U.S. ELECTION ASSISTANCE COM MISSION

annual rep ort ★ 2007

Introduct o 

The Commission 1

The Commissioners 

The Executive Director 

The General Counsel 2

The Office of Inspector General 

EAC Federal Advisory Committees 

Board of Advisors 3

Standards Board 3

Technical Guidelines Development Committee 

EAC Operations 4

Improving Voting Technology 4

EAC Administration 5

HAVA Funds Management 5

The National Clearinghouse 

EAC Advisory Boards 

Votes Taken by the Commission 6

A New Approach to Transparency and Accountability  

Web Site Activities 

EAC Newsline 

U.S. ELECTION ASSISTANCE COM MISSION

table of contents ★ 2007
 

C erti f i n   Vt i ngSy s tem ­—the Fedral G o vrnmnt'

The Voting System Testing and Certification Program 11 

Accrediting Test Laboratories—EAC's Partnership with the National Institute of

Standards and Technology  .

The Voluntary Voting System Guidelines 13 

2005 Voluntary Voting System Guidelines 13

The Next Iteration of Voluntary Voting System Guidelines  .

History of Voting System Standards and Guidelines 15

History of Voting System Certification 15

Keeping the Public and Election Officials Informed 15

Assis tancefor Elec i o Of f 

Election Management Guidelines 17

Poll Worker Recruitment, Training, and Retention Guidebook  .

College Poll Worker Recruitment, Training, and Retention Guidebook 18

Effective Designs for the Administration of Federal Elections 18

HAA F d s M ana

Report on HAVA Spending by the States 21

Assistance for Tracking and Reporting HAVA Expenditures 22 

Funding Advisories 22 

Audits  .

L anguageA cc si i l i ty 

Spanish Language Glossary of Key Election Terminology  .

C leari ngho s e ad  e s erch  ct 

Voting System Reports Clearinghouse 27

The 2006 Uniformed and Overseas Citizens Absentee Voting Act Survey 28

The 2005-2006 National Voter Registration Act Survey 29

Election Crimes: An Initial Review and Recommendations for Further Study 29
Research Projects Underway 30

Uniformed and Overseas Citizens Absentee Voting Act 30

2006 Election Administration and Voting Survey 30

First-time Voters Study  .

Voter Hotlines Study  .

Free Absentee Ballot Return Postage Study  .

Alternative Voting Methods Study 31

Implementation of Statewide Voter Registration Databases 31

Vote Counts and Recounts 31

Voter Information Web Sites 32

Legal Resources Clearinghouse 32

Asian and Pacific Islander American Languages Working Group 32

F ocus for 20

Preparing for the 2008 Election 35

The Next Iteration of the Voluntary Voting System Guidelines 35

Clearinghouse Activities  .

Effective Election Management Procedures 35

Language Accessibility Program  .

App ed

Commissioners’ Biographies  .

Rosemary E. Rodriguez, Chair 39

Caroline C. Hunter, Vice Chair 3

Gracia M. Hillman 40

Donetta Davidson 41

Executive Director’s Biography 42

Thomas Wilkey 42

EAC Board of Advisors 44

EAC Standards Board  .

EAC Technical Guidelines Development Committee  .
 

 annual rep ort ★ 2007

Election officials throughout the 

nation continued to face challenges 

as many proposals were introduced 

at the state and Federal levels that could 

result in additional or new requirements 

for voting systems. Consequently, the EAC

concentrated on providing election officials 

with management procedures for election 

administration that would be applicable for 

any type of voting system. In addition to

providing assistance in the management of 

voting systems, the Commission also introduced the Federal government’s first voting 

system certification program and worked 

to educate the public about the history of 

voting system certification and the status of 

existing voting systems. The EAC received

many questions from the public, the media, 

and members of Congress about which government entity is responsible for overseeing 

voting system manufacturers that have not 

chosen to participate in the EAC’s certification program. The public has also expressed

a desire for the Federal government to take 

{

In Fiscal Year (FY) 2007, the U.S. Election Assistance Commission (EAC) focus

on fulfilling its role under the Help America Vote Act (HAVA) as a national clearing

of information and working with election officials to improve voting systems and to 

implement effective management procedures surrounding those systems. }
I N T R O D U C T I O N 

a more active role in making the public aware of 

voting system issues that arise at both the state and 

local government levels

The EAC recognizes that having a secure, 

accurate and accessible voting system is only part 

of the solution to ensure that votes are counted 

accurately. All voting systems — paper-based, electronic, mixed — are vulnerable without thorough

election management procedures in place. After all,

people touch every part of the process and every 

detail, no matter how small; thus, proficient controls are crucial. To assist election officials in their

efforts to implement effective management procedures, the EAC issued the first three chapters of its 

Election Management Guidelines and distributed 

them to more than 6,000 election officials throughout the nation

Another priority for the EAC in FY 2007 was 

the launch of the Federal government’s first Voting 

System Testing and Certification Program. In January of this year, the National Institute of Standards

and Technology (NIST) met its HAVA obligation by 

delivering the first two voting system test laboratory 

recommendations to the EAC. The test laboratories

were accredited by the EAC, enabling the Commission to begin accepting applications from manufacturers to participate in the certification program 

and submit voting systems and software for testing

The launch of the Voting System Testing and 

Certification Program presented a new set of tasks 

for the EAC, including setting up an internal structure to track program developments, monitoring 

participants and notifying the public and election 

officials about activities — minor and major. To

ensure the public and election officials were notified about the program on a regular basis, the EAC 

established a separate Voting Systems Center on its 

Web site, containing information about everything 

from registered manufacturers to voting systems 

submitted for testing

The information in this annual report outlines 

the EAC’s activities in FY 2007 and includes Commission activities that will take place in FY 2008. The

past year saw the establishment of the first Federal 

Voting System Testing and Certification Program, but 

also criticism about the Commission’s internal procedures and policies. The EAC worked hard to make

improvements while not losing focus of the HAVA 

obligations it is mandated to fulfill and the reason 

the Commission was created — to provide assistance 

to make election administration improvements

The Commissi

The EAC is an independent, bipartisan agency 

created by HAVA. It assists and guides state and local

election officials in improving the administration 

of elections for Federal office. The EAC disperses

Federal funds to states to implement HAVA requirements, audits the use of HAVA funds, adopts the 

Voluntary Voting System Guidelines (VVSG), and 

serves as a national clearinghouse and resource of 

information regarding election administration. The

EAC also accredits testing laboratories and certifies, 

decertifies, and recertifies voting systems

The Commissione

The four EAC Commissioners are Rosemary E

Rodriguez, chair; Caroline C. Hunter, vice-chair;

Gracia M. Hillman; and Donetta Davidso

Commissioners are nominated by the President 

annual rep ort

★ 2007

01
 

02

and confirmed by the U.S. Senate, and may serv

only two consecutive terms. Commissioners serve

staggered terms. No more than two Commissioners

may belong to the same political party. Commissioners Rodriguez and Hunter joined the EAC in March

2007, replacing the vacancies left by former commissioners Ray Martinez and Paul DeGregorio,

respectively. Commissioner biographies, speeches,

and statements are available at www.eac.g

The Executive Direc

Thomas Wilkey was named executive director of 

the EAC in May 2005 by a unanimous vote of the 

Commission. The EAC’s executive director serves a

4-year term. The executive director’s duties include

managing daily operations, preparing program goals 

and long-term plans, managing the development 

of the VVSG, reviewing all reports and studies, and 

overseeing the appointment of EAC staff members 

and consultants

The General Coun

Juliet Hodgkins was named general counsel of the 

EAC in August 2004 by a unanimous vote of the 

Commission. The general counsel serves a four-year

term and is the chief legal officer for the Commission. The general counsel provides legal advice and

counsel to the Commissioners and EAC staff

The Office of Inspector Gene

The Office of Inspector General (OIG) is currently 

staffed with one permanent full-time position. In FY

2007, the OIG contracted with an independent public accounting firm for additional audit support. During FY 2007, the OIG focused its efforts on states’

expenditure of HAVA funds. The objectives of these

audits were to determine whether the state expended 

HAVA payments in accordance with the Act. Audits of

Illinois, Pennsylvania, South Carolina, Ohio, Indiana, 

Maryland, Wyoming, and Kentucky were completed 

in FY 2007. The audits identified approximately

$1.1 million in questioned costs and $9.7 million i

potential additional funds for the program

 In addition, the OIG completed a performance 

audit of management of travel by the EAC. The audit

found that travel was not performed in accordance 

with the Federal Travel Regulation. The audit identified errors in 91 percent of the travel packages

(authorizations and vouchers) examined. While the

majority of the errors were minor, such as claiming 

taxes as part of the lodging rate, some were more 

significant, such as traveling to a location that was 

not authorized or claiming a lodging rate that 

exceeded the authorized rate. Overall, the mistakes

were evidence of a need for independent controls 

and clear instructions on the preparation and 

approval of authorizations and vouchers, and for 

effective reviews of the accuracy of the travel claims

The OIG also noted a need for procedures to ensure 

that international travel is essential to the EAC mission and that employees receive compensatory time 

when traveling on their own time. Finally, the OIG

concluded that travel cards were adequately controlled and used for official purposes and that travelers generally paid their travel card bills on time

