minnesota, New Hampshire, the Northern Mariana Islands, Ohio, Oregon, 

Puerto Rico, the U.S. Virgin Islands, Wisconsin, and Wyoming) reported only active registrants. North Dakota does not have 

voter registration and, thus, did not have any data to report. 48 California, Florida, Kansas, and New York reported more “registered and eligible” voters in their state than the sum of 

the active and inactive registrants, resulting in 13,704; 13,384; 11,199; and 776 uncategorized registrants, respectively.

New Hampshire reported zero registrations in 18 of its 320 jurisdictions. Two jurisdictions in Wisconsin reported zero 

registrations because they changed their status from town to village and/or merged with other jurisdictions where they 

reported the corresponding registration data. Kalawao County in Hawaii reported zero registrations because Maui County 

administers Kalawao County’s elections.
Voter Registration: The NVRA and Beyond | 127

Census show that the U.S. population increased by more than 20 million people since the 2010 

Census, resulting in a change of apportionment for congressional seats in 13 states;49 this 

population increase and mobility may be a contributing factor to the increase of records that states 

reported having on their voter registration rolls for the 2020 general election.

For the 2020 general election, states reported that 228,004,364 citizens were registered to vote, 

either as active or inactive voters.50 This represents a 6.5% increase compared to the number of 

people who were registered to vote for the 2016 general election.51 Nationally, 91.9% of all 

registrants were designated as active, and 9.1% of registrants were designated as inactive.52 In

2020, the total number of active registrants exceeded the 200 million mark for the first time in EAVS 

history and accounted for 88.2% of the 2019 citizen voting age population (CVAP).53 The number of 

active registrants in 2020 increased 8.3% compared to what states reported for the 2016 EAVS. In 

2020, the majority of states reported active registration rates of 80% or more of their 2019 CVAP 

(see Table 1 in Appendix A of this chapter).54 Compared to the active registration rates in 2016, 82% 

of the states reported a higher active registration rate in 2020.55

49 U.S. Census Bureau. (2021, April 26). First 2020 Census Data Release Shows U.S. Resident Population of 331,449,281. 

https://www.census.gov/library/stories/2021/04/2020-census-data-release.html. 50 The total number of registered voters was obtained from item A1a in the 2020 EAVS. 51 The percentage change in the total number of registered voters between 2016 and 2020 was calculated by dividing the 

total number of registered voters in 2020 (item A1a of the 2020 EAVS) by the total number of registered voters in 2016 

(item A1a of the 2016 EAVS).

52 The percentage of active and inactive registrants used items A1b and A1c, respectively, of the 2020 EAVS and divided

these items by the total number of registered voters (item A1a of the EAVS). North Dakota was not included in these 

calculations because it does not have voter registration. Guam, Idaho, Minnesota, New Hampshire, the Northern Mariana 

Islands, Ohio, Oregon, Puerto Rico, the U.S. Virgin Islands, Wisconsin, and Wyoming were not included in the percentage of 

inactive voters because they did not provide data about inactive voters in item A1c of the 2020 EAVS. Casewise deletion at 

the state level was used in these calculations. The percentages of active and inactive registrants do not add to 100 

because of the use of state casewise deletion to calculate percentages at the national level, as discussed in Chapter 5.

53 The total number of active registrants was obtained from item A1b in the 2020 EAVS. The active CVAP voter registration 

rate was calculated by dividing the number of active registrants (item A1b in the 2020 EAVS) by the estimated CVAP 

provided by the U.S. Census Bureau. North Dakota was not included in the calculation because it does not have voter 

registration. American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin Islands were not included in the 

calculation because there is no CVAP information from the Census Bureau for these territories. Casewise deletion at the 

state level was used in these calculations. This report uses the 1-year American Community Survey (ACS) state CVAP 

estimate for 2019 instead of the 5-year estimate to ensure that the CVAP is as current as possible. The CVAP estimates for 

2020 were not available by the time this report was finalized. In calculating the percentage change in the total number of 

active registrants from the 2016 EAVS to the 2020 EAVS, casewise deletion has been used at the state level. 54 The percentage of active CVAP voter registration was calculated by dividing the total active registrants (item A1b in the 

2020 EAVS) by the total CVAP.

55 The percentage of active CVAP voter registration change was calculated as the 2020 percentage of active CVAP voter 

registration ([A1b/CVAP] x 100) for the 2020 EAVS divided by the 2016 percentage of active CVAP voter registration 

([A3a/CVAP] x 100) for the 2016 EAVS. One unit was subtracted from the result of the division, and the result was 

multiplied by 100 to obtain the percentage change. North Dakota was not included because it does not have voter 

registration. Pennsylvania was not included because it did not report total active registrants in 2016, as the state

commented that it could not “differentiate between active and inactive from our point in time snapshot of the voter 

registration numbers.” The U.S. territories of American Samoa, Guam, the Northern Mariana Islands, and the U.S. Virgin 

Islands were not included because the U.S. Census Bureau does not provide an estimate for their CVAP.
128 | Voter Registration: The NVRA and Beyond 

There was a 3.6-percentage-point increase in the active registration rates at the national level (from 

84.6% in 2016 to 88.2% in 2020).56 At the state level, Georgia and Texas reported the largest 

56 The percentage of active CVAP voter registration for 2020 was calculated as the total active voters (A1b in the 2020 

EAVS) divided by the 2019 CVAP. The percentage of active CVAP voter registration for 2016 was calculated as the total 

active voters (A3a in the 2016 EAVS) divided by the 2015 CVAP. The percentage point change between the 2016 and 2020 

active CVAP voter registration rates was calculated by subtracting the 2015 active CVAP voter registration percentage from 

the 2019 active CVAP voter registration percentage.

Calculating Registration Rates Estimating the percentage of the population that is registered to vote for an election can be approached 

in different ways using a variety of metrics. There are multiple potential numerators and denominators 

that can be used.

Registration Rate Numerator: 

• Total Registrants. The number of people that states reported as being registered and eligible to

vote (A1a in the EAVS). This total includes active and inactive registrants. This metric

overrepresents of the actual number of registrants within a state, since some of the people

included (particularly inactive registrants) may not be eligible to vote in that jurisdiction.

• Active Registrants. The number of people that states reported as being eligible to cast a ballot

without the need to provide additional eligibility evidence at the polls (A1b in the EAVS). This total

excludes inactive registrants.

Registration Rate Denominator: 

• Voting Age Population (VAP). The estimate of the number of persons ages 18 or older provided by

the Census Bureau.

• Citizen Voting Age Population (CVAP). The estimate of the number of American citizens ages 18 or

older provided by the Census Bureau. This estimate is more accurate than the VAP in that it

restricts the inclusion criteria to being a U.S. citizen, which is mandatory to vote.

• Voting Eligible Population (VEP). The estimate created by subtracting from the CVAP the citizens

that are ineligible to vote (e.g., persons with disqualifying felony convictions) and persons who are

in the military or citizens living overseas. This estimate is provided by the U.S. Elections Project and

is available at the state level but not at the jurisdiction level like the VAP and the CVAP estimates.

The combination of active registrants and the CVAP to calculate the registration rate in the EAVS provides 

a higher level of accuracy than using the total registrations and/or the VAP to calculate the rate at the 

jurisdiction level when needed, as opposed to the use of the VEP. This calculation, however, has some 

limitations, such as the potential overrepresentation of total registrants in the active registrant list due to 

the challenges for states to keep voter registration rolls fully up to date. When analyzing EAVS data, the 

EAC recommends using the following method to calculate voter registration rates: 

See Chapter 2 of this report for a discussion of state policies on voter registration list maintenance.
Voter Registration: The NVRA and Beyond | 129

increases in active registration rates between 2016 and 2020 (24.5% and 18.8%, respectively), and 

New York and Puerto Rico reported the largest drops in active registration rates (24.3% and 14.4%,

respectively).57 Figure 4 shows the change in the active CVAP voter registration rate among states 

from the 2016 general election to the 2020 general election.

Figure 4. Most States Had an Increase in the Active CVAP Voter Registration Rate 

From 2016 to 2020

Source: The percentage of active CVAP voter registration change was calculated as the 2020 percentage of active CVAP 

voter registration ([A1b/CVAP] x 100) for the 2020 EAVS divided by the 2016 percentage of active CVAP voter registration 

([A3a/CVAP] x 100) for the 2016 EAVS. One unit was subtracted from the result of the division, and the result was 

multiplied by 100 to obtain the percentage change. North Dakota does not have a change rate because it does not have 

voter registration. Pennsylvania does not have a change rate, because it did not report total active registrants in 2016, as 

the state commented that they could not “differentiate between active and inactive from our point in time snapshot of the 

voter registration numbers.” The U.S. territories of American Samoa, Guam, the Northern Mariana Islands, and the U.S. 

Virgin Islands do not have a change rate because the U.S. Census Bureau does not provide an estimate for their CVAP.

Cutoff points in the graph were selected to reflect states that decreased, that slightly increased, and that notably increased 

in terms of the active CVAP registration rate from 2016 to 2020.

57 New York reported an uncharacteristically high number of active and total registrations in the 2016 EAVS compared to 

the registrations reported in the general elections of 2014, 2018, and 2020, which led to the drop in active registrants 

noted in the 2020 EAVS. The percentage of active CVAP voter registration was calculated by dividing the total active 

registrants (item A1b in the 2020 EAVS) by the total CVAP.
130 | Voter Registration: The NVRA and Beyond 

Types of Registrations Received for the 2020 General Election

When a person submits a registration form, it is processed by the state and can reach one of several 

outcomes. Valid applications from persons who are eligible and not already registered are 

considered new applications and are added to the voter registration rolls. Applications submitted by 

persons already registered to vote at the same address with the same name and personal 

information are considered duplicates. Applications from already-registered persons wishing to 

change their name, party affiliation, or address are processed as updates to existing registrations. 

Applications that do not meet the requirements of eligibility are considered invalid or rejected. When

allowed by state law, applications submitted by persons under 18 years old are processed as 

preregistrations so that they will be registered when they become of voting age. 

All registration forms received are processed and scrutinized by election officials to ensure that the 

information is correct, that only eligible voters are added to the registration rolls, and that duplicate 

registration records are not created. After the application’s review by election officials and following 

the NVRA’s guidelines, states must notify the applicant with the result of their application. For 

example, a successful application may be notified in the form of a registration card mailed to the 

applicant or a notice of rejection may be mailed to unsuccessful applicants.

Valid Registrations

Table 1 displays information on the result of the registration applications that were received by 

states. Of the more than 100 million registration applications received between the 2018 and the 

2020 federal general elections, the most common type of registration was an update to an existing 

record that did not involve a cross-jurisdiction change of address.58 These updates usually involve a 

change of name (such as after a marriage or divorce), party affiliation, or within-jurisdiction change 

of address; these updates accounted for 49.4% of the registrations processed at the national level.59

New valid registrations—a registration application received from an eligible person in a jurisdiction 

where they were not previously registered and that resulted in a new registration record being added 

to the voter registration roll—made up 32.2% of the registrations received.60

Other types of valid registrations reported in the EAVS included a change of address that crossed 

local jurisdiction borders but was still within the state, which accounted for 9.5% of the total 

registration applications filed.61 Some states reported allowing for underage citizens to preregister to 

vote so that they are automatically added to the voter registration rolls when they turn 18 years old. 

58 The number of total registration applications was reported in item A3a of the EAVS. The number of registration 

applications that were a change of name, party, or within-jurisdiction change of address was reported in item A3f of the 

EAVS.

59 The percentage of registration applications that were a change of name, party, or within-jurisdiction change of address 

received was calculated by dividing the number of such registration applications received (item A3f of the EAVS) by the total 

number of registration applications received (item A3a of the EAVS). Casewise deletion at the state level was used in this 

calculation.

60 The percentage of registration applications that were a new registration was calculated by dividing the number of such 

registration applications received (item A3b of the EAVS) by the total number of registration applications received (item A3a 

of the EAVS). Casewise deletion at the state level was used in this calculation. 61 The percentage of registration applications that were a cross-jurisdiction change of address was calculated by dividing 

the number of such registration applications received (item A3g of the EAVS) by the total number of registration 

applications received (item A3a of the EAVS). Casewise deletion at the state level was used in this calculation.
Voter Registration: The NVRA and Beyond | 131

These preregistrations accounted for 1.2% of the total registrations among states that allowed 

them.62 Finally, 14.7% of the registrations were labelled as “Other.” This category in the EAVS is used 

by states to report registrations that were not covered among the standard categories, or in most 

cases, to report registrations that could not be broken down into the categories provided, such as a 

change to existing records that some jurisdictions could not determine whether it involved a within or 

cross-jurisdictional change of address.63

Table 1. Most Registration Applications Were New Applications or Within-Jurisdiction Changes

Type of Registration Form Received Percentage of Total 

Registration Forms Received

Change of name, party, or address (within jurisdiction) 49.4%

New valid registrations 32.2%

Other 14.7%

Duplicate registrations 9.7%

Cross-jurisdiction change of address 9.5%

Invalid or rejected 2.9%

Preregistrations from persons under 18 years of age 1.2%

Source: The percentage of registrations received that were a change of name, party, or within-jurisdiction change of 

address received was calculated as (A3f/A3a) x 100. The percentage of registrations received that were a new valid 

registration was calculated as (A3b/A3a) x 100. The percentage of registrations received that were a duplicate registration 

was calculated as (A3d/A3a) x 100. The percentage of registrations received that were a cross-jurisdiction change of 

address was calculated as (A3g/A3a) x 100. The percentage of registrations received that were labelled as “Other” 

registrations was calculated as ((A3h+A3i+A3j) /A3a) x 100. The percentage of registrations received that were invalid or a 

rejected registration was calculated as (A3e/A3a) x 100. The percentage of registrations received that were a 

preregistration of persons under 18 years of age was calculated as (A3c/A3a) x 100. Casewise deletion was used at the 

state level in these calculations (percentages for each type of registration were calculated independently and only states 

that reported data for a given type were included in the analysis), and because of this, percentages do not sum to 100%.

Rejected and Duplicate Registrations

Some of the registration forms received by states do not result in the creation or the update of a 

registration record. The two types of invalid registration applications that the EAVS collects data on 

are rejected applications and duplicate applications. The first group includes applications that 

contain incorrect information, information that cannot be validated against existing state records, or 

applications from persons who do not meet eligibility requirements. In the period between the close 

62 The percentage of registration applications that were a preregistration of persons under 18 years of age was calculated 

by dividing the number of such registration applications received (item A3c of the EAVS) by the total number of registration 

applications received (item A3a of the EAVS). Casewise deletion at the state level was used in this calculation. 63 The percentage of registration applications that were categorized as “other” was calculated by dividing the total number 

of such registration applications received (sum of items A3h, A3i, and A3j of the EAVS) by the total number of registration 

applications received (item A3a of the EAVS). Casewise deletion at the state level was used in this calculation. Not all the 

applications accounted for in the “other” category may be valid; however, they were included in this section because they 

cannot be fully identified as rejected or duplicate either.
132 | Voter Registration: The NVRA and Beyond 

of registration for the 2018 general election and the close of registration for the 2020 general 

election, states reported rejecting 2,840,590 applications, accounting for 2.9% of the total 

registration applications received. This percentage is comparable to the percentage of registrations 

that were rejected in 2018 (3.4%) and 2016 (3.2%).64

Duplicate registrations include applications that are exact matches to existing registration records; 

these can be applications submitted by persons who did not realize they were already registered to 

vote or who submitted multiple applications through different modes (e.g., submitted an application 

with the exact same information through the mail and online). States reported receiving 8,827,089 

duplicate applications between the 2018 and the 2020 federal general elections, which accounted 

for 9.7% of the total registrations received.65 As with rejected applications, the percentage of 

duplicate registrations registered in 2020 was comparable to those in 2018 (10.2%) and 2016 

(7.9%).66

A majority of states provided a breakdown of the total, rejected, and duplicate registrations they 

received and the source of those registrations (e.g., mail, in person).67 As expected, most registration 

sources had rejection and duplicate percentages that were similar to the national averages; 

however, there were a few outliers. For duplicate registrations, the overall percentage at the national 

level was 9.7%, and most sources reported duplicate percentages similar to the national level, 

ranging from 5.3% to 13.3%.68 However, there were exceptions, such as state-designated offices not 

mandated by the NVRA, that reported lower levels of duplicate registrations (3%). At the other side of 

the spectrum, registrations received by mail, fax, or email had notably higher levels of duplicate 

registrations received (19.1%) compared to the national average.69 Invalid or rejected applications 

64 The number of total registration application rejections was obtained from item A3e of the EAVS. The percentage of 

registrations received that were invalid or rejected registrations in 2020 was calculated as the total applications rejected in 

2020 (item A3e in the 2020 EAVS) divided by the total registration applications received (item A3a in the 2020 EAVS). The 

percentage of registrations received that were invalid or rejected registrations in 2018 was calculated as the total 

applications rejected in 2018 (item A3e in the 2018 EAVS) divided by the total registration applications received (item A3a 

in the 2018 EAVS). The percentage of registrations received that were invalid or rejected registrations in 2016 was

calculated as the total applications rejected in 2016 (item A5e in the 2016 EAVS) divided by the total registration 

applications received (item A5a in the 2016 EAVS). Casewise deletion at the state level was used in this calculation. 65 The number of total duplicate registration applications was obtained from item A3d of the EAVS. The percentage of 

registrations received that were duplicate registrations in 2020 was calculated as the total duplicate applications in 2020 

(item A3d in the 2020 EAVS) divided by the total registration applications received (item A3a in the 2020 EAVS). Casewise 

deletion at the state level was used in this calculation. 66 The percentage of registrations received that were duplicate registrations in 2020 was calculated as the total duplicate 

applications in 2018 (item A3d in the 2018 EAVS) divided by the total registration applications received (item A3a in the 

2018 EAVS). The percentage of registrations received that were duplicate registrations in 2016 was calculated as the total 

duplicate applications in 2016 (item A5d in the 2016 EAVS) divided by the total registration applications received (item A5a 

in the 2016 EAVS). Casewise deletion at the state level was used in this calculation. 67 Thirteen states did not provide the application source breakdown for duplicate registrations, and 14 states did not 

provide the application source breakdown for rejected registrations. Data from these states were not included in the 

ensuing calculations in the paragraph.

68 The percentage of registration applications received from a source and categorized as duplicate was calculated as 

follows for each registration source included in the range: in person = (A6b/A4b) x 100; online = (A6c/A4c) x 100; motor 

vehicle department = (A6d/A4d) x 100; public assistance offices = (A6e/A4e) x 100; state-funded agencies serving 

persons with disabilities = (A6f/A4f) x 100; armed forces recruitment offices = (A6g/A4g) x 100; registration drives = 

(A6i/A4i) x 100; Other = ((A6j+A6k+A6l)/(A4j+A4k+A4l)) x 100. Casewise deletion at the state level was used in this 

calculation.

69 The percentage of registration applications that were duplicates was calculated as follows for each registration source 

mentioned: state-designated offices not mandated by the NVRA = (A6h/A4h) x 100; mail/fax/email = (A6a/A4a) x 100. 

Casewise deletion at the state level was used in this calculation.
Voter Registration: The NVRA and Beyond | 133

represented 2.9% of registrations at the national level, and most sources reported a rejection 

percentage close to that, ranging from 1.7% to 4.2% of registrations rejected,70 except for 

registration drives (10.1%), and NVRA-mandated public assistance offices (9.1%) that had notably 

higher levels of applications classified as rejected or invalid.71

Registration List Maintenance

The NVRA requires states to maintain an “accurate and current voter registration roll” to “protect the 

integrity of the electoral process.”72 To facilitate this maintenance, the NVRA requires that any 

change of address submitted to a motor vehicle department must serve as notification of a change 

of address for voter registration, unless the individual indicates that the change is not for voter 

registration purposes. The law also requires states and territories to conduct a uniform and 

nondiscriminatory general program to remove the records of ineligible voters. States and territories 

have considerable freedom to choose when, where, and how these functions are performed, but 

must follow the guidelines listed in the NVRA, which describe the need to use confirmation notices

and to complete (with few exceptions) systematic removal programs “not later than 90 days prior to 

the date of a primary or general election for Federal office,”73 as well as to keep a detailed list of 

instances in which it is appropriate to remove a record from the voter registration rolls.

Confirmation Notices

One tool that states may use to keep their voter registration rolls up to date are confirmation notices. 

These are postage pre-paid and pre-addressed return cards that are sent to registrants who a state 

suspects are no longer eligible to vote in the jurisdiction in which they are registered. If the registrant 

does not return the confirmation notice, they can be added to the inactive registrant list and would 

be asked to provide proof of residence before voting. If the registrant fails to return the confirmation 

notice and does not participate in the subsequent two consecutive federal elections, then the NVRA 

grants the state the ability to remove the registrant from the voter registration roll. If the registrant 

has not moved out of the voting jurisdiction, they must complete and return the confirmation notice 

no later than the registration deadline of the next election to remain on the list of active registrants. 

70 The percentage of registration applications received from a source and categorized as invalid or rejected was calculated 

as follows for each registration source included in the range: mail/fax/email = (A7a/A4a) x 100; in person = (A7b/A4b) x 

100; online = (A7c/A4c) x 100; motor vehicle department = (A7d/A4d) x 100; state-funded agencies serving persons with 

disabilities = (A7f/A4f) x 100; armed forces recruitment offices = (A7g/A4g) x 100; state-designated offices not mandated 

by the NVRA = (A7h/A4h) x 100; and Other = ((A7j+A7k+A7l)/(A4j+A4k+A4l) x 100. Casewise deletion at the state level was 

used in this calculation.

71 The percentage of registration applications received from a source and categorized as invalid or rejected was calculated 

as follows for each registration source mentioned: registration drives = (A7i/A4i) x 100; public assistance offices = 

(A7e/A4e) x 100. Casewise deletion at the state level was used in this calculation. 72 52 U.S.C. § 20501 73 52 U.S.C. § 20507
134 | Voter Registration: The NVRA and Beyond 

Figure 5. Almost Two-Thirds of Confirmation Notices That Were Sent Had an Unknown Status

Source: Status unknown (A8e) refers to any notice that was sent to a voter but was not received back confirming 

registration, confirming invalidation, or returned as undeliverable. This percentage was calculated as (A8e/A8a) x 100. The 

percentage of confirmation notices sent and returned confirming valid registration was calculated as (A8b/A8a) x 100. The 

percentage of confirmation notices sent and returned undeliverable was calculated as (A8d/A8a) x 100. The percentage of 

confirmation notices sent and returned confirming registration should be invalidated was calculated as (A8c/A8a) x 100. 

The percentage of confirmation notices sent and not categorized was calculated as (1 – ((A8b+A8c+A8d+A8e+A8f+A8g+ 

A8h)/A8a)) x 100. The percentage of confirmation notices sent and labeled as other was calculated as 

((A8f+A8g+A8h)/A8a) x 100. Casewise deletion was used at the state level (percentages for each category were 

calculated independently and only states that reported data for a given category were included in the analysis), and

because of this, percentages do not sum to 100%.

Nationally, 28,010,094 confirmation notices were sent between the 2018 general election and the 

month before the 2020 general election, accounting for 14.3% of the active voters reported by 

states in 2020.74 This percentage is slightly higher than what was reported by states in 2018 

74 The total number of confirmation notices sent was reported in item A8a of the EAVS. The number of confirmation notices 

sent as a percentage of the active registrants was calculated using total confirmation notices sent (item A8a of the EAVS) 

divided by total active registrants (A1b of the EAVS). Casewise deletion at the state level was used in this calculation. In 

2020, 49 states and territories reported the number of confirmation notices sent during the period of registration for the 

2020 general election. North Dakota does not require citizens to register to vote and, thus, does not use confirmation 

notices. Minnesota, Puerto Rico, the U.S. Virgin Islands, and Wyoming are NVRA exempt. Alabama reported that they did 

“not have a report that has the total number of confirmation notices sent.” Indiana did not provide this information 
Voter Registration: The NVRA and Beyond | 135

(11.6%) and in 2016 (10.9%).75 Figure 5 shows that confirmation notices with an unknown status 

accounted for 65.8% of the total. The unknown status notices generally included confirmation 

notices that were sent and never returned to the jurisdiction—allowing states to move the 

addressees of these notices to the inactive registration list if the state uses that designation. States 

reported 12.1% of confirmation notices were returned confirming the voter’s continued eligibility, 

and 8.1% were returned confirming the voter was no longer eligible to vote in the jurisdiction or no 

longer wanted to be registered to vote.

Removing Voters From Voter Registration Rolls

The NVRA mandates that registrants may only be removed from the voter registration rolls in these 

circumstances:

• Upon the death of the registrant;

• Upon the registrant’s written confirmation that their address has changed to a location outside

the registrar’s jurisdiction;

• On the request of the registrant;

• For mental incapacity of the registrant, as provided in state law;

• On criminal conviction of the registrant, as provided in state law; or

• On the registrant’s failure to respond to certain confirmation mailings along with failure to

appear to vote in two consecutive federal general elections subsequent to the mailing.

Because some of the states’ processes to remove a registrant from the voter registration rolls can 

take up to two federal general election cycles to complete, it is inevitable that voter registration rolls 

will contain some number of voter records for individuals who are no longer eligible to vote. 

Between the close of registration for the 2018 general election and the close of registration for the 

2020 general election, states reported removing 18,781,054 records from their voter registration 

rolls.76 This was equal to 8.2% of the total number of voters who were registered in the United States 

as of the close of registration for the 2020 general election.77 Almost two-thirds of the states and 

territories reported removing a number of registrants that added up to between 3% and 10% of their 

total registered voters. There were some exceptions to this trend: Connecticut’s removals accounted 

because it “does not send the removal notices referenced by the EAC survey.” Forty-four states reported the status of the 

confirmation notices sent. In addition to the states that did not report on confirmation notices, Delaware, Kentucky, 

Louisiana, Massachusetts, and Rhode Island did not break down the number of confirmation notices sent by status. 75 The number of confirmation notices sent as a percentage of the active registrants in 2018 was calculated using total 

confirmation notices sent (item A8a of the 2018 EAVS) divided by total active registrants (A1b of the 2018 EAVS). The 

number of confirmation notices sent as a percentage of the active registrants in 2016 was calculated using total 

confirmation notices sent (item A10a of the 2016 EAVS) divided by total active registrants (A3a of the 2016 EAVS). 

Casewise deletion at the state level was used in this calculation. 76 The total number of registrants removed from the voter registration rolls was reported in item A9a of the EAVS. All states 

and territories reported data for the items related to voter removal, except for North Dakota, which does not require citizens 

to register to vote.

77 The number of registrants removed as a percentage of total registrants was calculated using total registrants removed 

from the voter registration rolls (item A9a of the EAVS) divided by total registrants (A1a of the EAVS). Casewise deletion at 

the state level was used in this calculation.
136 | Voter Registration: The NVRA and Beyond 

for the lowest percentage of total registrants at 2.1%, and Puerto Rico reported the highest 

percentage of removals at 32.3% (see Table 5 of Appendix A in this chapter).

States also reported the reasons for removing records from their voter registration rolls. These 

reasons for removal are shown in Figure 6. The most common reason was failure to both respond to 

a confirmation notice and to vote in two consecutive federal general elections, which accounted for 

32.1% of removals. Cross-jurisdiction change of address and death of the registrant were the other 

two major reasons for states’ removal of registrants from their rolls (28.5% and 21.4%, respectively).

Figure 6. Almost One-Third of Removed Registration Records Were a Result of Failure to Respond 

to a Confirmation Notice

Source: The percentage of registrations removed because of no response to confirmation notices (and not voting in the 

following two general elections) was calculated as (A9e/A9a) x 100. The percentage of registrations removed because of a 

cross-jurisdiction change of address was calculated as (A9b/A9a) x 100. The percentage of registrations removed because 

of death was calculated as (A9c/A9a) x 100. The percentage of registrations removed because the voter was declared 

mentally incompetent or because of other reasons was calculated as ((A9f+A9h+A9i+A9j)/A9a) x 100. The percentage of 

registrations removed because the voter requested to be removed was calculated as (A9g/A9a) x 100. The percentage of 

registrations removed because of disqualifying felony conviction was calculated as (A9d/A9a) x 100. Casewise deletion 

was used at the state level (percentages for each category were calculated independently and only states that reported 

data for a given category were included in the analysis), and because of this, percentages do not sum to 100%.
Voter Registration: The NVRA and Beyond | 137

The majority of states reported that a registrant could be removed from the voter registration rolls if 

the registrant received a disqualifying criminal conviction and/or was incarcerated,78 but only 1.6% 

of the removals were the result of a disqualifying felony conviction.79 Two states, however, reported 

that more than 10% of their registration removals happened due to criminal convictions or 

incarceration. Georgia reported that 10.8% of registrants were removed for this reason, and

Kentucky (13.3%) reported the largest percentage of this type of removal. Kentucky also reported 

criminal conviction as a common reason for registration removal in the 2018 EAVS.80

78 Maine, Vermont, Puerto Rico, Guam, and the District of Columbia reported criminal conviction and/or incarceration was 

not a reason for voter removal in item Q37 of the 2020 Policy Survey. 79 The percentage of registrations removed because of a disqualifying felony conviction was calculated as (A9d/A9a) x 100.

Casewise deletion was used at the state level. 80 The percentage of registrations removed because of a disqualifying felony conviction in 2018 was calculated as the total 

registrants removed from the voter registration rolls for this reason (item A9d of the 2018 EAVS) divided by total registrants 

removed from the rolls (item A9a in 2018).
138 | Voter Registration: The NVRA and Beyond 

Appendix A: Descriptive Tables

Voter Registration Table 1: Registration History

State

Alabama

Alaska

American Samoa 

[1], [2], [3]

Arizona

California [4] 

Year

2020 

2018 

2016

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 2,235,415 1,831,414 1,408,061 63.0 76.9 423,353 23.1 

Arkansas 2018 2,207,894 1,786,840 1,456,887 66.0 81.5 329,953 18.5 

2016 2,185,724 1,765,513 1,422,393 65.1 80.6 343,120 19.4 

2020 

2018 

CVAP Total

3,731,336

3,688,249 

3,653,381 

533,151 

531,653 

528,248 

--

--

--

5,137,474

4,895,706 

4,710,448 

26,032,160 

25,650,455 

Reported 

Registrations

3,717,798

3,465,352 

3,333,946 

646,093 

624,467 

587,303 

16,341 

15,527 

--

4,728,109 

4,276,891 

4,080,680 

26,157,616 

25,103,559 

Active 

Registrations

3,438,213 

3,164,301 

3,049,655 

595,647 

571,851 

528,671 

16,341 

8,462 

--

4,275,729 

3,715,624 

3,589,084 

21,795,538 

19,724,297 

Active 

Regs.

(% of 

CVAP)

92.1 

85.8 

83.5

111.7 

107.6 

100.1

--

--

--

83.2 

75.9 

76.2 

83.7 

76.9

Active 

Regs. 

(% of 

Total) 

92.5 

91.3 

91.5 

92.2 

91.6 

90.0 

100.0 

54.5 

--

90.4 

86.9 

88.0

83.3 

78.6 

Inactive

Registrations

279,585 

301,051 

139,638 

50,446 

52,616 

58,632

0 

7,065 

--

452,380 

561,267 

491,596 

4,348,374 

5,379,262

Inactive

Regs. 

(% of 

Total) 

7.5

8.7

4.2

7.8

8.4

10.0 

0.0

45.5 

--

9.6

13.1 

12.0 

16.6 

21.4 

2016 25,002,812 24,486,638 19,435,856 77.7 79.4 5,065,746 20.7 

2020 4,244,210 4,211,528 3,803,762 89.6 90.3 407,766 9.7

Colorado 2018 4,057,437 3,953,613 3,426,499 84.4 86.7 527,114 13.3 

2016 3,896,986 3,840,303 3,336,663 85.6 86.9 503,640 13.1 

2020 2,619,474 2,524,717 2,335,860 89.2 92.5 188,857 7.5

Connecticut 2018 2,611,667 2,369,335 2,193,586 84.0 92.6 175,749 7.4

2016 2,584,884 2,331,684 2,162,797 83.7 92.8 168,887 7.2

2020 725,178 739,672 711,287 98.1 96.2 28,385 3.8

Delaware 2018 709,999 695,014 672,632 94.7 96.8 22,382 3.2

2016 697,148 675,663 642,334 92.1 95.1 33,329 4.9

2020 536,768 625,683 517,890 96.5 82.8 107,793 17.2 

District of 

Columbia 2018 510,514 617,046 511,633 100.2 82.9 105,413 17.1 

2016 504,242 493,287 493,287 97.8 100.0 -- --

2020 15,507,315 15,231,808 14,517,002 93.6 95.3 701,422 4.6

Florida 2018 15,014,950 14,126,722 13,278,070 88.4 94.0 848,652 6.0

2016 14,441,877 13,505,571 12,853,866 89.0 95.2 651,705 4.8
Voter Registration: The NVRA and Beyond | 139

Active Active Inactive 

Reported Active Regs. Regs. Inactive Regs. State Year CVAP Total Registrations Registrations (% of (% of Registrations (% of 

CVAP) Total) Total) 

Georgia

2020 7,581,837 7,618,436 7,194,889 94.9 94.4 423,547 5.6

2018 7,362,615 6,944,851 6,437,524 87.4 92.7 507,327 7.3

2016 7,168,068 6,657,621 5,463,014 76.2 82.1 1,194,607 17.9 

2020 -- 55,896 55,896 -- 100.0 -- --

Guam [1], [2] 2018 -- 55,941 55,941 -- 100.0 -- --

2016 -- 51,720 51,720 -- 100.0 -- --

2020 1,014,035 832,466 759,971 74.9 91.3 72,495 8.7

Hawaii 2018 1,025,548 756,751 712,765 69.5 94.2 43,986 5.8

2016 1,022,704 751,483 666,573 65.2 88.7 84,910 11.3 

2020 1,282,630 1,029,763 1,029,763 80.3 100.0 -- --

Idaho [2] 2018 1,219,481 917,609 917,609 75.2 100.0 -- --

2016 1,168,843 936,529 936,529 80.1 100.0 -- --

2020 9,088,036 9,789,893 9,103,542 100.2 93.0 686,351 7.0

Illinois 2018 9,055,927 8,751,060 8,091,045 89.3 92.5 660,015 7.5

2016 9,017,653 8,843,038 8,055,096 89.3 91.1 787,942 8.9

2020 4,978,356 4,692,091 4,170,353 83.8 88.9 521,738 11.1 

Indiana 2018 4,899,251 4,500,196 4,168,374 85.1 92.6 331,822 7.4

2016 4,856,797 4,839,038 4,149,560 85.4 85.8 689,478 14.2 

2020 2,348,787 2,243,758 2,094,770 89.2 93.4 148,988 6.6

Iowa 2018 2,325,355 2,193,813 2,037,516 87.6 92.9 156,297 7.1

2016 2,310,467 2,222,380 2,047,368 88.6 92.1 175,012 7.9

2020 2,103,748 1,924,772 1,764,949 83.9 91.7 148,624 7.7

Kansas 2018 2,091,261 1,835,473 1,670,217 79.9 91.0 165,256 9.0

2016 2,074,102 1,785,834 1,601,818 77.2 89.7 184,016 10.3 

2020 3,367,502 3,565,428 3,319,307 98.6 93.1 246,121 6.9

Kentucky [5] 2018 3,350,956 3,402,905 3,402,905 101.6 100.0 0 0.0

2016 3,329,835 3,306,120 3,306,120 99.3 100.0 -- --

2020 3,463,372 3,093,004 2,963,901 85.6 95.8 129,103 4.2

Louisiana 2018 3,469,016 2,992,170 2,856,722 82.3 95.5 135,448 4.5

2016 3,454,978 3,058,741 2,891,902 83.7 94.5 131,339 4.3

2020 1,078,770 1,138,576 1,135,008 105.2 99.7 3,568 0.3

Maine 2018 1,064,497 1,057,967 1,054,068 99.0 99.6 3,899 0.4

2016 1,056,410 1,065,100 1,059,270 100.3 99.5 5,830 0.5

2020 4,316,921 4,298,942 4,142,347 96.0 96.4 156,595 3.6

Maryland [6] 2018 4,310,864 3,954,027 3,954,027 91.7 100.0 -- --

2016 4,239,987 3,900,090 3,900,090 92.0 100.0 -- --
140 | Voter Registration: The NVRA and Beyond 

State

Massachusetts

Michigan [7] 

Minnesota [2],

[8] 

Mississippi

Missouri

Montana [9] 

Nebraska [10] 

Nevada

New Hampshire 

[2], [11] 

New Jersey

New Mexico [12] 

New York [13] 

Year

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018

2016 

2020 

2018

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

CVAP Total

5,057,192 

4,993,001 

4,924,459

7,562,464 

7,481,928 

7,436,478 

4,157,556 

4,079,652 

4,007,159 

2,246,323 

2,234,722 

2,220,616 

4,650,318 

4,606,843 

4,567,771 

831,760 

810,760 

797,198 

1,388,950 

1,368,000 

1,352,947 

2,111,932 

2,031,213 

1,942,764 

1,070,215 

1,048,883 

1,035,684 

6,170,130 

6,199,409 

6,154,126 

1,522,171 

1,493,318 

1,470,045 

13,810,830 

13,866,648 

13,704,991 

Reported 

Registrations

4,812,909 

4,574,967 

4,534,974 

8,105,524

7,471,088 

7,514,055 

3,731,016 

3,422,515 

3,473,972 

2,143,149 

2,079,732 

2,072,395 

4,338,133 

4,127,333 

4,215,860 

747,439 

706,173 

694,370 

1,266,730 

1,219,276 

1,211,101 

2,039,162 

1,773,566 

1,678,883 

1,087,145 

988,148 

988,398 

6,310,564 

5,869,078 

5,751,090 

1,360,871 

1,261,639 

1,289,420 

13,555,618 

12,695,763 

16,200,892 

Active 

Registrations

4,400,254 

3,947,897 

3,994,635 

7,209,300

6,488,823 

6,748,385

3,731,016 

3,422,515 

3,473,972 

1,982,632 

1,880,197 

1,888,433 

3,963,980 

3,803,881 

3,812,576 

675,971 

616,642 

574,334 

1,168,708 

1,096,862 

1,091,951 

1,835,401 

1,563,750 

1,468,559 

1,087,145 

988,148 

988,398 

5,896,836 

5,456,506 

5,321,542 

1,255,669 

698,172 

1,136,059 

12,362,997 

11,676,266 

16,200,892 

Active 

Regs.

(% of 

CVAP)

87.0 

79.1 

81.1 

95.3 

86.7 

90.7

89.7 

83.9 

86.7 

88.3 

84.1 

85.0 

85.2 

82.6 

83.5 

81.3 

76.1 

72.0 

84.1 

80.2 

80.7 

86.9 

77.0 

75.6 

101.6 

94.2 

95.4 

95.6 

88.0 

86.5 

82.5 

46.8 

77.3 

89.5 

84.2 

118.2 

Active 

Regs. 

(% of 

Total) 

91.4 

86.3 

88.1 

88.9 

86.9 

89.8

100.0 

100.0 

100.0 

92.5 

90.4 

91.1 

91.4 

92.2 

90.4 

90.4 

87.3 

82.7 

92.3 

90.0 

90.2 

90.0 

88.2 

87.5 

100.0 

100.0 

100.0 

93.4 

93.0 

92.5 

92.3 

55.3 

88.1 

91.2 

92.0 

100.0 

Inactive 

Registrations

412,655 

627,070 

540,339 

896,224 

982,265 

765,670

--

--

--

160,517 

199,535 

183,962 

374,153 

323,452 

403,284 

71,468 

89,531 

120,036 

98,022 

122,414 

119,150 

203,761 

209,816 

210,324 

--

--

0 

413,728 

412,572 

429,548 

105,202 

563,467 

152,277

1,191,845 

1,019,497 

--

Inactive 

Regs. 

(% of 

Total) 

8.6

13.7 

11.9 

11.1 

13.1 

10.2

--

--

--

7.5

9.6

8.9

8.6

7.8

9.6

9.6

12.7 

17.3 

7.7

10.0 

9.8

10.0 

11.8 

12.5 

--

--

0.0

6.6

7.0

7.5

7.7

44.7 

11.8 

8.8

8.0

--
Voter Registration: The NVRA and Beyond | 141

State

North Carolina

North Dakota 

[14] 

Northern 

Mariana Islands 

[1], [2], [15] 

Ohio [2], [16] 

Oklahoma

Oregon [17] 

Pennsylvania 

[18] 

Puerto Rico [2],

[19] 

Rhode Island

South Carolina

South Dakota

Tennessee

Year

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

2020 

2018 

2016 

CVAP Total

7,729,644 

7,509,879 

7,296,335 

567,545 

564,475 

571,119 

--

--

--

8,879,469 

8,830,185 

8,765,154 

2,875,059 

2,835,451 

2,807,548 

3,162,204 

3,060,328 

2,956,232 

9,810,201 

9,764,119 

9,752,322 

2,579,596 

2,636,949 

2,686,177 

800,798 

792,337 

784,997 

3,892,341 

3,799,298 

3,677,799 

653,394 

641,666 

634,140 

5,129,580 

5,016,103 

4,919,574 

Reported 

Registrations

7,372,608 

7,095,209 

6,924,469 

--

--

--

18,526 

--

--

8,073,829 

8,070,917 

7,861,025 

2,259,107 

2,120,843 

2,157,450 

2,944,588 

2,748,232 

2,553,810 

9,035,061 

8,607,748 

8,722,975 

2,355,894 

--

2,867,558 

809,117 

781,478 

754,065 

3,854,209 

3,538,580 

3,157,027 

635,256 

594,453 

595,322 

4,436,727 

4,163,359 

4,110,318 

Active 

Registrations

6,607,121 

5,898,244 

5,930,252 

--

--

--

18,526 

--

--

8,073,829 

8,070,917 

7,861,025 

2,021,846 

1,857,700 

1,817,461 

2,944,588 

2,748,232 

2,553,810 

8,280,348 

7,738,989 

--

2,355,894 

--

2,867,558 

735,195 

737,419 

721,211 

3,535,061 

3,538,580 

3,157,027 

578,683 

539,788 

544,930 

4,226,928 

3,764,513 

3,534,800 

Active 

Regs.

(% of 

CVAP)

85.5 

78.5 

81.3 

--

--

--

--

--

--

90.9 

91.4 

89.7 

70.3 

65.5 

64.7 

93.1 

89.8 

86.4 

84.4 

79.3 

--

91.3 

--

106.8 

91.8 

93.1 

91.9 

90.8 

93.1 

85.8 

88.6 

84.1 

85.9 

82.4 

75.0 

71.9 

Active 

Regs. 

(% of 

Total) 

89.6 

83.1 

85.6 

--

--

--

100.0 

--

--

100.0 

100.0 

100.0 

89.5 

87.6 

84.2 

100.0 

100.0 

100.0 

91.6 

89.9 

--

100.0 

--

100.0 

90.9 

94.4 

95.6 

91.7 

100.0 

100.0 

91.1 

90.8 

91.5 

95.3 

90.4 

86.0 

Inactive 

Registrations

765,487 

1,196,965 

994,217 

--

--

--

--

--

--

--

--

--

237,261 

263,143 

339,989 

--

--

--

754,713 

868,759 

--

--

--

--

73,922 

44,059 

32,246 

319,148 

396,653 

275,292 

56,573 

54,665 

50,392 

209,799 

398,846 

575,518 

Inactive 

Regs. 

(% of 

Total) 

10.4 

16.9 

14.4 

--

--

--

--

--

--

--

--

--

10.5 

12.4 

15.8 

--

--

--

8.4

10.1 

--

--

--

--

9.1

5.6

4.3

8.3

11.2 

8.7

8.9

9.2

8.5

4.7

9.6

14.0 
142 | Voter Registration: The NVRA and Beyond 

Active 

Regs.

(% of 

CVAP)

Active 

Regs. 

(% of 

Total) 

Inactive 

Regs. 

(% of 

Total) 

Reported 

Registrations

Active 

Registrations

Inactive 

Registrations State Year CVAP Total

2020 18,875,542 16,955,519 15,279,870 81.0 90.1 1,675,649 9.9

Texas 2018 18,174,345 15,615,925 13,790,247 75.9 88.3 1,653,986 10.6 

2016 17,523,904 14,382,387 11,942,651 68.2 83.0 1,288,225 9.0

2020 -- 53,341 53,341 -- 100.0 -- --

U.S. Virgin 

Islands [1], [2] 2018 -- 51,095 51,095 -- 100.0 -- --

2016 -- 46,076 46,076 -- 100.0 -- --

2020 2,134,249 1,861,977 1,713,297 80.3 92.0 148,680 8.0

Utah 2018 2,028,176 1,658,457 1,433,917 70.7 86.5 224,540 13.5 

2016 1,945,001 1,577,069 1,414,758 72.7 89.7 162,311 10.3 

2020 498,705 489,277 440,920 88.4 90.1 48,357 9.9

Vermont 2018 494,550 489,385 447,709 90.5 91.5 41,676 8.5

2016 494,717 472,289 440,347 89.0 93.2 31,942 6.8

2020 6,226,623 5,975,561 5,763,187 92.6 96.4 212,374 3.6

Virginia 2018 6,145,893 5,666,627 5,272,602 85.8 93.0 394,025 7.0

2016 6,062,304 5,604,106 5,066,666 83.6 90.4 537,440 9.6

2020 5,409,035 5,255,466 4,892,871 90.5 93.1 362,595 6.9

Washington 2018 5,259,892 4,841,431 4,362,480 82.9 90.1 478,951 9.9

2016 5,081,800 4,872,385 4,277,499 84.2 87.8 594,886 12.2 

2020 1,420,289 1,269,024 1,062,685 74.8 83.7 206,339 16.3 

West Virginia 2018 1,428,859 1,245,827 961,894 67.3 77.2 283,933 22.8 

2016 1,451,557 1,254,768 1,142,180 78.7 91.0 112,588 9.0

2020 4,412,888 3,834,164 3,834,164 86.9 100.0 -- --

Wisconsin [2], 

[20] 2018 4,375,063 3,442,004 3,442,004 78.7 100.0 -- --

2016 4,340,567 3,768,373 3,768,373 86.8 100.0 -- --

2020 434,852 303,049 303,049 69.7 100.0 -- --

Wyoming [2] 2018 428,379 283,941 283,941 66.3 100.0 -- --

2016 434,584 284,203 284,203 65.4 100.0 -- --

2020 237,998,330 228,004,364 209,441,338 88.2 91.9 18,523,963 9.1

U.S. Total 2018 234,053,619 211,601,918 190,662,485 82.5 90.1 21,164,394 11.3 

2016 229,705,663 214,109,367 185,714,229 84.6 90.4 18,629,063 11.7 

Voter Registration Table 1 Calculation Notes: 

CVAP Total uses the 1-year ACS CVAP estimate. The 2020 data uses the 2019 CVAP, the 2018 data uses 

the 2017 CVAP, and the 2016 data uses the 2015 CVAP. 

Reported Registrations uses question A1a for 2020, 2018, and 2016. 

Active Registrations uses question A1b for 2020 and 2018 and question A3a for 2016. 

Active Registrations (% of CVAP) uses question A1b divided by CVAP for 2020 and 2018 and question A3a 

divided by CVAP for 2016. 
Voter Registration: The NVRA and Beyond | 143

Active Registrations (% of Total) uses question A1b divided by A1a for 2020 and 2018 and question A3a 

divided by A1a for 2016. 

Inactive Registrations uses question A1c for 2020 and 2018 and question A3b for 2016. 

Inactive Registrations (% of Total) uses question A1c divided by question A1a for 2020 and 2018 and 

question A3b divided by question A1a for 2016. 

Voter Registration Table 1 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Because each percentage was calculated independently, the active registration (% of total) and

inactive registration (% of total) rates may not sum to 100% for some states or at the national

level.

• The citizen voting age population (CVAP) is an estimate of the number of U.S. citizens ages 18

years or older in the state. This report uses the 1-year American Community Survey (ACS) state

estimate for 2019 instead of the 5-year estimate to ensure that the CVAP was as current as

possible. The estimate for the year 2020 was not available by the time this report was finalized.

The 2019 1-year CVAP does not include data that were collected as part of the decennial Census

conducted in 2020. For consistency, the CVAP for the 2018 and 2016 general elections was the

1-year ACS state estimate for 2017 and 2015, respectively.

• Some states may report an active CVAP registration rate of 100% or more. This is because the

2019 CVAP was used to calculate the 2020 registration rate and because due to federal law,

some ineligible voters may take up to two full election cycles to be removed from the voter

registration rolls.

• The Reported Registrations column includes both active and inactive voters (if the state uses such

a distinction).

[1] The U.S. Census Bureau does not calculate a CVAP for the territories of American Samoa, Guam, the

Northern Mariana Islands, and the U.S. Virgin Islands.

[2] American Samoa, Guam, Idaho, Minnesota, New Hampshire, the Northern Mariana Islands, Ohio,

Oregon, Puerto Rico, the U.S. Virgin Islands, Wisconsin, and Wyoming reported having only active

registered voters.

[3] American Samoa did not provide data for the 2016 EAVS.

[4] California adjusted their number of total registrations (A1a) in 2018 after the data were initially

released, so the total in this table does not match the total reported in the 2018 EAVS Comprehensive

Report. California reported 63,659 fewer registrants in Riverside County in their correction of the 2018

EAVS data.

[5] Kentucky reported having only active voters in the 2016 EAVS and reported having zero inactive voters

in the 2018 EAVS.

[6] Maryland reported having only active voters in the 2016 and the 2018 EAVS.

[7] Michigan noted in a survey comment that “Voters reported in A1 are eligible to vote. Those defined as

‘inactive’ need only to confirm their address before receiving a ballot. Participation in past elections is not

a factor in defining eligibility.”

[8] Minnesota noted in a survey comment that “Minnesota is NVRA exempt. Minnesota does not classify

voters as inactive per NVRA.”
144 | Voter Registration: The NVRA and Beyond 

[9] Montana noted in a survey comment that in A1a, the “total registered/eligible voters consists of active

and inactive. Montana reports total registered/eligible voters of 752,538. The difference is provisional,

late registration and pending.”

[10] Nebraska noted in a survey comment that the state “does not have ‘inactive’ voters. The numbers in

line [A1c] reflect the number of voters who were sent a section 8(d)(2) notice and have not responded.”

[11] New Hampshire began a rigorous 10-year verification of the checklist beginning April 1, 2021.

[12] New Mexico’s 2018 EAVS data on the number of active registrations contained an error; the correct

number is 1,261,532.

[13] New York reported having only active voters in the 2016 EAVS. This state also reported an

uncharacteristically high number of active and total registrations in the 2016 EAVS compared to the

registrations reported in the general elections of 2014, 2018, and 2020.

[14] North Dakota does not have voter registration and does not provide data in Section A of the EAVS.

[15] The Northern Mariana Islands did not participate in the 2016 or the 2018 EAVS. For 2020, the

Northern Mariana Islands reported in a comment in A1 that “Voter[s] are taken out of the roster once

inactive as per our Election Statute.”

[16] Ohio reported “Data not available” for the number of inactive registrations in item A1c in 2020. The

state did not report inactive registrations in 2018 and 2016.

[17] Oregon noted in a survey comment that they “do not track number of inactive voters.”

[18] Pennsylvania reported in the 2016 EAVS that the state could not “differentiate between active and

inactive from our point in time snapshot of the voter registration numbers.”

[19] Puerto Rico did not participate in the 2018 EAVS because the territory did not hold federal elections

in that year.

[20] Wisconsin is exempt from the NVRA and does not classify inactive voters per NVRA definitions.
Voter Registration: The NVRA and Beyond | 145

Voter Registration Table 2: Application Sources – Total Forms Received

State Total 

Applications 

Registration Application Source

Mail, Email, Fax In Person at 

Election Office Online Motor Vehicle Department

Total % Total % Total % Total % 

Alabama [1] 1,439,361 38,936 2.7 121,744 8.5 391,331 27.2 802,149 55.7 

Alaska 1,079,008 78,115 7.2 53,787 5.0 127,471 11.8 75,917 7.0

American Samoa 4,741 48 1.0 4,693 99.0 -- -- -- --

Arizona 2,943,553 280,196 9.5 29,111 1.0 1,329,327 45.2 1,022,403 34.7 

Arkansas 556,911 114,258 20.5 106,480 19.1 -- -- 265,023 47.6 

California 13,498,938 666,363 4.9 450,494 3.3 5,975,098 44.3 2,997,325 22.2 

Colorado 3,195,131 449,231 14.1 70,691 2.2 873,530 27.3 1,587,291 49.7 

Connecticut 1,247,433 129,295 10.4 98,004 7.9 287,480 23.0 395,285 31.7 

Delaware 707,749 255,305 36.1 46,356 6.5 151,652 21.4 252,208 35.6 

District of 

Columbia 123,147 8,710 7.1 2,345 1.9 36,437 29.6 53,671 43.6 

Florida 9,511,345 1,171,574 12.3 1,114,491 11.7 1,974,596 20.8 3,798,746 39.9 

Georgia [2] 4,931,889 381,107 7.7 111,983 2.3 857,096 17.4 3,290,439 66.7 

Guam 16,376 -- -- 3,223 19.7 1,016 6.2 10,644 65.0 

Hawaii 359,832 55,541 15.4 809 0.2 115,116 32.0 94,350 26.2 

Idaho [3] 231,491 73,880 31.9 54,736 23.6 98,290 42.5 -- --

Illinois 1,240,995 410,720 33.1 184,666 14.9 1,196,195 96.4 647,798 52.2 

Indiana [4] 2,667,738 451,272 16.9 40,514 1.5 537,526 20.1 842,829 31.6 

Iowa 738,352 15,131 2.0 29,148 3.9 4,920 0.7 91,701 12.4 

Kansas 817,434 148,506 18.2 65,901 8.1 257,786 31.5 257,918 31.6 

Kentucky [5] 1,678,038 36,056 2.1 197,837 11.8 335,156 20.0 1,002,181 59.7 

Louisiana [6] 998,149 148,232 14.9 157,764 15.8 474,312 47.5 171,370 17.2 

Maine 337,136 45,861 13.6 244,664 72.6 -- -- 16,686 4.9

Maryland 3,511,883 99,604 2.8 77,617 2.2 1,258,781 35.8 1,983,252 56.5 

Massachusetts 2,476,295 135,422 5.5 60,842 2.5 1,669,789 67.4 575,093 23.2 

Michigan [7] 2,857,335 174,902 6.1 198,642 7.0 630,628 22.1 1,826,846 63.9 

Minnesota 1,566,807 84,277 5.4 433,328 27.7 374,280 23.9 266,120 17.0 

Mississippi 453,531 112,267 24.8 138,026 30.4 -- -- 164,594 36.3 

Missouri 690,757 94,340 13.7 58,855 8.5 262,479 38.0 242,077 35.0 

Montana [8] 359,986 138,645 38.5 86,235 24.0 -- -- 86,123 23.9 

Nebraska [9] 726,896 142,050 19.5 31,768 4.4 226,227 31.1 321,496 44.2 

Nevada 1,069,550 111,299 10.4 21,209 2.0 439,355 41.1 255,919 23.9 

New Hampshire 

[10] 810,583 5,783 0.7 804,800 99.3 -- -- -- --

New Jersey 2,959,834 6,710 0.2 162 0.0 284,928 9.6 1,731,406 58.5 

New Mexico 570,254 135,472 23.8 54,294 9.5 206,141 36.1 161,184 28.3 

New York [11] 2,299,890 586,547 25.5 129,014 5.6 -- -- 1,159,254 50.4 

North Carolina 5,164,009 1,850,941 35.8 739,381 14.3 444,602 8.6 1,602,654 31.0 

North Dakota 

[12] -- -- -- -- -- -- -- -- --
146 | Voter Registration: The NVRA and Beyond 

State Total 

Applications 

Registration Application Source

Mail, Email, Fax In Person at 

Election Office Online Motor Vehicle Department

Total % Total % Total % Total % 

Northern 

Mariana Islands 1,291 36 2.8 1,291 100.0 -- -- -- --

Ohio 2,995,502 449,093 15.0 350,575 11.7 1,140,233 38.1 696,384 23.2 

Oklahoma 666,094 149,584 22.5 84,209 12.6 86,268 13.0 297,675 44.7 

Oregon 1,955,345 135,106 6.9 56,931 2.9 579,602 29.6 783,103 40.0 

Pennsylvania 3,814,150 355,683 9.3 40,358 1.1 1,237,715 32.5 1,717,266 45.0 

Puerto Rico 121,352 -- -- 121,352 100.0 -- -- -- --

Rhode Island 

[13] 425,389 -- -- -- -- -- -- -- --

South Carolina 2,119,337 416,765 19.7 390,876 18.4 358,852 16.9 901,668 42.5 

South Dakota 163,450 40,568 24.8 37,949 23.2 -- -- 75,140 46.0 

Tennessee [14] 1,595,329 213,506 13.4 164,989 10.3 680,172 42.6 446,003 28.0 

Texas 5,147,221 2,074,130 40.3 577,120 11.2 0 0.0 2,042,699 39.7 

U.S. Virgin 

Islands 1,878 -- -- 1,692 90.1 -- -- -- --

Utah 2,280,767 55,629 2.4 218,318 9.6 526,018 23.1 366,842 16.1 

Vermont 98,866 2,005 2.0 14,715 14.9 34,109 34.5 39,105 39.6 

Virginia 3,880,532 176,330 4.5 114,381 2.9 713,010 18.4 2,728,717 70.3 

Washington 3,068,727 449,717 14.7 137,107 4.5 769,418 25.1 1,402,506 45.7 

West Virginia 517,145 24,332 4.7 21,822 4.2 174,240 33.7 156,752 30.3 

Wisconsin [15] 920,760 70,386 7.6 166,419 18.1 560,518 60.9 -- --

Wyoming 86,021 4,035 4.7 81,819 95.1 -- -- -- --

U.S. Total 103,701,513 13,253,501 12.9 8,605,537 8.3 27,681,700 28.2 39,705,812 39.3 
Voter Registration: The NVRA and Beyond | 147

State

Registration Application Source

Public Assistance Offices Disability Services Offices Armed Forces 

Recruitment Offices Other State Agencies

Total % Total % Total % Total % 

Alabama [1] 39,093 2.7 6,477 0.4 292 0.0 16,445 1.1

Alaska 6,090 0.6 59 0.0 3,001 0.3 95 0.0

American Samoa -- -- -- -- -- -- -- --

Arizona 8,059 0.3 296 0.0 7,754 0.3 13 0.0

Arkansas 18,507 3.3 466 0.1 67 0.0 5,406 1.0

California 177,354 1.3 10,931 0.1 6,669 0.0 116,545 0.9

Colorado 38,028 1.2 2,108 0.1 37 0.0 -- --

Connecticut 5,060 0.4 146 0.0 731 0.1 805 0.1

Delaware 1,006 0.1 773 0.1 0 0.0 0 0.0

District of 

Columbia 197 0.2 54 0.0 207 0.2 1,059 0.9

Florida 31,752 0.3 3,414 0.0 1,298 0.0 776,330 8.2

Georgia [2] 16,419 0.3 33,856 0.7 103 0.0 -- --

Guam -- -- -- -- -- -- 1,493 9.1

Hawaii 533 0.1 -- -- -- -- 15 0.0

Idaho [3] -- -- -- -- -- -- -- --

Illinois 145,211 11.7 4,819 0.4 10,642 0.9 98,720 8.0

Indiana [4] 20,059 0.8 624 0.0 0 0.0 74 0.0

Iowa 1,745 0.2 36 0.0 16 0.0 97 0.0

Kansas 2,348 0.3 109 0.0 79 0.0 2,135 0.3

Kentucky [5] 94,657 5.6 1,848 0.1 1,966 0.1 -- --

Louisiana [6] 32,529 3.3 4,042 0.4 2,915 0.3 6,985 0.7

Maine -- -- -- -- -- -- -- --

Maryland 15,961 0.5 462 0.0 96 0.0 -- --

Massachusetts 30,202 1.2 2,248 0.1 -- -- 2,699 0.1

Michigan [7] 4,579 0.2 493 0.0 66 0.0 -- --

Minnesota -- -- -- -- -- -- -- --

Mississippi 13,407 3.0 786 0.2 -- -- -- --

Missouri 28,750 4.2 405 0.1 132 0.0 107 0.0

Montana [8] 2,889 0.8 2 0.0 132 0.0 0 0.0

Nebraska [9] 723 0.1 628 0.1 16 0.0 -- --

Nevada 38,576 3.6 850 0.1 320 0.0 512 0.0

New Hampshire 

[10] -- -- -- -- -- -- -- --

New Jersey 5,650 0.2 37,322 1.3 4,639 0.2 753,056 25.4 

New Mexico 12,437 2.2 0 0.0 0 0.0 0 0.0

New York [11] 117,552 5.1 -- -- -- -- 74,983 3.3

North Carolina 56,882 1.1 2,070 0.0 9 0.0 4,218 0.1

North Dakota 

[12] -- -- -- -- -- -- -- --

Northern 

Mariana Islands -- -- -- -- -- -- -- --

Ohio 214,770 7.2 4,693 0.2 397 0.0 50,967 1.7
148 | Voter Registration: The NVRA and Beyond 

State

Registration Application Source

Public Assistance Offices Disability Services Offices Armed Forces 

Recruitment Offices Other State Agencies

Total % Total % Total % Total % 

Oklahoma 16,688 2.5 572 0.1 18 0.0 45 0.0

Oregon 7,069 0.4 2,968 0.2 -- -- 7,252 0.4

Pennsylvania 76,897 2.0 -- -- 12 0.0 -- --

Puerto Rico -- -- -- -- -- -- -- --

Rhode Island 

[13] -- -- -- -- -- -- -- --

South Carolina 42,870 2.0 480 0.0 433 0.0 -- --

South Dakota 3,406 2.1 51 0.0 4 0.0 1,413 0.9

Tennessee [14] 25,085 1.6 71 0.0 4,496 0.3 10,521 0.7

Texas 152,724 3.0 2,731 0.1 383 0.0 297,434 5.8

U.S. Virgin 

Islands -- -- -- -- -- -- -- --

Utah 36 0.0 49 0.0 36 0.0 0 0.0

Vermont -- -- -- -- -- -- 327 0.3

Virginia 6,677 0.2 510 0.0 26 0.0 21,345 0.6

Washington 36,187 1.2 1,737 0.1 20,907 0.7 13,028 0.4

West Virginia -- -- -- -- -- -- -- --

Wisconsin [15] -- -- -- -- -- -- -- --

Wyoming -- -- -- -- -- -- -- --

U.S. Total 1,548,664 1.6 129,186 0.1 67,899 0.1 2,264,124 3.0
Voter Registration: The NVRA and Beyond | 149

State

Registration Application Source

Registration Drives Other Sources Not Categorized

Total % Total % Total % 

Alabama [1] 20,402 1.4 2,492 0.2 0 0.0

Alaska 0 0.0 734,473 68.1 0 0.0

American Samoa -- -- -- -- 0 0.0

Arizona 141,550 4.8 124,844 4.2 0 0.0

Arkansas 9,576 1.7 37,128 6.7 0 0.0

California 83,435 0.6 927,582 6.9 2,087,142 15.5 

Colorado 86,182 2.7 88,033 2.8 0 0.0

Connecticut 17 0.0 330,610 26.5 0 0.0

Delaware 449 0.1 -- -- 0 0.0

District of 

Columbia 615 0.5 19,852 16.1 0 0.0

Florida 689,415 7.2 23,199 0.2 -73,470 -0.8

Georgia [2] -- -- 240,886 4.9 0 0.0

Guam -- -- -- -- 0 0.0

Hawaii 9 0.0 54,611 15.2 38,848 10.8

Idaho [3] 30 0.0 11 0.0 4,544 2.0

Illinois 7,459 0.6 -- -- -1,465,235 -118.1

Indiana [4] 2,879 0.1 771,710 28.9 251 0.0

Iowa 7 0.0 595,551 80.7 0 0.0

Kansas 23,351 2.9 85,601 10.5 -26,300 -3.2

Kentucky [5] 8,337 0.5 -- -- 0 0.0

Louisiana [6] -- -- -- -- 0 0.0

Maine 10,497 3.1 19,428 5.8 0 0.0

Maryland -- -- 76,110 2.2 0 0.0

Massachusetts -- -- -- -- 0 0.0

Michigan [7] 9,521 0.3 11,658 0.4 0 0.0

Minnesota 14,768 0.9 394,034 25.1 0 0.0

Mississippi -- -- 24,451 5.4 0 0.0

Missouri -- -- 3,612 0.5 0 0.0

Montana [8] 20,155 5.6 25,805 7.2 0 0.0

Nebraska [9] -- -- 3,988 0.5 0 0.0

Nevada 135,528 12.7 65,982 6.2 0 0.0

New Hampshire 

[10] -- -- -- -- 0 0.0

New Jersey -- -- 135,961 4.6 0 0.0

New Mexico 0 0.0 726 0.1 0 0.0

New York [11] 14,048 0.6 -- -- 218,492 9.5

North Carolina 172,695 3.3 291,692 5.6 -1,135 0.0

North Dakota [12] -- -- -- -- -- --

Northern Mariana 

Islands -- -- -- -- -36 -2.8

Ohio 88,390 3.0 -- -- 0 0.0
150 | Voter Registration: The NVRA and Beyond 

State

Registration Application Source

Registration Drives Other Sources Not Categorized

Total % Total % Total % 

Oklahoma -- -- 31,035 4.7 0 0.0

Oregon -- -- 383,314 19.6 0 0.0

Pennsylvania 78,724 2.1 307,495 8.1 0 0.0

Puerto Rico -- -- -- -- 0 0.0

Rhode Island [13] -- -- -- -- 425,389 100.0 

South Carolina -- -- 7,393 0.3 0 0.0

South Dakota 4,290 2.6 629 0.4 0 0.0

Tennessee [14] -- -- 50,486 3.2 0 0.0

Texas 0 0.0 -- -- 0 0.0

U.S. Virgin Islands -- -- 186 9.9 0 0.0

Utah 3,254 0.1 1,110,585 48.7 0 0.0

Vermont 8,605 8.7 -- -- 0 0.0

Virginia 70,524 1.8 49,012 1.3 0 0.0

Washington 31,136 1.0 206,984 6.7 0 0.0

West Virginia -- -- 139,999 27.1 0 0.0

Wisconsin [15] 4,623 0.5 118,814 12.9 0 0.0

Wyoming -- -- 167 0.2 0 0.0

U.S. Total 1,740,471 2.2 7,496,129 8.9 1,208,490 1.2

Voter Registration Table 2 Calculation Notes: 

Total Registration Applications Received uses question A3a.

Mail, Email, Fax, Total uses question A4a.

Mail, Email, Fax, % uses question A4a divided by question A3a.

In Person at Election Office, Total uses question A4b.

In Person at Election Office, % uses question A4b divided by question A3a.

Online, Total uses question A4c.

Online, % uses question A4c divided by question A3a.

Motor Vehicle Department, Total uses question A4d.

Motor Vehicle Department, % uses question A4d divided by question A3a.

Public Assistance Offices, Total uses question A4e.

Public Assistance Offices, % uses question A4e divided by question A3a.

Disability Services Offices, Total uses question A4f.

Disability Services Offices, % uses question A4f divided by question A3a.

Armed Forces Recruitment Offices, Total uses question A4g.

Armed Forces Recruitment Offices, % uses question A4g divided by question A3a.

Other State Agencies, Total uses question A4h.

Other State Agencies, % uses question A4h divided by question A3a.

Registration Drives, Total uses question A4i.

Registration Drives, % uses question A4i divided by question A3a.

Other Sources, Total uses questions A4j, A4k, and A4l.

Other Sources, % uses the sum of questions A4j, A4k, and A4l divided by question A3a.
Voter Registration: The NVRA and Beyond | 151

Not Categorized, Total uses question A3a minus the sum of questions A4a to A4l.

Not Categorized, % uses question A3a minus the sum of questions A4a to A4l, all divided by A3a.

Voter Registration Table 2 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• States have latitude in which registration application sources are offered to their citizens, so long

as they do not conflict with federal law. Not all states offer each of the application sources that

the EAVS collects data for.

• Questions A4j, A4k, and A4l were not mandatory. States and jurisdictions only reported data in

these items if they offered another application source aside from those listed in questions A4a–

A4i or if there were registration applications that could not be categorized in questions A4a–A4i.

• Negative numbers in the Not Categorized application source indicate that the sum of registrations

received for each source account for more than the total number of registrations reported

received by the state.

• Because each percentage was calculated independently, the percentage of applications received

through each source may not sum to 100% for some states or at the national level.

[1] Alabama noted in a survey comment that the state’s A3a data come from an Election Systems &

Software (ES&S) election survey. In addition, unknown applications sources were not identified.

[2] Georgia noted in a survey comment that “Election Day registrations listed in A4j, A5j, A6j, and A7j

represent applications submitted to poll workers on Election Day. Georgia law does not allow ’same day‘

registration. Changes made through applications turned in on Election Day are effective for future

elections.”

[3] Idaho noted in survey comments for multiple counties that the state switched to a new voter

registration system between the 2018 and the 2020 elections, which made it difficult to track some data

for these questions.

[4] Indiana noted in survey comments that “The data reported in A4a–l consists of data from county

surveys (A4a–b, A4i) and SVRS [statewide voter registration system] (A4c–h, A4j, A4k, A4l). Counties do

not always manually track the information requested in A4a–b and A4i and therefore aren’t included in the

sums that should match up to A3a.”

[5] Kentucky noted in a survey comment that “[D]rives by advocacy groups or political parties’ is used for

high school registrations.”