The EAC concurred with the findings and recommendations. The response indicated that the EAC

administrative staff had begun additional oversight of 

employee travel authorizations and vouchers and had 

arranged for additional training. In addition, the EAC

said it would draft internal policies and procedures 

to address the issues raised in the report

OIG audits and other program materials are 

available at www.eac.g

EAC Federal Advisory Comm

HAVA created a 37-member Board of Advisors and a 

110-member Standards Board to help the EAC carry 

out its mandates under the Act. HAVA Section 221

calls for establishing a Technical Guidelines Development Committee (TGDC) to help EAC develop the 

VVSG. These advisory boards provide valuable input
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★ 2007

★ introduction ★

03

and expertise in forming guidance and policy. In FY

2007, the EAC established a Virtual Meeting Room 

for its advisory committees to facilitate a more 

transparent and efficient way of receiving input. The

Virtual Meeting Room is available at www.eac.gov

and all comments made by board members are available to the public. Virtual Meeting Room notices

were also posted in the Federal Register to notify the 

public about the comment sessions

Board of Adviso

Membership on the Board of Advisors includes 

the following groups, as specified in HAVA (two 

members appointed by each): National Governors 

Association; National Conference of State Legislatures; National Association of Secretaries of State; 

The National Association of State Election Directors; 

National Association of Counties; National Association of County Recorders, Election Officials and 

Clerks; The United States Conference of Mayors; 

Election Center; International Association of Clerks, 

Recorders, Election Officials, and Treasurers; the 

U.S. Commission on Civil Rights; and Architectura

and Transportation Barriers Compliance Board

Other members include representatives from 

the U.S. Department of Justice, Public Integrity Section of the Criminal Division and the Voting Sectio

of the Civil Rights Division; the director of the U.

Department of Defense Federal Voting Assistance 

Program; four professionals from the field of science 

and technology, one each appointed by the Speaker 

and the Minority Leader of the U.S. House of Representatives, and the Majority and Minority leader

of the U.S. Senate; and eight members representin

voter interests, with the chairs and the ranking 

minority members of the U.S. House of Representatives Committee on House Administration and th

U.S. Senate Committee on Rules and Administratio

each appointing two members

In FY 2007, the Board received updates on 

EAC’s voting system certification and laboratory 

accreditation program; activities of the Technical 

Guidelines Development Committee (TGDC) 

regarding the VVSG; HAVA financial reporting schedules; the EAC’s audit process; the EAC’s Election Day 

survey; and the EAC’s Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA) survey. Advisory

board materials are available at www.eac.g

The Advisory Board adopted the following resolutions in FY 07:

• Resolution 2007-01 honored former EAC 

Chairman Paul DeGregorio

• Resolution 2007-02 requested that the EAC update 

the Board of Advisors on its progress regarding 

Section 241(b) of HAVA

• Resolution 2007-03 recommended that the EAC 

“provide guidance to states and territories of 

appropriate examples of a HAVA compliant 

definition of a vote”

• Resolution 2007-04 recommended that the EAC 

“describe how laboratories are evaluated for their 

capacity to conduct accessibility, usability, and 

privacy conformance testing” to the 2005 VVSG

• Resolution 2007-05 recommended that EAC “invite 

major voting system manufacturers” to testify on 

preparedness regarding issues that surfaced during 

the 2006 elections

• Resolution 2007-06 recommended that “Congress 

grant a permanent exemption from the Paperwork 

Reduction Act” for the EAC

Advisory Board documents, including resolutions, 

are available at www.eac.g

Standards Boar

The Standards Board consists of 110 members; 55 

are state election officials selected by their respective chief state election official and 55 are local election officials selected through a process supervised 

by the chief state election official. HAVA prohibits

any two members representing the same state to be 

members of the same political party
 

04

The board elects nine members to serve as an 

executive board, of which not more than five are 

state election officials, not more than five are local 

election officials, and not more than five are members of the same political party

In FY 2007, Standards Board members reviewed 

and commented on the draft EAC manual on Poll 

Worker Recruitment, Training and Retention, and a 

draft EAC manual on Recruiting College Poll Workers. The board adopted bylaws in FY 2007 as well as

reviewed the draft VVSG presented by the Technical 

Guidelines Development Committee. The board

adopted the following resolutions: 

• Resolution 2007-01 recommended that EAC 

inform the Congress and the public that HAVA 

is still being implemented, that Congress should 

provide funding to states to meet any new Federal 

election laws, and that any new election laws that 

are passed should not have effective dates before 

July 2010

• Resolution 2007-02 urged EAC to include two 

representatives of election organizations to work 

with NIST and the Technical Guidelines Development Committee on the next iteration of the VVSG

• Resolution 2007-03 recommended that EAC seek 

input from the public and from election officials 

about the National Voter Registration Act (NVRA) 

and make the information available to Congress in 

the EAC’s next NVRA survey

• Resolution 2007-05 recommended that the EAC 

narrow the scope of the VVSG to only time-sensitive and emergency matters. The resolution also

stated that the EAC should adopt a regular schedule for updates to the VVSG

Standards Board documents, including resolutions, are available at www.eac.g

Technical Guidelines Development Commi

HAVA mandates that the Technical Guidelines Development Committee (TGDC) help the EAC develop 

the VVSG, a task that was completed in May 2005

The guidelines are voluntary and each state retains 

the prerogative to adopt these guidelines

The chairperson of the TGDC is the director 

of NIST. The TGDC is composed of 14 other members appointed jointly by EAC and the director of

NIST. Members include representatives from the

Standards Board, the Board of Advisors, Architectural and Transportation Barriers Compliance Board, 

American National Standards Institute, Institute of 

Electrical and Electronics Engineers, The National 

Association of State Election Directors (two representatives), and other individuals with technical and 

scientific expertise related to voting systems and 

voting equipment

The TGDC held several plenary meetings 

throughout the fiscal year, focusing primarily on the 

next iteration of the VVSG. To view meeting minutes,

resolutions and other related material, visit www

vote.nist.g

EAC Operat

By FY 2007, the EAC had met several key HAVA 

mandates, including the adoption of the 2005 VVSG

The Commission had distributed all available HAVA 

funds to the states and shifted its priorities to auditing the funds that had been distributed as well as 

advising states on the proper use of HAVA funds

With those major responsibilities successfully 

executed, the Commission turned its attention to 

implementing a nationwide voting system testing 

and certification program, which officially launched 

in January 2007. The Commission’s FY 2007 appropriation was $16.2 milli

Improving Voting Technolog

In FY 2007 almost half of the Commission’s budget—48.4 percent—was dedicated to improving

voting technology. Related activities included working with NIST to evaluate and accredit voting system

test laboratories and the management of the entire 
annual rep ort

★ 2007

★ introduction ★

05

voting system certification process. Also included

was $4.95 million for NIST to assist the EAC in

this program area

EAC Administra

Nineteen percent of the EAC’s budget was dedicated to administration, which included internal 

operations and related costs, such as rent, office 

equipment and supplies, salaries and benefits, public meeting and hearing expenses, travel, and other 

administrative costs. This percentage also included

costs for issuing related Federal Register notices 

regarding EAC activities

HAVA Funds Manag

In FY 2007, 17 percent of the budget was dedicated 

to HAVA funds management activities such as the 

audit program and activities conducted by the Office 

of Inspector General. These funds also covered the

issuance of the 2007 report on HAVA spending by 

the states

The National Clearingho

To meet the HAVA research and study mandates and 

to provide election administration materials in preparation for the 2006 election, 13.3 percent of the budget was used to conduct and distribute the National

Voter Registration Act Survey, the Uniformed and 

Overseas Citizens Voting Act Survey, Poll Worker 

Best Practices, and the Effective Designs in Election 

Administration project. Clearinghouse funds were

used to produce and distribute the Election Management Guidelines and related Quick Start Management guides, which covered topics such as voting 

system certification and voting system security

The National Clearinghouse also funds the Language 

Accessibility Program, which produced the Spanish 

Glossary of Election Terms. Clearinghouse materials

are available at www.eac.g

EAC Advisory B

The EAC applied 1.7 percent of its budget to fund

meetings for the Standards Board and Board of Advisors to help develop the next iteration of the VVSG, 

review EAC guidance, and provide advice regarding 

research projects

48.4%

19.5%

17.1%

13.3%

1.7%

Improving Voting Technology 

($6,720,755) 

EAC Administration

($2,705,522)

EAC Advisory Boards

($232,613) The National Clearinghouse 

($1,845,703)

HAVA Funds Management 

($2,370,413)
 

06

 Decided by  D

 Title Vote of Transmitted Certifi

 