[6] Louisiana noted in a survey comment that “[V]oters submit registration applications for new

registrations as well as for updates or changes to existing registrations. A4 totals reflect both new

registrations and changes to registrations.”

[7] Michigan noted in a survey comment that “2020 is the first EAVS since Michigan implemented

automatic voter registration and online voter registration, and became a member state of ERC [sic, likely

referring to the Electronic Registration Information Center].”

[8] Montana noted in a survey comment that in A4k, online preregistration indicated that a voter still

needed to sign and submit a registration form to the county elections office.

[9] Nebraska noted in survey comments that “[O]nline registrations via DMV website are currently in the

DMV section; unable to split. Registrations received from drives by advocacy groups or political parties A4i

are not separately categorized and are included in A4a.”
152 | Voter Registration: The NVRA and Beyond 

[10] New Hampshire noted in survey comments that it is not subject to the NVRA and does not have online

voter registration.

[11] New York noted in survey comments that “NYS DMV [New York State Department of Motor Vehicles]

does allow voters to submit their registration data online, however it does not automatically register voters.

After submittal to the DMV, the information is forwarded to the appropriate county board of elections to

approve or deny the voter registration data. NYS BOE [New York State Board of Elections] used the term

‘does not apply’ instead of ‘data not available’ since online voter registration has been passed as law, but

the statewide system was not available for the 2020 election year.”

[12] North Dakota does not have voter registration and does not provide data in Section A of EAVS.

[13] Rhode Island reported “data not available” for all modes of registration. The state noted in a survey

comment that “[D]ata for this section is unavailable. We rolled out a new voter registration system in

December, 2019 so half of the voter registration records were processed in the old system and half in the

new system.”

[14] Tennessee noted in survey comments that, for most of its counties, “[D]ata for agencies serving

persons with disabilities in [A4]f is included with data for public assistance offices in [A4]e.”

[15] Wisconsin is exempt from the NVRA and does not classify inactive voters per NVRA definitions, receive

registrations from NVRA agencies, or collect data on rejected registrations.
Voter Registration: The NVRA and Beyond | 153

Voter Registration Table 3: Registration Applications Processed

State Total 

Applications 

Registration Category

New Valid 

Registrations

Change of Name, Party, 

or Address (within 

jurisdiction) 

Change of Address 

(cross-jurisdiction) 

Preregistrations 

(under 18 years of 

age) 

Total % Total % Total % Total % 

Alabama [1] 1,439,361 611,844 42.5 1,231,402 85.6 -- -- -- --

Alaska 1,079,008 69,208 6.4 993,700 92.1 -- -- -- --

American 

Samoa 4,741 2,263 47.7 133 2.8 160 3.4 0 0.0

Arizona 2,943,553 1,114,852 37.9 1,649,653 56.0 8,988 0.3 1,987 0.1

Arkansas 556,911 237,172 42.6 304,333 54.6 2,547 0.5 0 0.0

California 13,498,938 5,130,351 38.0 2,796,476 20.7 375,969 2.8 101,619 0.8

Colorado [2] 3,195,131 1,486,922 46.5 1,398,963 43.8 217,464 6.8 56,126 1.8

Connecticut [3] 1,247,433 426,102 34.2 609,363 48.8 211,754 17.0 214 0.0

Delaware 707,749 251,286 35.5 248,329 35.1 137,846 19.5 19,045 2.7

District of 

Columbia [4] 123,147 78,557 63.8 22,754 18.5 0 0.0 0 0.0

Florida 9,511,345 1,757,847 18.5 6,382,594 67.1 1,036,119 10.9 154,986 1.6

Georgia 4,931,889 896,843 18.2 2,840,383 57.6 771,590 15.6 53,882 1.1

Guam 16,376 7,898 48.2 2,288 14.0 2,735 16.7 262 1.6

Hawaii 359,832 115,831 32.2 55,982 15.6 2,260 0.6 4,049 1.1

Idaho [5] 231,491 143,814 62.1 80,981 35.0 14 0.0 4 0.0

Illinois 1,240,995 903,388 72.8 -- -- -- -- -- --

Indiana 2,667,738 795,777 29.8 1,353,935 50.8 -- -- 47,781 1.8

Iowa [6] 738,352 110,513 15.0 -- -- -- -- 11,640 1.6

Kansas 817,434 282,686 34.6 769,790 94.2 -- -- -- --

Kentucky 1,678,038 265,594 15.8 828,745 49.4 177,953 10.6 -- --

Louisiana [7] 998,149 358,864 36.0 389,116 39.0 -- -- 15,662 1.6

Maine 337,136 101,929 30.2 116,732 34.6 95,611 28.4 2,734 0.8

Maryland [8] 3,511,883 387,280 11.0 2,874,580 81.9 192,962 5.5 -- --

Massachusetts 2,476,295 438,236 17.7 1,076,032 43.5 511,823 20.7 49,525 2.0

Michigan 2,857,335 1,390,433 48.7 1,267,324 44.4 -- -- 41,248 1.4

Minnesota 1,566,807 541,563 34.6 478,932 30.6 300,457 19.2 11,773 0.8

Mississippi [9] 453,531 443,582 97.8 -- -- -- -- 8,949 2.0

Missouri [10] 690,757 690,757 100.0 1,939,231 280.7 -- -- -- --

Montana 359,986 60,304 16.8 150,667 41.9 136,272 37.9 1,536 0.4

Nebraska [11] 726,896 192,426 26.5 412,286 56.7 55,859 7.7 -- --

Nevada 1,069,550 279,912 26.2 728,944 68.2 -- -- 10,152 0.9

New Hampshire 

[12] 810,583 125,916 15.5 575,516 71.0 103,537 12.8 32 0.0

New Jersey 2,959,834 878,539 29.7 -- -- -- -- -- --

New Mexico

[13] 570,254 161,546 28.3 387,804 68.0 7,580 1.3 11,648 2.0
154 | Voter Registration: The NVRA and Beyond 

State Total 

Applications 

Registration Category

New Valid 

Registrations

Change of Name, Party, 

or Address (within 

jurisdiction) 

Change of Address 

(cross-jurisdiction) 

Preregistrations 

(under 18 years of 

age) 

Total % Total % Total % Total % 

New York 2,299,890 968,849 42.1 1,300,077 56.5 235,248 10.2 214,037 9.3

North Carolina 5,164,009 1,563,573 30.3 1,486,375 28.8 -- -- 0 0.0

North Dakota 

[14] -- -- -- -- -- -- -- -- --

Northern 

Mariana 

Islands

1,291 1,210 93.7 47 3.6 17 1.3 50 3.9

Ohio 2,995,502 1,316,156 43.9 1,078,627 36.0 -- -- 14,703 0.5

Oklahoma 666,094 314,835 47.3 329,996 49.5 -- -- 3,774 0.6

Oregon [15] 1,955,345 354,524 18.1 1,561,949 79.9 -- -- 37,726 1.9

Pennsylvania 3,814,150 925,690 24.3 1,587,384 41.6 580,754 15.2 0 0.0

Puerto Rico 121,352 121,144 99.8 -- -- -- -- -- --

Rhode Island 425,389 52,401 12.3 296,828 69.8 67,104 15.8 9,028 2.1

South Carolina 

[16] 2,119,337 190,219 9.0 1,929,118 91.0 -- -- -- --

South Dakota 163,450 64,295 39.3 73,069 44.7 24,733 15.1 1,068 0.7

Tennessee 1,595,329 728,882 45.7 487,345 30.5 -- -- -- --

Texas 5,147,221 2,820,912 54.8 2,257,372 43.9 -- -- -- --

U.S. Virgin 

Islands [17] 1,878 1,084 57.7 769 40.9 25 1.3 -- --

Utah 2,280,767 875,194 38.4 987,599 43.3 88,789 3.9 24,463 1.1

Vermont 98,866 91,710 92.8 0 0.0 -- -- 0 0.0

Virginia 3,880,532 604,701 15.6 1,268,274 32.7 484,416 12.5 46,266 1.2

Washington 

[18] 3,068,727 807,358 26.3 1,489,191 48.5 325,384 10.6 9,242 0.3

West Virginia 

[19] 517,145 144,808 28.0 323,187 62.5 37,444 7.2 -- --

Wisconsin [20] 920,760 703,492 76.4 12,721 1.4 115,376 12.5 11 0.0

Wyoming [21] 86,021 45,933 53.4 39,921 46.4 -- -- -- --

U.S. Total 103,701,513 33,437,005 32.2 48,476,817 49.4 6,308,790 9.5 965,222 1.2
Voter Registration: The NVRA and Beyond | 155

State

Registration Category

Duplicate Invalid or Rejected Other Not Categorized

Total % Total % Total % Total % 

Alabama [1] 16 0.0 7,499 0.5 -- -- -411,400 -28.6

Alaska 6,749 0.6 9,351 0.9 -- -- 0 0.0

American 

Samoa 1,409 29.7 776 16.4 -- -- 0 0.0

Arizona 112,693 3.8 53,770 1.8 1,610 0.1 0 0.0

Arkansas 12,764 2.3 95 0.0 -- -- 0 0.0

California 1,205,489 8.9 659,648 4.9 3,195,931 23.7 33,455 0.2

Colorado [2] 20,952 0.7 14,704 0.5 -- -- 0 0.0

Connecticut [3] -- -- -- -- -- -- 0 0.0

Delaware 28,664 4.1 22,579 3.2 -- -- 0 0.0

District of 

Columbia [4] 19,579 15.9 2,257 1.8 -- -- 0 0.0

Florida 14,071 0.1 196,141 2.1 4,378 0.0 -34,791 -0.4

Georgia 363,649 7.4 5,542 0.1 -- -- 0 0.0

Guam 2,635 16.1 558 3.4 -- -- 0 0.0

Hawaii -- -- 14,508 4.0 108,714 30.2 58,488 16.3

Idaho [5] 2,751 1.2 257 0.1 574 0.2 3,096 1.3

Illinois 178,728 14.4 56,399 4.5 -- -- 102,480 8.3

Indiana 227,505 8.5 31,277 1.2 211,463 7.9 0 0.0

Iowa [6] 44,505 6.0 744 0.1 570,950 77.3 0 0.0

Kansas 30,203 3.7 -- -- -- -- -265,245 -32.4

Kentucky -- -- 405,746 24.2 -- -- 0 0.0

Louisiana [7] 14,458 1.4 11,893 1.2 208,156 20.9 0 0.0

Maine 5,492 1.6 466 0.1 14,172 4.2 0 0.0

Maryland [8] 56,487 1.6 574 0.0 -- -- 0 0.0

Massachusetts 380,759 15.4 19,920 0.8 -- -- 0 0.0

Michigan 156,839 5.5 1,492 0.1 -- -- -1 0.0

Minnesota 233,861 14.9 221 0.0 -- -- 0 0.0

Mississippi [9] -- -- 1,000 0.2 -- -- 0 0.0

Missouri [10] -- -- 25 0.0 -- -- -1,939,256 -280.7

Montana 10,873 3.0 334 0.1 -- -- 0 0.0

Nebraska [11] 65,909 9.1 416 0.1 -- -- 0 0.0

Nevada 22,676 2.1 27,866 2.6 -- -- 0 0.0

New Hampshire 

[12] 5,582 0.7 0 0.0 -- -- 0 0.0

New Jersey 293,851 9.9 28,687 1.0 1,758,757 59.4 0 0.0

New Mexico 

[13] -- -- 1,676 0.3 -- -- 0 0.0

New York 406,776 17.7 87,046 3.8 -- -- -912,143 -39.7

North Carolina 1,953,012 37.8 161,049 3.1 -- -- 0 0.0
156 | Voter Registration: The NVRA and Beyond 

State

Registration Category

Duplicate Invalid or Rejected Other Not Categorized

Total % Total % Total % Total % 

North Dakota 

[14] -- -- -- -- -- -- -- --

Northern 

Mariana 

Islands

-- -- 17 1.3 -- -- -50 -3.9

Ohio 424,893 14.2 161,123 5.4 -- -- 0 0.0

Oklahoma 1,257 0.2 16,232 2.4 -- -- 0 0.0

Oregon [15] 1,146 0.1 -- -- -- -- 0 0.0

Pennsylvania 354,136 9.3 314,328 8.2 51,858 1.4 0 0.0

Puerto Rico 208 0.2 -- -- -- -- 0 0.0

Rhode Island -- -- 28 0.0 -- -- 0 0.0

South Carolina 

[16] -- -- -- -- -- -- 0 0.0

South Dakota 160 0.1 18 0.0 154 0.1 -47 0.0

Tennessee 294,536 18.5 84,566 5.3 -- -- 0 0.0

Texas -- -- 68,937 1.3 -- -- 0 0.0

U.S. Virgin 

Islands [17] -- -- -- -- -- -- 0 0.0

Utah 962 0.0 303,760 13.3 -- -- 0 0.0

Vermont 5,037 5.1 2,119 2.1 -- -- 0 0.0

Virginia 1,413,248 36.4 63,627 1.6 -- -- 0 0.0

Washington 

[18] 430,440 14.0 866 0.0 6,246 0.2 0 0.0

West Virginia 

[19] 11,420 2.2 286 0.1 -- -- 0 0.0

Wisconsin [20] 10,709 1.2 -- -- 78,451 8.5 0 0.0

Wyoming [21] -- -- 167 0.2 -- -- 0 0.0

U.S. Total 8,827,089 9.7 2,840,590 2.9 6,211,414 14.7 -3,365,414 -3.2

Voter Registration Table 3 Calculation Notes: 

Total Registration Applications Received uses question A3a.

New Valid Registrations, Total uses question A3b.

New Valid Registrations, % uses question A3b divided by A3a.

Change of Name, Party, or Address (within jurisdiction), Total uses question A3f.

Change of Name, Party, or Address (within jurisdiction), % uses question A3f divided by question A3a.

Change of Address (cross-jurisdiction), Total uses question A3g.

Change of Address (cross-jurisdiction), % uses question A3g divided by question A3a.

Preregistrations (under 18 years of age), Total uses question A3c.

Preregistrations (under 18 years of age), % uses question A3c divided by question A3a.

Duplicate Registrations, Total uses question A3d.

Duplicate Registrations, % uses question A3d divided by question A3a.

Invalid or Rejected Registrations, Total uses question A3e.

Invalid or Rejected Registrations, % uses question A3e divided by question A3a.

Other Registrations, Total uses the sum of questions A3h, A3i, and A3j.
Voter Registration: The NVRA and Beyond | 157

Other Registrations, % uses the sum of questions A3h, A3i, and A3j, all divided by question A3a.

Not Categorized Registrations, Total uses question A3a minus the sum of questions A3b to A3j.

Not Categorized Registrations, % uses question A3a minus the sum of questions A3b to A3j, all divided by 

question A3a.

Voter Registration Table 3 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Questions A3h, A3i, and A3j were not mandatory. States and jurisdictions only reported data in

these items if there was another registration category aside from those listed in questions A3b–

A3g or if there were registration applications that could not be categorized in questions A3b–A3g.

• Negative numbers in the Not Categorized registration category indicate that the sum of

registrations received for each category account for more than the total number of registrations

reported received by the state.

• Because each percentage was calculated independently, the percentage of applications in each

category may not sum to 100% for some states or at the national level.

• Not all states track data to be able to provide responses for each registration category.

[1] Alabama noted in a survey comment that “Totals are from ES&S [Election Systems & Software] election

survey. A3c: we do not have pre-registration. A3f: due to the way we track data for changes to records, the

number of changes resulting directly from registration forms could not be separated from the total number

of changes made to voter’s records.”

[2] Colorado noted in a survey comment that “[T]he increase in registrations is attributable to multiple

factors. Colorado has seen a significant increase in population since 2016. The state conducted three

elections in 2020, including the first presidential primary in 20 years. In addition, record turnout for the

November 2020 general election contributed to the increased number of registrations. Another factor

adding to the increase is the implementation of automatic voter registration in May 2020 in partnership

with the Colorado Department of Revenue (CDOR). Automatic update to voter registration through CDOR

was also implemented in 2019. This may also contribute to a somewhat inflated number as the addition of

a ZIP+4 is counted as an update. Finally, with changes in personnel and as different perspectives are

applied to data, queries tend to shift in an effort to obtain more accurate and inclusive data for reporting

purposes.”

[3] Connecticut noted in a survey comment that the data necessary to respond to question A3 “is not

retained in the system.”

[4] The District of Columbia noted in a survey comment that “A3b and A3c ([preregistrations] under 18,

who turned 18) are total new registrations.”

[5] Idaho noted in survey comments for multiple counties that the state switched to a new voter

registration system between the 2018 and the 2020 elections, which made it difficult to track some data

for these questions.

[6] Iowa noted in a survey comment that “[A]ll other sources category is due to limitation on system to

report transaction source of update if it is not a change from previous listed source.”

[7] Louisiana noted in a survey comment that “[A]ddress changes across jurisdictions are counted as new

registrations. 16- and 17-year-old citizens can apply to register to vote, but cannot vote until they are 18.”

[8] Maryland noted in a survey comment that “[T]he total of A3a is the sum of A3b, A3[c], A3d, and A3e.

Maryland does not consider the registration changes listed in A3f and A3g as registrations, and therefore,
158 | Voter Registration: The NVRA and Beyond 

the source of these changes is not recorded. For A3c, individuals can register to vote starting at age 16, 

however they are not considered ‘pre-registered.’ 16- and 17-year-olds are considered registered voters, 

they just cannot vote until their 18th birthday.” 

[9] Mississippi noted in survey comments that duplicate and rejected registrations are not tracked.

[10] Missouri noted in a survey comment that “[C]hanges of names and address report as separate

transactions. In addition to that anytime the LEA [local election administrator] does an address library

cleanup process or any change to the voting record it will record as an address change but may not be

indicated by the voter. Therefore, we are not including the registration forms for change of name and

address is [sic] the total for this section.”

[11] Nebraska noted in a survey comment that “Nebraska law does not allow for pre-registrations for

people not of voting age.”

[12] New Hampshire noted in survey comments that “NH uses voter registration forms for name, party,

and address changes.”

[13] New Mexico noted that the data for these items are not consistently captured across counties at this

time. The Secretary of State’s office is exploring options to capture and include this information in future

reports.

[14] North Dakota does not have voter registration and does not provide data in Section A of the EAVS.

[15] In Oregon, the number of cross-jurisdiction address changes is included in the number of overall

changes to registrations. The state does not track the number of invalid/rejected registrations.

[16] South Carolina noted in survey comments that for the state’s A3d and A3e responses, “SC has no

process to collect data on duplicate registrations or rejected registrations.”

[17] The U.S. Virgin Islands noted in survey comments that “A3c: the data was not tracked. A3d: before

any individual is registered to vote, the individual[’s] information is checked in the system to ensure the

individual was not previously registered. A3e: a voter will not be registered to vote unless the individual

provides the required information (birth paper, U.S. passport, etc.). Before the process begins, the

prospective voter is informed what document and information is required to begin the process.”

[18] Washington noted in survey comments that the data reported in this question covered the period

“between 2018-10-08 and 2020-11-03.”

[19] West Virginia noted in survey comments that “[D]uplicate registrations are based on DMV and online

registrations.”

[20] Wisconsin is exempt from the NVRA and does not classify inactive voters per NVRA definitions.

[21] Wyoming noted in survey comments that “[M]ultiple changes may have occurred on the same form.

A3a includes a total, but the total could be less. For example, a voter could have submitted one form to

change their party and address. The data currently reflects that change as 2 forms. A3g. Counties do not

receive forms for out-of-county address changes. Those numbers are reflected in new jurisdictions as new

registrations.”
Voter Registration: The NVRA and Beyond | 159

Voter Registration Table 4: Voter List Maintenance – Confirmation Notices

State

Confirmation Notices 

Sent

Result of Confirmation Notice

Received Confirmation From Voter Confirmation 

Returned as 

Valid Invalid Undeliverable

Total

% 

Active 

Voters

Total % Total % Total % 

Alabama [1] -- -- 1,826 -- 25,755 -- 3 --

Alaska 91,667 15.4 1,108 1.2 -- -- 30,692 33.5 

American Samoa 4,741 29.0 4,741 100.0 0 0.0 0 0.0 

Arizona 2,480,620 58.0 75,275 3.0 422,319 17.0 328,161 13.2 

Arkansas 432,798 30.7 89,906 20.8 33,312 7.7 45,003 10.4 

California [2] 6,682,336 30.7 609,638 9.1 557,041 8.3 477,436 7.1 

Colorado 705,625 18.6 13,885 2.0 14,104 2.0 -- --

Connecticut 178,993 7.7 55,787 31.2 92,022 51.4 25,292 14.1 

Delaware [3] 89,271 12.6 -- -- -- -- -- --

District of 

Columbia [4] 571,363 110.3 26,306 4.6 15,582 2.7 72,114 12.6 

Florida 1,295,491 8.9 121,655 9.4 142,275 11.0 219,736 17.0 

Georgia 1,060,235 14.7 72,979 6.9 4,018 0.4 186,456 17.6 

Guam 5,874 10.5 -- -- -- -- 1,153 19.6 

Hawaii [5] 101,013 13.3 14,576 14.4 4,271 4.2 -- --

Idaho 36,438 3.5 2,912 8.0 -- -- 315 0.9 

Illinois 5,106,813 56.1 333,135 6.5 181,526 3.6 457,373 9.0 

Indiana [6] -- -- -- -- -- -- -- --

Iowa [7] 123,320 5.9 -- -- -- -- -- --

Kansas 227,808 12.9 9,203 4.0 43,892 19.3 16,588 7.3 

Kentucky [8] 366,101 11.0 -- -- -- -- -- --

Louisiana [9] 325,975 11.0 -- -- -- -- -- --

Maine [10] 2,147 0.2 0 0.0 733 34.1 -- --

Maryland [11] 238,027 5.7 3,587 1.5 436 0.2 -- --

Massachusetts 

[12] 608,691 13.8 -- -- -- -- -- --

Michigan 207,229 2.9 1,143 0.6 27,214 13.1 20,030 9.7 

Minnesota [13] -- -- -- -- -- -- -- --

Mississippi 82,826 4.2 -- -- -- -- -- --

Missouri [14] 381,716 9.6 149,017 39.0 39,299 10.3 78,034 20.4 

Montana 107,111 15.8 8,491 7.9 2,344 2.2 26,537 24.8 

Nebraska 160,117 13.7 27,030 16.9 24,931 15.6 21,046 13.1 

Nevada [15] 361,871 19.7 158,854 43.9 26,222 7.2 153,156 42.3 

New Hampshire 

[16] 15,180 1.4 112 0.7 -- -- 4,834 31.8 

New Jersey [17] 311,385 5.3 -- -- -- -- -- --

New Mexico [18] 136,426 10.9 0 0.0 3 0.0 9,348 6.9 
160 | Voter Registration: The NVRA and Beyond 

State

Confirmation Notices 

Sent

Result of Confirmation Notice

Received Confirmation From Voter Confirmation 

Returned as 

Valid Invalid Undeliverable

Total

%

Active 

Voters

Total % Total % Total % 

New York 159,462 1.3 23,345 14.6 31,315 19.6 19,065 12.0 

North Carolina 873,911 13.2 -- -- -- -- 263,271 30.1 

North Dakota [19] -- -- -- -- -- -- -- --

Northern Mariana 

Islands 4,907 26.5 -- -- -- -- 50 1.0 

Ohio 712,068 8.8 109,453 15.4 34,224 4.8 48,535 6.8 

Oklahoma 181,034 9.0 18,688 10.3 2,954 1.6 27,775 15.3 

Oregon 329,443 11.2 -- -- -- -- -- --

Pennsylvania 753,942 9.1 74,955 9.9 41,087 5.4 111,594 14.8 

Puerto Rico [20] -- -- -- -- -- -- -- --

Rhode Island 83,980 11.4 -- -- -- -- -- --

South Carolina 75,796 2.1 17,001 22.4 487 0.6 1,829 2.4 

South Dakota 17,795 3.1 216 1.2 179 1.0 12,298 69.1 

Tennessee 137,130 3.2 19,496 14.2 1,724 1.3 23,078 16.8 

Texas 1,068,037 7.0 758,850 71.1 111,387 10.4 -- --

U.S. Virgin Islands 

[21] -- -- -- -- -- -- -- --

Utah 20,225 1.2 42 0.2 2,306 11.4 17,877 88.4 

Vermont 66,126 15.0 21,774 32.9 44,352 67.1 0 0.0 

Virginia [22] 189,162 3.3 11,379 6.0 -- -- 4,981 2.6 

Washington 481,684 9.8 150,796 31.3 44,754 9.3 6,407 1.3 

West Virginia [23] 10,291 1.0 68 0.7 227 2.2 434 4.2 

Wisconsin [24] 345,893 9.0 21,241 6.1 -- -- 93,419 27.0 

Wyoming [25] -- -- -- -- -- -- -- --

U.S. Total 28,010,094 14.3 3,008,470 12.1 1,972,295 8.1 2,803,920 11.9 
Voter Registration: The NVRA and Beyond | 161

State

Result of Confirmation Notice

Status Unknown Other Not Categorized

Total % Total % Total % 

Alabama [1] -- -- -- -- -- --

Alaska 59,867 65.3 -- -- 0 0.0 

American Samoa 0 0.0 -- -- 0 0.0 

Arizona 1,650,963 66.6 3,902 0.2 0 0.0 

Arkansas 264,968 61.2 3,276 0.8 -3,667 -0.8

California [2] 4,508,305 67.5 510,244 7.6 19,672 0.3

Colorado 677,636 96.0 -- -- 0 0.0

Connecticut 5,911 3.3 -- -- -19 0.0

Delaware [3] -- -- -- -- 89,271 100.0 

District of 

Columbia [4] 457,361 80.0 -- -- 0 0.0 

Florida 590,070 45.5 7,030 0.5 214,725 16.6 

Georgia 796,782 75.2 -- -- 0 0.0 

Guam 4,721 80.4 -- -- 0 0.0 

Hawaii [5] -- -- 42,370 41.9 39,796 39.4 

Idaho 33,211 91.1 -- -- 0 0.0 

Illinois 4,134,779 81.0 -- -- 0 0.0 

Indiana [6] -- -- -- -- -- --

Iowa [7] 65,857 53.4 -- -- 57,463 46.6 

Kansas 7,715 3.4 -- -- 150,410 66.0 

Kentucky [8] -- -- -- -- 366,101 100.0 

Louisiana [9] -- -- -- -- 325,975 100.0 

Maine [10] 1,414 65.9 -- -- 0 0.0 

Maryland [11] 234,004 98.3 -- -- 0 0.0 

Massachusetts 

[12] -- -- -- -- 608,691 100.0 

Michigan 158,842 76.7 -- -- 0 0.0 

Minnesota [13] -- -- -- -- -- --

Mississippi 82,826 100.0 -- -- 0 0.0 

Missouri [14] -- -- -- -- 115,366 30.2 

Montana 69,633 65.0 106 0.1 0 0.0 

Nebraska 87,110 54.4 -- -- 0 0.0 

Nevada [15] 23,639 6.5 -- -- 0 0.0 

New Hampshire 

[16] 10,234 67.4 -- -- 0 0.0 

New Jersey [17] 311,385 100.0 -- -- 0 0.0 

New Mexico [18] 127,075 93.1 -- -- 0 0.0 

New York 83,889 52.6 -- -- 1,848 1.2 
162 | Voter Registration: The NVRA and Beyond 

State

Result of Confirmation Notice

Status Unknown Other Not Categorized

Total % Total % Total % 

North Carolina 563,120 64.4 47,520 5.4 0 0.0 

North Dakota [19] -- -- -- -- -- --

Northern Mariana 

Islands -- -- -- -- 4,857 99.0 

Ohio 519,856 73.0 -- -- 0 0.0 

Oklahoma 131,617 72.7 -- -- 0 0.0 

Oregon -- -- 329,443 100.0 0 0.0 

Pennsylvania 206,085 27.3 320,221 42.5 0 0.0 

Puerto Rico [20] -- -- -- -- -- --

Rhode Island -- -- -- -- 83,980 100.0 

South Carolina 52,132 68.8 4,347 5.7 0 0.0 

South Dakota 5,102 28.7 -- -- 0 0.0 

Tennessee 92,832 67.7 -- -- 0 0.0 

Texas 197,800 18.5 -- -- 0 0.0 

U.S. Virgin Islands 

[21] -- -- -- -- -- --

Utah -- -- -- -- 0 0.0 

Vermont 0 0.0 -- -- 0 0.0 

Virginia [22] 172,802 91.4 -- -- 0 0.0 

Washington 279,727 58.1 -- -- 0 0.0 

West Virginia [23] 9,408 91.4 154 1.5 0 0.0 

Wisconsin [24] 231,233 66.9 -- -- 0 0.0 

Wyoming [25] -- -- -- -- -- --

U.S. Total 16,909,911 65.8 1,268,613 9.7 2,074,469 7.4 

Voter Registration Table 4 Calculation Notes: 

Confirmation Notices Sent, Total uses question A8a.

Confirmation Notices Sent as % of Active Voters uses question A8a divided by question A1b.

Confirmation Notices Received - Valid, Total uses question A8b.

Confirmation Notices Received - Valid, % uses question A8b divided by question A8a.

Confirmation Notices Received - Invalid, Total uses question A8c.

Confirmation Notices Received - Invalid, % uses question A8c divided by question A8a.

Confirmation Notice Returned Undeliverable, Total uses question A8d.

Confirmation Notice Returned Undeliverable, % uses question A8d divided by question A8a.

Status Unknown, Total uses question A8e.

Status Unknown, % uses question A8e divided by question A8a.

Other Confirmation Notices, Total uses the sum of questions A8f, A8g, and A8h.

Other Confirmation Notices, % uses the sum of questions A8f, A8g, and A8h, all divided by question A8a.

Not Categorized Confirmation Notices, Total uses question A8a minus the sum of questions A8b to A8h.
Voter Registration: The NVRA and Beyond | 163

Not Categorized Confirmation Notices, % uses question A8a minus the sum of questions A8b to A8h, all 

divided by question A8a.

Voter Registration Table 4 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Questions A8f, A8g, and A8h were not mandatory. States and jurisdictions only reported data in

these items if there was another confirmation notice status aside from those listed in questions

A8b–A8e or if there were registration applications that could not be categorized in questions A8b–

A8e.

• Negative numbers in the Not Categorized confirmation notices category indicate that the sum of

confirmation notices for each category account for more than the total number of confirmation

notices reported by the state.

• Because each percentage was calculated independently, the percentage of confirmation notices

in each category may not sum to 100% for some states or at the national level.

• Not all states track data to be able to provide responses for each confirmation notice category.

• States that are exempt from the NVRA are not required to send confirmation notices pursuant to

the NVRA, although they may send confirmation notices (or other similar notices) pursuant to

state law or practice. States that do not use confirmation notices typically use other sources of

data to identify potentially ineligible voters.

[1] Alabama noted in a survey comment that “[W]e do not have a report that has the total number of

confirmation notices sent.” Because Alabama does not report the total number of confirmation notices

sent, the number of ‘Not Categorized’ confirmation notices cannot be calculated. For the same reason,

their responses were not included when calculating the total ‘Not Categorized’ confirmation notices at the

national level.

[2] California has increased list maintenance training statewide to all county elections officials, including

training regarding when to send confirmation notices per the NVRA and updated California state law.

[3] Delaware noted in a survey comment that “In 2019, the state of DE changed voter registration vendorsfrom an in-house mainframe system to a cloud based provider. The data request is unavailable due to the

differences in the 2 systems. The information requested was not tracked and/or converted to the new

system.”

[4] The District of Columbia notes that the data reported in EAVS under A8a (Confirmation Notices Sent) do

not comprise list maintenance activities. This has caused confusion when receiving a Freedom of

Information Act (FOIA) request for D2 notices, and this number does not match the figure in A8a.

[5] Hawaii noted in survey comments that three of its four counties that submit EAVS data do not “have

counts of confirmed, invalidated, undeliverable, or unknown.”

[6] Indiana noted in a survey comment that “Indiana’s understanding is this aligns with voter list

maintenance activities. Indiana does not send the removal notices referenced by the EAC survey, Indiana

provided the number of voter records cancelled due to being in inactive status for more than 2 federal

general elections for question A9e.”

[7] Iowa noted in a survey comment that the state’s “system does not track follow up status information.”

[8] Kentucky noted in a survey comment that “[O]ur system tracks all undeliverable mail to qualify for the

8(d)2 notifications. Two separate batches have been sent during this time period. We have not yet finished

scanning and categorizing the returns. Therefore, the only data available is the number sent.”
164 | Voter Registration: The NVRA and Beyond 

[9] Louisiana noted in a survey comment that “[C]onfirmation notices are sent pursuant to 52 USC

§20507(d)(2). The Department of State only collects the total number of sent confirmation notices.”

[10] Maine noted in a survey comment that “A8d: see A8e, voters made inactive if CACC [Change of

Address Confirmation Card] undeliverable.”

[11] Maryland noted in a survey comment that “A8d data is included in A8e.”

[12] Massachusetts noted in a survey comment that the state “cannot provide data on result of

[confirmation] notices.”

[13] Minnesota is NVRA exempt and responded “Does not apply” to all items regarding confirmation

notices (A8).

[14] Missouri noted in a survey comment that “A8a does not total [because] we do not track all

information requested.”

[15] Nevada reported in survey comments that two of its counties did not track confirmation notices.

[16] New Hampshire noted in a survey comment that “NH does not send confirmation notices, but does

send 30-day letters.”

[17] New Jersey does not track confirmation notices returned by the voter or returned undeliverable.

[18] New Mexico noted that the data for these items are not consistently captured across counties at this

time. The Secretary of State’s office is exploring options to capture and include this information on future

reports.

[19] North Dakota does not have voter registration and does not provide data in Section A of the EAVS.

[20] Puerto Rico is NVRA exempt and responded “Does not apply” to all items regarding confirmation

notices (A8).

[21] The U.S. Virgin Islands are NVRA exempt and responded “Data not available” to all items regarding

confirmation notices (A8).

[22] Virginia does not currently track returned confirmation notices.

[23] West Virginia reported in a survey comment that “[S]ome counties tracked undeliverables as ‘no

response,’ so they are included in status unknown totals.”

[24] Wisconsin is exempt from NVRA; however, the state sent notices to voters who have not voted in a

four-year period, as well as Electronic Registration Information Center (ERIC) mover mailings. Notices are

sent to voters who register to vote or whose voter information may be out of date.

[25] Wyoming is NVRA exempt and responded “Does not apply” to all items regarding confirmation notices

(A8).
Voter Registration: The NVRA and Beyond | 165

Voter Registration Table 5: Voter List Maintenance – Removal Actions

State

Voters Removed Reason for Removal 

Total 

% of

Reg. 

Voters

Moved Out of 

Jurisdiction Death

Failure to Return 

Confirmation 

Notice

Voter’s Request

Total % Total % Total % Total % 

Alabama 136,557 3.7 9,069 6.6 94,396 69.1 266 0.2 230 0.2

Alaska 53,132 8.2 3,691 6.9 8,485 16.0 30,358 57.1 8,729 16.4 

American 

Samoa 2,124 13.0 0 0.0 336 15.8 1,788 84.2 0 0.0

Arizona 350,841 7.4 82,095 23.4 71,706 20.4 121,011 34.5 28,516 8.1

Arkansas 175,336 9.6 12,448 7.1 37,185 21.2 116,787 66.6 560 0.3

California [1] 1,635,987 6.3 496,397 30.3 355,332 21.7 351,301 21.5 60,293 3.7

Colorado 416,819 9.9 104,155 25.0 62,005 14.9 210,941 50.6 32,908 7.9

Connecticut 53,652 2.1 19,812 36.9 18,986 35.4 3,443 6.4 10,438 19.5 

Delaware 39,772 5.4 8,254 20.8 6,210 15.6 24,900 62.6 108 0.3

District of 

Columbia 67,400 10.8 25,864 38.4 7,979 11.8 33,124 49.1 -- --

Florida 1,009,246 6.6 210,587 20.9 334,033 33.1 320,706 31.8 124,558 12.3 

Georgia [2] 505,728 6.6 6,700 1.3 137,645 27.2 257,010 50.8 3,100 0.6

Guam 9,722 17.4 44 0.5 717 7.4 8,961 92.2 -- --

Hawaii 47,670 5.7 4,309 9.0 15,152 31.8 23,620 49.5 4,516 9.5

Idaho 24,639 2.4 739 3.0 431 1.7 9,082 36.9 0 0.0

Illinois 643,336 6.6 305,984 47.6 161,055 25.0 171,920 26.7 -- --

Indiana [3] 1,023,732 21.8 8,716 0.9 4 0.0 94,837 9.3 -- --

Iowa 126,968 5.7 22,424 17.7 52,262 41.2 48,771 38.4 817 0.6

Kansas 134,771 7.0 18,601 13.8 40,484 30.0 65,020 48.2 588 0.4

Kentucky 100,181 2.8 7,534 7.5 77,442 77.3 0 0.0 874 0.9

Louisiana [4] 296,761 9.6 125,794 42.4 72,493 24.4 44,947 15.1 12,479 4.2

Maine 153,846 13.5 122,310 79.5 23,713 15.4 1,942 1.3 709 0.5

Maryland 260,666 6.1 58,583 22.5 73,564 28.2 122,649 47.1 863 0.3

Massachusetts 804,445 16.7 523,079 65.0 89,088 11.1 131,641 16.4 9,136 1.1

Michigan [5] 239,780 3.0 46,047 19.2 187,608 78.2 0 0.0 6,125 2.6

Minnesota [6] 206,475 5.5 72,296 35.0 61,389 29.7 72,090 34.9 -- --

Mississippi 89,640 4.2 17,485 19.5 50,463 56.3 18,500 20.6 1,109 1.2

Missouri 411,661 9.5 119,044 28.9 119,144 28.9 150,562 36.6 2,369 0.6

Montana [7] 73,718 9.9 8,231 11.2 14,758 20.0 38,110 51.7 3,000 4.1

Nebraska 94,352 7.4 18,252 19.3 27,308 28.9 20,697 21.9 23,706 25.1 

Nevada 157,592 7.7 41,145 26.1 27,699 17.6 65,045 41.3 22,303 14.2 

New 

Hampshire 140,979 13.0 129,428 91.8 6,255 4.4 -- -- -- --

New Jersey 264,136 4.2 58,588 22.2 114,301 43.3 84,871 32.1 474 0.2

New Mexico 79,636 5.9 4,268 5.4 27,582 34.6 31,919 40.1 10,897 13.7 

New York 580,170 4.3 248,905 42.9 158,216 27.3 100,411 17.3 10,439 1.8
166 | Voter Registration: The NVRA and Beyond 

State

Voters Removed Reason for Removal 

Total 

% of

Reg. 

Voters

Voter’s Request Moved Out of 

Jurisdiction Death

Failure to Return 

Confirmation 

Notice

Total % Total % Total % Total % 

North Carolina 1,283,363 17.4 506,445 39.5 130,915 10.2 589,764 46.0 3,692 0.3

North Dakota 

[8] -- -- -- -- -- -- -- -- -- --

Northern 

Mariana 

Islands

5,049 27.3 -- -- 108 2.1 4,907 97.2 -- --

Ohio 984,190 12.2 267,042 27.1 170,651 17.3 441,576 44.9 94,541 9.6

Oklahoma 234,034 10.4 91,344 39.0 43,757 18.7 88,285 37.7 959 0.4

Oregon [9] 106,692 3.6 20,197 18.9 58,802 55.1 9,766 9.2 17,457 16.4 

Pennsylvania 

[10] 883,947 9.8 416,884 47.2 196,386 22.2 263,009 29.8 6,376 0.7

Puerto Rico 761,087 32.3 266 0.0 136,822 18.0 623,275 81.9 0 0.0

Rhode Island 49,304 6.1 9,927 20.1 12,366 25.1 21,369 43.3 1,434 2.9

South Carolina 

[11] 140,077 3.6 33,796 24.1 81,939 58.5 14,749 10.5 570 0.4

South Dakota 24,151 3.8 1,105 4.6 9,994 41.4 10,854 44.9 567 2.3

Tennessee 508,768 11.5 194,624 38.3 83,756 16.5 218,348 42.9 3,499 0.7

Texas 1,751,446 10.3 144,214 8.2 272,826 15.6 505,668 28.9 11,010 0.6

U.S. Virgin 

Islands [12] 1,931 3.6 275 14.2 1,614 83.6 -- -- 42 2.2

Utah 67,468 3.6 12,488 18.5 20,810 30.8 33,956 50.3 185 0.3

Vermont 44,352 9.1 0 0.0 9,605 21.7 18,876 42.6 5,286 11.9 

Virginia 879,921 14.7 569,837 64.8 93,716 10.7 188,774 21.5 13,886 1.6

Washington 305,845 5.8 84,754 27.7 61,104 20.0 4,192 1.4 41,969 13.7 

West Virginia 94,032 7.4 9,767 10.4 27,536 29.3 53,729 57.1 333 0.4

Wisconsin [13] 198,061 5.2 37,490 18.9 68,968 34.8 75,624 38.2 676 0.3

Wyoming 45,866 15.1 1,176 2.6 3,495 7.6 40,973 89.3 26 0.1

U.S. Total 18,781,054 8.2 5,342,509 28.5 4,020,596 21.4 5,984,924 32.1 582,352 3.5
Voter Registration: The NVRA and Beyond | 167

State

Reason for Removal

Felony or Conviction Mental Incompetence Other Not Categorized

Total % Total % Total % Total % 

Alabama 5,573 4.1 127 0.1 26,896 19.7 0 0.0

Alaska 1,869 3.5 0 0.0 -- -- 0 0.0

American 

Samoa 0 0.0 0 0.0 -- -- 0 0.0

Arizona 13,476 3.8 418 0.1 33,619 9.6 0 0.0

Arkansas 4,317 2.5 57 0.0 4,419 2.5 -437 -0.2

California [1] 19,069 1.2 672 0.0 352,014 21.5 909 0.1

Colorado 5,183 1.2 -- -- 1,627 0.4 0 0.0

Connecticut 973 1.8 -- -- -- -- 0 0.0

Delaware 300 0.8 -- -- -- -- 0 0.0

District of 

Columbia 433 0.6 -- -- -- -- 0 0.0

Florida 15,903 1.6 1,993 0.2 2,756 0.3 -1,290 -0.1

Georgia [2] 54,730 10.8 312 0.1 46,231 9.1 0 0.0

Guam -- -- -- -- -- -- 0 0.0

Hawaii 73 0.2 0 0.0 -- -- 0 0.0

Idaho 21 0.1 0 0.0 6,016 24.4 8,350 33.9

Illinois 4,377 0.7 -- -- -- -- 0 0.0

Indiana [3] 1 0.0 -- -- 5,318 0.5 914,856 89.4

Iowa 2,645 2.1 49 0.0 -- -- 0 0.0

Kansas 3,377 2.5 20 0.0 7,351 5.5 -670 -0.5

Kentucky 13,358 13.3 973 1.0 -- -- 0 0.0

Louisiana [4] 14,817 5.0 115 0.0 26,116 8.8 0 0.0

Maine -- -- -- -- 5,172 3.4 0 0.0

Maryland 3,910 1.5 44 0.0 1,053 0.4 0 0.0

Massachusetts 747 0.1 -- -- 50,754 6.3 0 0.0

Michigan [5] -- -- -- -- -- -- 0 0.0

Minnesota [6] -- -- -- -- 700 0.3 0 0.0

Mississippi 1,240 1.4 33 0.0 810 0.9 0 0.0

Missouri 12,371 3.0 1,566 0.4 6,605 1.6 0 0.0

Montana [7] 69 0.1 4 0.0 9,546 12.9 0 0.0

Nebraska 3,395 3.6 0 0.0 994 1.1 0 0.0

Nevada 1,337 0.8 63 0.0 -- -- 0 0.0

New 

Hampshire 26 0.0 -- -- 5,270 3.7 0 0.0

New Jersey 5,902 2.2 0 0.0 -- -- 0 0.0

New Mexico 4,970 6.2 -- -- -- -- 0 0.0

New York 4,439 0.8 98 0.0 -- -- 57,662 9.9

North Carolina 16,788 1.3 0 0.0 35,759 2.8 0 0.0
168 | Voter Registration: The NVRA and Beyond 

State

Reason for Removal

Felony or Conviction Mental Incompetence Other Not Categorized

Total % Total % Total % Total % 

North Dakota 

[8] -- -- -- -- -- -- -- --

Northern 

Mariana 

Islands

34 0.7 -- -- -- -- 0 0.0

Ohio 10,361 1.1 19 0.0 -- -- 0 0.0

Oklahoma 3,335 1.4 150 0.1 6,204 2.7 0 0.0

Oregon [9] -- -- -- -- 470 0.4 0 0.0

Pennsylvania 

[10] 6 0.0 194 0.0 1,092 0.1 0 0.0

Puerto Rico -- -- 697 0.1 27 0.0 0 0.0

Rhode Island 810 1.6 2 0.0 3,396 6.9 0 0.0

South Carolina 

[11] 7,078 5.1 -- -- 1,945 1.4 0 0.0

South Dakota 1,613 6.7 2 0.0 16 0.1 0 0.0

Tennessee 7,354 1.4 -- -- 1,187 0.2 0 0.0

Texas 4,697 0.3 730 0.0 812,301 46.4 0 0.0

U.S. Virgin 

Islands [12] -- -- 0 0.0 -- -- 0 0.0

Utah 29 0.0 -- -- -- -- 0 0.0

Vermont -- -- -- -- 10,585 23.9 0 0.0

Virginia 10,480 1.2 1,020 0.1 2,208 0.3 0 0.0

Washington 2,767 0.9 170 0.1 110,889 36.3 0 0.0

West Virginia 1,285 1.4 2 0.0 1,380 1.5 0 0.0

Wisconsin [13] 3,855 1.9 112 0.1 11,336 5.7 0 0.0

Wyoming 46 0.1 1 0.0 149 0.3 0 0.0

U.S. Total 269,439 1.6 9,643 0.1 1,592,211 10.4 979,380 5.2

Voter Registration Table 5 Calculation Notes: 

Voters Removed, Total uses question A9a.

Voters Removed, % Registered Voters uses question A9a divided by question A1a.

Moved Out of Jurisdiction, Total uses question A9b.

Moved Out of Jurisdiction, % uses question A9b divided by question A9a.

Death, Total uses question A9c.

Death, % uses question A9c divided by question A9a.

Failure to Return Confirmation Notice, Total uses question A9e.

Failure to Return Confirmation Notice, % uses question A9e divided by question A9a.

Voter’s Request, Total uses question A9g.

Voter’s Request, % uses question A9g divided by question A9a.

Felony or Conviction, Total uses question A9d.

Felony or Conviction, % uses question A9d divided by question A9a.

Mental Incompetence, Total uses question A9f.

Mental Incompetence, % uses question A9f divided by question A9a.

Other, Total uses the sum of questions A9h, A9i, and A9j. 
Voter Registration: The NVRA and Beyond | 169

Other, % uses the sum of questions A9h, A9i, and A9j, all divided by question A9a.

Not Categorized, Total uses question A9a minus the sum of questions A9b to A9j.

Not Categorized, % uses question A9a minus the sum of questions A9b to A9j, all divided by question A9a.

Voter Registration Table 5 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Questions A9h, A9i, and A9g were not mandatory. States and jurisdictions only reported data in

these items if there was another reason for registration removals aside from those listed in

questions A9b–A9g or if there were registration removals that could not be categorized in

questions A9b–A9e.

• Negative numbers in the Not Categorized registration removals category indicate that the sum of

registration removals for each category account for more than the total number of registration

removals reported received by the state.

• Because each percentage was calculated independently, the percentage of confirmation notices

in each category may not sum to 100% for some states or at the national level.

• Not all states track data to be able to provide responses for each registration removal category. In

addition, not all states may remove registrations for the listed reason.

[1] California has increased list maintenance training statewide to all county elections officials, including

training regarding removal actions per the NVRA and updated California state law.

[2] Georgia noted in a survey comment that “A9b represents voters who moved out of the state.”

[3] Indiana noted in a survey comment that “[T]he data reported in A9b–j consists of data from the ad hoc

report (A9b–d, A9g–j) and SVRS [statewide voter registration system] (A9e). Indiana provided the number

of voter records cancelled due to being in inactive status for more than 2 federal general elections for

question A9e. These statistics represent the majority of cancellations for this reason, based on the county

user selecting the option to run this process in batch. However, county users have the option to also

cancel voters one-by-one for this reason, but those statistics are not included in the counts for question

A9e.”

[4] Louisiana noted in a survey comment that “[I]rregularities include voters that were cancelled by the

registrar of voters because the registrant provided insufficient or incorrect data, or user processing error.

Challenge 21 includes voters who were registered in another state or not a United States citizen, or were

otherwise not qualified to be registered for reasons other than change of residence.”

[5] Michigan noted in a survey comment that “A9d: in MI, registered voters cannot cast a ballot while they

are incarcerated serving sentence; however, their registration is never cancelled. Felony convictions alone

do not disqualify voters from casting a ballot.”

[6] Minnesota noted in a survey comment that “A9d and A9f: voter is not removed but status changes to

‘challenged.’ A9e: did not vote or update registration in prior four years. A9g: voter request not tracked

separately, is included in A9h.”

[7] Montana noted in a survey comment that “A9d: felony cancellations as reported in voter registration

database.”

[8] North Dakota does not have voter registration and does not provide data in Section A of the EAVS.

[9] Oregon reported in a survey comment that “[I]ncarcerated voters are inactivated not removed.”

[10] Pennsylvania reported in a survey comment that “PA won’t be reporting declared mentally

incompetent in future surveys. The cancellation option is no longer available to county officials.”
170 | Voter Registration: The NVRA and Beyond 

[11] South Carolina reported in a survey comment that “A9f: it is rare for voters to be removed for this

reason and would be included under ‘other’ (A9h).”

[12] The U.S. Virgin Islands reported in a survey comment that the territory “no longer purges voters who

did not vote in the past two general election. A voter can only be removed off the voting roll due to their

death, request to be removed or move out of territory, or convicted of a felony. The voter will be reinstated

once they serve their sentence. ESVI [Election System of the Virgin Islands] is planning to do more

outreach to voters including notifying voters of voting centers, their respective voting centers, voter

registration status to name a few.”

[13] Wisconsin is exempt from the NVRA and does not classify inactive voters per NVRA definitions. Only

active voters are registered and eligible to vote in Wisconsin. Wisconsin’s registered voters count for this

report includes military voters, even though they are not required to “register” in Wisconsin. Wisconsin

requires voters to re-register each time their address changes. For the purposes of this report, voters are

only counted as being “removed” from the voter rolls if they did not re-register at a new address. Even

voters who move within the same jurisdiction must re-register in Wisconsin; therefore, Wisconsin does not

track these voters separately.
Military and Overseas Voting in 2020 | 171

Chapter 4. Military and Overseas 

Voting in 2020: UOCAVA

Key Findings

The Election Administration and Voting Survey (EAVS) Section B collected data from states and 

municipalities on individuals covered by the Uniformed and Overseas Citizens Absentee Voting Act 

(UOCAVA) during the 2020 federal general election. Election officials were asked a variety of 

questions relating to UOCAVA voting practices, including the total number of registered UOCAVA 

voters, the use of the Federal Post Card Application (FPCA), the quantity and method of ballots 

transmitted to and returned by UOCAVA voters, and the use of the Federal Write-In Absentee Ballot 

(FWAB).1 Among the results of this section, notable findings include:

• Just over 40% of registered UOCAVA voters held legal voting residence in three states:

California, Florida, and Washington.

• Continuing a trend that began with the 2016 EAVS, overseas citizens made up a larger

percentage of registered UOCAVA voters than did members of the uniformed services.

• More than 1.2 million ballots were transmitted to UOCAVA voters by election offices. More than

900,000 of these ballots were returned by UOCAVA voters and were submitted for counting.

• UOCAVA voters increasingly used electronic methods to receive and return their absentee

ballots, but rates differed by UOCAVA voter type, with more overseas citizens using electronic

options than uniformed services members, who continue to rely primarily on postal mail.

• The most common reason for UOCAVA ballot rejection was that the ballot was received after a

state’s UOCAVA absentee ballot receipt deadline.

• FWAB usage continued to increase in 2020, with more UOCAVA voters using this backup ballot

to cast their vote than in previous election cycles.

Introduction

The U.S. Election Assistance Commission (EAC) is required by the Help America Vote Act of 2002 

(HAVA) to collect data from states2 and to report on absentee voting by uniformed services members 

and overseas citizens.3 Since 2014, the EAC has fulfilled this reporting mandate in partnership with 

the Federal Voting Assistance Program (FVAP), the agency designated to administer UOCAVA on 

1 The response rate among local jurisdictions for EAVS Section B was 99.9%; five counties in Arkansas did not provide 

Section B data. In addition, the response rate for individual items varied. Results reported in this chapter include only 

states for which data are available for a given question. State and national totals include all available jurisdiction-level 

data. National-level percentages reported in this chapter used casewise deletion. 2 Throughout this report, unless otherwise specified, the term “state” can be understood to apply to the 50 U.S. states, the 

District of Columbia and five U.S. territories (American Samoa, Guam, the Northern Mariana Islands, Puerto Rico, and the 

U.S. Virgin Islands) that submit Election Administration Policy Survey and EAVS data. 3 The Help America Vote Act of 2002 (HAVA), 52 U.S.C. § 20901. The EAC works with FVAP to collect comprehensive data 

from the states on all of the ballots sent and received by voters covered under UOCAVA (52 U.S.C. § 20301(b)(11)). 
172 | Military and Overseas Voting in 2020 

behalf of the U.S. Department of Defense (DOD). Through a memorandum of understanding between 

the EAC and FVAP, Section B of the EAVS is administered on behalf of both agencies. This agreement 

allows both the EAC and FVAP to fulfill congressionally mandated requirements to study UOCAVA 

voting while reducing the data collection and reporting burden on state and local election officials. 

States are required to report certain election data to the EAC after each federal election.4

This chapter examines UOCAVA data from the 2020 EAVS, including use of the FPCA by UOCAVA 

voters, ballots transmitted to UOCAVA voters by states, ballots returned by UOCAVA voters, UOCAVA 

ballots counted, UOCAVA ballots rejected, and usage of the FWAB by UOCAVA voters. Where 

appropriate, information about state laws and procedures related to UOCAVA voting, collected as 

part of the EAC’s 2020 Election Administration Policy Survey (Policy Survey), is presented to provide 

context for the EAVS results.

Federal Laws Regulating Military and Overseas Voting

The Uniformed and Overseas Citizens Absentee Voting Act of 1986 (UOCAVA) 

UOCAVA protects the voting rights of members of the uniformed services who are stationed away 

from their voting residence, the spouses and other eligible family of uniformed services members, 

and U.S. citizens residing outside of the United States. It requires all states, territories, and the 

District of Columbia to allow these citizens to register to vote and to cast an absentee ballot for all 

federal elections.5 For the estimated 1.4 million uniformed services members and approximately 

600,000 military spouses and voting age dependents stationed away from their legal voting 

residence6 as well as the estimated 2.9 million voting age U.S. citizens who live, study, or work 

overseas,7 the absentee voting process is different from and can be more challenging than the

voting process for non-military voters residing in the United States. 

4 Section 703(a) HAVA amended section 102 of UOCAVA.

5 Throughout this report, the term “uniformed services voter” refers to U.S. citizens who are active members of the 

uniformed services or a spouse or dependent family member thereof. “Overseas citizen” refers to non-military U.S. citizens 

who reside overseas.

6 Information was provided by FVAP to Fors Marsh Group via email on May 10, 2021, and was current as of March 31, 

2021. 

7 Federal Voting Assistance Program, “2018 Overseas Citizen Population Analysis,” at https://www.fvap.gov/info/reportssurveys/overseas-citizen-population-analysis. The results of the 2020 Overseas Citizen Population Analysis were not 

available at the time of this report’s publication.

Citizens protected by UOCAVA include:

• Members of the uniformed services (Army, Navy, Marine Corps, Air Force, Coast Guard, United

States Public Health Service Commissioned Corps, and National Oceanic and Atmospheric

Administration [NOAA] Commissioned Officer Corps) who are stationed away from their legal voting

residence;

• Members of the U.S. Merchant Marine;

• Eligible family members of the above; and

• U.S. citizens residing outside the United States.
Military and Overseas Voting in 2020 | 173

Among the challenges UOCAVA sought to address was the wide variability in rules and procedures 

governing registration and voting across states, which made it difficult for uniformed services 

members and overseas citizens to navigate the voting process.8 UOCAVA established the FPCA,

which serves as a combination registration and ballot request application that is accepted in all U.S. 

states and territories. In addition, the FWAB functions as a backup ballot that can be cast by UOCAVA

voters who make a timely request for, but do not receive, a regular absentee ballot.9 Although states 

and localities still maintain and administer elections according to their own laws and procedures for 

registration and absentee voting among uniformed services members and overseas citizens, the 

provisions of UOCAVA established some uniformity in the absentee voting process for these voters. 

The Military and Overseas Voter Empowerment Act of 2009 (MOVE)

Historically, UOCAVA ballots were transmitted from election offices to voters primarily through the 

mail. Given long mailing times and high mobility rates for this population of voters, this practice 

meant that many UOCAVA voters were unable to receive and return their absentee ballot before state 

ballot return deadlines. The MOVE Act amended UOCAVA to establish additional requirements to 

protect military and overseas citizens’ voting rights.10 These new rules required that all states and 

territories provide UOCAVA voters with an option to request and receive registration and absentee 

ballot request materials electronically, directed states to establish an electronic means of 

transmitting blank ballots to UOCAVA voters, and required states to provide free access to a system 

whereby voters can verify the status of their ballot. Additionally, absentee ballots must be 

transmitted no less than 45 days before a federal election to all UOCAVA voters who submit an 

absentee ballot request before this deadline. These additional provisions aimed to ensure uniformed 

services members and overseas citizens not only have the right to vote, but that they have sufficient 

time to receive and return their absentee ballots ahead of state deadlines.

The UOCAVA Voting Process

Although the specific path may differ depending on the policies and procedures in one’s state of 

voting residence and on a voter’s particular situation and preferences, in general, the UOCAVA voting 

process can be summarized in six basic steps, as illustrated in Figure 1.11

1. Register and request an absentee ballot: UOCAVA-eligible citizens can do this either by

completing a state application form or an FPCA, the federal form that functions as both a

registration and absentee ballot request and is accepted in all states and U.S. territories.

2. Submit the registration and ballot request: Completed applications must be submitted to the

appropriate state or local election office by mail or by an electronic means permitted by the

8 The United States Department of Justice. (2020, February 18). The Uniformed and Overseas Citizens Absentee Voting Act.

https://www.justice.gov/crt/uniformed-and-overseas-citizens-absentee-voting-act. 

. 

9 Section 103 of UOCAVA provides a mechanism for uniformed services members and overseas citizen voters to cast a 

FWAB (see 52 U.S.C.§ 20303). 10 Military and Overseas Voter Empowerment (MOVE) Act of 2008 statutory language can be found at 

https://www.fvap.gov/uploads/FVAP/Policies/moveact.pdf

11 Adapted from an FVAP infographic. For more detailed information about state policies related to UOCAVA voting, see 

Chapter 2 of this report.
174 | Military and Overseas Voting in 2020 

Figure 1. The UOCAVA Voting Process

state. All states accept FPCAs by mail; states may also accept FPCAs via email, fax, the 

state’s online voter registration portal, or by another mode.

3. Application processing: Once received, registration and absentee ballot request applications

are processed by the election office. If an application fails to meet any state requirements

(e.g., the form is not completed correctly, is submitted after the registration deadline, or the

applicant is deemed ineligible), then it may be rejected. If an application meets all

requirements and is accepted, it remains valid as a registration and ballot request, meaning

that the voter will retain UOCAVA status and have an absentee ballot transmitted to them for

the duration specified by state policy.

4. Ballot transmission: Election officials transmit absentee ballots to registered UOCAVA voters

no later than 45 days before a federal election (ballots may be transmitted later if the ballot

request is submitted by the state deadline but less than 45 days before an election). Ballots
Military and Overseas Voting in 2020 | 175

may be transmitted to a voter by mail or through some other state-approved electronic 

means of transmission, as requested by the voter.

5. Complete and return absentee ballot: UOCAVA voters complete and return their absentee

ballot to the appropriate election office for processing. Ballots may be returned and

submitted for processing either by mail or through some other means allowed by a state. The

FWAB may be used as a backup ballot by UOCAVA voters who do not receive a regular

absentee ballot, or if the ballot does not arrive in time to be completed and returned ahead

of state deadlines.

6. Ballot processing and counting: Completed absentee ballots that are returned and submitted

for counting to an election office must be received by state deadlines and meet other state

requirements. State policies on when completed ballots must be postmarked and when they

must be returned to an election office in order to be eligible to be counted vary widely.

UOCAVA Registration and Ballot Requests

The 2016 general election was the first time that registered overseas citizens outnumbered 

registered uniformed services members covered by UOCAVA. This trend continued in 2020, with 

uniformed services members or eligible family members accounting for 42.3% of registered UOCAVA 

voters and overseas citizens accounting for 57.4% of this population.12

Registered UOCAVA voters’ legal voting residences13 are disproportionately concentrated in just a 

few U.S. states. In 2020, the states with the largest numbers of registered UOCAVA voters were 

Florida (191,628), California (187,213), and Washington (127,976).14 Together, these three states 

represented 40.4% of all registered UOCAVA voters reported in the 2020 EAVS. Twenty-two local 

jurisdictions15 reported having 10,000 or more registered UOCAVA voters, and seven reported more 

12 The total number of registered and eligible UOCAVA voters was collected in item B1a of the 2020 EAVS. The number of 

registered and eligible uniformed services UOCAVA voters was collected in item B1b; the percentage of uniformed services 

UOCAVA voters was calculated by dividing B1b by B1a. The number of registered and eligible overseas citizen UOCAVA 

voters was collected in item B1c; the percentage of overseas citizen UOCAVA voters was calculated by dividing B1c by B1a. 

Casewise deletion at the state level was used in calculating the national percentage. In total, 870 jurisdictions in 10 states 

did not report data in B1; this count excludes jurisdictions in Maine, which reported UOCAVA data at the state level and not 

the jurisdiction level. A total of 8,167 registered and eligible voters reported in B1a were not classified as either uniformed 

services or overseas citizens. These percentages exclude the seven states that did not report the number of registered 

UOCAVA voters as well as the state and territory that did not subdivide this number by UOCAVA voter type.

13 According to FVAP’s guidance for service members, “Your voting residence is within your state of legal residence or 

domicile. It is the address that you consider your permanent home and where you had a physical presence. Your state of 

legal residence is used for state income tax purposes, determines eligibility to vote for federal and state elections, and 

qualification for in-state tuition rates.” For more information, see https://www.fvap.gov/military-voter/voting-residence. 14 The total number of registered and eligible UOCAVA voters in a state was calculated by summing B1a across all 

jurisdictions for each state.

15 What constitutes a jurisdiction for EAVS reporting is defined by how each state chose to provide data. For the 2020 

EAVS, most states reported data on the county level (or county equivalent, such as parishes for Louisiana). Illinois, 

Maryland, Missouri, and Virginia reported data for independent cities in addition to counties. The territories, the District of 

Columbia, and Alaska each reported as a single jurisdiction. Connecticut, Maine, Massachusetts, New Hampshire, Rhode 

Island, Vermont, and Wisconsin reported data on the township level. Maine also reported its UOCAVA data in Section B as a 

separate jurisdiction, because this information was only collected at the state level. Michigan reported data for the county 

level, but most election administration activities take place in the 1,520 local election jurisdictions in the state. 
176 | Military and Overseas Voting in 2020 

than 15,000 registered and eligible UOCAVA voters. These seven jurisdictions accounted for 15.3% 

of all registered UOCAVA voters (see Table 1). 

Table 1. Seven Jurisdictions Accounted for 15% of All Registered UOCAVA Voters

Jurisdictions With More Than 15,000 UOCAVA Voters

Jurisdiction Number of Registered and 

Eligible UOCAVA Voters in 2020

Los Angeles County, CA 67,392

King County, WA 31,766

Pierce County, WA 27,023

Miami-Dade County, FL 17,495

New York County, NY 17,008

San Diego County, CA 16,074

Broward County, FL 15,154

Source: Information on the number of registered and eligible UOCAVA voters was item B1a of the 2020 EAVS. Alaska 

reported 16,194 total registered UOCAVA voters and reported as a single jurisdiction in the EAVS; however, it was not 

included in the table because the table focuses on localities rather than complete states.

Figure 2. Most Jurisdictions Had Fewer Than 50 Registered UOCAVA Voters

Source: Information for the number of registered and eligible UOCAVA voters was collected in item B1a of the 2020 EAVS.
Military and Overseas Voting in 2020 | 177

Conversely, of the 5,094 local jurisdictions for which the number of registered UOCAVA voters was 

available, 80.9% reported fewer than 100 registered UOCAVA voters, including 371 jurisdictions that 

reported having zero UOCAVA voters in 2020. Figure 2 shows the number of registered UOCAVA 

voters by jurisdiction.

Election offices reported receiving 764,691 FPCAs ahead of the 2020 general election, which was

almost double the 420,861 FPCAs that states reported receiving ahead of the 2016 general 

election. Overall, 30.3% of these registration and absentee ballot requests came from uniformed 

services members, and 66.9% were submitted by overseas citizens.16 States reported rejecting 2.7% 

of the FPCAs received, of which 15.2% were rejected because the election office received the form 

after their state’s absentee ballot request deadline.17 The FPCA rejection rate among uniformed 

services members was slightly higher than among overseas citizens, with 3.3% of military FPCAs 

rejected compared to 2.3% of FPCAs submitted by overseas citizens.18

UOCAVA Ballots Transmitted

In 2020, election offices in the 50 states, five U.S. territories, and the District of Columbia reported 

transmitting 1,249,601 ballots to UOCAVA voters.19 Figure 3 shows the number of ballots sent out 

from election offices or transmitted for each state. The states colored in dark blue represent the 

states that distributed the most ballots to UOCAVA voters. The states colored in light blue are the 

states that distributed the fewest ballots to UOCAVA voters.

16 Data on the total number of FPCAs submitted was collected in item B2a of the 2020 EAVS. In 2016, this data was 

collected in item B20a. For 2020, the percentage of FPCAs received from uniformed services members was calculated as 

B2b/B2a. The percentage of FPCAs received from overseas citizen voters was calculated as B2c/B2a. Casewise deletion 

was used at the state level in calculating these percentages.

17 The total number of FPCAs rejected was collected in item B3a in the 2020 EAVS; the percentage of FPCAs rejected was 

calculated as B3a/B2a. The percentage of FPCAs rejected because they were received late was calculated as B4a/B3a. 

Casewise deletion was used at the state level in calculating these percentages. 18 The percentage of rejected FPCAs from uniformed services voters was calculated as B3b/B2b. The percentage of 

rejected FPCAs from overseas citizen voters was calculated as B3c/B2c. Overall, 6.9% of rejected FPCAs were not 

categorized by UOCAVA voter type. Casewise deletion was used at the state level in calculating these percentages.

19 The number of transmitted UOCAVA ballots was collected in item B5a of the 2020 EAVS. The number of ballots 

transmitted to UOCAVA voters was reported by all but 36 jurisdictions. Rhode Island did not report data on the number of 

ballots transmitted.
178 | Military and Overseas Voting in 2020 

Figure 3. Ballot Transmissions Were the Highest in States With Large UOCAVA Populations

Source: Information on the number of transmitted UOCAVA ballots was collected in item B5a of the 2020 EAVS. State-level 

data were aggregated from jurisdiction data. Cutoff points in the graph were selected to reflect states that had the lowest 

and highest number of UOCAVA ballots transmitted and to differentiate among the states in between the lowest and 

highest UOCAVA ballot transmission numbers. 

Of the UOCAVA ballots transmitted, 39.4% were sent to uniformed services members, and 60.1% 

were transmitted to overseas citizen voters.20 Figure 4 shows that the percentage of ballots 

transmitted to overseas citizens has continued to rise steadily over the last several election cycles, 

increasing by 15.4 percentage points since the 2012 general election.

Although the nationwide percentage of ballots sent to overseas citizens was greater than the 

percentage sent to uniformed services members, the proportion of ballots sent to overseas citizens 

or uniformed services members varied by state. Kentucky and Louisiana, for example, reported that

UOCAVA ballots were split about evenly between uniformed services members and overseas citizen 

voters; however, the District of Columbia and Massachusetts reported that the vast majority of 

UOCAVA ballots were transmitted to overseas citizens (97.1% and 94.2%, respectively). In Alaska, 

American Samoa, New Mexico, the Northern Mariana Islands, and the U.S. Virgin Islands, more than 

20 The percentage of UOCAVA ballots transmitted to uniformed services voters was calculated as B5b/B5a. The percentage 

of UOCAVA ballots transmitted to overseas citizen voters was calculated as B5c/B5a. Casewise deletion was used at the 

state level when calculating these percentages. An additional 1% of the transmitted ballots could not be classified by voter 

type.
Military and Overseas Voting in 2020 | 179

three-quarters of UOCAVA ballots were transmitted to uniformed services members. Figure 5 shows 

the percentage of ballots transmitted to uniformed services voters versus overseas citizen voters.