1. Adoption of Executive Order (December 21, 2006) Regarding 

Across the Board Pay Increase to Government Employees 3 1/3/07 1/4/07

2. Appointing Donetta Davidson as the Designated Federal Officer 

to the EAC Board of Advisors 3 1/4/07 1/9/07

3. Final Approval and Publication of EAC Advisory 2007-001 withdrawn 1/19/07 withdrawn

4. Final Approval and Publication of EAC Advisory 2007-001 - REVISED 3 1/22/07 1/24/07

5. EAC Credit Card Policy withdrawn 2/2/07 withdrawn

6. EAC Credit Card Policy - REVISED 3 2/6/07 2/7/07

7. Federal Register Publication of changes to the Kentucky HAVA State Plan 3 2/9/07 2/13/07

8. Website Maintenance Assistance (EAC Contract No. 07-12) 3 2/27/07 3/1/07

9. EAC Advisory 07-002 - Program Income and Set-Off Cost Incident to 

Program Income 4 3/20/07 3/27/07

10. Draft Voter Identification Report, Research and Future Study of Voter 

Identification Requirements withdrawn 3/26/07 withdrawn

11. Draft Voter Identification Report, Research and Future Study of Voter 

Identification Requirements withdrawn 3/28/07 withdrawn

12. Draft Voter Identification Report, Research and Future Study of Voter 

Identification Requirements 4 3/29/07 3/30/07

13. Release of Non-Public Information Pertaining to EAC Voter Identification 

and Voter Fraud and Intimidation Projects 4 6/7/07 6/7/07

14. Approval to Terminate the Review of Ciber’s Application Under EAC 

Interim Laboratory Accreditation Program 4 6/7/07 6/12/07

2007 ★ Tally Votes

Votes Taken by the Commissi

In FY 2007, the Commissioners cast votes on a wide 

variety of issues and initiatives, including the Election 

Crimes report, Uniformed and Overseas Citizens 

Absentee Voting Act (UOCAVA) report, poll worker 

guidebooks, HAVA expenditures by the states, 

the National Voter Registration Act survey, and the 

Spanish Glossary of Election Terms. A summary of

FY 2007 votes is shown in the following tables
annual rep ort

★ 2007

★ introduction ★

07

 Decided by  D

 Title Vote of Transmitted Certifi

 

1. FY 2006 Help America Vote College Program—Extension Requests 3 2/5/2007 2/7/2007

2. Human Resources Specialist 4 3/28/2007 3/29/2007

3. FY 2006 Help America Vote College Program—Extension Request 4 3/30/2007 4/2/2007

 

2007 ★ Consensus Votes

 Decided by  D

 Title Vote of Transmitted Certifi

15. Approval to Accredit InfoGard Laboratories as an EAC Voting Systems 

Test Laboratory 4 6/15/07 6/21/07

16. The Addition of New Subject Matter to the July 19, 2007 Public Meeting 

in Charlotte, North Carolina 4 7/12/07 7/12/07

17. Approved the Proposed Policy on Posting Reports and Studies 

Regarding Voting Systems withdrawn 7/31/07 withdrawn

18. Approved the Proposed Policy on Posting Reports and Studies 

Regarding Voting Systems 4 8/1/07 8/3/07

19. Release of Provisional Voting Study 3 8/1/07 8/6/07

20. EAC Staff Recommendation to Adopt the September, 2007 EAC 

UOCAVA Survey Report Findings and the Q2 Data Research 

Draft Case Studies Report UOCAVA Voters and the Electronic 

Transmission of Voting Materials in Four States.” withdrawn 9/19/07 withdrawn

21. EAC Staff Recommendation to Adopt the September, 2007 EAC 

UOCAVA Survey Report Findings and to release the Q2 Data Research 

Draft Case Studies Report UOCAVA Voters and the Electronic 

Transmission of Voting Materials in Four States.” 4 9/20/07 9/21/07

22. The Addition of New Subject Matter to the October 4, 2007 Public 

Meeting in Washington, DC 4 9/21/07 9/25/07

2007 ★ Tally Votes (Cont.)
 

08

A New Approach to Transparency 

Accountabilit

In FY 2007, the EAC took several important steps 

to increase transparency and accountability regarding Commission activities and decisions. To facilitate

transparent discussions and review sessions for the 

EAC’s Board of Advisors and Standards Board, Commissioner Gracia Hillman led the effort to establish 

a Virtual Meeting Room on the EAC Web site. Board

members used this technology to review draft documents and provide input to the EAC. The Virtual

Meeting Room is open to the public, and visitors 

are able to review the draft documents as well as the 

comments posted by the board members. In addition to providing transparency, the Virtual Meeting

Room also saves money and time, as well as increasing board member participation by eliminating the 

need for in-person review sessions. To view draft

documents and board member comments, visit the 

Virtual Meeting Room at www.eac.g

In addition to posting draft documents in the 

Virtual Meeting Room, the Commission also posted 

on the EAC Web site documents and related material 

that would be considered during public meetings

For instance, prior to the Commission’s adoption of 

the two best practices guidebooks on poll workers, 

the draft documents were posted on www.eac.go

for the public’s review. The Commission took the

same approach regarding the National Voter Registration Act (NVRA). Prior to the Commission’s

October public meeting on NVRA, draft procedures 

submitted by Commissioner Caroline Hunter and 

EAC staff were posted on the Web site for the public 

to review prior to the meeting

The first statement issued by Vice-Chair Rodriguez expressed her desire to conduct EAC activities 

in the sunshine, and she urged the Commission to 

take votes at public meetings whenever possible

Vice-Chair Rodriguez has also instituted a series of 

brownbag lunch discussions to give the public an 

opportunity to exchange ideas about topics currently 

before the Commission

EAC Chair Donetta Davidson made accountability a cornerstone of her tenure. In response to

In FY 2007, the EAC launched a newly designed Web site, 

and the guiding principal behind the new design was accessibility. The EAC generates a lot of information, some of 

which is difficult to categorize and present to the public in 

a logical and intuitive manner. To ensure that the public is 

able to locate the information they seek, EAC created user 

centers targeted to the various stakeholders who are impacted by EAC activities. Due to the widespread interest in 

voting systems, the EAC added a Voting System Center with 

categories about both the voting system test laboratories 

and the manufacturers.

N EAC 
annual rep ort

★ 2007

★ introduction ★

09

Congressional and public inquiries regarding EAC’s 

management of research projects, she requested that 

the Inspector General review EAC research practices 

to identify areas that need improvement in order 

to increase productivity and transparency at every 

level of EAC operations. The entire Commission supported the Chair’s request and awaits the Inspector

General’s results, which will be provided to Congress and made available to the public. The Commission also voted to make public the more than 40,000

pages of documents about EAC research requested 

by Congress. The documents and Congressional correspondence are available to the public by visiting

the Freedom of Information Act Reading Room at 

www.eac.gov or on four compact discs by sending 

request to HAVAinfo@eac.go

To ensure bipartisan participation in EAC activities, Chair Davidson also established subcommittees 

to oversee the Commission’s budget, research, and 

the NVRA

Web Site Activiti

During FY 2007, EAC Web site traffic increased dramatically, receiving 3,678,318 hits. Top page destinations included Register to Vote, the Voting System

Testing and Certification and Laboratory Accreditation Program, the 2005 VVSG, and the Spanish Glossary of Election Terms. The most popular download

was the National Voter Registration Form

Information about voting systems and voting 

system test laboratories, official meeting minutes 

and agendas, Federal Register notices, public meeting 

and hearing schedules, EAC studies and research, 

and more information about election administration 

and HAVA are available at www.eac.g

EAC News

The EAC’s monthly electronic newsletter, EAC 

Newsline, continues to be a popular resource of information about EAC news, updates and other HAVArelated information. Those interested in receiving

the newsletter can sign up for EAC Newsline by sending an e-mail to HAVAinfo@eac.gov. In addition t

distributing EAC Newsline, the EAC distributes news 

releases, meeting announcements, and program 

updates on a regular basis

★ ★ ★ ★ ★ ★
 

10

Section 231 of HAVA requires the EAC to provide for the 

testing, certification, decertification, and recertification of voting 

system hardware and software by accredited laboratories.

C e r i f y i n g V ot i n  S st 

★ ★ ★ ★ ★
annual rep ort

★ 2007

11

Until the passage of HAVA and the establishment of the EAC’s Voting System Testing and Certification Program, the Federal 

government did not test voting systems or issue 

findings regarding their ability to adhere to Federal 

voting system standards. Approximately 39 states

participated in a testing program administered by 

the National Association of State Election Officials 

(NASED), which evaluated and issued what were 

known as “qualifications” to notify election officials 

which voting systems had successfully met the 

requirements of its testing program. NASED, a nonpartisan, volunteer organization consisting of election directors, began testing voting systems in 1994

against standards adopted by the Federal Election 

Commission (FEC). NASED did not receive Federal

funds or support to administer this program. NASED

terminated its voting system program in July 2006

The Voting System Testing and Certificati

Program

Section 231 of HAVA requires the EAC to provide 

for the testing, certification, decertification, and 

recertification of voting system hardware and software by accredited laboratories. EAC’s full program

was launched in January 2007. The first requirement

for voting system manufacturers wishing to participate is registration. Registration is the process by

which manufacturers make initial contact with the 

EAC and provide information essential to participate 

in the program. Before voting system manufacturers

can submit an application to have a voting system 

certified by the EAC, it must first successfully 

complete the registration requirements

• Information – the manufacturer must provide its 

official name, address, and organization description. It must also identify any individual, organization, or entity with a controlling ownership interest in the manufacturer. Also required are proof o

written policies on document retention and a list 

of all manufacturing and/or assembly facilities

• Agreements – Manufacturers are required to take 

or abstain from certain actions to protect the 

integrity of the EAC program and promote quality 

assurance. They are required to represent a system

as certified only when authorized by the EAC; 

notify the EAC of any changes to an EAC-certified 

system; permit the EAC to review fielded voting 

systems and visit manufacturer’s facilities; cooperate with any and all inquiries and/or investigations; 

report any malfunctions of EAC-certified systems; 

certify that the manufacturer is not barred from 

doing business in the United States; and adhere to 

all program requirements

 Cer i f y i n g Vot ing S st 

The  ederalG overnment' N w R
 

12

The manufacturer must also successfully complete the EAC’s application form, providing all 

required information. If all of the requirements are

successfully met, the manufacturer receives an identification code and is eligible to submit voting 

systems for testing. If manufacturers engage in activities that are inconsistent with the program requirements, their registration may be suspende