Figure 4. Steady Increase in the Percentage of UOCAVA Ballots Transmitted to Overseas Citizens

Relative to Uniformed Services Members

Source: The percentage of UOCAVA ballots transmitted to uniformed services voters was calculated as B1b/B1a x 100 for 

the 2012, 2014, and 2016 EAVS and B5b/B5a x 100 for the 2018 and the 2020 EAVS. The percentage of UOCAVA ballots 

transmitted to overseas citizens was calculated as B1c/B1a x 100 for the 2012, 2014, and 2016 EAVS, and B5c/B5a x 

100 for the 2018 and the 2020 EAVS. Casewise deletion was used at the state level in calculating these percentages; 

percentages may not sum to 100%. Ballots that were not classified as being from either overseas citizens or uniformed 

services voters were not included in this analysis.
180 | Military and Overseas Voting in 2020 

Figure 5. Twenty-Four States Transmitted More UOCAVA Ballots to Uniformed Services Members 

Than to Overseas Citizens

Source: The percentage of UOCAVA ballots transmitted to overseas citizens was calculated as B5c/B5a x 100 for the 2020 

EAVS. The percentage of UOCAVA ballots transmitted to uniformed services voters was calculated as B5b/B5a x 100 for 

the 2020 EAVS. The percentage of uncategorized ballots was calculated as (B5a-B5b-B5c)/B5a x 100 for the 2020 EAVS. 

Casewise deletion was used at the state level in calculating these percentages; percentages may not sum to 100%. Rhode 

Island did not report data on the number of ballots transmitted.
Military and Overseas Voting in 2020 | 181

Modes of UOCAVA Ballot Transmission

Over the last several election cycles, the modes by which absentee ballots have been transmitted to 

voters have changed substantially. Since the passage of the MOVE Act, transmission of ballots to 

UOCAVA voters has increasingly occurred electronically. Email was the most popular method of ballot 

transmission for the 2020 general election, with 62.3% of absentee ballots transmitted to UOCAVA 

voters via email, 32% transmitted via postal mail, and 7.9% sent to voters through some other mode 

of transmission (e.g., fax or online systems).21 By comparison, during the previous presidential 

election cycle in 2016, among states that provided data on transmission by mode, 59.8% of ballots 

were transmitted via email, and in 2018, email represented 56.6% of UOCAVA ballots that were 

transmitted.22 Figure 6 displays the percentage of ballots transmitted by mail, email, or other modes 

for the 2020 general election.

Modes of ballot transmission differed based on UOCAVA voter type. The transmission mode among 

uniformed services members was almost evenly split between mail transmission (47.8%) and email 

transmission (46.7%). For ballots transmitted to overseas citizens, most ballots were transmitted by 

email (70.9%) while ballots transmitted by mail accounted for 22.2% of ballots transmitted. For both 

groups, between 7% and 7.9% of ballots were transmitted by other modes, including fax and online 

ballot delivery portals.

Overall, 1% of all ballots transmitted to UOCAVA voters were returned as undeliverable, including 

mailed ballots returned to sender, emailed ballots that bounced back, and ballots that were 

undeliverable by other modes, such as an incorrect fax number.23

21 The percentage of ballots transmitted by email was calculated as B7a/B5a for the 2020 EAVS. The percentage of ballots 

transmitted by postal mail was calculated as B6a/B5a. The percentage of ballots transmitted by other modes of 

transmission was calculated as B8a/B5a. Casewise deletion was used at the state level in these calculations. All but three 

states reported ballots transmitted by mode in 2020. Two additional states did not report the number of ballots transmitted 

by email. These states were excluded from calculations of the percentage of ballots transmitted by a given mode. However,

the percentages by mode did not change substantively when transmitted ballots from these states were included in 

analysis.

22 Until 2018, questions about mode of ballot receipt and return were asked in relation to the 45-day MOVE Act 

transmission deadline. Specifically, “How many UOCAVA absentee ballots did your jurisdiction transmit to UOCAVA voters 

using the following modes of transmission, before and after the 45-day deadline?” Starting in 2018, the survey was 

updated so that mode questions did not include this distinction. The percentage of ballots transmitted by email was 

calculated as B7a/B5a for the 2018 EAVS. The percentage of ballots transmitted by email was calculated as B24Total/B1a 

for the 2016 EAVS. Casewise deletion was used at the state level in these calculations. In 2016, 27 of the 55 states that 

answered the EAVS provided information on transmission by mode. 23 The percentage of ballots returned as undeliverable was calculated as B13a/B5a. Casewise deletion was used at the 

state level in calculating this percentage. States and jurisdictions vary in the extent to which they are able to capture and

report undeliverable ballots, overall and by mode of transmission.
182 | Military and Overseas Voting in 2020 

Figure 6. Modes of Ballot Transmission Differ for Overseas Citizens and Uniformed Services 

Members

Source: The percentages of UOCAVA ballots transmitted overall were calculated as B7a/B5a x 100 for email, B6a/B5a x 

100 for postal mail, and B8a/B5a x 100 for other modes. The percentages of UOCAVA ballots transmitted to uniformed 

services voters were calculated as B7b/B5b x 100 for email, B6b/B5b x 100 for postal mail, and B8b/B5b x 100 for other 

modes. The percentages of UOCAVA ballots transmitted for overseas citizens were calculated as B7c/B5c x 100 for email, 

B6c/B5c x 100 for postal mail, and B8c/B5c x 100 for other modes. Casewise deletion was used at the state level in 

calculating these percentages; percentages may not sum to 100%.

UOCAVA Ballots Returned and Submitted for Counting

States reported 911,614 regular absentee ballots: 73% of those transmitted to voters (through any 

mode) were returned and submitted for counting by UOCAVA voters for the 2020 general election.24

This is a 39% increase over 2016, when 655,844 regular absentee ballots were returned by UOCAVA

voters.25 Figure 7 shows the UOCAVA ballot return totals by state in 2020. The states colored in dark 

24 The total number of returned UOCAVA ballots was collected in item B9a in the 2020 EAVS. The percentage of transmitted 

UOCAVA ballots that were returned was calculated as B9a/B5a. Casewise deletion at the state level was used in calculating 

this percentage. More than 82% of jurisdictions reported the number of ballots returned and submitted for counting. 

FWABs were reported separately from regular UOCAVA absentee ballots and were not included in these figures. Because 

more than one ballot may be transmitted to an individual voter (e.g., because the original was returned undeliverable or 

was spoiled and replaced), this rate likely underestimates the rate of ballot return by UOCAVA voters.

25 The total number of returned UOCAVA ballots was collected in item B2a in the 2016 EAVS. 
Military and Overseas Voting in 2020 | 183

blue represent the states that had the highest ballot return totals. The states colored in light blue

were the states that had the lowest ballot return totals.

Figure 7. UOCAVA Ballot Return Rates Were the Highest in the Northeast and Midwest

Source: The percentage of transmitted UOCAVA ballots that were returned by voters was calculated as B9a/B5a x 100. 

Casewise deletion was used at the state level in calculating the percentages shown in this map. States are grouped by 

quartiles rounded to the nearest integer.

Of the ballots returned to election offices, 36.3% were returned by uniformed services members, and 

62.9% were returned by overseas citizens.26 Overall, 63.8% of absentee ballots returned and 

submitted for counting by UOCAVA voters were returned to the election office via postal mail, 37.7% 

were returned by email, and 16.5% were returned through some other mode (e.g., fax or an online 

system).27 Twenty-three states indicated that they do not allow or did not report email ballot return. 

26 The percentage of UOCAVA ballots returned by uniformed services members was calculated as B9b/B9a. The percentage 

of UOCAVA ballots returned by overseas citizen voters was calculated as B9c/B9a. Casewise deletion was used at the state 

level in calculating these percentages. 27 The percentage of UOCAVA ballots returned by postal mail was calculated as B10a/B9a. The percentage of UOCAVA 

ballots returned by email was calculated as B11a/B9a. The percentage of UOCAVA ballots returned by some other mode 

was calculated as B12a/B9a. Casewise deletion was used at the state level in calculating these percentages. Four states 

did not report the number of ballots returned by mode and were excluded from all mode analysis. In addition, 23 states did 

not report ballots returned via email, and 28 did not report ballots returned by some other mode. If all states are included 

in the analysis, 61.8% of ballots were returned via mail, 23.1% via email, 11.7% by some other mode, and 3.3% of returned 

ballots were not categorized by mode.
184 | Military and Overseas Voting in 2020 

Among the states that reported UOCAVA ballots returned by email, 42.5% of ballots were returned 

through email, and 45.2% were returned via mail.28

Figure 8. Although Many UOCAVA Voters, Especially Overseas Citizens, Use Email to Return Their 

Completed Absentee Ballot, Postal Mail Is the Primary Mode of Ballot Return

Source: The percentages of UOCAVA ballots returned by mode overall were calculated as B10a/B9a x 100 for postal mail 

and B11a/B9a x 100 for email. The percentages of UOCAVA ballots returned by mode for uniformed services members 

were calculated as B10b/B9b x 100 for postal mail and B11b/B9b x 100 for email. The percentages of UOCAVA ballots 

returned by mode for overseas citizens were calculated as B10c/B9c x 100 for postal mail and B11c/B9c x 100 for email. 

Casewise deletion was used at the state level in calculating these percentages, and because percentages for each type of 

voter and each mode of return were calculated independently and only states that reported data for a given mode of return 

were included in the analysis, the percentages do not sum to 100%. Other modes of ballot return are not shown here.

Although postal mail was the most common mode of ballot return for both uniformed services and 

overseas citizen voters, uniformed services members used email return far less than overseas 

28 Thirty-three states reported at least one email ballot returned (item B11a in the 2020 EAVS). The percentage of ballots 

returned by email was calculated as B11a/B9a among states reporting at least one email ballot returned (item B11a in the 

2020 EAVS). The percentage of ballots returned by mail was calculated as B10a/B9a among states reporting at least one

email ballot returned (item B11a in 2020 EAVS). Casewise deletion was used at the state level in calculating these 

percentages. 
Military and Overseas Voting in 2020 | 185

citizens, with just 18.2% using email to return an absentee ballot versus 51% of overseas citizens.29

Figure 8 displays the method of ballot return for UOCAVA voters by type.

Overall, 889,837 regular absentee ballots returned by UOCAVA voters were counted in the 2020 

general election. Of these votes, 63.1% were cast by overseas citizens and 36.5% by uniformed 

services voters.30 The overall rejection rate for regular absentee ballots returned by UOCAVA voters

was 2.1%, less than half the overall rejection rate of 5.7% reported in 2018.31 The overall rejection 

rate did not differ significantly across UOCAVA voter types.32

Figure 9 shows the number of rejected UOCAVA ballots returned and submitted by voters for 

counting in each state. The states that are colored in dark blue represent the states that reported

the highest number of rejected ballots, and the states that are colored in light blue reported the 

lowest number of rejected ballots. 

Rejected ballots were divided into three reasons for rejection: missed deadline, problem with voter 

signature, and lacked postmark.33 By far the most common reason for rejection was that a ballot 

was received after a state’s deadline for UOCAVA absentee ballot receipt. Of the 19,060returned 

UOCAVA ballots rejected, 8,188 were rejected because they were received after the state deadline, 

which was 43.5% of all UOCAVA ballot rejections.34 Voter signature problems were responsible for 

19.6% of all UOCAVA ballot rejections, 3.3% of ballot rejections were the result of postmark issues, 

and 47.3% of rejections were caused by some other issue.35

29 The percentage of UOCAVA ballots returned by email by uniformed services members was calculated as B11b/B9b. The 

percentage of UOCAVA ballots returned by email by overseas citizens was calculated as B11c/B9c. Of note, two of the 

states with the largest numbers of UOCAVA voters—California and Florida—do not allow email return of absentee ballots. 30 The total number of UOCAVA ballots that were returned by voters and counted was collected in item B14a of the 2020 

EAVS. The percentage of ballots that were returned by uniformed services members was calculated as B14b/B14a. The 

percentage of ballots that were returned by overseas citizen voters was calculated as B14c/B14a. Casewise deletion was 

used at the state level in calculating these percentages. An additional 12,919 (1.5%) UOCAVA absentee ballots counted 

were not classified by voter type.

31 Before survey revisions were made in the 2018 EAVS, UOCAVA ballot rejection data included both regular absentee 

ballots and FWABs, making direct comparisons with years before 2018 complicated. The 2016 ballot rejection rate was 

calculated as (B16a+B16b+B16c)/B26b and produced an overall rejection rate of 2.4%. 32 The rejection rate for UOCAVA ballots was calculated as B18a/B9a for the 2018 and 2020 EAVS. The percentage of 

ballots rejected from uniformed services voters was calculated as B18b/B9b. The percentage of ballots rejected from 

overseas citizen voters was calculated as B18c/B9c. Casewise deletion was used at the state level in calculating these 

percentages. The rejection rate for returned ballots was 2% for uniformed services members, 2.1% for overseas citizens, 

and 6.3% among rejected ballots not classified by voter type. 33 Two states (Mississippi and Rhode Island) and four U.S. territories (American Samoa, the Northern Mariana Islands, 

Puerto Rico, and U.S. Virgin Islands) did not report the number of ballots rejected. The number of ballots rejected was

reported for 81.7% of jurisdictions nationwide. Most of these jurisdictions also subdivided rejected ballots by reason for 

rejection. New Jersey was not able to separate regular UOCAVA ballots from FWABs; information on all of the UOCAVA 

ballots rejected in New Jersey in the 2018 election is available in the survey comments. 34 The total number of UOCAVA ballots rejected for being received after the state deadline was item B19a of the 2020 

EAVS. The percentage of UOCAVA ballots rejected for being received late was calculated as B19a/B18a. Casewise deletion 

was used at the state level in calculating this percentage.

35 The percentage of UOCAVA ballots rejected because of signature issues was calculated as B20a/B18a. The percentage 

of UOCAVA ballots rejected because of postmark issues was calculated as B21a/B18a. The percentage of UOCAVA ballots 

rejected for other reasons was calculated as B22a/B18a. Casewise deletion was used at the state level in calculating 

these percentages. The increase in “other” reasons for rejection may reflect a large increase in the use of this category by 

certain states, in particular New York with 2,098 (71.5% of their rejections) and Virginia 2,531 (217.3% of their rejections). 

These two states accounted for more than half of the total “other” rejections.
186 | Military and Overseas Voting in 2020 

Figure 9. UOCAVA Ballot Rejection Rates Vary Significantly Across States

Source: The percentage of returned UOCAVA ballots that were rejected includes regular UOCAVA absentee ballots that 

were rejected (item B18a in the 2020 EAVS), divided by the total number of regular UOCAVA absentee ballots received 

(item B9a in the 2020 EAVS). Casewise deletion was used at the state level in calculating the percentages shown in this 

map. Cutoff points in the graph were selected to reflect states that had the lowest and highest percentage of UOCAVA 

ballot rejection rates and to differentiate among the states in between the lowest and highest UOCAVA ballot rejection 

rates. 

Uniformed services members and overseas citizen UOCAVA ballots were rejected for similar reasons. 

Missing the deadline was the most common reason for rejection among both populations—44.7% for 

uniformed services members and 41.3% for overseas citizens. Signature issues were the cause of 

27.3% of ballot rejections for ballots returned by uniformed services members, almost twice the 

percentage of overseas citizen ballots rejected for this reason (13.7%).36

36 The percentage of ballots rejected for missing the deadline was calculated as B19b/B18b for uniformed services voters 

and B19c/B18c for overseas citizens. The percentage of ballots rejected because of signature issues was calculated as 

B20b/B18b for uniformed services voters and B20c/B18c for overseas citizens. Casewise deletion was used at the state 

level in calculating these percentages.
Military and Overseas Voting in 2020 | 187

Federal Write-In Absentee Ballots

If a regular absentee ballot does not arrive in time for an individual to vote, the FWAB functions as a 

backup ballot that can be used to vote for all federal offices and, in some states, state and local 

offices as well. 

Although the 33,027 FWABs submitted in 2020 made up a relatively small proportion (3.8%) of all 

the UOCAVA ballots returned, there was a 41.1% increase in the volume of FWABs reported 

compared to the 2016 presidential election.37 Despite the increase from previous elections, FWAB 

usage remains a relatively small proportion of the UOCAVA methods of voting among both uniformed 

services members and overseas citizen voters. However, the FWAB resulted in 23,897 additional 

UOCAVA voters’ ballots counted in the 2020 general election, with 24.2% of these additional 

voters from uniformed services members and 73.2% from overseas citizens.38 Thirteen states and 

territories reported that they received no FWABs during the 2020 presidential election.39

Roughly one in four (8,438 or 25.6%) of the 33,027 FWABs submitted in the 2020 general election 

were not counted. Of these, 3,965 FWABs—47.1% of the rejected FWABs—were replaced by a regular 

absentee ballot, making the backup ballot unnecessary.40 The rate of uncounted FWABs returned by 

uniformed services members was similar to the rate of uncounted FWABs returned by overseas 

citizens—27.6% and 21.5%, respectively.41 The other major reason FWABs went uncounted (and the 

37 The percentage of all ballots returned that were FWABs was calculated using the total number of FWABs received (B23a) 

divided by the total number of UOCAVA ballots received (the sum of B9a and B23a). Casewise deletion was used at the 

state level in calculating this percentage. The total number of FWABs received was collected in item B23a in the 2020 

EAVS and the sum of B31a, B31b, B31c, and B31d in the 2016 EAVS. In 2016, states reported receiving 23,412 FWABs. 

For 2020, The total number of FWABs returned was based on 82.1% of jurisdictions for which this information was

available.

38 The total number of FWABs received and counted was item B24a of the 2020 EAVS. The number of FWABs counted from 

uniformed services members was item B24b, and the number of FWABs counted from overseas citizens was item B24c. 

The percentage of counted FWABs returned by uniformed services members was calculated as B24b/B24a. The 

percentage of counted FWABs returned by overseas citizens was calculated as B24c/B24a. Casewise deletion was used at 

the state level in calculating this percentage.

39 American Samoa, Guam, and Puerto Rico reported receiving zero FWABs. Georgia, Iowa, Oregon, and South Carolina 

reported FWABs with regular UOCAVA ballots because they could not separate the two types.

40 The number of FWABs rejected because the voter’s regular absentee ballot was received and counted was item B26a of 

the 2020 EAVS. The percentage of rejected FWABs that were rejected for this reason was calculated as 

B26a/(B25a+B26a+B27a). Casewise deletion at the state level was used in calculating the percentage. 41 The total percentage of FWABs rejected was calculated as (B25a+B26a+B27a)/B23a. The percentage of FWABs 

rejected from uniformed services members was calculated as (B25b+B26b+B27b)/B23b. The percentage of FWABs 

rejected from overseas citizen voters was calculated as (B25c+B26c+B27c)/B23c. Casewise deletion was used at the 

state level in calculating these percentages.

The Federal Write-In Absentee Ballot (FWAB) 

The FWAB is a special type of UOCAVA ballot that may be used as a backup in the event that a voter’s 

regular absentee ballot does not arrive in time to vote. In most states, a UOCAVA voter must have 

registered and requested an absentee ballot in order to use the FWAB.
188 | Military and Overseas Voting in 2020 

only other reason states reported via the EAVS) was because they were received after the ballot 

receipt deadline (13.1% of rejected FWABs).42

42 The percentage of rejected FWABs that were rejected because they were received after the deadline was calculated as 

B25a/(B25a+B26a+B27a). Casewise deletion at the state level was used in this calculation.
Military and Overseas Voting in 2020 | 189

Appendix A: Descriptive Tables

UOCAVA Table 1: Registered and Eligible UOCAVA Voters

State

Registered UOCAVA Voters

All UOCAVA 

Voters

Uniformed Services 

Members Overseas Citizens Not Categorized by Voter Type

Total % Total % Total %

Alabama [1] -- -- -- -- -- -- --

Alaska 16,194 12,285 75.9 3,909 24.1 0 0.0

American 

Samoa 214 183 85.5 31 14.5 0 0.0 

Arizona 21,661 8,187 37.8 13,474 62.2 0 0.0 

Arkansas 3,347 1,671 49.9 1,291 38.6 385 11.5 

California 187,213 42,249 22.6 144,779 77.3 185 0.1 

Colorado 42,291 15,114 35.7 27,177 64.3 0 0.0 

Connecticut [2] -- -- -- -- -- -- --

Delaware 2,899 640 22.1 2,259 77.9 0 0.0 

District of 

Columbia 6,003 186 3.1 5,817 96.9 0 0.0 

Florida 191,628 120,241 62.7 71,387 37.3 0 0.0 

Georgia 27,252 14,223 52.2 13,029 47.8 0 0.0 

Guam 120 76 63.3 44 36.7 0 0.0 

Hawaii 4,835 1,212 25.1 3,262 67.5 361 7.5 

Idaho 3,886 1,959 50.4 1,925 49.5 2 0.1 

Illinois 30,274 7,585 25.1 22,626 74.7 63 0.2 

Indiana 23,188 11,376 49.1 11,812 50.9 0 0.0 

Iowa 6,772 2,182 32.2 4,580 67.6 10 0.1 

Kansas [3] -- -- -- -- -- -- --

Kentucky 6,887 3,402 49.4 3,485 50.6 0 0.0 

Louisiana 8,950 4,701 52.5 4,249 47.5 0 0.0 

Maine 6,527 1,369 21.0 5,158 79.0 0 0.0 

Maryland 27,454 9,228 33.6 18,226 66.4 0 0.0 

Massachusetts 29,184 1,719 5.9 27,465 94.1 0 0.0 

Michigan 26,866 6,833 25.4 20,033 74.6 0 0.0 

Minnesota 19,243 5,230 27.2 14,013 72.8 0 0.0 

Mississippi 3,721 2,446 65.7 1,275 34.3 0 0.0 

Missouri [1] -- -- -- -- -- -- --

Montana 5,110 2,549 49.9 2,561 50.1 0 0.0 

Nebraska 3,059 1,206 39.4 1,853 60.6 0 0.0 

Nevada 8,847 3,515 39.7 5,332 60.3 0 0.0 

New Hampshire 7,165 2,506 35.0 4,659 65.0 0 0.0 

New Jersey 26,959 2,654 9.8 24,305 90.2 0 0.0 
190 | Military and Overseas Voting in 2020 

State

Registered UOCAVA Voters

All UOCAVA 

Voters

Uniformed Services 

Members Overseas Citizens Not Categorized by Voter Type

Total % Total % Total % 

New Mexico 6,365 4,813 75.6 1,552 24.4 0 0.0 

New York 67,931 6,913 10.2 61,018 89.8 0 0.0 

North Carolina 33,413 14,886 44.6 18,527 55.4 0 0.0 

North Dakota 

[4] -- -- -- -- -- -- --

Northern 

Mariana Islands 25 25 100.0 0 0.0 0 0.0 

Ohio [5] -- -- -- -- -- -- --

Oklahoma 8,647 5,768 66.7 2,879 33.3 0 0.0 

Oregon 20,477 6,370 31.1 14,107 68.9 0 0.0 

Pennsylvania 35,597 11,515 32.3 24,082 67.7 0 0.0 

Puerto Rico [6] 587 -- -- -- -- 587 100.0 

Rhode Island [7] 3,084 -- -- -- -- 3,084 100.0 

South Carolina 15,062 8,147 54.1 6,915 45.9 0 0.0 

South Dakota 3,583 2,214 61.8 1,369 38.2 0 0.0 

Tennessee 17,927 11,017 61.5 6,910 38.5 0 0.0 

Texas 85,972 46,908 54.6 35,574 41.4 3,490 4.1 

U.S. Virgin 

Islands 13 13 100.0 0 0.0 0 0.0 

Utah 7,707 3,150 40.9 4,557 59.1 0 0.0 

Vermont [8] -- -- -- -- -- -- --

Virginia 41,063 14,841 36.1 26,222 63.9 0 0.0 

Washington 127,976 84,227 65.8 43,749 34.2 0 0.0 

West Virginia 2,531 1,459 57.6 1,072 42.4 0 0.0 

Wisconsin 25,956 18,240 70.3 7,716 29.7 0 0.0 

Wyoming 1,964 1,095 55.8 869 44.2 0 0.0 

U.S. Total 1,253,629 528,328 42.3 717,134 57.4 8,167 0.7 

UOCAVA Table 1 Calculation Notes: 

Registered Voters – All UOCAVA Voters, Total uses question B1a.

Registered Voters – Uniformed Services Members, Total uses question B1b.

Registered Voters – Uniformed Services Members, % uses question B1b divided by question B1a.

Registered Voters – Overseas Citizens, Total uses question B1c.

Registered Voters – Overseas Citizens, % uses question B1c divided by question B1a.

Registered Voters – Not Categorized by Voter Type, Total uses question B1a minus the sum of questions 

B1b and B1c.

Registered Voters – Not Categorized by Voter Type, % uses question B1a minus the sum of questions B1b 

and B1c, all divided by question B1a.
Military and Overseas Voting in 2020 | 191

UOCAVA Table 1 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

[1] Alabama and Missouri reported that data on the number of registered UOCAVA voters were not

available.

[2] Connecticut reported that data on the number of registered UOCAVA voters were “not collected due to

COVID.”

[3] Kansas did not provide any response to item B1.

[4] North Dakota does not have voter registration.

[5] Ohio noted in a survey comment that “As Ohio permits UOCAVA voters to register by several means

other than a FPCA or FWAP [sic], we cannot accurately provide the actual number of UOCAVA voters in our

state.”

[6] Puerto Rico noted in a survey comment that “At this moment, PR SEC doesn’t have the data break

down by categories.” This abbreviation was not defined by the state.

[7] Rhode Island noted in a survey comment that “[A]ccording to RI general law all UOCAVA mail ballots are

consolidated into one mail ballot category.”

[8] Vermont reported that item B1 did not apply to the state.
192 | Military and Overseas Voting in 2020 

UOCAVA Table 2: Federal Post Card Applications (FPCA)

State

FPCAs Received

Total FPCAs 

Received

Uniformed Services Members Overseas Citizens Not Categorized

Total 

% of Total 

FPCAs 

Received

Total 

% of Total 

FPCAs 

Received

Total 

% of Total 

FPCAs 

Received

Alabama 3,578 2,320 64.8 1,258 35.2 0 0.0

Alaska 3,001 2,049 68.3 952 31.7 0 0.0

American 

Samoa 12 8 66.7 4 33.3 0 0.0

Arizona 21,889 6,375 29.1 10,242 46.8 5,272 24.1 

Arkansas 956 421 44.0 547 57.2 -12 -1.3

California 117,618 22,131 18.8 85,296 72.5 10,191 8.7

Colorado [1] 11,584 2,288 19.8 9,296 80.2 0 0.0

Connecticut 

[2] -- -- -- -- -- -- --

Delaware 2,918 644 22.1 2,274 77.9 0 0.0

District of 

Columbia 2,353 186 7.9 2,167 92.1 0 0.0

Florida 39,113 17,839 45.6 21,274 54.4 0 0.0

Georgia 3,945 1,175 29.8 2,770 70.2 0 0.0

Guam 55 35 63.6 20 36.4 0 0.0

Hawaii 4,534 1,106 24.4 2,938 64.8 490 10.8

Idaho 3,285 1,515 46.1 1,770 53.9 0 0.0

Illinois 25,678 5,838 22.7 19,777 77.0 63 0.2

Indiana 7,991 2,359 29.5 5,632 70.5 0 0.0

Iowa [3] 6,772 -- -- -- -- 6,772 100.0

Kansas 5,611 2,691 48.0 3,705 66.0 -785 -14.0

Kentucky 7,667 3,738 48.8 3,929 51.2 0 0.0

Louisiana [4] 1,552 -- -- -- -- 1,552 100.0

Maine [5] -- -- -- -- -- -- --

Maryland 27,492 9,239 33.6 18,253 66.4 0 0.0

Massachusetts 25,487 1,295 5.1 24,192 94.9 0 0.0

Michigan [6] 20,945 4,879 23.3 16,066 76.7 0 0.0

Minnesota 19,154 5,217 27.2 13,937 72.8 0 0.0

Mississippi [7] 3,717 -- -- -- -- 3,717 100.0 

Missouri [8] 1,803 -- -- -- -- 1,803 100.0 

Montana [9] 3,976 1,989 50.0 1,987 50.0 0 0.0

Nebraska 2,853 1,097 38.5 1,756 61.5 0 0.0

Nevada 8,738 3,448 39.5 5,290 60.5 0 0.0

New 

Hampshire 7,165 2,506 35.0 4,659 65.0 0 0.0

New Jersey 25,152 2,557 10.2 22,595 89.8 0 0.0

New Mexico 2,159 687 31.8 1,472 68.2 0 0.0
Military and Overseas Voting in 2020 | 193

State

FPCAs Received

Total FPCAs 

Received

Uniformed Services Members Overseas Citizens Not Categorized

Total 

% of Total 

FPCAs 

Received

Total 

% of Total 

FPCAs 

Received

Total 

% of Total 

FPCAs 

Received

New York 67,931 6,913 10.2 61,018 89.8 0 0.0

North Carolina 25,573 10,088 39.4 15,485 60.6 0 0.0

North Dakota 339 189 55.8 150 44.2 0 0.0

Northern 

Mariana 

Islands [10]

25 25 100.0 0 0.0 0 0.0

Ohio [11] 25,719 9,311 36.2 16,408 63.8 0 0.0

Oklahoma 8,311 5,582 67.2 2,729 32.8 0 0.0

Oregon [12] 2,683 -- -- -- -- 2,683 100.0 

Pennsylvania 32,027 9,330 29.1 22,697 70.9 0 0.0

Puerto Rico

[13] -- -- -- -- -- -- --

Rhode Island

[14] -- -- -- -- -- -- --

South Carolina

[6], [15] -- -- -- -- -- -- --

South Dakota 74 59 79.7 15 20.3 0 0.0

Tennessee 16,713 10,266 61.4 6,447 38.6 0 0.0

Texas 87,645 45,751 52.2 35,526 40.5 6,368 7.3

U.S. Virgin 

Islands 6 6 100.0 0 0.0 0 0.0

Utah 4,299 1,208 28.1 3,091 71.9 0 0.0

Vermont [15] -- -- -- -- -- -- --

Virginia [6] 40,408 14,524 35.9 25,884 64.1 0 0.0

Washington 27,524 5,206 18.9 22,318 81.1 0 0.0

West Virginia 1,632 823 50.4 809 49.6 0 0.0

Wisconsin [16] 3,886 759 19.5 3,127 80.5 0 0.0

Wyoming 1,143 669 58.5 474 41.5 0 0.0

U.S. Total 764,691 226,341 30.3 500,236 66.9 38,114 5.0
194 | Military and Overseas Voting in 2020 

State

FPCAs Rejected

Total 

FPCAs 

Rejected

% of 

FPCAs 

Received

Uniformed Services 

Members Overseas Citizens Not Categorized

Total 

% of 

Received 

from 

Uniformed 

Services

Total 

% of 

Received 

from 

Overseas 

Citizens

Total 

% of Total 

FPCAs 

Rejected

Alabama 43 1.2 34 1.5 6 0.5 3 7.0

Alaska 57 1.9 45 2.2 12 1.3 0 0.0

American 

Samoa 0 0.0 0 0.0 0 0.0 0 --

Arizona 42 0.2 18 0.3 20 0.2 4 9.5

Arkansas 7 0.7 6 1.4 7 1.3 -6 -85.7

California 9,602 8.2 2,830 12.8 6,644 7.8 128 1.3

Colorado [1] 0 0.0 0 0.0 0 0.0 0 --

Connecticut 

[2] -- -- -- -- -- -- -- --

Delaware 11 0.4 2 0.3 9 0.4 0 0.0

District of 

Columbia 73 3.1 0 0.0 73 3.4 0 0.0

Florida 896 2.3 360 2.0 530 2.5 6 0.7

Georgia 244 6.2 73 6.2 171 6.2 0 0.0

Guam 26 47.3 15 42.9 11 55.0 0 0.0

Hawaii 13 0.3 0 0.0 0 0.0 13 100.0 

Idaho 37 1.1 15 1.0 19 1.1 3 8.1

Illinois 364 1.4 72 1.2 290 1.5 2 0.5

Indiana 74 0.9 15 0.6 59 1.0 0 0.0

Iowa [3] -- -- -- -- -- -- -- --

Kansas 39 0.7 17 0.6 22 0.6 0 0.0

Kentucky 1,415 18.5 740 19.8 675 17.2 0 0.0

Louisiana [4] 2 0.1 -- -- -- -- 2 100.0 

Maine [5] -- -- -- -- -- -- -- --

Maryland 50 0.2 15 0.2 35 0.2 0 0.0

Massachusett

s 156 0.6 37 2.9 119 0.5 0 0.0

Michigan [6] -- -- -- -- -- -- -- --

Minnesota 220 1.1 86 1.6 134 1.0 0 0.0

Mississippi [7] 1 0.0 0 -- 1 -- 0 0.0

Missouri [8] -- -- -- -- -- -- -- --

Montana [9] 5 0.1 3 0.2 2 0.1 0 0.0

Nebraska 13 0.5 7 0.6 6 0.3 0 0.0

Nevada 36 0.4 14 0.4 22 0.4 0 0.0

New 

Hampshire 4 0.1 0 0.0 4 0.1 0 0.0

New Jersey 14 0.1 1 0.0 13 0.1 0 0.0

New Mexico 442 20.5 214 31.1 228 15.5 0 0.0

New York 0 0.0 0 0.0 0 0.0 0 --
Military and Overseas Voting in 2020 | 195

State

FPCAs Rejected

Total 

FPCAs 

Rejected

% of 

FPCAs 

Received

Uniformed Services 

Members Overseas Citizens Not Categorized

Total 

% of 

Received 

from 

Uniformed 

Services

Total 

% of 

Received 

from 

Overseas 

Citizens

Total 

% of Total 

FPCAs 

Rejected

North Carolina 318 1.2 109 1.1 209 1.3 0 0.0

North Dakota 140 41.3 79 41.8 61 40.7 0 0.0

Northern 

Mariana 

Islands [10]

0 0.0 0 0.0 0 -- 0 --

Ohio [11] 860 3.3 272 2.9 405 2.5 183 21.3 

Oklahoma 0 0.0 0 0.0 0 0.0 0 --

Oregon [12] -- -- -- -- -- -- -- --

Pennsylvania 69 0.2 17 0.2 52 0.2 0 0.0

Puerto Rico

[13] -- -- -- -- -- -- -- --

Rhode Island

[14] -- -- -- -- -- -- -- --

South Carolina

[6], [15] -- -- -- -- -- -- -- --

South Dakota 2 2.7 1 1.7 1 6.7 0 0.0

Tennessee 562 3.4 494 4.8 68 1.1 0 0.0

Texas 3,894 4.4 1,617 3.5 1,258 3.5 1,019 26.2 

U.S. Virgin 

Islands 0 0.0 0 0.0 0 -- 0 --

Utah 8 0.2 6 0.5 2 0.1 0 0.0

Vermont [15] -- -- -- -- -- -- -- --

Virginia [6] 121 0.3 52 0.4 69 0.3 0 0.0

Washington 0 0.0 0 0.0 0 0.0 0 --

West Virginia 7 0.4 5 0.6 2 0.2 0 0.0

Wisconsin [16] 0 0.0 0 0.0 0 0.0 0 --

Wyoming 7 0.6 4 0.6 3 0.6 0 0.0

U.S. Total 19,874 2.7 7,275 3.3 11,242 2.3 1,357 6.8

UOCAVA Table 2 Calculation Notes: 

Total FPCAs received uses question B2a.

FPCAs received – Uniformed Services Members, Total uses question B2b.

FPCAs received – Uniformed Services Members, Pct of Total FPCAs Received uses question B2b divided by 

question B2a.

FPCAs received – Overseas Citizens, Total uses question B2c.

FPCAs received – Overseas Citizens, Pct of Total FPCAs Received uses question B2c divided by question 

B2a. 

FPCAs received – Not Categorized by Voter Type, Total uses question B2a minus the sum of questions B2b 

and B2c.

FPCAs received – Not Categorized by Voter Type, Pct of Total FPCAs Received uses question B2a minus the 

sum of questions B2b and B2c, all divided by question B2a.

Total FPCAs rejected uses question B3a.
196 | Military and Overseas Voting in 2020 

Percent of FPCAs received that were rejected uses question B3a divided by question B2a.

FPCAs rejected – Uniformed Services Members, Total uses question B3b.

FPCAs rejected – Uniformed Services Members, % uses question B3b divided by question B2b.

FPCAs rejected – Overseas Citizens, Total uses question B3c.

FPCAs rejected – Overseas Citizens, % uses question B3c divided by question B2c.

FPCAs rejected – Not Categorized by Voter Type, Total uses question B3a minus the sum of questions B3b 

and B3c.

FPCAs rejected – Not Categorized by Voter Type, % uses question B3a minus the sum of questions B3b 

and B3c, all divided by question B3a.

UOCAVA Table 2 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from the states that provided data for

the numerator and denominator of the calculation.

• Negative numbers in the Not Categorized FPCAs received or rejected categories indicate that the

sum of FPCAs for uniformed services members and overseas citizens in that category account for

more than the total number of FPCAs reported by the state in the corresponding category.

[1] Connecticut reported that data on FPCAs were not available and that “[N]o distinction [was] made for

these voters.”

[2] Colorado noted in a survey comment that “FPCAs are not rejected; if not completed by the voter, the

voter is incomplete or pending.”

[3] Iowa reported data on the total number of FPCAs received but not on how many were received by voter

type or how many FPCAs were rejected. This state noted in a survey comment that “[S]ystem does not

allow me to show breakdown between these two types of UOCAVA voters.” The state also noted that

“FPCAs can be accepted up to and including Election Day.”

[4] Louisiana reported data on the total number of FPCAs received and rejected and noted in a survey

comment that “[T]he Department of State only collects data for the totals.”

[5] Maine reported that the EAVS items related to FPCAs did not apply to the state.

[6] Michigan, South Carolina, and Virginia reported that data on rejected FPCAs were not available.

[7] Mississippi reported in a survey comment that “FPCA by military or out of county not clearly defined in

SEMS [Statewide Elections Management System].”

[8] Missouri reported data on the total number of FPCAs received but not on how many were received by

voter type or how many FPCAs were rejected.

[9] Montana noted in survey comments that the state “accepts absentee registrations up until 8PM on

Election Day.”

[10] The Northern Mariana Islands reported in survey comments that “[O]ur office did not receive any FPCA

applicants.”

[11] Ohio noted for multiple counties that “[T]otal in B3a includes B4a; however, source information [for

[military/overseas voters] for B4a is not tracked. [B]ecause of this, B3b + B3c will not always equal B3a.”

[12] Oregon reported in survey comments that the state is “unable to separate uniformed services from

non-military overseas” and that data on rejected FPCAs is not tracked.

[13] Puerto Rico reported that data on FPCAs was not available, with a survey comment that “all the

requests were made by email.”

[14] Rhode Island noted in a survey comment that “[A]ccording to RI general law all UOCAVA mail ballots

are consolidated into one mail ballot category.”

[15] South Carolina and Vermont reported that data on FPCAs were not available.
Military and Overseas Voting in 2020 | 197

[16] Wisconsin state statute does not require rejected registrations or FPCAs to be tracked.
198 | Military and Overseas Voting in 2020 

UOCAVA Table 3: UOCAVA Ballots Transmitted, Returned, Counted and Rejected

State

UOCAVA 

Ballots 

Transmitted

UOCAVA 

Ballots 

Returned

UOCAVA Ballots Counted UOCAVA Ballots Rejected

Total % of Returned Total % of Returned

Alabama 6,682 5,144 5,091 99.0 53 1.0 

Alaska 16,152 13,598 13,422 98.7 176 1.3 

American 

Samoa 214 214 214 100.0 0 0.0 

Arizona 21,679 18,483 18,435 99.7 48 0.3 

Arkansas 3,042 2,206 2,104 95.4 465 21.1 

California 162,295 97,301 95,872 98.5 1,419 1.5 

Colorado 45,558 29,631 28,762 97.1 869 2.9 

Connecticut 9,950 7,874 7,689 97.7 185 2.3 

Delaware 2,899 2,429 2,305 94.9 124 5.1 

District of 

Columbia 6,003 4,990 4,990 100.0 9 0.2 

Florida 144,678 117,965 115,975 98.3 2,127 1.8 

Georgia [1] 28,454 18,867 18,475 97.9 392 2.1 

Guam 120 69 65 94.2 4 5.8 

Hawaii 4,623 3,624 3,503 96.7 36 1.0 

Idaho [2] 4,449 3,230 3,442 106.6 90 2.8 

Illinois 29,614 24,358 23,302 95.7 462 1.9 

Indiana 10,325 8,814 8,773 99.5 34 0.4 

Iowa [1] 6,776 6,000 5,980 99.7 29 0.5 

Kansas 5,551 4,990 4,980 99.8 23 0.5 

Kentucky 6,252 4,669 4,664 99.9 5 0.1 

Louisiana [3] 9,131 6,132 5,872 95.8 260 4.2 

Maine 6,421 5,701 5,674 99.5 21 0.4 

Maryland 29,060 21,593 21,315 98.7 278 1.3 

Massachusetts 28,533 24,890 24,685 99.2 140 0.6 

Michigan 27,026 22,492 21,464 95.4 1,028 4.6 

Minnesota 19,383 15,943 15,407 96.6 536 3.4 

Mississippi 3,717 2,967 2,965 99.9 0 0.0 

Missouri 13,458 10,821 10,716 99.0 105 1.0 

Montana [4] 4,944 4,323 4,312 99.7 11 0.3 

Nebraska 2,978 2,643 2,627 99.4 16 0.6 

Nevada 8,850 7,258 7,224 99.5 34 0.5 

New Hampshire 7,165 6,327 6,167 97.5 160 2.5 

New Jersey 26,959 11,732 11,634 99.2 81 0.7 

New Mexico 6,292 6,292 5,261 83.6 71 1.1 

New York [5] 58,393 69,585 66,706 95.9 2,936 4.2 

North Carolina 58,993 26,802 26,386 98.4 416 1.6 

North Dakota 1,900 1,633 1,624 99.4 18 1.1 
Military and Overseas Voting in 2020 | 199

State

UOCAVA 

Ballots 

Transmitted

UOCAVA 

Ballots 

Returned

UOCAVA Ballots Counted UOCAVA Ballots Rejected

Total % of Returned Total % of Returned

Northern 

Mariana 

Islands [6]

25 25 25 100.0 -- --

Ohio 25,742 21,601 21,388 99.0 213 1.0 

Oklahoma 8,687 6,355 6,204 97.6 151 2.4 

Oregon [1] 20,477 16,751 16,534 98.7 217 1.3 

Pennsylvania 33,772 26,952 25,589 94.9 1,363 5.1 

Puerto Rico [7] 587 587 587 100.0 -- --

Rhode Island 

[8] -- -- -- -- -- --

South Carolina 

[1], [9] 14,874 12,963 12,906 99.6 57 0.4 

South Dakota 3,159 3,059 2,939 96.1 122 4.0 

Tennessee 17,927 14,884 14,444 97.0 440 3.0 

Texas 85,972 62,651 59,380 94.8 1,399 2.2 

U.S. Virgin 

Islands [10] 13 8 8 100.0 -- --

Utah 9,087 5,820 5,798 99.6 22 0.4 

Vermont 2,753 2,753 2,723 98.9 30 1.1 

Virginia 41,063 33,045 31,880 96.5 1,165 3.5 

Washington 134,777 64,632 63,954 99.0 678 1.0 

West Virginia 2,549 2,167 2,162 99.8 5 0.2 

Wisconsin [11] 17,642 14,057 13,530 96.3 527 3.7 

Wyoming 1,976 1,714 1,704 99.4 10 0.6 

U.S. Total 1,249,601 911,614 889,837 97.6 19,060 2.1 

UOCAVA Table 3 Calculation Notes: 

UOCAVA Ballots Transmitted uses question B5a.

UOCAVA Ballots Returned uses question B9a.

UOCAVA Ballots Counted, Total uses question B14a.

UOCAVA Ballots Counted, % of Returned uses question B14a divided by B9a.

UOCAVA Ballots Rejected, Total uses question B18a.

UOCAVA Ballots Rejected, % of Returned uses question B18a divided by B9a.

UOCAVA Table 3 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

[1] Georgia, Iowa, Oregon, and South Carolina reported that data on FWABs were included in the EAVS

items related to UOCAVA absentee ballots because FWABs cannot be distinguished from regular UOCAVA

absentee ballots.
200 | Military and Overseas Voting in 2020 

[2] Kootenai County in Idaho responded “Data not available” to the number of UOCAVA ballots returned

(B9a) and reported 317 UOCAVA ballots counted (B14a). Because of these responses, the total number of

UOCAVA ballots received at the state level was lower than the total number of UOCAVA ballots counted,

and the percentage of counted ballots exceeded 100% in Idaho.

[3] Louisiana noted in a survey comment that “[T]he registrar sometimes transmits multiple ballots to voter

(i.e. the voter did not [receive] the original ballot or the original ballot is returned as undeliverable).”

[4] Montana noted in a survey comment that “[B]allots issued may exceed voter registration due to

replacement ballot issued.”

[5] New York noted in a survey comment that “While the UOCAVA data reflects information provided by the

counties, it does not address the variable that voters may return more than one ballot. The following

further addresses this variable:

(1) If voters have electronic access to their ballot, they could potentially download and print the

documents more than once and subsequently return them to the county boards.

(2) Some county boards mail a ballot to every UOCAVA voter, regardless of their transmission preference.

Due to this, voters who already received their ballot electronically, completed and returned it, may

subsequently receive a physical ballot in the mail. This may result in such voters returning this

additional ballot.

(3) Additional data collected by NYS BOE [New York State Board of Elections] has shown that more than

1700 UOCAVA voters returned multiple ballots, although the data does not report how many ballots

each of these voters returned.”

[6] The Northern Mariana Islands and the U.S. Virgin Islands reported that items related to rejected

UOCAVA absentee ballots did not apply.

[7] Puerto Rico reported that data in items related to rejected UOCAVA absentee ballots did not apply.

[8] Rhode Island noted in a survey comment that “[A]ccording to RI general law all UOCAVA mail ballots are

consolidated into one mail ballot category.”

[9] South Carolina noted in a survey comment that “UOCAVA ballots counted equals UOCAVA ballots

returned before deadline. No data available on UOCAVA ballots that may have been challenged.”

[10] The U.S. Virgin Islands reported that items related to rejected UOCAVA absentee ballots did not apply,

with a survey comment that “[T]he five voters did not return their ballots that were sent to them.”

[11] In Wisconsin, other methods of transmitting UOCAVA ballots include online ballot delivery, fax, or

email. There were some UOCAVA voters who voted at the polls on Election Day, rather than by UOCAVA

absentee ballot; these voters are not included in Section B but are included in the numbers for Section D.

Wisconsin does not have a postmark requirement for absentee ballots; absentee ballots must be received

by the local clerk before polls close on Election Day. Many Wisconsin jurisdictions track the return of

ballots received after Election Day, but they are not required to do so. Counts reported for “Ballot not

received on time/missed deadline” represent the ballots that have been tracked in this way. In Wisconsin,

ballots missing a postmark are counted if they otherwise qualify; therefore, there are no ballots rejected

for this reason.
Military and Overseas Voting in 2020 | 201

UOCAVA Table 4: Federal Write-In Absentee Ballots (FWAB)

State

Total 

FWABs 

Received

FWABs Counted FWABs Rejected FWABs Not Categorized

Total % of Total 

Received Total % of Total Received Total % of Total Received

Alabama 254 190 74.8 64 25.2 0 0.0 

Alaska 155 97 62.6 58 37.4 0 0.0 

American 

Samoa 0 0 -- 0 -- 0 --

Arizona 236 186 78.8 50 21.2 0 0.0 

Arkansas 45 43 95.6 2 4.4 0 0.0 

California [1] 3,474 1,723 49.6 1,575 45.3 176 5.1 

Colorado 150 146 97.3 4 2.7 0 0.0 

Connecticut 

[2] -- -- -- -- -- -- --

Delaware 87 64 73.6 23 26.4 0 0.0 

District of 

Columbia 380 309 81.3 71 18.7 0 0.0 

Florida 1,726 833 48.3 883 51.2 10 0.6 

Georgia [3] -- -- -- -- -- -- --

Guam 0 0 -- 0 -- 0 --

Hawaii 12 12 100.0 0 0.0 0 0.0 

Idaho 30 12 40.0 23 76.7 -5 -16.7

Illinois 1,156 916 79.2 240 20.8 0 0.0

Indiana 1,534 1,170 76.3 40 2.6 324 21.1

Iowa [3] -- -- -- -- -- -- --

Kansas 169 141 83.4 27 16.0 1 0.6 

Kentucky [4] 106 -- -- -- -- 106 100.0 

Louisiana 30 28 93.3 2 6.7 0 0.0 

Maine 106 97 91.5 9 8.5 0 0.0 

Maryland 943 491 52.1 452 47.9 0 0.0 

Massachusetts 647 646 99.8 1 0.2 0 0.0 

Michigan [5] 949 329 34.7 620 65.3 0 0.0 

Minnesota 506 333 65.8 173 34.2 0 0.0 

Mississippi 3 3 100.0 1 33.3 -1 -33.3

Missouri 301 301 100.0 0 0.0 0 0.0

Montana 61 56 91.8 5 8.2 0 0.0

Nebraska 81 80 98.8 1 1.2 0 0.0

Nevada 222 221 99.5 1 0.5 0 0.0

New 

Hampshire 86 85 98.8 1 1.2 0 0.0

New Jersey 9,333 9,269 99.3 55 0.6 9 0.1

New Mexico

[6] 131 83 63.4 48 36.6 0 0.0

New York 3,088 1,637 53.0 1,424 46.1 27 0.9
202 | Military and Overseas Voting in 2020 

State

Total 

FWABs 

Received

FWABs Counted FWABs Rejected FWABs Not Categorized

Total % of Total 

Received Total % of Total Received Total % of Total Received

North Carolina 921 910 98.8 11 1.2 0 0.0 

North Dakota 29 29 100.0 0 0.0 0 0.0 

Northern 

Mariana 

Islands [7]

-- -- -- -- -- -- --

Ohio [8] 789 466 59.1 313 39.7 10 1.3 

Oklahoma 207 162 78.3 45 21.7 0 0.0 

Oregon [3] -- -- -- -- -- -- --

Pennsylvania 242 235 97.1 7 2.9 0 0.0 

Puerto Rico 0 0 -- 0 -- 0 --

Rhode Island 

[9] -- -- -- -- -- -- --

South Carolina 

[3] -- -- -- -- -- -- --

South Dakota 14 12 85.7 2 14.3 0 0.0 

Tennessee 456 232 50.9 224 49.1 0 0.0 

Texas 2,839 912 32.1 1,925 67.8 2 0.1 

U.S. Virgin 

Islands [10] -- -- -- -- -- -- --

Utah [2] -- -- -- -- -- -- --

Vermont [11] -- -- -- -- -- -- --

Virginia [12] 448 448 100.0 0 0.0 0 0.0 

Washington 898 894 99.6 4 0.4 0 0.0 

West Virginia 45 39 86.7 6 13.3 0 0.0 

Wisconsin [13] 137 56 40.9 48 35.0 33 24.1 

Wyoming 1 1 100.0 0 0.0 0 0.0 

U.S. Total 33,027 23,897 72.6 8,438 25.6 692 2.1 

UOCAVA Table 4 Calculation Notes: 

Total FWABs Received uses question B23a.

FWABs Counted, Total uses question B24a.

FWABs Counted, % uses question B24a divided by question B23a.

FWABs Rejected, Total uses the sum of questions B25a, B26a, and B27a.

FWABs Rejected, % uses the sum of questions B25a, B26a, and B27a, all divided by B23a.

FWABs Not Categorized, Total uses question B23a minus the sum of questions B24a, B25a,B26a, and 

B27a. 

FWABs Not Categorized, % uses question B23a minus the sum of questions B24a, B25a, B26a, and B27a, 

all divided by question B23a.
Military and Overseas Voting in 2020 | 203

UOCAVA Table 4 Data Notes: 

General Notes: 

• Casewise deletion at the state level was used in calculating national percentages. The percentage

calculations at the national level (U.S. Total) only used data from those states that provided data

for the numerator and denominator of the calculation.

• Negative numbers in the Not Categorized FWABs category indicate that the sum of counted and

rejected FWABs account for more than the total number of FWABs received as reported by the

state.

• The EAVS tracks data on FWABs that were rejected because they were received after the ballot

receipt deadline (B25), because the voter’s regular absentee ballot was received and counted

(B26), and for other reasons (B27).

[1] In California, a large number of FWAB rejections occurred because regular vote-by-mail ballots were

already returned and counted for the same voter, and because of missing signatures, incomplete

information, or receipt after deadline.

[2] Connecticut and Utah reported that data on items related to FWABs were not available.

[3] Georgia, Iowa, Oregon, and South Carolina reported that data on items related to FWABs were not

available because FWABs cannot be distinguished from regular UOCAVA absentee ballots.

[4] Kentucky reported that data on items related to counted and rejected FWABs were not available. This

state also noted in a survey comment that “[R]eject reason not tracked.”

[5] Michigan noted in a survey comment that “[A]ll FWABs received were either counted, received a regular

ballot that was counted, or arrived late.”

[6] In New Mexico, the reason for rejection is not tracked by counties at this time.

[7] The Northern Mariana Islands reported that data on items related to FWABs were not available, with a

survey comment that “[T]he election statute does not allow for Federal Write-in Absentee Ballot.”

[8] Ohio noted for multiple counties that the “[T]otal in B23a does include B26a. Source information [for

military/overseas voters] for B26a is not tracked. Because of this, B23b + B23c will not always equal

B23a.”

[9] Rhode Island noted in a survey comment that “[A]ccording to RI general law all UOCAVA mail ballots are

consolidated into one mail ballot category.”

[10] The U.S. Virgin Islands reported that data on items related to FWABs were not available.

[11] Vermont reported that data on FWABs were not available.

[12] Local election officials in Virginia do not enter information relating to rejected FWABs into the state’s

central system and only enter information on FWABs that are accepted and counted.

[13] In Wisconsin, many jurisdictions track the return of ballots received after Election Day but are not

required to do so. The counts reported in “Total number of FWABs rejected because it was received after

the ballot receipt deadline” [B25a] are limited to ballots in jurisdictions that recorded these in the

statewide database.
204 | Survey Methodology and Procedures 

Chapter 5. Survey Methodology and 

Procedures 

Since 2004, the U.S. Election Assistance Commission (EAC) has conducted the Election 

Administration and Voting Survey (EAVS) following each federal general election. The project collects 

data on election policies, voter registration, voting by individuals covered by the Uniformed and 

Overseas Citizens Absentee Voting Act (UOCAVA), mail voting, in-person voting, poll workers and 

polling places, provisional voting, election technology, and turnout. All U.S. states, U.S. territories, 

and the District of Columbia are included in the EAVS.1 The EAVS helps the EAC meet its mandate

under the Help America Vote Act (HAVA) to serve as a national clearinghouse and resource for the 

compilation of information and the review of procedures with respect to the administration of federal 

elections. 

The EAVS collectively consists of two surveys administered separately: The Election Administration 

Policy Survey (Policy Survey), which collects data on state election policies and procedures, was 

administered from August to December 2020. The information collected through the Policy Survey 

helps provide context to the data reported through the EAVS. The EAVS, which collects data about 

registrations, voters, and ballots in the 2020 general election, was administered from December 

2020 to July 2021. The data collected through the EAVS allow states to satisfy their data reporting 

requirements established by the National Voter Registration Act (NVRA) and UOCAVA and provide a 

detailed snapshot of how general elections are administered in the United States every two years.

This report relies on EAVS data submitted and certified by 50 states, the District of Columbia, and 

five U.S. territories. Data for each state were collected at the jurisdiction level, with 6,460 of the 

6,460 jurisdictions nationwide (100%) submitting at least partial data in 2020.2 Appendix A of this 

chapter shows the number of jurisdictions and the response rate by state (overall and for each 

section of the EAVS).

1 Throughout this report, unless otherwise specified, the term “state” can be understood to apply to the 50 U.S. states, the 

District of Columbia and five U.S. territories (American Samoa, Guam, the Northern Mariana Islands, Puerto Rico, and the 

U.S. Virgin Islands) that submit Election Administration Policy Survey and EAVS data. Puerto Rico provides EAVS data only in 

presidential election years, as it does not hold elections for federal candidates in midterm election years. American Samoa 

did not participate in the 2016 EAVS. The Northern Mariana Islands participated in the EAVS for the first time in 2020. 2 What constitutes a jurisdiction for EAVS reporting is defined by how each state chose to provide data. For the 2020 EAVS, 

most states reported data on the county level (or county equivalent, such as parishes for Louisiana). Illinois, Maryland, 

Missouri, and Virginia reported data for independent cities in addition to counties. The territories, the District of Columbia, 

and Alaska each reported as a single jurisdiction. Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, 

Vermont, and Wisconsin reported data on the township level. Maine also reported its UOCAVA data in Section B as a 

separate jurisdiction, because this information was only collected at the state level. Michigan reported data for the county 

level, but most election administration activities take place in the 1,520 local election jurisdictions in the state. See 

Appendix A in this chapter for a breakdown of the number of jurisdictions reported in each state. Elections for Kalawao 

County in Hawaii are administered by Maui County; although Kalawao is included as a jurisdiction in the EAVS data, 

Kalawao’s data are included with Maui’s data.
Survey Methodology and Procedures | 205

Survey Questions

The 2020 Policy Survey consisted of 80 questions (41 required questions, 23 follow-up questions 

based on a state’s responses to the required questions, and 16 optional comments boxes). Of these, 

58 were single-select or multiselect questions, 20 were open-ended with a text response, and two 

were hybrid single-select and text questions.

The 2020 EAVS consisted of 407 questions (217 required, 79 follow-up questions based on a 

jurisdiction’s responses to the required questions, 77 optional questions based on whether a 

jurisdiction had additional data to provide, and 34 optional comments boxes). Of these questions, 

253 were fill in the blank with a numerical response, 37 were item descriptions, 65 were singleselect questions, and 52 were open-ended with a text response.

The content of the questions in the EAVS has largely been unchanged since the 2008 survey, 

although questions are periodically removed, updated, or reordered. The Policy Survey was 

significantly reorganized in 2018 and was converted to a set of closed-ended questions. The 2020 

Policy Survey was significantly revised and expanded from the 2018 survey. The full set of EAVS and 

Policy Survey questions can be found at https://www.eac.gov/research-and-data/datasetscodebooks-and-surveys. 

The following sections detail the data collected by these surveys and the changes that were made to 

the questions from the 2018 versions. In 2020, the primary changes to the survey questions 

involved:

• Adding Policy Survey questions that could be used to validate EAVS items.

• Removing a redundant EAVS question, adding one new EAVS question, and adding two subquestions to an existing EAVS question.

• Clarifying instructions to make completion easier for election officials and to improve data

quality.

Policy Survey

Since 2008, the EAVS has been accompanied by a survey that collects information on states’ 

election policies and practices to provide greater context for the jurisdiction-level data collected 

through the EAVS. This originally took the form of the Statutory Overview, which consisted of openended questions on statutory requirements for various parts of the election process, asking states to 

report information on their election laws and policies. However, the open-ended format made it 

difficult to interpret states’ statutory language, identify patterns in election practices, and draw 

meaningful comparisons between states.

Beginning with the 2018 EAVS, the Statutory Overview was significantly redesigned and renamed the 

Policy Survey. The survey now uses closed-ended questions and is intended to capture states’ broad 

policies rather than to represent a comprehensive overview of state statutory language. This allows 

for greater ease in interpreting the results, creating comparisons across states, and providing 
206 | Survey Methodology and Procedures 

context in understanding the EAVS data. The Policy Survey questions are designed to map onto the 

EAVS data questions so that the two surveys can be used in concert. 

The 2020 Policy Survey collected information on election infrastructure; how the state answers the 

EAVS; voter registration and list maintenance; election technology; mail voting; in-person voting 

before Election Day; vote centers; UOCAVA voting; provisional voting; election certification, recounts, 

and audits; voter identification; and how criminal convictions affect voting. The 2020 Policy Survey 

was significantly revised and expanded compared to the 2018 survey. New additions to the Policy 

Survey included:

New Question for 

2020 Description

Q1, Q1a, Q2, Q2a, 

Q2b, and Q2c

Information on a state’s election infrastructure, including the name, title, and duties 

of the chief state election official; the names and EAVS responsibilities of state 

election offices; the names and EAVS responsibilities of local election offices; whether 

any jurisdictions had been added or consolidated since the 2018 EAVS; and contact 

information (including the office name, physical address, mailing address, phone 

number, website, and email address) for all state and local election offices within the 

state.

Q6a and Q6b Information on how a state implements its automatic or automated voter registration 

process, including how individuals could decline to be registered.

Q7b Features incorporated into a state’s online registration system.

Q8 Online voting information search tools available on the state’s election website.

Q10 Preregistration of voters before they turn 18 years of age.

Q11, Q11a, Q11b

Whether the state designates certain voters as inactive, and if so, what actions would 

result in an active voter being designated as inactive and what actions would result in 

an inactive voter being designated as active.

Q12 Whether state officials, local officials, or both are responsible for modifying or 

removing voter registration records.

Q13, Q13a

Whether the state sends confirmation notices, whether the confirmation notices are 

sent pursuant to the NVRA, pursuant to state statute, or formal administrative rule or 

guidance, and which types of voters are sent confirmation notices.

Q14 What data sources a state uses to identify potentially ineligible voters on their voter 

registration rolls.

Q15, Q15a Policy on voting system testing and certification and what type of testing and 

certification is required.

Q16, Q16a Whether electronic poll books are used in the state and whether testing and 

certification for those electronic poll books is required.

Q21 How long a state tracks mailed ballots for inclusion in its EAVS Section C data.

Q22 What types of markings satisfy the state’s postmark requirement for mailed ballots.

Q23 Which voters may receive ballots electronically.

Q30

The deadline for overseas UOCAVA voters to return their ballots. This question was 

designed to match a question on domestic military UOCAVA voters that had been in 

the 2018 Policy Survey but was renumbered and redesigned for 2020 (Q29).
Survey Methodology and Procedures | 207

New Question for 

2020 Description

Q31 Whether UOCAVA ballots have different postmark requirements for mailed ballots.

Q32, Q32a, Q32b

Whether the state uses provisional ballots, and if so, what circumstances warrant a 

voter being provided a provisional ballot and the deadline for adjudicating provisional 

ballots.

Q33 State’s election certification deadline.

Q35a What type(s) of audits a state conducts.

Q36a Deadline for a voter to present valid identification if they do not have identification at 

the polls and must take further action to prove their identity.

Questions that were significantly revised from the 2018 Policy Survey included:

Significantly 

Revised from 

2018

Description

Q5

Government entities that transmit data to the centralized state database. This question 

had been Q3 and Q4 in 2018. For 2020, this question was collapsed from three to two 

subcategories, including a binary yes/no question on whether the government entity 

transfers data and a single-select, follow-up question with how frequently the data 

transmission occurs.

Q6

Whether the state registers individuals to vote automatically or via an automated 

process. This question had previously been Q5 in 2018. The 2020 question clarified 

the definition of “automatically” and “automated process,” provided examples of 

automated processes, and included a space for comments.

Q6a

Which state agencies participate in automatic or automated voter registration. This 

question had previously been Q5a in 2018. In 2020, this was changed to a multiselect 

question with additional answer options that better align with state practices.

Q7

Whether the state has online registration. This question had previously been Q6 in 

2018. The 2020 question clarified the definition of online registration and added an 

answer option for states that could only process registration updates through online 

registration.

Q7a

Whether a registrant needed a state-issued form of identification in order to register 

online. This question had previously been Q6a in 2018. The 2020 question clarified 

that any state-issued identification, not just driver’s licenses, would apply to this 

question.

Q9

Whether a state has same-day voter registration (SDR). This question had previously 

been Q7 in 2018. The 2020 question included a clarification that an overlap between 

the availability between the mail balloting period and the close of voter registration 

should not be considered SDR.

Q9a

The type of SDR offered by the state. This question had previously been Q7 in 2018. 

The 2020 question was changed from a single-select question to a multiselect

question.
208 | Survey Methodology and Procedures 

Significantly 

Revised from 

2018

Description

Q20

Deadlines for mail voters to return their ballots. This question had previously been Q11 

in 2018. The 2020 question restructured the answer options to provide greater clarity, 

eliminated the answer option for mailed ballots postmarked after Election Day, and 

included a comments section.

Q24

Types of in-person early voting permitted in a state. This question had previously been 

Q12 in 2018. The 2020 question asked for what terminology a state used to describe 

in-person early voting and clarified that hand delivery of mailed ballots by voters should 

not be considered early voting.

Q24a Whether an excuse was required for early voting. This question had previously been 

Q12a in 2018. The 2020 question was updated to match the wording of Q24.

Q25

Whether a state used vote centers. This question had previously been Q13 in 2018. 

The 2020 question clarified that polling locations that function as a vote center, even if 

the terminology is not the same, should be included in this question.

Q26

Which Federal Post Card Application (FPCA) submission methods are permitted in the 

state. This question had previously been Q14 in 2018. The 2020 question clarified 

that postal mail does not need to be specified, as this mode of submission is required 

in all states.

Q27

Whether FPCA registration is permanent or temporary. This question had previously 

been Q15 in 2018. The 2020 question included updated wording to clarify that it 

applies to how long an FPCA registers a person as a UOCAVA voter.

Q28

How long a voter remains eligible to receive a UOCAVA ballot after registering with an 

FPCA. This question had previously been Q15 in 2018. The 2020 question provided 

more extensive answer options.

Q29

Deadline for domestic military UOCAVA voters to return their ballots. This question had 

previously been Q17 in 2018. The 2020 question was revised to match the format of 

Q20, which collects data on the deadline for voters to return mailed ballots, and the 

instructions were updated to specify that the question applies to domestic military 

UOCAVA voters rather than all UOCAVA voters.

Q32c

How a state would handle a provisional ballot cast in the wrong precinct. This question 

had previously been Q18 in 2018. The 2020 question included an instruction about 

the definition of a partially counted provisional ballot.

Q34

Reasons for conducting post-election recounts of ballots. This question had previously 

been Q19 in 2018. The 2020 question added a definition of “election recount” and 

included updated answer options.

Q35

Statutory requirements for audits. This question had previously been Q20 in 2018. The 

2020 question included revised terminology, a definition of “audit,” and the addition of 

an answer option for other types of post-election tabulation audits.

Q36

Voter identification requirements for non-first-time voters. This question had previously 

been Q21 in 2018. The 2020 question included additional answer options and 

clarified that non-government, non-photo identification options could include proof of 

residence.

Q37

Which populations become ineligible to vote because of disqualifying criminal 

convictions. This question had previously been Q22 in 2018. The 2020 question 

included revised question wording and was changed to a multiselect question.
Survey Methodology and Procedures | 209

Significantly 

Revised from 

2018

Description

Q37a

How long people with disqualifying felony convictions lose their ability to vote. This 

question had previously been Q23 in 2018. The 2020 question was changed to a 

multiselect question, added an answer option for payment of outstanding fines, and 

the answer options were reworded to be mutually exclusive.

Q37b

How people with disqualifying felony convictions can have their voting rights restored. 

This question had previously been Q24 in 2018. The 2020 question was changed to a 

multiselect question, the wording of the answer options was clarified, and a comment 

section was added.

The following questions had no change except for renumbering and, for some, the addition of a 

comment section:

2020 

Numbering

2018 

Numbering Description

Q3 Q1 How the state answers the EAVS.

Q4 Q2 Whether the state has a top-down, bottom-up, or hybrid voter registration 

database.

Q4a Q2a How often bottom-up or hybrid databases transmit information to the state voter 

registration database.

Q17 Q8 Whether an excuse is required for mail voting.

Q18 Q9 Whether the state, or any jurisdiction within the state, conducted an all-vote-bymail election for the November 2020 general election.

Q18a Q9a Whether the all-vote-by-mail system was used statewide or only in certain 

jurisdictions for the 2020 general election.

Q19 Q10 Whether permanent mail voting is permitted.

Q19a Q10a Which voters are permitted to register as permanent mail voters.

Q25a Q13a How vote centers operate within the state.

The 2018 Policy Survey questions on audits of polling place procedures, audits of voting machines, 

and types of ballots audited were removed for 2020.

Section A: Voter Registration

Section A of the EAVS collects data on voter registration. This includes the number of persons 

registered and eligible to vote in the November 2020 general election, active and inactive voters, 

voters who used SDR, registration forms processed between the close of registration for the 2018 

general election and the close of registration for the 2020 general election, confirmation notices 

sent pursuant to the NVRA, and voters removed from the voter registration rolls.
210 | Survey Methodology and Procedures 

In 2020, changes to this section included the addition of sub-questions on the number of SDRs

received on Election Day (A2b) and before Election Day (A2c), in addition to the total provided in A2a. 

The instructions in this question were also revised to clarify that all SDRs received for the 2020 

general election should be reported. In addition, the instructions for A4–A7 were revised to clarify 

that online voter registrations reported in A4c, A5c, A6c, and A7c should only include registration 

forms that were completed and submitted through a web-based online registration form system and 

that SDRs should be categorized according to the mode used to submit the registration application. 

The instructions for A8 were revised to include a more accurate definition of the term “confirmation 

notice” and to clarify that notices sent between the close of registration for the November 2018 

general election and the close of registration for the November 2020 general election should be 

reported in this question.

Section B: UOCAVA

Section B of the EAVS collects data on voters covered by UOCAVA. This includes the number of 

registered UOCAVA voters; FPCAs received and rejected; UOCAVA ballots transmitted, returned, 

counted, and rejected; and Federal Write-In Absentee Ballots (FWAB) received, counted, and 

rejected. Most questions in Section B were divided by type of voter (uniformed services members 

and overseas citizens) and by method of ballot transmission and return (postal mail, email, and 

other).