In FY 2007, 10 manufacturers successfully 

registered, allowing them to submit systems and 

software for testing

★ Advanced Voting Solutions, Incorporated

★ Avante International Technology, Incorporated

★ Dominion Voting Systems Corporation

★ Election Systems & Software (ES&S)

★ Hart InterCivic, Incorporated

★ MicroVote General Corporation

★ Premier Election Solutions (formerly Diebold 

Election Systems, Incorporated)

★ Sequoia Voting Systems

★ TruVote International

★ Unisyn Voting Solutions

Nine voting systems were submitted for testing 

in FY 2007. More information about these voting

systems, registered manufacturers, application and 

registration forms, and the EAC Voting System 

Testing and Certification Manual are available in 

the Voting Systems Center at www.eac.g

Accrediting Test Laboratories

EAC’s Partnership with the Natio

Institute of Standards and Technology (NI

HAVA directs NIST to assist the EAC regarding 

the accreditation of voting system test laboratories 

through its National Voluntary Laboratory Accreditation Program (NVLAP). As part of its voting

system program, NVLAP evaluates laboratories to 

determine their competence to test voting system 

hardware and software for conformance to Federal 

standards. After the conclusion of the evaluations

NIST provides recommendations regarding laboratories that it deems qualified to test voting system 

hardware and software. After receiving the NIST recommendations, the EAC conducts a second review o

the laboratories to address non-technical issues such 

as conflict of interest policies, organizational structure, and record keeping protocols. After the EAC

✪

The EAC is operating the Federal government's first 

Voting System Testing and Certification Program. 

Information about registered manufacturers, voting 

systems submitted for testing, application forms, and 

other information is available in the Voting System 

Certification section at www.eac.gov. 

VOTING SY
annual rep ort

★ 2007

13

★ certifying voting systems ★

review, the Commission votes regarding full accreditation. The EAC accredited iBeta Quality Assurance,

SysTest Labs, and InfoGard in FY 2007. For more

information about these test laboratories, visit www

eac.gov. For more information about laboratorie

that have applied for accreditation and are currently 

being evaluated, visit www.nist.vote.

Interim Laboratory Accreditation Program

EAC’s interim laboratory accreditation program was 

put in place until NIST delivered its first list of 

recommended labs for the full accreditation program. At a public meeting in August 2005, the EAC

announced that the three test labs — CIBER, Incorporated, SysTest Labs, and Wyle Laboratories — 

that conducted testing for NASED would be allowed 

to apply for interim accreditation. SysTest Labs, and

Wyle Laboratories received interim accreditation in 

2006. At a public meeting in July 2007, the EAC

voted to terminate CIBER’s application due to 

CIBER’s failure to notify the EAC of key staff changes, a requirement under EAC’s interim program

Correspondence regarding this issue and CIBER 

assessment reports are available at www.eac.g

Labs that received interim accreditation were only 

qualified to test to 2002 voting system standards, not 

the 2005 VVSG. The interim program was terminated in March 2007 by a vote of the Commissio

Voluntary Voting System Guidelines (VVS

States are allowed to choose voting systems provided those systems meet the requirements of Section 

301(a) of HAVA, which sets forth the requirements 

that all voting systems used in Federal elections 

must meet. HAVA instructs the EAC to adopt the

VVSG, which the states may use when determining 

which voting systems to use in their respective 

jurisdictions

The VVSG provide a set of specifications and 

requirements against which voting systems can be 

tested to determine if they provide all the basic 

functionality, accessibility, and security capabilities 

required of voting systems. According to HAVA,

adoption of the VVSG or participation in EAC’s certification program at the state level is voluntary. However, states may formally adopt the VVSG, making

these guidelines mandatory in their jurisdictions

The process for creating and adopting the VVSG

is described in Section 221 of HAVA. The TGDC,

working with NIST, provides an initial set of recommended guidelines to the EAC. The EAC reviews

the recommendations and the Commission adopts 

a final version

The 2005 Voluntary Voting System Guidelin

In December 2005, a major goal of HAVA was 

reached with the unanimous adoption of the VVSG, 

which significantly increased security requirements 

for voting systems and expanded access, including 

opportunities for individuals with disabilities to vote 

privately and independently

Before the adoption of the VVSG, the EAC 

conducted a thorough and transparent public comment process. After conducting an initial review of

the draft VVSG, the EAC released the two-volume 

proposed guidelines for a 90-day public comment 

period; during this period, the EAC received more 

than 6,000 comments. Each comment was reviewed

and considered before final adoption. The Commission also held public hearings about the VVSG in New

York City, Pasadena, CA, and Denver, CO

Volume I of the VVSG, Voting System Performance 

Guidelines, includes requirements for accessibility, 

usability, voting system software distribution, system 

setup validation, and wireless communications. It

provides an overview of the requirements for independent verification systems, including requirements 

for a voter-verified paper audit trail for states that 

require this feature for their voting systems. Volume

I also includes the requirement that all voting system 
 

14

vendors submit software to the National Software 

Reference Library, which will allow local election 

officials to make sure the voting system software they 

purchased is the same software that was certified

Volume II of the VVSG, National Certification 

Testing Guidelines, describes the components of the 

certification process for voting systems, which is 

performed by voting system test labs accredited by 

the EAC. The 2005 VVSG and the comments received

from the public about the guidelines are available at 

www.eac.g

The Next Iteration of the Voluntary Votin

System Guideline

The EAC received recommendations for the next 

iteration of the VVSG from the TGDC in August 

2007. The TGDC recommended guidelines are a

complete re-write of the 2005 VVSG, intended 

to address the next generation of voting systems

These guidelines contain new and expanded material in the areas of reliability and quality, usability 

and accessibility, security, and testing. They require

software independence, a concept created for the 

purposes of the TGDC draft as a high level security 

requirement for all voting systems. According to

the draft guidelines, software independence can 

be achieved through the use of independent voter 

verifiable records (IVVR) or through the innovation 

class. Additionally, the TGDC draft recommends

open-ended vulnerability testing (OEVT), a testing 

method designed to bring greater security to voting 

systems in the polling place

To ensure maximum public input and participation, the Commission established a four-phase process 

leading to the adoption of a final version. The process

includes two 120-day public comment periods

The TGDC recommended guidelines and the 

public comment tool are available at www.eac. I

addition to reviewing the TGDC recommendations 

and providing input, the public can also view all 

comments that have been submitted

The online comment tool for the draft voluntary 

voting system guidelines (VVSG) is available at 

www.eac.gov. The draft guidelines were prepared by 

the U.S. Election Assistance Commission’s Technical 

Guidelines Development Committee (TGDC) with 

technical support from the National Institute of 

Standards and Technology (NIST). All comments will 

be made public and will be available by clicking on 

the View Comments link.

public comment to
annual rep ort

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15

★ Phase I – The EAC submits the TGDC’s draft document 

to the Federal Register and launches the first public comment phase with an online comment tool available at 

www.eac.gov. The public comment period lasts for 1

days and all comments will be made public. Also during

this phase the EAC will hold public meetings with stakeholders to discuss the proposed guidelines

★ Phase II – The EAC will collect and review all public 

comments submitted about the TGDC draft. After consideration of all public comments, the EAC will perform

an internal review of the draft guidelines

★ Phase III – Based upon public comments and internal 

review of the TGDC recommended guidelines, the EAC 

will develop and publish its draft version in the Federal 

Register. The public will have another 120 days to comment on the EAC draft version. The EAC will conduc

public meetings about its draft version

★ Phase IV – The EAC will collect and review all public 

comments and make final modifications. The final version of the VVSG will be adopted by a vote of the Commission at a public meeting and then published in the

Federal Register

History of Voting System Standards

and Guideline

Three iterations of voting system standards have 

been issued by the Federal government. The first

set of standards was created in 1990 by the Federal 

Election Commission (FEC). The FEC updated the

standards in 2002

HAVA transferred the responsibility of developing voting system standards from the FEC to the 

EAC. In 2005, the EAC issued the third iteration,

called the VVSG, in accordance with HAVA. These

guidelines were developed by the TGDC and NIST

History of Voting System Certificati

The establishment of the EAC’s Voting System Testing and Certification Program marks the first time 

the Federal government has tested voting systems

Previously, voting systems were tested by NASED, 

a nonpartisan, volunteer organization consisting of 

election directors. NASED began testing voting systems against FEC standards in 1994. NASED did no

receive Federal funds or support to administer this 

program. Approximately 39 states participated in

NASED’s program

Keeping the Public and Election

Officials Informe

The Federal government's new involvement in 

the testing and certification of voting equipment 

includes an obligation to notify the public and election officials about related activities and program 

updates. The EAC has made it a practice to post

information about the program frequently. By visiting

www.eac.gov, the public can see the list of registere

voting system manufacturers and copies of their 

agreement letters, voting systems currently being 

tested, and a list of accredited laboratories. The EAC

has also posted frequent updates such as interpretations, notices of clarifications, notices of non-compliance, and correspondence between the EAC and 

program participants. The public also receives notification when new information or updates are posted

regarding the Voting System Testing and Certification 

Program

★ certifying voting systems ★

✪
 

16

One of the EAC's top priorities under HAVA is to provide 

election officials resources and information to help them make 

election administration improvements at the local level.