In 2014, the UOCAVA section of the EAVS was expanded to include questions from the Federal 

Voting Assistance Program’s (FVAP) Post-Election Quantitative Survey. The goal of combining surveys

was to reduce the burden on election officials by asking them to answer a single set of questions 

about UOCAVA voting rather than answering two surveys that captured many of the same data 

points. The current format of Section B is the result of a memorandum of understanding between the

EAC and FVAP that allows both agencies to collect, share, and evaluate data on the voting 

experiences of citizens covered under UOCAVA and to fulfill their congressionally mandated

requirements to study UOCAVA voters. 

In 2020, changes to this section included the addition of question B27. Previously, the questions in 

the EAVS relating to FWABs only asked for data on FWABs rejected from being received after the 

ballot receipt deadline or because the voter’s regular absentee ballot was received and counted. The 

addition of B27 allows states to report data on FWABs rejected for other reasons, in total (B27a), for 

uniformed services voters (B27b), and for overseas citizen voters (B27c). A space was also provided 

to collect a description of the reasons the FWABs reported in B27 were rejected. In addition, the 

instructions for question B8 were updated to clarify that ballots transmitted by “other mode” could 

include fax and online ballot delivery portals.

Section C: Mail Voting

Section C of the EAVS collects data on mail voting. This includes the number of mailed ballots 

transmitted, returned, counted, and rejected, as well as the number of ballots sent to permanent 

mail voters.
Survey Methodology and Procedures | 211

In 2020, changes to this section included a clarification to the instructions of C1 that all mailed

ballots transmitted for the November 2020 general election should be included in this question, and 

a clarification to the instructions of C2 that ballots transmitted in an all-vote-by-mail state or 

jurisdiction should not be included in the count of mailed ballots transmitted to permanent absentee 

voters.

Section D: In-Person Voting and Polling Operations

Section D of the EAVS collects data on in-person voting. This includes the number of ballots cast 

through in-person voting before and on Election Day, the number of precincts and polling places, and 

the number of poll workers and the level of difficulty involved in recruiting poll workers. This section 

was previously called “Total Votes Cast and In-Person Voting” and was renamed in 2020 to reflect 

the removal of a redundant question about the total votes cast and to better align with the section’s 

focus on in-person voting and the polling operations to support in-person voting. 

The removal of the 2018 question on total votes cast caused the questions in Section D to be 

renumbered. The removed question on total votes cast was redundant with question F1a on the 

number of votes cast and counted. In addition, the instructions in questions D5–D7 were updated to 

clarify the definition of a poll worker and to specify how poll workers should be counted. The 

instructions for D6 were updated to specify that each early voting poll worker should be counted 

once regardless of how many early voting shifts they worked, and the instructions for D7 were 

updated to specify that each poll worker should be counted only once, regardless of how many shifts 

they worked.

Section E: Provisional Ballots

Section E of the EAVS collects data on provisional voting, including provisional ballots submitted, 

provisional ballot adjudication, and reasons for rejection.

In 2020, changes to this section included a clarification of the instructions in E1b–d that the number 

of provisional ballots submitted should be recorded. A definition of provisional ballots counted in part 

was added to the instructions of E1c.

Section F: Voter Participation and Election Technologies

Section F of the EAVS collects data on voter participation and election technologies. This includes 

total participation in the 2020 general election, how many ballots were cast and counted by mode of 

participation, the source of participation data, use of electronic and paper poll books, voting 

equipment used, and the location where votes are tallied. Respondents were also provided the 

opportunity to share general comments regarding their state’s or jurisdiction’s Election Day 

experiences, noteworthy successes, and challenges they overcame when administering the 

November 2020 general election.

In 2020, changes to this section included a clarification of how participation should be counted in 

question F1. The 2018 question collected data on the number of voters who participated; this 

instruction was updated for 2020 to clarify that voters who cast a ballot that was counted should be 
212 | Survey Methodology and Procedures 

reported in this question. In addition, question F1e removed the instruction that provisional voters 

who were given credit in their vote history should be included in this question. The instructions for 

question F8 were updated to include a more complete description of scanners.

Data Collection Procedures

In compliance with the Paperwork Reduction Act of 1995, the EAC submitted the questions for the 

2020 Policy Survey and the EAVS for review by the Office of Management and Budget (OMB) and for 

public comment. Public comments were collected from October 8, 2019, to December 6, 2019, and 

from February 11, 2020, to March 12, 2020. The questions were approved under OMB Control No. 

3265-0006, expiration date March 31, 2023. The survey questions were made available publicly on 

the EAC’s website on July 8, 2020. Targeted communications with state points of contact (POC) 

responsible for completing the surveys began on July 7, 2020, and continued regularly throughout 

the data collection period. These targeted communications aimed to keep states aware of data 

collection deadlines and resources available to assist them with completing the survey.

The following sections describe each aspect of the EAVS data collection process in more detail.

Needs Assessment

To better understand how state-level officials respond to the EAVS and where they need support, the 

EAC undertook a systematic assessment of the needs of EAVS POCs in October and November 2019. 

The goal of these interviews was to better understand each state’s EAVS reporting process (including 

how data is collected, which templates are used, the state’s use of technical assistance resources, 

and data quality) and how improvements could be made to the 2020 EAVS. All state POCs that 

completed the 2018 EAVS were invited to participate and interviews with 34 states were completed. 

The EAC created semi-structured interview guides for each participant that also left room for the 

moderator to probe further.

The information collected through these needs assessment conversations helped the EAC’s outreach 

plan design, shaped the training opportunities provided to each state, and identified states that 

needed specialized support to complete the EAVS. Based on these conversations, the EAC made 

improvements to the design and usability of the data collection templates, added supplementary 

instructions to clarify how respondents were to use the missing data codes in the survey, and 

released the EAVS data collection templates earlier than in previous years to afford POCs more time 

to compile their data submissions. During these needs assessment calls, the EAC also encouraged 

state POCs to review and provide comments on the draft 2020 survey questions, which at the time 

were available on the Federal Register.

Policy Survey

Invitations to complete the 2020 Policy Survey were sent to all 56 states, territories, and districts on 

August 3, 2020. The Policy Survey data are collected in advance of EAVS data collection to reduce 

respondent burden and to allow the EAC to create data validation rules for the EAVS data. The Policy 

Survey was completed through an online survey; this survey had undergone usability testing with 

POCs from nine states and territories in June and July 2020, and edits to the survey based on the 
Survey Methodology and Procedures | 213

results of this testing were completed in advance of the survey’s launch.3 Periodic reminders were 

issued to POCs during the data collection period. All 56 states, territories, and districts submitted 

their Policy Survey data by December 15, 2020. When the answer options within a question did not 

fully capture a state’s policy, POCs were encouraged to provide comments with further explanation.

The 2020 Policy Survey had a series of questions about the contact information of state and local 

election offices. The EAC collected this contact information from state election websites and official 

registers in May and June 2020. This information was pre-populated into the online Policy Survey 

data collection tool and was provided to POCs to review and correct as they completed the Policy 

Survey. Because this data contains personally identifiable information (PII), it is not part of the public 

data release.

Once received, each Policy Survey submission was reviewed for completeness. Through these 

reviews and through further reviews conducted once each state’s EAVS submission was received, 

the EAC made Policy Survey corrections for 37 states before the end of the EAVS data collection 

period. 

For the first time, the EAC incorporated a state’s Policy Survey submission directly into the EAVS data 

collection template validations in 2020. This means that a state’s 2020 EAVS data collection 

templates could not be released until the state’s Policy Survey submission was finalized.

EAVS

The EAVS data collection period was opened to 46 states on November 9, 2020. The data collection 

was opened to the 10 remaining states once their Policy Survey submissions were received and their 

templates were finalized; all data collection templates were released to states by December 18, 

2020. The EAVS data collection period ended in July 2021. Data submissions from all 56 states 

were received by that date, with a response rate of 100% of states. After providing final data, states’ 

chief election officials certified their Policy Survey and EAVS as complete and correct to the best of 

their knowledge.

To build on the needs assessment conversations that were completed in October and November 

2019, the EAC completed pre-survey outreach calls with officials from states that had new 

designated POCs for the 2020 EAVS or that had requested further follow-up after the needs 

assessment calls. Fifteen states were invited to participate in the outreach calls, and 10 states 

completed calls in August of 2020. During these interviews, the EAC provided an overview of the 

project timeline and the types of data collected in the Policy Survey and the EAVS, notified the POCs 

of the help desk support and other resources that would be provided as part of the 2020 EAVS, 

probed POCs on data issues from the 2018 EAVS, and whether the ongoing COVID-19 pandemic was 

impacting the state’s election policies or could affect its ability to submit EAVS data in a timely 

3 Fifty-three states completed the Policy Survey via the online survey. Three states completed the survey via a paper 

instrument; for these states, the Policy Survey technical assistants entered the data from the paper instrument into the 

online survey and asked the state to review for accuracy and submit the data.
214 | Survey Methodology and Procedures 

manner. These conversations helped ensure that the EAC was prepared to provide adequate support 

to states as they completed their EAVS data collection.

Data Collection Templates 

Given the diversity in how states respond to the EAVS, creating data templates that accommodate 

the needs of all states and all local jurisdictions is especially challenging. The 2020 EAVS data were 

collected using two data collection templates:

• The Excel template was a flat data format that allowed POCs to copy and paste large amounts

of data, such as from a report generated from the state’s centralized election database. Each

EAVS item was listed in a column in the Excel template and each EAVS jurisdiction within the

state was listed in a row. States with multiple jurisdictions were required to submit their data

through the Excel template.

• The online template was an item-by-item survey hosted online that guided respondents

through entering their responses. This template was primarily intended to be used by

jurisdictions that entered EAVS data, although some states entered data into the online

template on behalf of some or all of their jurisdictions. The data from the online template was

exported to an Excel file that matched the format of the Excel data collection template.

Usability testing of the draft online template was completed with nine local election officials between 

July and August 2020, and edits to the survey based on the results of this testing were completed in 

advance of the online template’s launch.

The EAC pre-populated data into the online template for four states and into the Excel template for 

one state. Pre-fill data was provided by state POCs via the Excel template or via an email or phone 

request that provided detail on which items were to be populated.

Both data collection templates employed a variety of error-checking data validations to reduce 

response burden and to increase data quality.

Data Validation 

One of the key issues associated with any data collection project is ensuring that the data collected 

are as accurate as possible. Given the number of survey questions, their complexity and granularity, 

and the variety of approaches in how state and local jurisdictions provide responses, it can be easy 

to make data entry mistakes or report data in an incorrect survey item. All 2020 EAVS data collection 

templates included built-in internal and external validation checks that flagged specific types of 

potential errors within a data submission. 

The validation checks were designed to flag common data issues so that respondents were aware of 

them before submitting their data to the EAC. In response to these validations, states and 

jurisdictions were encouraged to review their data, correct it if needed, and use the comments fields 

to explain any peculiarities and give context to the data that were being reported.
Survey Methodology and Procedures | 215

In addition, once a state submitted data for review by the EAC, additional data reviews were 

conducted by trained data analysts. These reviews checked for missing data, internal math and logic 

issues, conflicts with Policy Survey responses, and significant changes compared to 2016 EAVS 

data.4 The results of this review were provided to state POCs in a written memo, along with a file that 

had sample rates and percentages calculated using their draft submission. These sample rates and 

percentages were provided to assist POCs with identifying results that did not align with their 

expectations, so they could be corrected in the final submission.

A complete list of all validation checks that were built into the data collection templates and 

additional data validations that were conducted for draft submissions can be found in Appendices B 

and C of this chapter. In general, there were five types of data validations.

Math Validations 

Many items in the EAVS asked respondents to report a total and then divide that total into 

subcategories. The math validations within the templates checked that the sum of the subcategories 

equaled the reported total of the overall category. For example, if the total number of voters who cast 

a ballot that was counted in the 2020 general election did not match the sum of the number of 

voters who used different modes of voting, then the respondent was asked to review the numbers 

reported in these items.5

Logic Validations 

Logic validations identified when a value in the survey was incompatible with a response provided in 

another related question in the survey. For example, if the number of mailed ballots counted by a 

jurisdiction exceeded the number of mailed ballots that had been returned by voters, then the 

respondent was asked to review these items.6

Policy Survey Validations 

These validations identified instances in which an EAVS item conflicted with the Policy Survey data 

that had been submitted by the state. For example, if a state reported having an online voter 

registration system through which an individual could submit a voter registration application, but 

reported “does not apply” to EAVS items relating to the number of voter registration forms submitted 

through online sources, then the validations would highlight that a conflict existed between the 

respondent’s EAVS and Policy Survey data and would ask the respondent to review the EAVS items 

and contact the EAC if the Policy Survey response needed to be updated.7

4 The 2016 EAVS was used as a point of comparison in the data reviews, because it was the most recent presidential 

election. 

5 The total number of voters participating in the 2020 general election was reported in item F1a in the 2020 EAVS. The 

number of voters who participated using different modes of voting were items F1b through F1h.

6 The number of mailed ballots counted by a jurisdiction was reported in item C3a in the 2020 EAVS. The number of mailed 

ballots returned by voters was reported in item C1b. 7 Data on states’ policies regarding online voter registration were reported in item Q7 in the Policy Survey. The number of 

total, new, duplicate, and rejected registrations received through online registration systems were reported in items A4c, 

A5c, A6c, and A7c, respectively, of EAVS.
216 | Survey Methodology and Procedures 

Missing Items 

With the exception of comment boxes and “other” subcategories for reporting data beyond what was 

specified in a question, all items in the EAVS required a response. An alert appeared if a response to 

a required item was not provided. For example, if a respondent reported the total number of 

registered voters in their jurisdiction but not the number of active and inactive registered voters, the 

latter items would be flagged with a request that the respondent should report “does not apply” (if 

their state does not have an applicable law or policy), “data not available” (if the data for an item is 

not tracked), or zero (if no instance of an item occurred) rather than leave the item blank.8

Valid Skips 

For the first time, in 2020, the EAC introduced a valid skip code to the EAVS data. This code was 

automatically filled in by the template validations when an item did not require an answer because of 

a response to a previous item in the survey. The use of the valid skip code is distinct from the use of 

the “does not apply” code (for when a jurisdiction does not have a law or policy in place that allows 

for the type of election participation in the question) and the “data not available” code (for when the 

data for a type of election participation is not tracked). For instance, if a jurisdiction indicated in 

EAVS question F5a that it did not use direct-recording electronic (DRE) voting machines without a 

voter-verified paper audit trail (VVPAT), then items F5b through F5d, relating to the make and model 

of equipment, the number deployed, and the usage of the equipment, were filled as “valid skip” by 

the template validations.

Technical Assistance

Technical assistance was provided through the duration of the Policy Survey and the EAVS data 

collection periods. Help desk support was provided for 20 hours each week from August 3, 2020, to 

December 31, 2020, and for 50 hours each week from January 4, 2021, to March 30, 2021. State 

and local EAVS respondents could request assistance via email or phone. A team of trained technical 

assistants provided support on all aspects of the survey data collection processes. A total of 812 

support tickets were received from all 56 states, territories, and districts. The most common 

inquiries were related to accessing the data collection templates, re-opening online templates that 

had been submitted prematurely, how data transferred between the online template and the Excel 

template, and questions about survey definitions (including SDR, how to classify registration forms in 

questions A3–A7, and what types of voting should be counted as in-person early voting for purposes 

of EAVS).

After the first round of EAVS data was collected in March 2021, a group of subject matter experts 

(SME) from the EAC conducted an extra quality control review via video conference. All states and 

territories were invited to participate and 51 out of 56 participated. The extra quality check was 

necessary due to the new voting options throughout the country for the 2020 general election and 

due to challenges caused by the COVID-19 pandemic. Thirty-eight of the states and territories that 

were interviewed requested data changes or added/amended footnotes to this report. 

8 The total number of registered voters for the 2020 general election was reported in item A1a in the EAVS. The number of 

active registered voters was item A1b. The number of inactive registered voters was item A1c.
Survey Methodology and Procedures | 217 

Resources for EAVS Respondents

In addition to providing direct, customized technical assistance, the EAC made a wide variety of 

written and video training resources available to survey respondents on demand. A website was 

established to house these resources and to provide a secure place for state EAVS POCs to upload 

data submissions and other documents for the EAC to review.

The resources on this website included PDF copies of the Policy Survey and EAVS questions; a link to 

the online template; six videos that outlined the questions and instructions in the six sections of the 

EAVS; three video webinars that provided guidance on the overall EAVS process, on collecting data 

from local jurisdictions, and for state POCs new to EAVS data collection; eleven newsletters that were 

released between August 2020 and March 2021; an extensive user guide that provided step-by-step 

instructions for both data collection templates; a policy guide approved by the EAC Commissioners 

that provided information to election officials responsible for completing EAVS; and an Excel 

crosswalk that documented survey changes from 2018 to 2020.

The website also contained a section that was restricted to state POCs. This section had copies of 

the state’s 2016 and 2018 EAVS and the state’s Statutory Overview or Policy Survey data available 

for download, a table that tracked the online template progress for each jurisdiction within the state, 

and the capacity for POCs to upload files for the EAC to review.

Data Reporting and Calculations

In 2020, most EAVS data were reported at the local jurisdiction level. For the purposes of this report, 

for states that have multiple jurisdictions, state totals were calculated by summing the data from all 

jurisdictions within a state. National totals were calculated by summing the state-level totals.

Whenever possible, this report uses percentages and rates rather than raw numbers to make 

comparisons across states and across election years. For these calculations, items were combined 

as necessary to create the numerator and denominator and to produce a percentage or rate. For 

example, the following formula was used to calculate the percentage of transmitted mailed ballots 

that were returned by voters for the 2020 general election:

TTooRRaaTT RRTTnnbbRRoo oooo nnaaRRTTRRmm bbaaTTTTooRRRR ooRRRRTTooRRRRmm bbbb AAooRRRRooRR (CC1bb) × 100 TTooRRaaTT RRTTnnbbRRoo oooo nnaaRRTTRRmm bbaaTTTTooRRRR RRooaaRRRRnnRRRRRRRRmm bbbb RRTTRRAARRRRooRR ooooooRRAARRRR (CC1aa)

Percentages at the national level were calculated using casewise missing data deletion at the state 

level. Only states that had data for both the numerator and denominator for a calculation were 

included when reporting percentages at the national level. Responses of “does not apply,” “data not 

available,” and “valid skip” were considered missing for purposes of creating these calculations. 

Casewise deletion was used in the analysis for this report to avoid overinflating the denominator of 

the calculations. This is especially applicable when states do not track data for a particular item, or 

when election policy differences mean that not all states can provide data for an item. For example, 

online registration is not available in every state, so the calculation of the nationwide percentage of 

registrations that were received online will only use data from states that reported at least one online 
218 | Survey Methodology and Procedures 

registration. Otherwise, the national percentage would include in the denominator (in this case, the 

total number of registrations received) data from states that do not have online registration, thus 

underestimating the percentage of online registrations that were received.9

This decision rule means that there were instances in which the percentages reported at the national 

level for a given calculation in this report did not use data from every state. Because each category 

was calculated independently of others and only states that reported data in both the numerator and 

the denominator were included in the analysis, casewise deletion also created instances in which 

percentages do not sum to 100%. Those cases in which data were not available for every state to 

calculate the percentage at the national level are noted in the footnotes throughout this report.

Recommendations for Analyzing and Interpreting the EAVS Data

The most up-to-date version of the 2020 EAVS and Policy Survey data can always be found on the 

EAC’s website (https://www.eac.gov/research-and-data/datasets-codebooks-and-surveys). If the EAC 

is notified by a state of an error or omission in the state’s data, the agency will issue the updated 

EAVS and Policy Survey data sets on its website with an errata note of changes that have been made 

to the newly issued data sets. Updated data sets will be issued on a quarterly basis.

There are four types of data missingness codes used in the 2020 Policy Survey and EAVS data:

• Valid skip (-77): This code indicates that no response is expected based on a previous survey

response. For instance, in the Policy Survey, if a state answered “no” to Q7 to indicate that it

does not provide an option for voters to register to vote online, then items Q7a and Q7b, which

collect further information on the specifics of a state’s online registration system, would be

marked as -77. In the EAVS, if a state indicates in item A4c, the total number of registration

forms submitted online, that this question does not apply, then items A5c, A6c, and A7c, which

collect data on new, duplicate, and rejected registrations submitted online, would be marked

as -77.

• Does not apply (-88): This code indicates that a question does not apply to a state, because

the state does not have an applicable policy in place. For instance, a response of -88 in item

A4c of the EAVS indicates that the state does not have online registration.

• Data not available (-99): This code indicates that the data for an item cannot be tracked. For

instance, a response of -99 in item A4c of the EAVS indicates that the state accepts online

voter registrations but cannot track the number of these registrations that were submitted by

voters.

• Refused (-100): This code indicates that a response was expected but was not provided. This

code is only used in the Policy Survey data.

9 The total number of registration applications received between the close of registration for the 2018 general election and 

the close of registration for the 2020 general election was collected in item A3a. The total number of registration 

applications received online between the close of registration for the 2018 general election and the close of registration for 

the 2020 general election was collected in item A4c. The application of casewise deletion means that only states that 

reported at least one registration in both of these items on a statewide level were included in the calculation of the 

percentage of registration applications received through online sources.
Survey Methodology and Procedures | 219

When summing the EAVS data, either on a state or a national level, analysts should take care to treat 

these missingness codes as missing items and not as negative numbers. 

Users of the EAVS data are also encouraged to refer to the comments that accompany all of the 

EAVS items and many of the Policy Survey items. During data collection, the EAC encouraged all 

respondents to use these comments to provide context to their responses. In many cases, these 

comments contain valuable information about how state and jurisdiction respondents formulated 

their responses, why some responses do not align with the data validations outlined in this chapter, 

or context about how the 2020 general election was conducted in a state or jurisdiction. If data 

users have further questions about the data that have been submitted, they are encouraged to 

contact states or jurisdictions directly with further questions.

The EAC also encourages data users to take care when calculating percentages to ensure that the 

correct EAVS items are used. Appendix D of this chapter contains recommendations for how to 

calculate EAVS rates using the 2020 data. These recommendations align with how rates were 

calculated throughout this report.

This report used the 1-year American Community Survey (ACS) state estimates for the 2019 citizen 

voting age population (CVAP) instead of the 5-year estimate to ensure that the CVAP was as current 

as possible. The CVAP estimates for 2020 were not available by the time this report was finalized. 

Once they are released by the U.S. Census Bureau, the 2020 CVAP estimates can be found at 

https://data.census.gov/. Data analysts should import both the state- and county-level geographies 

and merge them into the EAVS data using the Federal Information Processing Standards (FIPS) code. 

For states that have subcounty jurisdictions, these jurisdictions will need to be aggregated at the 

county level in order to merge in the CVAP data.10 For this report, the state-level CVAP was used for 

Alaska and Puerto Rico, as both reported as a single EAVS jurisdiction. Finally, the Census Bureau 

does not provide CVAP estimates for the U.S. territories (with the exception of Puerto Rico), so no 

CVAP estimate was available for American Samoa, Guam, the Northern Mariana Islands, and the U.S. 

Virgin Islands.

10 These are the states of Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, Vermont, and Wisconsin. 

Additionally, the state of Illinois reported six cities independently of their corresponding counties (i.e., Bloomington, 

Chicago, Danville, East St. Louis, Galesburg, and Rockford), and Missouri reported Kansas City independently of its 

corresponding county.
220 | Survey Methodology and Procedures 

Methodology Appendix A: Survey Response Rates

State

EAVS 

Response 

Rate

Section A 

Response 

Rate

Section B 

Response 

Rate

Section C 

Response 

Rate

Section D 

Response 

Rate

Section E 

Response 

Rate

Section F 

Response 

Rate

Alabama 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Alaska 100.0 100.0 100.0 100.0 100.0 100.0 100.0

American 

Samoa 98.4 100.0 100.0 100.0 100.0 100.0 94.4 

Arizona 100.0 100.0 99.9 100.0 100.0 100.0 100.0 

Arkansas 90.2 99.5 77.4 83.5 88.1 82.5 97.3

California 99.2 100.0 98.2 99.9 99.8 99.9 98.9

Colorado 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Connecticut 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Delaware 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

District of 

Columbia 99.7 100.0 100.0 100.0 94.7 100.0 100.0 

Florida 99.4 100.0 98.7 99.9 99.2 96.4 99.8 

Georgia 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Guam 98.1 93.9 100.0 100.0 100.0 100.0 98.9 

Hawaii [1] 99.1 100.0 99.5 100.0 100.0 100.0 97.1 

Idaho 99.4 98.8 99.0 100.0 100.0 100.0 100.0 

Illinois 99.1 99.6 99.7 99.8 99.7 98.6 97.9 

Indiana 100.0 100.0 100.0 100.0 99.9 100.0 100.0 

Iowa 100.0 100.0 100.0 100.0 100.0 100.0 99.9 

Kansas 69.0 67.4 86.8 77.3 62.3 95.9 48.0

Kentucky 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Louisiana 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Maine [2] 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Maryland 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Massachusetts 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Michigan 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Minnesota 100.0 100.0 100.0 100.0 99.9 100.0 100.0 

Mississippi 100.0 100.0 100.0 100.0 100.0 100.0 99.9 

Missouri 99.8 100.0 100.0 100.0 100.0 100.0 99.4

Montana 99.6 100.0 98.5 100.0 100.0 100.0 100.0

Nebraska 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Nevada 99.8 100.0 99.2 100.0 100.0 100.0 100.0 

New Hampshire 99.5 100.0 100.0 100.0 100.0 100.0 98.3 

New Jersey 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

New Mexico 100.0 100.0 100.0 100.0 99.7 100.0 100.0 

New York 97.5 100.0 100.0 99.9 99.7 100.0 91.1 

North Carolina 99.9 100.0 100.0 100.0 100.0 100.0 99.7 
Survey Methodology and Procedures | 221

State

EAVS 

Response 

Rate

Section A 

Response 

Rate

Section B 

Response 

Rate

Section C 

Response 

Rate

Section D 

Response 

Rate

Section E 

Response 

Rate

Section F 

Response 

Rate

North Dakota 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Northern 

Mariana Islands 96.2 100.0 90.0 100.0 94.7 100.0 96.7 

Ohio 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Oklahoma 100.0 100.0 100.0 100.0 100.0 100.0 100.0

Oregon 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Pennsylvania 100.0 100.0 100.0 100.0 100.0 100.0 99.9 

Puerto Rico 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Rhode Island 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

South Carolina 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

South Dakota 99.9 100.0 99.8 99.9 98.8 99.8 100.0 

Tennessee 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Texas 99.4 100.0 99.6 100.0 100.0 100.0 98.2 

U.S. Virgin 

Islands 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Utah 100.0 100.0 100.0 100.0 100.0 100.0 99.8 

Vermont 98.0 100.0 100.0 100.0 100.0 100.0 93.0 

Virginia 100.0 100.0 100.0 100.0 100.0 100.0 100.0 

Washington 100.0 100.0 100.0 100.0 100.0 100.0 100.0

West Virginia 99.7 100.0 98.8 100.0 99.9 100.0 100.0

Wisconsin 99.7 100.0 100.0 100.0 100.0 100.0 98.9

Wyoming 99.9 100.0 99.6 100.0 99.8 100.0 100.0 

U.S. Total 99.1 99.4 99.4 99.4 99.2 99.7 98.2 

Survey Response Rate Calculation Notes: 

EAVS Response Rate uses responses to all items listed below.

Section A Response Rate uses responses to questions A1a, A1b, A1c, A2a, A2b, A2c, A3a, A3b, A3c, A3d, 

A3e, A3f, A3g, A3h, A3i, A3j, A4a, A4b, A4c, A4d, A4e, A4f, A4g, A4h, A4i, A4j, A4k, A4l, A5a, A5b, A5c, A5d, 

A5e, A5f, A5g, A5h, A5i, A5j, A5k, A5l, A6a, A6b, A6c, A6d, A6e, A6f, A6g, A6h, A6i, A6j, A6k, A6l, A7a, A7b, 

A7c, A7d, A7e, A7f, A7g, A7h, A7i, A7j, A7k, A7l, A8a, A8b, A8c, A8d, A8e, A8f, A8g, A8h, A9a, A9b, A9c, 

A9d, A9e, A9f, A9g, A9h, A9i, and A9j. 

Section B Response Rate uses responses to questions B1a, B1b, B1c, B2a, B2b, B2c, B3a, B3b, B3c, B4a, 

B5a, B5b, B5c, B6a, B6b, B6c, B7a, B7b, B7c, B8a, B8b, B8c, B9a, B9b, B9c, B10a, B10b, B10c, B11a, 

B11b, B11c, B12a, B12b, B12c, B13a, B13b, B13c, B13d, B14a, B14b, B14c, B15a, B15b, B15c, B16a, 

B16b, B16c, B17a, B17b, B17c, B18a, B18b, B18c, B19a, B19b, B19c, B20a, B20b, B20c, B21a, B21b, 

B21c, B22a, B22b, B22c, B23a, B23b, B23c, B24a, B24b, B24c, B25a, B25b, B25c, B26a, B26b, B26c, 

B27a, B27b, and B27c.. 

Section C Response Rate uses responses to questions C1a, C1b, C1c, C1d, C1e, C1f, C1g, C1h, C1i, C2a, 

C3a, C4a, C4b, C4c, C4d, C4e, C4f, C4g, C4h, C4i, C4j, C4k, C4l, C4m, C4n, C4o, C4p, C4q, and C4r. 

Section D Response Rate uses responses to questions D1a, D1b, D2a, D3a, D3b, D3c, D4a, D4b, D4c, 

D5, D6, D7a, D7b, D7c, D7d, D7e, D7f, D7g, and D8. 
222 | Survey Methodology and Procedures 

Section E Response Rate uses responses to questions E1a, E1b, E1c, E1d, E1e, E2a, E2b, E2c, E2d, E2e, 

E2f, E2g, E2h, E2i, E2j, E2k, E2l, and E2m.

Section F Response Rate uses responses to questions F1a, F1b, F1c, F1d, F1e, F1f, F1g, F1h, F2, F3a, 

F3b, F3c, F3d, F4a, F4b, F4c, F4d, F5a, F5b_1, F5c_1, F5b_2, F5c_2, F5b_3, F5c_3, F5d_1, F5d_2, 

F5d_3, F5d_4, F6a, F6b_1, F6c_1, F6b_2, F6c_2, F6b_3, F6c_3, F6d_1, F6d_2, F6d_3, F6d_4, F7a, 

F7b_1, F7c_1, F7b_2, F7c_2, F7b_3, F7c_3, F7d_1, F7d_2, F7d_3, F7d_4, F7d_5, F8a, F8b_1, F8c_1, 

F8b_2, F8c_2, F8b_3, F8c_3, F8d_1, F8d_2, F8d_3, F8d_4, F8d_5, F9a, F9c_1, F9c_2, F9c_3, F9d_1, 

F9d_2, F9d_3, F9d_4, F9d_5, F10a, F10c_1, F10c_2, F10c_3, F10d_1, F10d_2, F10d_4, F11a, F11d_1, 

F11d_2, F11d_3, F11d_4, F11d_5, F12a, F12b, F12c, F12d, and F12e.

Survey Response Rate Data Notes: 

General Notes: 

• Response rates are calculated as the percentage of jurisdictional responses within a state that

were not left blank (i.e., had a numerical response of zero or greater or a response of “data not

available,” “does not apply,” or “valid skip”).

• Item descriptions and optional survey comments were not included in the response rate

calculation.

[1] Information for Kalawao County, Hawaii was reported with Maui County.

[2] Maine reported its UOCAVA data on a statewide level, not a jurisdiction level.
Survey Methodology and Procedures | 223

Methodology Appendix B: Data Collection Template Validation Rules

Table 1: Math Validation Rules

Validation Rule Error Text

The sum of A1b + A1c 

should equal A1a

The sum of active (A1b) and inactive (A1c) registered voters should be equal to 

the total number of registered voters (A1a).

The sum of A2b + A2c 

should equal A2a

The sum of SDRs received on Election Day (A2b) and SDRs received prior to 

Election Day (A2c) should be equal to the total number of SDRs received (A2a).

The sum of A3b–j should 

equal A3a

The sum of the numbers you report in A3b–j should equal the total number of 

registration forms you report in A3a.

The sum of A4a–l should 

equal A3a

The sum of the numbers you report in A4a–l should equal the total number of 

registration forms you reported in A3a.

The sum of A5a–l should 

equal A3b

The sum of the numbers you report in A5a–l should equal the total number of 

registration forms you reported in A3b.

The sum of A6a–l should 

equal A3d

The sum of the numbers you report in A6a–l should equal the total number of 

registration forms you reported in A3d.

The sum of A7a–l should 

equal A3e

The sum of the numbers you report in A7a–l should equal the total number of 

registration forms you reported in A3e.

The sum of A5a + A6a + 

A7a should not exceed A4a

The amounts you report in A5a, A6a, and A7a should not exceed the total 

number of registration forms received by mail, fax, or email you reported in 

A4a. Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of A5b + A6b + 

A7b should not exceed A4b

The amounts you report in A5b, A6b, and A7b should not exceed the total 

number of registrations in person at the election/registrar’s office you reported 

in A4b. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of A5c + A6c + 

A7c should not exceed A4c

The amounts you report in A5c, A6c, and A7c should not exceed the total 

number of registration forms submitted online you reported in A4c. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of A5d + A6d + 

A7d should not exceed A4d

The amounts you report in A5d, A6d, and A7d should not exceed the total 

number of registration forms received from motor vehicle offices you reported 

in A4d. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of A5e + A6e + 

A7e should not exceed A4e

The amounts you report in A5e, A6e, and A7e should not exceed the total 

number of registration forms received from public assistance offices you 

reported in A4e. Please correct your responses or use the comments section to 

explain why these subitems do not add up.

The sum of A5f + A6f + A7f 

should not exceed A4f

The amounts you report in A5f, A6f, and A7f should not exceed the total 

number of registration forms received from state-funded agencies you reported 

in A4f. Please correct your responses or use the comments section to explain 

why these subitems do not add up.
224 | Survey Methodology and Procedures 

Validation Rule Error Text

The sum of A5g + A6g + 

A7g should not exceed A4g

The amounts you report in A5g, A6g, and A7g should not exceed the total 

number of registration forms received from armed forces recruitment offices 

you reported in A4g. Please correct your responses or use the comments 

section to explain why these subitems do not add up.

The sum of A5h + A6h + 

A7h should not exceed A4h

The amounts you report in A5h, A6h, and A7h should not exceed the total 

number of registration forms received from other agencies designated by the 

state but not mandated by the NVRA you reported in A4h. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of A5i + A6i + A7i 

should not exceed A4i

The amounts you report in A5i, A6i, and A7i should not exceed the total number 

of forms received from registration drives from advocacy groups or political 

parties you reported in A4i. Please correct your responses or use the comments 

section to explain why these subitems do not add up.

The sum of A5j + A6j + A7j 

should not exceed A4j

The amounts you report in A5j, A6j, and A7j should not exceed the total number 

of forms received from “Other” sources you reported in A4j. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of A5k + A6k + 

A7k should not exceed A4k

The amounts you report in A5k, A6k, and A7k should not exceed the total 

number of forms received from “Other” sources you reported in A4k. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of A5l + A6l + A7l 

should not exceed A4l

The amounts you report in A5l, A6l, and A7l should not exceed the total number 

of forms received from “Other” sources you reported in A4l. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of A8b–h should 

equal A8a

The amounts you report in A8b–h should equal the total number of 

confirmation notices sent to registered voters you reported in A8a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of A9b–j should 

equal A9a

The amounts you report in A9b–j should equal the total number of voters 

removed you reported in A9a. Please correct your responses or use the 

comments section to explain why these subitems do not add up.

The sum of B1b–c should 

equal B1a

The amounts you report in B1b–c should equal the total number of registered 

and eligible UOCAVA voters you reported in B1a. Please correct your responses 

or use the comments section to explain why these subitems do not add up.

The sum of B2b–c should 

equal B2a

The amounts you report in B2b–c should equal the total number of FCPAs 

received from UOCAVA voters you reported in B2a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of B3b–c should 

equal B3a

The amounts you report in B3b–c should equal the total number of rejected 

FPCAs from UOCAVA voters you reported in B3a. Please correct your responses 

or use the comments section to explain why these subitems do not add up.

The sum of B5b–c should 

equal B5a

The amounts you report in B5b–c should equal the total number of absentee 

ballots transmitted to UOCAVA voters you reported in B5a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.
Survey Methodology and Procedures | 225

Validation Rule Error Text

The sum of B6b–c should 

equal B6a

The amounts you report in B6b–c should equal the total number of absentee 

ballots transmitted to UOCAVA voters by postal mail you reported in B6a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B7b–c should 

equal B7a

The amounts you report in B7b–c should equal the total number of absentee 

ballots transmitted to UOCAVA voters by email you reported in B7a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B8b–c should 

equal B8a

The amounts you report in B8b–c should equal the total number of absentee 

ballots transmitted to UOCAVA voters by other methods you reported in B8a. 

Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of B6a, B7a, and 

B8a should equal B5a

The amounts you report in B6a, B7a, and B8a should equal the total number of 

ballots transmitted to all UOCAVA voters you reported in B5a. Please correct 

your responses or use the comments section to explain why these subitems do 

not add up.

The sum of B6b, B7b, and 

B8b should equal B5b

The amounts you report in B6b, B7b, and B8b should equal the total number of 

ballots transmitted to all uniformed services voters you reported in in B5b. 

Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of B6c, B7c, and 

B8c should equal B5c

The amounts you report in B6c, B7c, and B8c should equal the total number of 

ballots transmitted to all overseas citizen voters you reported in B5c. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B9b–c should 

equal B9a

The amounts you report in B9b–c should equal the total number of UOCAVA 

ballots returned to your office you reported in B9a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of B10b–c should 

equal B10a 

The amounts you report in B10b–c should equal the total number of UOCAVA 

ballots returned to your office by postal mail you reported in B10a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B11b–c should 

equal B11a

The amounts you report in B11b–c should equal the total number of UOCAVA 

ballots returned to your office by email you reported in B11a. Please correct 

your responses or use the comments section to explain why these subitems do 

not add up.

The sum of B12b–c should 

equal B12a

The amounts you report in B12b–c should equal the total number of UOCAVA 

ballots returned to your office by other methods you reported in B12a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B10a, B11a, 

and B12a should equal 

B9a 

The amounts you report in B10a, B11a, and B12a should equal the total 

number of UOCAVA ballots returned to your office you reported in B9a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B10b, B11b, 

and B12b should equal 

B9b 

The amounts you report in B10b, B11b, and B12b should equal the total 

number of transmitted ballots returned by all uniformed services voters you 

reported in B9b. Please correct your responses or use the comments section to 

explain why these subitems do not add up.
226 | Survey Methodology and Procedures 

Validation Rule Error Text

The sum of B10c, B11c,

and B12c should equal 

B9c 

The amounts you report in B10, B11c, and B12c should equal the total number 

of transmitted ballots returned by all overseas citizen voters you reported in 

B9c. Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of B13b–d should 

equal B13a

The amounts you report in B13b–d should equal the total number of ballots 

returned undeliverable you reported in B13a. Please correct your responses or 

use the comments section to explain why these subitems do not add up.

The sum of B14b–c should 

equal B14a

The amounts you report in B14b–c should equal the total number of UOCAVA 

ballots counted by your office you reported in B14a. Please correct your 

responses or use the comments section to explain why these subitems do not 

add up.

The sum of B15b–c should 

equal B15a

The amounts you report in B15b–c should equal the total number of counted 

UOCAVA ballots returned by postal mail you reported in B15a. Please correct 

your responses or use the comments section to explain why these subitems do 

not add up.

The sum of B16b–c should 

equal B16a

The amounts you report in B16b–c should equal the total number of counted 

UOCAVA ballots returned by email you reported in B16a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of B17b–c should 

equal B17a

The amounts you report in B17b–c should equal the total number of counted 

UOCAVA ballots returned by other methods you reported in B17a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B15a, B16a, 

and B17a should equal 

B14a 

The amounts you report in B15a, B16a, and B17a should equal the total 

number of UOCAVA ballots counted by your office you reported in B14a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B15b, B16b, 

and B17b should equal 

B14b 

The amounts you report in B15b, B16b, and B17b should equal the total 

number of uniformed services voters’ ballots counted by your office you 

reported in B14b. Please correct your responses or use the comments section 

to explain why these subitems do not add up.

The sum of B15c, B16c,

and B17c should equal 

B14c 

The amounts you report in B15c, B16c, and B17c should equal the total 

number of overseas citizen voters’ ballots counted by your office you reported 

in B14c. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of B18b–c should 

equal B18a 

The amounts you report in B18b–c should equal the total number of rejected 

UOCAVA ballots you reported in B18a. Please correct your responses or use the 

comments section to explain why these subitems do not add up.

The sum of B19b–c should 

equal B19a

The amounts you report in B19b–c should equal the total number of UOCAVA 

ballots rejected because they were received after the deadline you reported in 

B19a. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of B20b–c should 

equal B20a

The amounts you report in B20b–c should equal the total number of UOCAVA 

ballots rejected because of a problem with the voter signature you reported in 

B20a. Please correct your responses or use the comments section to explain 

why these subitems do not add up.
Survey Methodology and Procedures | 227

Validation Rule Error Text

The sum of B21b–c should 

equal B21a

The amounts you report in B21b–c should equal the total number of UOCAVA 

ballots rejected for lack of a postmark you reported in B21a. Please correct 

your responses or use the comments section to explain why these subitems do 

not add up.

The sum of B22b–c should 

equal B22a

The amounts you report in B22b–c should equal the total number of UOCAVA 

ballots rejected for other reasons reported in B22a. Please correct your 

responses or use the comments section to explain why these items do not sum 

as expected.

The sum of B14a and 

B18a should equal B9a

The sum of B14a and B18a should equal the total number of UOCAVA ballots 

returned by voters that you reported in B9a. Please correct your responses or 

use the comments section to explain why these items do not sum as expected.

The sum of B14b and 

B18b should equal B9b

The sum of B14b and B18b should equal the total number of UOCAVA ballots 

returned by uniformed services voters that you reported in B9b. Please correct 

your responses or use the comments section to explain why these items do not 

sum as expected.

The sum of B14c and 

B18c should equal B9c

The sum of B14c and B18c should equal the total number of UOCAVA ballots 

returned by overseas citizen voters that you reported in B9c. Please correct 

your responses or use the comments section to explain why these items do not 

sum as expected.

The sum of B19a, B20a, 

B21a, and B22a should 

equal B18a

The amounts you report in B19a, B20a, B21a, and B22a should equal the total 

number of rejected UOCAVA ballots you reported in B18a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of B19b, B20b, 

B21b, and B22b should 

equal B18b

The amounts you report in B19b, B20b, B21b, and B22b should equal the total 

number of rejected ballots from uniformed services voters you reported in 

B18b. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of B19c, B20c, 

B21c, and B22c should 

equal B18c

The sum of the amounts you report in B19c, B20c, B21c, and B22c should 

equal the total number of rejected ballots from overseas citizen voters you 

reported in B18c. Please correct your responses or use the comments section 

to explain why these subitems do not add up.

The sum of B23b–c should 

equal B23a

The amounts you report in B23b–c should equal the total number of FWABs 

returned by UOCAVA voters you reported in B23a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of B24b–c should 

equal B24a

The amounts you report in B24b–c should equal the total number of FWABs 

counted you reported in B24a. Please correct your responses or use the 

comments section to explain why these subitems do not add up.

The sum of B25b–c should 

equal B25a

The amounts you report in B25b–c should equal the total number of FWABs 

rejected because they were received after the deadline you reported in B25a. 

Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of B26b–c should 

equal B26a 

The amounts you report in B26b–c should equal the total number of FWABs 

rejected because the voter’s regular absentee ballot was received and counted 

you reported in B26a. Please correct your responses or use the comments 

section to explain why these subitems do not add up.
228 | Survey Methodology and Procedures 

Validation Rule Error Text

The sum of B27b–c should 

equal B27a

The amounts you report in B27b–c should equal the total number of FWABs 

rejected for other reasons you reported in B27a. Please correct your responses 

or use the comments section to explain why these subitems do not add up.

The sum of B24a, B25a, 

B26a, and B27a should 

equal B23a

The amounts you report in B24a, B25a, B26a, and B27a should equal the total 

number of FWABs returned by UOCAVA voters you reported in B23a. Please 

correct your responses or use the comments section to explain why these 

subitems do not add up.

The sum of B24b, B25b, 

B26b, and B27b should 

equal B23b

The sum of the amounts you report in B24b, B25b, B26b, and B27b should 

equal the total number of FWABs returned by uniformed services voters you 

reported in B23b. Please correct your responses or use the comments section 

to explain why these subitems do not add up.

The sum of B24c, B25c, 

B26c, and B27c should 

equal B23c

The sum of the amounts you report in B24c, B25c, B26c, and B27c should 

equal the total number of FWABs returned by overseas citizen voters you 

reported in B23c. Please correct your responses or use the comments section 

to explain why these subitems do not add up.

The sum of C1b–i should 

equal C1a

The amounts you report in C1b–i should equal the number of total mailed

ballots transmitted you reported in C1a. Please correct your responses or use 

the comments section to explain why these subitems do not add up.

The sum of C4b–r should 

equal C4a

The amounts you report in C4b–r should equal the total number of mailed

ballots rejected you reported in C4a. Please correct your responses or use the 

comments section to explain why these subitems do not add up.

The sum of D3b–c cannot 

exceed D3a

The sum of the amounts you report in D3b–c cannot exceed the total number 

of physical polling places for Election Day in your jurisdiction you reported in 

D3a. Please correct your responses or use the comments section to explain 

why these subitems do not add up.

The sum of D4b–c cannot 

exceed D4a

The sum of the amounts you report in D4b–c cannot exceed the total number 

of physical polling places for early voting in your jurisdiction you report in D4a. 

Please correct your responses or use the comments section to explain why 

these subitems do not add up.

The sum of D7b–g should 

equal D7a

The numbers you report in D7b–g should equal the total number of poll 

workers in your jurisdiction you reported in D7a. Please correct your responses 

or use the comments section to explain why these subitems do not add up.

The sum of E1b–e should 

equal E1a

The amounts you report in E1b–e should equal the total number of voters who 

submitted provisional ballots you reported in E1a. Please correct your 

responses or use the comments section to explain why these subitems do not

add up.

The sum of E2b–m should 

equal E2a

The amounts you report in E2b–m should equal the total number of rejected 

provisional ballots you reported in E2a. Please correct your responses or use 

the comments section to explain why these subitems do not add up.

E1d should be equal to 

E2a 

The amount you report in E1d should equal the total number of rejected 

provisional ballots you reported in E2a. Please correct your responses or use 

the comments section to explain why these subitems do not add up.

The sum of F1b–h should 

equal F1a

The sum of the amounts you report in F1b–h should equal the total number of 

voters who cast a ballot that was counted you reported in F1a. Please correct 

your responses or use the comments section to explain why these subitems do 

not add up.
Survey Methodology and Procedures | 229

Table 2: Logic Validation Rules

Validation Rule Error Text

If A1c = Does Not Apply, 

then A1a = A1b

Because your state does not differentiate between active (A1b) and inactive 

voters (A1c), then A1a should equal A1b. Please correct your responses or use 

the comments section to explain why those two items differ.

A2a cannot exceed A1a

The amount of SDRs you report in A2a cannot exceed the total number of 

registered voters you report in A1a. Please review your responses or use the 

comments section to explain why the value in A2a exceeds the value in A1a.

B3a cannot exceed B2a

The number of rejected FPCAs you report in B3a should not exceed the total 

number of FPCAs received you reported in B2a. Please review your responses 

or use the comments section to explain why the value in B3a exceeds the 

value in B2a.

B4a cannot exceed B3a

The number of FPCAs rejected because they were late you report in B4a 

should not exceed the total number of FPCAs rejected you reported in B3a. 

Please review your responses or use the comments section to explain why the 

value in B4a exceeds the value in B3a.

B9a cannot exceed B5a

The number of ballots returned you report in B9a should not exceed the 

number of ballots transmitted to UOCAVA voters you reported in B5a. Please 

review your responses or use the comments section to explain why the value 

in B9a exceeds the value in B5a.

B9b cannot exceed B5b

The number of ballots returned from uniformed services members you report 

in B9b should not exceed the number of ballots transmitted to uniformed 

services members you reported in B5b. Please review your responses or use 

the comments section to explain why the value in B9b exceeds the value in 

B5b.

B9c cannot exceed B5c

The number of ballots returned from overseas citizen voters you report in B9c 

should not exceed the number of ballots transmitted to overseas citizen voters 

you reported in B5c. Please review your responses or use the comments 

section to explain why the value in B9c exceeds the value in B5c.

B13a cannot exceed B5a

The number of ballots returned as undeliverable you report in B13a should not 

exceed the number of ballots transmitted to UOCAVA voters you reported in 

B5a. Please review your responses or use the comments section to explain 

why the value in B13a exceeds the value in B5a.

B14a cannot exceed B9a

The total number of ballots counted you report in B14a should not exceed the 

total number of ballots returned by UOCAVA voters you reported in B9a. Please 

review your responses or use the comments section to explain why the value 

in B14a exceeds the value in B9a.

B14b cannot exceed B9b

The total number of ballots counted you report in B14b should not exceed the 

total number of ballots returned by uniformed services members you reported 

in B9b. Please review your responses or use the comments section to explain 

why the value in B14b exceeds the value in B9b.

B14c cannot exceed B9c

The total number of ballots counted you report in B14c should not exceed the 

total number of ballots returned by overseas citizen voters you reported in 

B9c. Please review your responses or use the comments section to explain 

why the value in B14c exceeds the value in B9c.
230 | Survey Methodology and Procedures 

Validation Rule Error Text

B15a cannot exceed B10a

The number of ballots counted you report in B15a should not exceed the total 

number of ballots returned by postal mail by UOCAVA voters you reported in 

B10a. Please review your responses or use the comments section to explain 

why the value in B15a exceeds the value in B10a.

B15b cannot exceed B10b

The number of ballots counted you report in B15b should not exceed the total 

number of ballots returned by postal mail by uniformed services members you 

reported in B10b. Please review your responses or use the comments section 

to explain why the value in B15b exceeds the value in B10b.

B15c cannot exceed B10c

The number of ballots counted you report in B15c should not exceed the total 

number of ballots returned by postal mail by overseas citizen voters you 

reported in B10c. Please review your responses or use the comments section 

to explain why the value in B15c exceeds the value in B10c.

B16a cannot exceed B11a

The number of ballots counted you report in B16a should not exceed the total 

number of ballots returned by email by UOCAVA voters you reported in B11a. 

Please review your responses or use the comments section to explain why the 

value in B16a exceeds the value in B11a.

B16b cannot exceed B11b

The number of ballots counted you report in B16b should not exceed the total 

number of ballots returned by email by uniformed services members you 

reported in B11b. Please review your responses or use the comments section 

to explain why the value in B16b exceeds the value in B11b.

B16c cannot exceed B11c

The number of ballots counted you report in B16c should not exceed the total 

number of ballots returned by email by overseas citizen voters you reported in 

B11c. Please review your responses or use the comments section to explain 

why the value in B16c exceeds the value in B11c.

B17a cannot exceed B12a

The number of ballots counted you report in B17a should not exceed the total 

number of ballots returned by other modes by UOCAVA voters you reported in 

B12a. Please review your responses or use the comments section to explain 

why the value in B17a exceeds the value in B12a.

B17b cannot exceed B12b

The number of ballots counted you report in B17b should not exceed the total 

number of ballots returned by other modes by uniformed services members 

you reported in B12b. Please review your responses or use the comments 

section to explain why the value in B17b exceeds the value in B12b.

B17c cannot exceed B12c

The number of ballots counted you report in B17c should not exceed the total 

number of ballots returned by other modes by overseas citizen voters you 

reported in B12c. Please review your responses or use the comments section 

to explain why the value in B17c exceeds the value in B12c.

C2a cannot exceed C1a

The number of mailed ballots transmitted to permanent absentee voters you 

report in C2a cannot exceed the total number of mailed ballots transmitted in 

C1a. Please review your responses or use the comments section to explain 

why the value in C2a exceeds the value in C1a.

The sum of C3a and C4a 

should equal C1b

The sum of the amounts you report in C3a and C4a should equal the number 

of absentee returned by voters you report in C1b. Please review your 

responses or use the comments section to explain why the sum of C3a and 

C4a do not match the value in C1b.

If D1a > 0, then D3a ≠ 

Does Not Apply

Because you reported in-person Election Day voting at a physical polling place 

in D1a, you should also report the number of Election Day polling places in 

D3a. Please review your responses and add comments as necessary.
Survey Methodology and Procedures | 231

Validation Rule Error Text

If D1a > 0, then F1b > 0 

Because you reported in-person Election Day voting in D1a, you should also 

report the number of these ballots that were counted in F1b. Please review 

your responses and add comments as necessary.

If D1b > 0, then D4a ≠ 

Does Not Apply

Because you reported in-person early voting at a physical polling place in D1b, 

you should also report the number of early voting polling places in D4a. Please 

review your responses and add comments as necessary.

If D1b > 0, then F1f > 0 

Because you reported in-person early voting in D1b, you should also report the 

numbers of these ballots that were counted in F1f. Please review your 

responses and add comments as necessary.

If D5a > 0 or D6a > 0, then 

D7a > 0 

Because you reported using poll workers in D5a and/or D6a, you should 

provide the total number of poll workers used in the jurisdiction in D7a. Please 

review your responses and add comments as necessary.

The sum of B14a and 

B24a should equal F1c

The sum of counted absentee UOCAVA ballots reported in B14a and counted 

FWABs reported in B24a should equal the total number of counted UOCAVA 

votes reported in F1c. Please review your responses or use the comments 

section to explain why the sum of B14a and B24a do not match the value in 

F1c.

C3a should equal F1d

The number of counted absentee ballots reported in C3a should equal the 

total number of counted mail votes reported in F1d. Please review your 

responses or use the comments section to explain why the C3a does not 

match the value in F1d.

If E1b > 0 or E1c > 0, then 

F1e > 0 

Because you reported a number of provisional ballots counted or partially 

counted in E1b and/or E1c, you should provide data on the number of voters 

who cast a provisional ballot that was counted in F1e. Please review your 

responses and add comments as necessary.

F1a cannot exceed A1a

The total number of voters who cast a ballot that was counted, as reported in 

F1a, cannot exceed the total number of registered voters as reported in A1a. 

Please review your responses and add comments as necessary.

F1b cannot exceed D1a

The number of voters who voted in-person on Election Day and whose votes 

were counted, as reported in F1b, cannot exceed the total number of inperson ballots cast in Election Day, as reported in D1a. Please review your 

responses and add comments as necessary.

F1d cannot exceed C1a

The number of voters who cast a mailed ballot that was counted, as reported 

in F1d, cannot exceed the total number of mailed ballots transmitted, as 

reported in C1a. Please review your responses and add comments as 

necessary.

F1e cannot exceed E1a

The number of voters who cast a provisional ballot that was counted, as 

reported in F1e, cannot exceed the total number of provisional ballots cast, as 

reported in E1a. Please review your responses and add comments as 

necessary.

F1f cannot exceed D1b

The number of voters who cast a ballot during in-person early voting that was 

counted, as reported in F1f, cannot exceed the total number of ballots cast 

during in-person early voting, as reported in D1b. Please review your 

responses and add comments as necessary.

If F5a = Yes, then F5b_1 ≠ 

0 or Does Not Apply

Because you reported using DREs without VVPAT in F5a, you should report 

data on the make(s) and model(s) of this equipment in F5b.
232 | Survey Methodology and Procedures 

Validation Rule Error Text

If F5a = Yes, then F5c_1 ≠ 

0 or Does Not Apply

Because you reported using DREs without VVPAT in F5a, you should report 

data on the number of machines deployed in F5c.

If F6a = Yes, then F6b_1 ≠ 

0 or Does Not Apply

Because you reported using DREs with VVPAT in F6a, you should report data 

on the make(s) and model(s) of this equipment in F6b.

If F6a = Yes, then F6c_1 ≠ 

0 or Does Not Apply

Because you reported using DREs with VVPAT in F6a, you should report data 

on the number of machines deployed in F6c.

If F7a = Yes, then F7b_1 ≠ 

0 or Does Not Apply

Because you reported using ballot marking devices in F7a, you should report 

data on the make(s) and model(s) of this equipment in F7b.

If F7a = Yes, then F7c_1 ≠ 

0 or Does Not Apply

Because you reported using ballot marking devices in F7a, you should report 

data on the number of machines deployed in F7c.

If F8a = Yes, then F8b_1 ≠ 

0 or Does Not Apply

Because you reported using scanners in F8a, you should report data on the 

make(s) and model(s) of this equipment in F8b.

If F8a = Yes, then F8c_1 ≠ 

0 or Does Not Apply

Because you reported using scanners in F8a, you should report data on the 

number of machines deployed in F8c.

If F9a = Yes, then 

F9b_1other ≠ 0 or Does 

Not Apply

Because you reported using punch card machines in F9a, you should report 

data on the make(s) and model(s) of this equipment in F9b.

If F9a = Yes, then F9c_1 ≠ 

0 or Does Not Apply

Because you reported using punch card machines in F9a, you should report 

data on the number of machines deployed in F9c.

If F10a = Yes, then 

F10b_1other ≠ 0 or Does 

Not Apply

Because you reported using lever machines in F10a, you should report data 

on the make(s) and model(s) of this equipment in F10b.

If F10a = Yes, then F10c_1 

≠ 0 or Does Not Apply

Because you reported using lever machines in F10a, you should report data 

on the number of machines deployed in F10c.

If F11a = Yes, then 

F11d_1, F11d_2, F11d_3, 

F11d_4 and F11d_5 

cannot be blank

Please respond to item [insert item number here]. If you do not have the 

information to respond, please enter “Data Not Available.” If you collect the 

information but no response fits in this category, please enter “0.” If this 

question does not apply to you, please enter “Does Not Apply” and explain in 

the comments section.

Table 3: Policy Survey Validation Rules

Policy Survey Question If Selected in Policy Survey Expected Response in EAVS

Q7: Does your state have 

online registration?

Q7 = Yes (any of the two 

“yes” options)

A4c, A5c, A6c and A7c ≠ Does Not Apply

*Items A4c, A5c, A6c, and A7c report data on

online registration.

Q9: Does your state have 

same-day registration 

(SDR)?

Q9 = Yes

A2a ≠ Does Not Apply

*Item A2a reports data on SDRs.
Survey Methodology and Procedures | 233

Policy Survey Question If Selected in Policy Survey Expected Response in EAVS

Q9a: Under which 

circumstances can a voter 

in your state register on 

the same day that they 

cast a ballot?

Q9a_1= Selected (On 

Election Day)

A2b ≠ Does Not Apply

*Item A2b reports data on SDRs received on

Election Day.

Q9a_2= Selected OR 

Q9a_3= Selected

(During in-person early voting 

OR during an overlap 

between early voting and 

close of voter registration)

A2c ≠ Does Not Apply

*Item A2c reports data on SDRs received

before Election Day.

Q10: Does your state allow 

persons to preregister to 

vote before they are 18 

years of age?

Q10 = Yes

A3c ≠ Does Not Apply

*Item A3c reports data on new

preregistrations of persons under age 18.

Q11: Does your state 

differentiate between 

active and inactive voters 

in your voter registration 

records?

Q11= Yes

A1c ≠ Does Not Apply

*Item A1c reports data on inactive registrants.

Q13: Does your state send 

confirmation notices?

Q13_1 = Selected OR Q13_2 

= Selected OR Q13_3 = 

Selected (any of the three 

“yes” options)

A8a ≠ Does Not Apply

*Item A8a reports data on confirmation

notices.

Q18a: Does your whole 

state use an all-by-mail 

system?

Q18a = Statewide

F1g ≠ Does Not Apply

*Item F1g reports data on ballots cast in allby-mail jurisdictions.

Q19: Will your state allow 

some or all registered 

voters to request to be a 

permanent absentee 

voter? 

Q19 = Yes (any of the two 

“yes” options)

C2a≠ Does Not Apply

*Item C2a reports data on mailed ballots

transmitted to voters on a permanent mail

registration list.

Q24: What terminology 

does your state use to 

describe the process of 

allowing individuals to cast 

their ballots in person prior 

to Election Day?

Q24_4 = Selected (No inperson voting is allowed prior 

to Election Day)

D1b, D4a, D4b, D4c, D6a, and F1f = Does Not 

Apply

*Items D1b, D4a-c, D6a, and F1f report data

on in-person early/absentee voting before

Election Day.

Q32: Does your state use 

provisional ballots? Q32 = Yes

E1a, E1b, E1c, E1d, E1e, E2a, and F1e ≠ Does 

Not Apply

*Items E1, E2, and F1e report data on

provisional ballots.
234 | Survey Methodology and Procedures 

Policy Survey Question If Selected in Policy Survey Expected Response in EAVS

Q37: Do convicted or 

incarcerated individuals 

lose eligibility to vote?

Q37_4 = Selected (No one; 

criminal convictions do not 

limit a person’s right to vote)

A9d ≠ Does Not Apply

*Item A9d reports data on voters removed

from voter registration rolls due to a

disqualifying felony conviction.

Table 4: Special Conditions

If Expected EAVS Response

F5a = No Rest of items in F5 filled as Valid Skip (-77)

F5a = Yes At least: F5b_1; F5c_1; F5d_1; F5d_2; F5d_3; F5d_4; F5d_5 should have a response

F6a = No Rest of items in F6 filled as Valid Skip (-77)

F6a = Yes At least: F6b_1; F6c_1; F6d_1; F6d_2; F6d_3; F6d_4; F6d_5 should have a response

F7a = No Rest of items in F7 filled as Valid Skip (-77)

F7a = Yes At least: F7b_1; F7c_1; F7d_1; F7d_2; F7d_3; F7d_4; F7d_5 should have a response

F8a = No Rest of items in F8 filled as Valid Skip (-77)

F8a = Yes At least: F8b_1; F8c_1; F8d_1; F8d_2; F8d_3; F8d_4; F8d_5 should have a response

F9a = No Rest of items in F9 filled as Valid Skip (-77)

F9a = Yes At least: F9b_1; F9c_1; F9d_1; F9d_2; F9d_3; F9d_4; F9d_5 should have a response

F10a = No Rest of items in F10 filled as Valid Skip (-77)

F10a = Yes At least: F10b_1; F10c_1; F10d_1; F10d_2; F10d_3; F10d_4; F10d_5 should have a 

response

F11a = No Rest of items in F11 filled as Valid Skip (-77)

F11a = Yes At least: F11d_1; F11d_2; F11d_3; F11d_4; F11d_5 should have a response
Survey Methodology and Procedures | 235

Methodology Appendix C: Post-Submission Validations and Sample 

Rates 

Table 1: Sample Rates and Outlier Thresholds

EAVS Rate Calculation Threshold for Flagging 

Result for Further Review

Percent of total registrants by CVAP <50% 

>130%

Percent of registrations that were new 

and valid

<5% 

>95%

Percent of registrations that were 

duplicates

<1% 

>99%

Percent of registrations that were 

rejected

<1% 

>99%

Percent of registrations that were 

within-jurisdiction changes

<5% 

>95%

Percent of registrations received by mail <1% 

>99%

Percent of registrations received inperson<1% 

>99%

Percent of registrations received online <1% 

>99%

Percent of registrations received at 

motor vehicle agencies

<1% 

>99%

Percent of registrations removed as 

percent of total registrants

<1% 

>99%

Percent of FPCAs that were rejected BB3aa

BB2aa

 × 100 <0.5% 

>99%

Percent of UOCAVA ballots returned BB9aa

BB5aa

 × 100 <5% 

>95%

Percent of UOCAVA ballots returned that 

were counted

BB14aa

BB9aa

 × 100 <10% 

>100%

Percent of UOCAVA ballots returned that 

were rejected 

BB18aa

BB9aa

 × 100 <0.5% 

>90%

Percent of FWABs counted BB24aa

BB23aa

 × 100 <10% 

>100%

Percent of FWABs rejected (BB25aa + BB26aa + BB27aa)

BB23aa

 × 100 <0.5% 

>90%

Percent of mailed ballots returned CC1bb

CC1aa

 × 100 <5% 

>95%
236 | Survey Methodology and Procedures 

EAVS Rate Calculation Threshold for Flagging 

Result for Further Review

Percent of mailed ballots counted CC3aa

CC1bb × 100 <10% 

>100%

Percent of mailed ballots rejected CC4aa

CC1bb × 100 <0.5% 

>90%

Percent of provisional ballots rejected

EE1mm

 × 100 (EE1bb + EE1AA + EE1mm + EE1RR)

<0.5% 

>95%

Percent of turnout by CVAP FF1aa

× 100 CCEEEECC

<35% 

>95%

Percent ballots cast in-person on 

Election Day

FF1bb

 × 100 FF1aa

<10% 

>90%

Percent ballots cast by mail (FF1mm + FF1RR) × 100 FF1aa

<5% 

>95%

Percent ballots cast in-person early FF1oo

 × 100 FF1aa

<1% 

>95%

Percent ballots cast by UOCAVA voters FF1AA

 × 100 FF1aa

<0.1% 

>50%

Percent ballots cast that were 

provisional

FF1RR

 × 100 FF1aa

<0.01% 

>25%

Table 2: Comparisons to the 2016 EAVS Data

EAVS Rate Calculation Threshold for Flagging 

Result for Further Review

2020 total registrations as percentage 

of 2016’s registrations

<50% 

>150%

2020 registrations received as 

percentage of 2016’s

<25% 

>200%

2020 registrations removed as 

percentage of 2016’s

<10% 

>200%

2020 UOCAVA registrants as 

percentage of 2016’s

BB1aa [2020]

BB19aa [2016]

 × 100 <10% 

>200%

2020 UOCAVA ballots transmitted as 

percentage of 2016’s

BB5aa [2020]

BB1aa [2016]

 × 100 <10% 

>200%

2020 UOCAVA ballots returned as 

percentage of 2016’s

BB9aa [2020]

BB2aa [2016]

 × 100

<10% 

>200%
Survey Methodology and Procedures | 237

EAVS Rate Calculation Threshold for Flagging 

Result for Further Review

2020 UOCAVA ballots counted as 

percentage of 2016’s

BB14aa [2020]

BB8aa [2016] × 100 <10% 

>200%

2020 mailed ballots transmitted as 

percentage of 2016’s

CC1aa [2020]

CC1aa [2016]

 × 100

<10% 

>500%

2020 mailed ballots returned as 

percentage of 2016’s

CC1bb [2020]

CC1bb [2016]

 × 100 <10% 

>500%

2020 mailed ballots counted as 

percentage of 2016’s

CC3aa [2020]

CC4aa [2016]

 × 100

<10% 

>500%

2020 provisional ballots cast as 

percentage of 2016’s

EE1aa [2020]

EE1aa [2016]

 × 100 <10% 

>500%

2020 total turnout as percentage of 

2016’s 

FF1aa [2020]

FF1aa [2016]

 × 100

<50% 

>150%
238 | Survey Methodology and Procedures 

Methodology Appendix D: How to Calculate Selected EAVS Rates

The EAVS item numbers in this table correspond to the question numbering for the 2020 EAVS. To 

determine item numbering for previous EAVS surveys, please refer to the survey instrument and data 

codebook for each year.

EAVS Rate Calculation

Total CVAP registration rate

Active CVAP registration rate

Percentage of registrations that were new and valid

Percentage of registrations that were duplicates

Percentage of registrations that were rejected

Percentage of registrations that were within-jurisdiction changes

Percentage of total registration forms that were received by mail

Percentage of total registration forms that were received in 

person at election or registrar offices

Percentage of total registration forms that were submitted by 

individual voters through web-based online registration systems

Percentage of total registration forms that were received 

through motor vehicle agencies

Voter registration removal rate as a percentage of total 

registrants 

Percentage of FPCAs that were rejected BB3aa

BB2aa

 × 100

Percentage of total transmitted UOCAVA ballots that were 

returned by voters

BB9aa

BB5aa

 × 100

Percentage of total transmitted UOCAVA ballots that were 

returned by voters and counted

BB14aa

BB9aa

 × 100

Percentage of total transmitted UOCAVA ballots that were 

returned by voters and rejected

BB18aa

BB9aa

 × 100

Percentage of FWABs returned by UOCAVA voters that were 

counted

BB24aa

BB23aa

 × 100
Survey Methodology and Procedures | 239

EAVS Rate Calculation

Percentage of FWABs returned by UOCAVA voters that were 

rejected 

(BB25aa + BB26aa + BB27aa)

BB23aa

 × 100

Percentage of transmitted mailed ballots that were returned by 

voters

CC1bb

CC1aa

 × 100

Percentage of transmitted mailed ballots that were returned and 

counted

CC3aa

CC1bb × 100

Percentage of transmitted mailed ballots that were returned and 

rejected

CC4aa

CC1bb × 100

Percentage of provisional ballots that were counted, either in full 

or in part

(EE1bb + EE1AA) × 100 (EE1bb + EE1AA + EE1mm + EE1RR)

Percentage of provisional ballots that were rejected

EE1mm

 × 100 (EE1bb + EE1AA + EE1mm + EE1RR)

Voter turnout rate by CVAP FF1aa

× 100 CCEEEECC

Percentage of ballots that were cast at a physical polling place 

on Election Day

FF1bb

FF1aa

 × 100

Percentage of ballots that were cast as mailed ballots (FF1mm + FF1RR)

 × 100 FF1aa

Percentage of ballots that were cast at an in-person early voting 

location

FF1oo

 × 100 FF1aa

Percentage of ballots that were cast by UOCAVA voters

FF1AA

× 100 FF1aa

Percentage of ballots that were cast by provisional voters FF1RR

 × 100 FF1aa

Survey Methodology and Procedures | 1
2 | Survey Methodology and Procedures