ASSISTANCE FOR ELECTION OFFICIALS

★ ★ ★ ★ ★
annual rep ort

★ 2007

17

 A S S I S T A N C E F O R E L E C T I O N O F F I C I A L S 

 

 

One of the EAC’s top priorities under 

HAVA is to provide election officials 

resources and information to help them 

make election administration improvements at the 

local level. The EAC has already produced many of

these materials, including best practices, studies and 

reports, and information about the proper use of 

HAVA funds. However, the commission discovered

that many election officials were not aware that this 

information was available. Consequently, a major

goal of the EAC’s newly designed Web site was to 

create a support center for election officials where 

they could easily access the resources the EAC has 

produced for their use and consideration. The Election Official Center on the Web site contains information about managing and reporting HAVA funds,

including sample forms to further assist election 

officials. Also within the Election Official Center are

audit resolutions, advisories and guidance, best practices, research results, and other resources. The EAC

will continue its efforts to build upon this central 

resource of information about election administration for election officials

Election Management Guideli

In 2006, the EAC launched its Election Management 

Guidelines project, which was created to provide 

resources and information about effective election 

administration management procedures. The

EAC issued Quick Start Management guides on 

introducing new voting systems; ballot preparation 

and pre-election testing; voting system security; and 

poll workers. The EAC distributed this information

to more than 6,000 election officials throughout the 

nation. The guides, created in collaboration with

experienced election officials, proved to be very 

popular in the election community, especially in 

jurisdictions that do not have adequate resources to 

produce or distribute training materials. Building on

the success of the election management materials, in 

FY 2007 the EAC issued the first three chapters of 

its Election Management Guidelines, covering voting system certification, voting system security, and 

physical security for voting systems. The EAC also

issued a Quick Start guide about voting system certification. Again, the EAC distributed this information

to election officials throughout the nation. The next

Quick Start Management guides to be issued will 
 

18

cover acceptance testing; absentee voting and vote 

by mail; contingency and disaster planning; media 

and public relations; managing change; and polling 

places and vote centers. The Election Management

Guidelines and all Quick Start Management guides 

are available in the Election Official Center at 

www.eac.g

Poll Worker Recruitment, Training, a

Retention Guidebo

HAVA mandates that the EAC study methods to 

recruit, train, and retain poll workers to address 

the nationwide shortage of poll workers. In FY 2007,

the EAC issued Successful Practices for Poll Worker 

Recruitment, Training and Retention, a guidebook 

designed to assist election officials in their efforts 

to find and keep poll workers. The guidebook was

the culmination of a 15-month development process 

including working groups and focus groups and input 

from veteran poll workers. Before the guidelines

were adopted, they were pilot-tested at six sites during the 2006 election. The EAC also issued a stateby-state compendium of state laws governing poll

workers. The Successful Practices for Poll Worker Recruitment, Training and Retention and the compendium of

state laws are available in the Election Official Center at www.eac.g

College Poll Worker Recruitment, Traini

and Retention Guidebo

In regard to HAVA sections 501 and 502, the EAC 

issued the Guidebook for Recruiting College Poll Workers

to help election officials in their efforts to recruit 

the next generation of poll workers. The guidebook

was created with input from election officials, veteran poll workers, and college students. It was field

tested at three locations during the 2006 elections

The EAC will continue to support efforts to recruit 

college students as poll workers. To date, the EAC

has awarded $927,000 in grants as part of the HAVA 

College Poll Worker Program. These grants were

used to develop recruitment and training programs 

for college students to serve as poll workers and poll 

assistants. More information about the HAVA College Program and the Guidebook for Recruiting College

Poll Workers are available in the Election Official 

Center at www.eac.g

Effective Designs for the Administrati

of Federal Electio

Section 241(b) of HAVA recommends the study of 

ballot designs for elections for Federal offices. In

FY 2007 the EAC issued Effective Designs for the 

Administration of Federal Elections to help facilitate 

the administration of elections and increase the 

accessibility of election materials for voters and election officials. The report contains best practices suggestions on the design of voter information, optical

scan ballots and direct recording electronic (DRE) 

ballots based on legislative guidelines, information 

design principles and user centered research. It

was developed using input from election officials, 

literacy and disability experts, and voters. The following best practices in design were taken into consideration: literacy, readability, usability, alternate

languages, Braille, audio accessibility, and compliance with the Americans with Disabilities Act of 

1990 (ADA). The report is available in the Election

Official Center at www.eac.g
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★ 2007

19

★ assistance for election officials ★

Effective Designs for the Administration of F
 

20

Congress appropriated more than $3 billion to be 

distributed to the states to implement HAVA.

H A V A F U N D S M A N A G E M E N T 

★ ★ ★ ★ ★
annual rep ort

★ 2007

21

 H A V A F U N D S M A N A G E M E N T 

Congress appropriated more than $3 billion 

to be distributed to the states to implement HAVA; most of that money goes 

toward Title II, Section 251 payments, also known as 

requirements payments. These funds primarily help

states meet the uniform and nondiscriminatory election technology and administration requirements of 

Title III of HAVA. These requirements include voting

system standards, provisional voting, voting information requirements, a computerized statewide voter 

registration list, and identification requirements for 

first-time voters who register to vote by mail. All of

the appropriated funds have been disbursed to the 

states. States are required to submit annual reports

regarding the HAVA funds they received, and the 

EAC is responsible for ensuring the proper use of 

HAVA funds

Report on HAVA Spending by the St

In July 2007, the EAC delivered a report to 

Congress on the expenditure of HAVA funds by 

state governments. The report covered election

reform payments spent (including obligated funds) 

by states under HAVA sections 101 and 102 through 

December 31, 2006 and under Section 251 through 

September 30, 2006. States received approximately

$3 billion under these three sections of HAVA. The

EAC reported that states have spent 60 percent 

($1,781,943,111) of HAVA funds received – leaving 

more than $1.3 billion available for additional

improvements in election administration. According

to HAVA, most of these funds are not limited to use 

within a specific fiscal year. The EAC also reported

that of the funds expended:

• 76 percent was used to purchase or upgrade voting 

systems and implement statewide voter registration 

databases as required by HAVA

• 16 percent was used to improve the administration 

of elections for Federal office

• 8 percent was not classified by the state recipients 

• Less than one-tenth of one percent was used to 

implement provisional voting and polling place 

signage requirements
 

22

Allowable Uses of HAVA Funds

★ Section 101 Funds - may be used to comply with the 

requirements of HAVA Title III for uniform and nondiscriminatory election technology and administration requirements; improve the administration of elections for 

Federal office; educate voters; train election officials, 

poll workers and volunteers; develop a state plan; and 

toll-free voter information hotlines

★ Section 102 Funds - may be used only to replace punch 

card and lever voting systems that were in use during the 

November 2000 general Federal election

★ Section 251 Funds - may be used to implement provisional voting; provide information to voters on Election 

Day; procure voting systems; implement a statewide 

voter registration database; implement identification requirements for first-time voters who register to vote by 

mail; and other activities to improve the administration 

of elections for Federal office

States also received funds under Section 261 of 

HAVA to address the accessibility of polling places 

for individuals with disabilities. The EAC’s report

does not include information about the expenditure 

of these funds because they are administered by the 

U.S. Department of Health and Human Services. T

HAVA spending report is available at www.eac.g

Assistance for Tracking and Reporti

HAVA Expendit

As the EAC worked with election officials regarding 

the proper use of HAVA funds, it became apparent 

that the EAC needed to focus more time and effort 

to provide clear direction and resources about 

reporting requirements as well as how the funds 

could be used. To further assist election officials,

staff from the EAC HAVA funds management program and the Inspector General’s office teamed up 

to provide training at the Winter Conference of the 

National Association of Secretaries of State. Topics

included an overview of how HAVA funds could be 

used, reporting deadlines, and other issues such as 

how to comply with maintenance of effort requirements, and proper record keeping procedures

Funding Advisori

To address funding issues that frequently required 

clarification, the EAC issued three funding advisories 

in FY 2007

• Advisory 2007-003-A: Maintenance of Effort Funding

• Advisory 2007-003: Maintenance of Effort Funding

• Advisory 2007-002: Program Income and Set-off 

of Cost Incident to Program Income

Funding advisories, reporting schedules, model 

reporting forms, model narratives, and EAC funding 

advisories are available in the Election Official Center on the EAC Web site. Also available in the Election Official Center is a HAVA funding Frequently

Asked Questions document that is updated regularly

Audit

The EAC monitors the fiscally responsible use of 

HAVA funding. To fulfill this responsibility, the EAC’s

Inspector General conducts periodic fiscal audits of 

state HAVA fund expenditures, and the EAC issues 

final resolutions regarding proper use. In FY 2007,

the EAC executive director issued 26 audit resolutions – nine of these were resolutions to Inspector 

General audits, and 17 pertained to single audits 

conducted by states. The Single Audit Act mandates

that each state conduct an annual review of all Federal funding, including HAVA funds. All audits and

resolutions are available at www.eac.g

✪
annual rep ort

★ 2007

23

★ HAVA funds management ★

★ ★ ★ ★ ★ ★
 

24

The EAC's Language Accessibility Program was developed 

in accordance with HAVA's instruction to study and promote 

methods of ensuring the accessibility of voting, registration, 

polling places, and voting equipment to all voters.

LANGUAGE ACCESSIBILITY PROGRAM

★ ★ ★ ★ ★
annual rep ort

★ 2007

25

 L A N G U A G E A C C E S S I B I L I T Y P R O G R A M 

The EAC’s Language Accessibility Program 

was developed in accordance with HAVA’s 

instruction to study and promote methods 

of ensuring the accessibility of voting, registration, 

polling places, and voting equipment to all voters, 

including Native American and Alaska Native citizens 

and voters with limited proficiency in the English 

language. These provisions also charge the EAC with

examining the technical feasibility of providing voting materials in eight or more languages for voters 

who speak those languages and who have limited 

English proficiency

Spanish Glossary of Key Election Terminol

In April at a public meeting in Kansas City, the Commission adopted the Spanish Language Glossary of 

Key Election Terminology, the first project completed 

under the Language Accessibility Program. The glossary, last updated in 1979, provides a translation

of key election terms from English to Spanish and 

from Spanish to English. It contains 1,843 terms

and phrases used in the administration of elections 

in the United States. To ensure the translations were

culturally and linguistically appropriate, terms were 

translated and reviewed by a multi-dialect team of 

translators representing four of the main regions of 

origin of the Hispanic population living in the U.

Those regions are Mexico, Puerto Rico, Cuba, and 

Central America

The Language Accessibility Program consists of 

working groups comprised of local election officials, 

Congressional staff, national advocacy groups, and 

research and public policy organizations to assist the 

Commission on how to best meet language accessibility requirements. For more information and to

view the Spanish Language Glossary of Key Election 

Terminology, visit www.eac.g
 

26

CLEARINGHOUSE AND RESEARCH ACTIVITIES

In FY 2007, the EAC expanded the contents of its 

national clearinghouse of information by adding resources 

about election administration as well as information 

about how, when, and where we vote.

★ ★ ★ ★ ★
annual rep ort

★ 2007

27

CLEARINGHOUSE AND RESEARCH ACTIVITIES

The EAC is instructed by HAVA to collect 

data about election administration and share 

the data with election officials to help them 

make decisions at the local level. In FY 2007, the

EAC expanded the contents of its national clearinghouse by adding resources about election administration as well as information about how, when, and 

where we vote. New information and updates about

the Voting System Testing and Certification Program, 

best practices in election administration, and the 

proper use of HAVA funds were made available to 

the public, election officials, and the media via the 

Web site and through e-mail distribution. In addition

to completing the research mandated by HAVA, the 

EAC also launched other initiatives to serve as a 

central resource about elections

Several of the EAC’s research projects received 

intense scrutiny during FY 2007, prompting Freedom 

of Information Act (FOIA) requests and Congressional and media inquiries. Most of the scrutiny was

focused on the EAC’s 2006 Election Crimes Report: 

An Initial Review for Further Study. The Commission

provided Congress more than 40,000 pages of documents relating to this project and voted to release 

all materials to the public. EAC Chair Davidson also

asked the EAC’s Inspector General to review the process surrounding this project. Documents provided to

Congress, Congressional correspondence and other 

related materials are available in the EAC’s electronic 

FOIA Reading Room at www.eac.g

Voting System Reports Clearinghou

Public interest in voting systems continues to rise, 

and the EAC receives many requests for information and reports generated about voting systems 

that were tested by NASED. As part of the EAC’s

clearinghouse responsibilities under Section 202 of 

HAVA, the Commission explored how best to gather 

and provide this information in recognition of the 

need to provide historical data in a central location 

to both the public and election officials. In August,

the Commission adopted a policy authorizing the 

EAC staff to post and distribute reports about voting 

systems generated or commissioned by state and/or 

local election officials

To be considered for posting on the EAC Web 

site, a state or local government must submit the 

report to the EAC chair or executive director and 

certify that the report reflects their experience 

operating voting systems or implementing EAC’s 

VVSG. The Voting System Reports Clearinghouse

and the policy are available at www.eac.g
 

28

The 2006 Uniformed and Overseas Citiz

Absentee Voting Act Surv

The Uniformed and Overseas Citizens Absentee Voting Act (UOCAVA) of 1986 (42 U.S.C. 1973ff) protects the voting rights of members of the Uniform

Services (on active duty), members of the Merchant 

Marine and their eligible dependents, Commissioned 

Corps of the Public Health Service, Commissioned 

Corps of the National Oceanic and Atmospheric 

Administration, and U.S. citizens residing outside th

United States. UOCAVA requires states/territories to

allow these citizens to register and vote in elections 

for Federal office using absentee procedures

HAVA mandates that for each regularly scheduled general election for Federal office, the states 

shall provide the EAC with data about all of the 

ballots sent and received by UOCAVA voters. In

2004, the EAC developed a survey instrument and 

distributed it to the states to collect statistics on 

UOCAVA voters from the November 2, 2004, presidential election. During the lengthy process of collecting the data, it was determined that many states

and local jurisdictions did not track the specific data 

required by HAVA; they also stored the requested 

statistics in various formats, resulting in some gaps 

in the UOCAVA data collected by the EAC

Efforts aimed at educating states and their 

local election authorities about HAVA requirements 

regarding UOCAVA was an integral part of the process in designing the 2006 survey instrument. In the

early spring of 2006, the EAC conducted a working 

group meeting of state and local election officials 

and other experts to fine-tune the UOCAVA and the 

Election Administration and Voting survey instruments. Representatives from the elections community, along with various organizations that use

UOCAVA survey data, shared their suggestions for 

improving the format and administration of the 

surveys. The EAC also received input from its Board

of Advisors and Standards Board

Ultimately, in addition to making language 

improvements, the EAC combined the UOCAVA 

questions into its 2006 Election Administration and 

Voting Survey, making it easier for election officials 

to provide the information required by HAVA

Key Findings of the 2006 UOCAVA 

• At least 992,034 UOCAVA ballots were requested

• Slightly more than 330,000 ballots were cast or 

counted 

• More than 70 percent of UOCAVA ballots reported 

not counted was because these ballots were 

returned to local election offices as undeliverable

• 56.3 percent of ballots from domestic military voters were cast or counted; 47.6 percent of ballot

from overseas military voters were cast or counted; 

and 52.6 percent of ballots from overseas citizens

were cast or counted

• 26.5 percent of UOCAVA ballots came from domestic military voters; 16.9 percent from overseas military voters; and 19.7 from overseas citiz

• Approximately one-third of the cast or counted ballots were uncategorized by the states (The “cast or 

counted” category was created because not all states 

track ballots cast and ballots counted separately.

Response rates from states and local jurisdictions 

varied. For instance, of 3,123 possible jurisdictions,

54 percent provided information on the number of 

domestic military absentee ballots cast or counted, 

while 62 percent provided information on the number 

of overseas military absentee ballots cast or counted

Generally, more jurisdictions tracked information on 

overseas voters than domestic military voters
annual rep ort

★ 2007

29

★ clearinghouse and research activities ★

EAC Recommendations to Improve the Process 

for UOCAVA Voters 

★ Redouble EAC efforts to collect the HAVA-mandated 

information

★ Increase efforts to make sure overseas voters are aware 

of their voting rights

★ Work in partnership with the Federal Voting Assistance 

Program to develop best practices and programs to 

encourage participation among UOCAVA voters

★ Consider legal changes and new technologies to 

overcome barriers faced by UOCAVA voters

★ Establish a mechanism whereby a military transfer 

generates a move notice to the local registrar

In FY 2007, the EAC added resources to its 

UOCAVA section of the Web site, including links to 

the voter resource Web site for every branch of the 

military, as well as links to information provided by 

election officials

2005-2006 National Voter Registratio

Act Surve

HAVA mandates that the EAC submit a report to 

Congress every two years on the impact of the NVRA 

on the administration of Federal elections. In June,

the Commission delivered to Congress its 2005-2006 

NVRA report, which covered registration information from after the 2004 presidential election through 

the 2006 general election. The report and the data

tables are available at www.eac.g

Key Findings of the 2005-2006 NVRA R

• In 2006, there were 172,810,006 registered voters 

in the United States

• Between 2004 and 2006, 31 states and 1 territory 

reported decreases in voter registration; 16 states 

and 1 territory reported increases

• Between 2004 and 2006, states reported nearly 

36.3 million voter applications processed, and

nearly 17.3 million applications were valid new

registrations

• Motor vehicle agencies accounted for more than 

45 percent of all registration applications received 

nationwide

• Between 2004 and 2006, nearly 13 million names 

were removed from voter lists under the NVRA list 

verification procedures

The report was based on information provided 

by 50 states, the District of Columbia, and two 

territories, representing 2,978 out of a total 3,524 

jurisdictions

The 2005-2006 NVRA report included EAC 

recommendations to improve the collection of 

these data. Recommendations included: continue

to improve and modernize list maintenance systems; 

develop databases that can track a registrant’s voting 

and registration history; and train all state agencies 

involved in voter registration

Election Crimes A Initial Review 

Recommendations for Further Stu

Section 241 of HAVA calls on the EAC to research 

and study various issues related to the administration 

of elections, including voting fraud and voter intimidation. In 2005, the EAC hired two contract employees and charged them with (1) researching the current state of information on the topic of voting fraud

and voter intimidation, (2) developing a uniform 

definition of voting fraud and voter intimidation, 

and (3) proposing recommended strategies for 

researching this subject. Between May and July 2006,

the contractors provided a series of documents in 

response to the EAC’s charge. At a public meeting

in December 2006, the Commission unanimously 

adopted Election Crimes: An Initial Review and Recommendations for Further Study. The Commission

adopted four of the contractors’ recommendations 

and agreed to conduct a comprehensive survey and 

✪
 

30

subsequent study of voting fraud and voter intimidation. The EAC’s Election Crimes report is available

in the Reports, Research, and Resources section at 

www.eac.gov. Materials submitted by the consultan

are available on the EAC Web site in the FOIA Reading Room

Research Projects Under Way n FY

The EAC has embarked on several research projects 

regarding a wide range of election administration 

topics. The following research projects currently

under way were driven by the requirements of HAVA 

and also were in response to requests from election 

officials. Upon completion, all projects will be available at www.eac.

Uniformed and Overseas Citizens Absen

Voting Ac

Section 245 of HAVA requires the EAC to study the 

challenges of incorporating Internet technologies 

into the Federal, state, and local electoral process—

specifically, issues pertaining to electronically generated messages that permit eligible voters to apply 

for and vote an absentee ballot. Electronic transmission of voting materials makes the voting process

easier for people covered by UOCAVA because they 

face greater constraints when voting absentee. Currently, no states have Internet-based registration or

voting systems, but many use facsimile (fax) transmission and several use electronic mail (e-mail) for 

UOCAVA voters

To fulfill Section 245 requirements, the EAC 

researched and documented current and potential 

electronic ballot transmission to and from UOCAVA 

voters. The project had three components: (1) compile case studies of four States that allow some electronic transmission of voting materials; (2) conduct a

survey of UOCAVA voters about their electronically 

transmitted voting experience and preferences; and 

(3) hold a conference to examine the use of technology for UOCAVA voters

The case studies were conducted in Illinois, 

Florida, South Carolina, and Montana, and topics 

included each state’s experience with electronic 

transmission of voting materials, implementation 

challenges, and election official perspectives. The

case studies will be distributed in early 2008

The EAC distributed a survey to more than 

5,000 UOCAVA voters both in the U.S. and abroa

to assess their perception of the voting process, 

including how they obtain and cast ballots and other 

concerns such as privacy and security. The results

of the survey will be distributed in early 2008

In addition to the data gathered from the case 

studies and the survey of UOCAVA voters, the EAC 

held a conference in September 2007 to discuss 

preliminary findings with 43 state and local election 

officials, Department of Defense representatives, 

and organizations representing overseas citizens. The

culmination of these research efforts will be a set of 

best practices about how to effectively and efficiently 

serve UOCAVA voters

2006 Election Administration and Voting Surv

Section 241 of HAVA requires the EAC to study and 

report on election activities, practices, policies, and 

procedures, including methods of voter registration, methods of conducting provisional voting, poll 

worker recruitment and training, and other matters 

the Commission determines are appropriate. The

2006 Election Administration and Voting Survey used 

an online Web survey instrument to collect key data 

from the mid-term November 2006 elections. Topics

included registered voters; ballots cast and counted; 

voter registration and identification procedures; and 

information related to UOCAVA voters. The survey

results will be available at www.eac.g
annual rep ort

★ 2007

31

First-Time Voters Stu

The first-time voters study will support conducting 

up to nine case studies and a series of focus groups 

designed to better understand the impact of various 

voter registration processes and procedures on 

first time voters who have registered to vote by 

mail. Based on the study findings, the EAC will

develop a set of best practices regarding how to 

best serve these voters. It is also anticipated that

the reliability and accuracy of certain registration 

procedures that serve first time voters will be 

examined and evaluated

Voter Hotlines Stud

This study will report on the current state-of-the-art 

in voter information hotlines that are operated by 

government agencies and election offices. The report

will describe the scope and nature of these hotlines, 

the technological features, a description of the types 

of calls received, and the costs associated with operating hotlines. The findings will provide election officials with valuable information about the components

of successful voter hotlines

Free Absentee Ballot Return Postage S

Section 246 of HAVA requires that the EAC study 

and compile a report about free absentee ballot 

postage. The EAC study will assess the feasibility of

establishing free and/or reduced cost postage for 

returning absentee ballots. A survey of registered

voters will be conducted and three focus groups will 

be convened to explore the issues that may affect 

voters who might benefit from free and/or reduced 

postage costs. The survey of registered voters, along

with the findings of the focus groups, will result in 

reports presented to the EAC. These reports, along

with presentations by officials from the U.S. Posta

Service and state and local election officials, will 

form the basis of an EAC public hearing on the 

topic of “the advisability and feasibility of implementing a free and/or reduced cost absentee ballot 

postage program.

Alternative Voting Methods Stu

In accordance with Section 241(b)(10) of HAVA, the 

EAC will collect information through a series of case 

studies on states’ and jurisdictions’ experiences conducting Federal elections on different days, in different places, and at different hours. In addition to writing these case studies, the EAC will also survey voters

to gain a better understanding of their motivations 

and perceptions of the impediments to voting

Implementation of Statewide Voter Registration

Database

The EAC has contracted with The National Academy 

of Sciences (NAS) to study the implementation of 

the HAVA-required statewide voter registration 

databases. The Academy will conduct a series of

roundtable discussions and forums over a three-year 

period focusing on topics such as inter- and intrastate interoperability, matching protocols, and security and privacy issues. These roundtables will culminate in a report describing the problems, challenges,

and possible solutions to these assorted issues. The

Academy’s work will continue into a second phase in 

which its expert panel/peer review committee will 

consider the findings of these discussions and continue to work with state election officials to share their 

experiences and concerns. At the contract’s conclusion the Academy will present to the EAC a peerreviewed report on the implementation of statewide

voter registration databases

Vote Counts and Recoun

Section 241(b)(13) of HAVA allows EAC to study the 

laws and procedures used by each state that govern 

recounts of ballots cast in elections for Federal office; contests of determinations regarding whether 

votes are counted in such elections; and standards 

★ clearinghouse and research activities ★
 

32

that define what will constitute a vote on each 

type of voting equipment used in the state to conduct elections for Federal office. Based upon this

research, the EAC will distribute a set of best practices for both vote count and recount procedures as 

well as a summary of state legal requirements for 

what constitutes a vote, vote counting, and for 

contested Federal elections

Voter Information Web Sites

In accordance with Section 245(a)(2)(C) of HAVA, 

the EAC is researching the possible impact new communications or Internet technology systems used in 

the electoral process could have on voter participation rates, voter education, and public accessibility

The EAC has collected data about existing voter 

information Web sites and convened a meeting with 

election officials, technology experts, and advocacy 

groups to gather input. The EAC anticipates issuing

a set of best practices that will include information 

about how to set up and maintain effective and 

secure voter information Web sites

Legal Resources Clearingho

The EAC is building a Web-based legal resources 

clearinghouse that will house a database containing 

statutes, regulations, and rules, as well as state and 

Federal court decisions that impact the administration of elections for Federal office under HAVA and/

or the NVRA. It will provide election officials, state

legislators, government officials, and the general 

public with a central location to conduct election 

administration research. The legal resources clearinghouse will be available at www.eac.

Asian and Pacific Islander American Languag

Working Gro

Section 241 of HAVA allows the EAC to carry out 

studies and other activities with the goal of promoting effective administration of Federal elections

Effective administration methods are to be the most 

convenient, accessible, and easy to use for voters, 

including voters with limited proficiency in the 

English language. Two of the election administration

issues, (5) and (14), described for study in Section 

241(b), directly refer to voters with limited proficiency in the English language. The former describes

“methods of ensuring the accessibility of voting, 

registration, polling places, and voting equipment to 

all voters,” including voters with limited proficiency 

in the English language. The latter describes the

“technical feasibility of providing voting materials in 

eight or more languages for voters who speak those 

languages and who have limited English proficiency

HAVA also requires that voting systems provide 

alternative language accessibility pursuant to the 

requirements of Section 203 of the Voting Rights Act 

of 1965 (42 U.S.C. 1973aa-

In continuing the work started in FY 2005 for 

voters with limited English proficiency with the 

Spanish language working group, the EAC convened 

a working group of key individuals and organizations 

that understand issues central to how Asian and 

Pacific Islander Americans (APIA) interact with the 

entire voting process to provide guidance to the 

EAC as the Commission focuses on research under 

Sections 311, 312, and 241 of HAVA, as well as its 

NVRA responsibilities. The working group limited its

focus to the Asian languages covered under section 

203 of the Voting Rights Act—Chinese, Vietnamese, 

Korean, Tagalog, and Japanese
annual rep ort

★ 2007

33

The working group will serve as a guiding panel 

for how works currently in progress impact Asian 

and Pacific Islander American communities. The

group will assess the prospects of several languagespecific projects that include the readability and 

usability of the National Mail Voter Registration 

form and the review of potential lists of translated 

election terms. The group will help the EAC identify

best practices relating to methods of effective 

administration of Federal elections impacting the 

APIA language-speaking communities

★ clearinghouse and research activities ★

★ ★ ★ ★ ★ ★
 

34

As the nation approaches the presidential election of 2008, 

the EAC will continue working to provide election 

officials the resources and information they need to conduct 

accurate, accessible, and secure elections.

F O C U S F O R 2 0 0 8 

★ ★ ★ ★ ★
annual rep ort

★ 2007

35

 FOCUS FOR 2008

The EAC will adopt internal policies and procedures to ensure greater transparency and 

efficiency. The public will continue to be

notified about the EAC’s progress through announcements at public meetings, news and stakeholder 

updates, and information posted on a regular basis 

at www.eac.gov. In 2008, the EAC will also foc

on the following activities

Preparing for the 2008 Electio

As the nation approaches the presidential election 

of 2008, the EAC will continue working to provide 

election officials the resources and information they 

need to conduct accurate, accessible, and secure 

elections. The EAC will focus on its Voting System

Testing and Certification Program, ensuring that 

the public and election officials are notified about 

all program updates. To further support election

officials in their efforts to effectively administer 

elections, the EAC will issue more materials through 

its Election Management Guidelines program

The Next Iteration of the Voluntary Votin

System Guideline

After the EAC receives public input on the TGDC 

recommended VVSG, the Commission will consider 

all comments submitted then issue another draft 

version for a 120-day public comment period. During the public comment period, the EAC will conduct public meetings to gather more input from the

public, election officials, manufacturers, test laboratories, the disability community, advocacy groups, 

and other experts. At the conclusion of the second

120-day public comment period, the EAC will consider all comments and work toward a final version, 

which will be adopted at a public meeting

Clearinghouse Activiti

In FY 2008, EAC will work to complete and distribute a number of HAVA-mandated studies on the 

following topics: the impact of free absentee ballot 

return postage on voter participation; electronic 

voting and UOCAVA voters; the feasibility of various 

alternative voting methods; the voting experiences 

of first-time voters who register by mail; and the 

feasibility and advisability of identifying voters by 

social security numbers. The results of these studies

will be available at www.eac.g

Effective Election Management Procedu

Secure, accurate, and accessible elections must be 

overseen by a comprehensive, thorough management 

process. The EAC will build upon its highly successful Election Management Guidelines Program by

issuing nine new chapters: 

• Absentee Voting and Vote by Mail

• Acceptance Testing

• Ballot Design

• Contingency Planning and Change Management

• Developing an Audit Trail
 

36

• Language Accessibility

• Polling Place and Vote Center Management 

• Pre-Election and Parallel Testing 

• Uniformed and Overseas Citizens

The EAC will also issue two more Quick Start 

Management guides about serving military and overseas citizens and developing an audit trail for the 

verification of votes. These materials will be sent to

election officials throughout the nation and will also 

be available under the Election Official Center at 

www.eac.g

Language Accessibility Progr

Future activities include translating portions of the 

EAC Web site into Spanish and producing a glossary 

of election terms and the national voter registration 

form into Chinese, Japanese, Korean, Tagalog, and 

Vietnamese. The EAC will also establish the formation of working groups to address the election needs

of Native Americans and Alaskan natives. The EAC

will issue A Voter’s Guide to Federal Elections in multiple 

languages. This publication will inform voters about

the Federal election process, and provide information about voter registration, polling places, absentee ballots, provisional ballots, poll workers, and 

similar topics. This brochure will be available initially

in English, Spanish, Chinese, Japanese, Korean, Tagalog, and Vietnamese; the EAC will also examine the 

feasibility of providing this information in audio format to Native American and Alaska Native voters
annual rep ort

★ 2007

37

★ focus for 2008 ★

★ ★ ★ ★ ★ ★
 

38

APPENDIX

★ ★ ★ ★ ★
annual rep ort

★ 2007

39

Rosemary E. Rodriguez, Ch

Rosemary E. Rodriguez was nominated to the EAC by President Bush in 2006 and

confirmed by the U.S. Senate on February 15, 2007. Ms. Rodriguez was elec

Vice-Chair of the EAC on April 18, 2007. Her term of service extends through

December 12, 2007

 Ms. Rodriguez comes to the EAC after three years on the Denver, Colorado City

Council, where she served as its president from 2005 to 2006. She was director of

Boards and Commissions for the mayor's office from 2002 to 2003 and a clerk and 

recorder for the City and County of Denver from 1997 to 2002. In 1997 she was acting director of the Denver Election Commission where she supervised city election

She has been active in numerous grass roots civic and voter advocacy organizations, including the Colorado Voter Initiative where she co-chaired a statewide initiative to allow Election Day voter registration. She

was also a co-founder of the Latina Initiative, a voter registration project to register Latino voters and provide non-partisan election information to the Latino community

Caroline C. Hunter, Vice-Ch

Caroline C. Hunter was nominated to the EAC by President Bush in 2006 and

confirmed by the U.S. Senate on February 15, 2007. Her term of service exten

through December 12, 2009. Ms. Hunter comes to the EAC having recently served a

deputy director of the White House Office of Public Liaison from January to October 

2006. From 2005 to 2006, she served as executive officer at the U.S. Departme

of Homeland Security, Office of Citizenship and Immigration Services Ombudsman

Prior to that, from 2001 to 2005 she was associate counsel and then deputy counsel 

at the Republican National Committee where she provided guidance on Election Law 

and the implementation of the Help America Vote Act

 COMMISSIONERS’ BIOGRAPHIES
 

40

Gracia M. Hill

 A Massachusetts native who first entered community service in 1970, Gracia 

 Hillman has effectively handled both domestic and international issues throughout

 her career. Her areas of expertise include nonprofit management, public policy

 and program development, and the interests and rights of women and minorities, 

 including voting rights. She has traveled extensively throughout the United States,

 meeting with national and local groups and businesses. Through her international

 work, Ms. Hillman has traveled in Africa, Asia, the Caribbean, and Europe. Sh

 conducted nonpartisan political training in Haiti and Kenya, and participated in 

 United Nations sponsored conferences in Vienna, Beijing, and New York City

Prior to her appointment with the EAC, Ms. Hillman served as President and Chief Executive Officer of

WorldSpace Foundation, a nonprofit organization that uses digital satellite technology to deliver educational 

programming to Africa and Asia. She also served as the U.S. Department of State's first Senior Coordinat

for International Women's Issues, developing agency-wide strategies to ensure U.S. foreign policy promote

and protected women's rights

Her work experience includes having served as Executive Director of the League of Women Voters of the 

United States, the Congressional Black Caucus Foundation, and the National Coalition on Black Voter Participation. She also held positions as Executive Consultant to the Council on Foundations, and Coordinator of

the Voter Law Policy Project for the Joint Center for Political and Economic Studies

Throughout the 1980s, Ms. Hillman championed nonpartisan and bipartisan efforts to ensure open

access to the voting process for all citizens and the continued voting rights of minority Americans, including 

work on the historic 25-year extension of the National Voting Rights Act. Her political experience includes

paid and volunteer positions on numerous campaigns, including a role as Senior Advisor on Congressional 

and Constituent Relations for the 1988 Dukakis for President Campaign

Ms. Hillman has one son and currently resides in Washington, D
annual rep ort

★ 2007

Donetta Davidson was nominated by President George W. Bush and confirmed by

unanimous consent of the U.S. Senate on July 28, 2005, to serve on the EAC. H

term of service extends through December 12, 2007. Ms. Davidson, formerly Colorado’s secretary of state, comes to EAC with experience in almost every area of election administration—everything from county clerk to secretary of sta

 Ms. Davidson began her career in election administration when she was elected

in 1978 as the Bent County clerk and recorder in Las Animas, Colorado, a position 

she held until 1986. Later that year, she was appointed director of elections for the

Colorado Department of State, where she supervised county clerks in all election 

matters and assisted with recall issues for municipal, special district, and school district elections

In 1994, she was elected Arapahoe County clerk and recorder and was reelected to a second term in 

1998. The next year, Colorado Governor Bill Owens appointed Ms. Davidson as the Colorado secretary o

state, and she was elected in 2000 and reelected in 2002 for a 4-year term

She has served on the Federal Election Commission Advisory Panel and the board of directors of the 

Help America Vote Foundation. In 2005, Ms. Davidson was elected president of the National Association o

Secretaries of State, and she is the former president of the National Association of State Elections Directors 

(NASED). Prior to her EAC appointment, Ms. Davidson served on the EAC’s Technical Guidelines Development Committee (TGD

In 2005, Government Technology magazine named Ms. Davidson one of its “Top 25: Dreamers, Doers, and

Drivers” in recognition of her innovative approach to improve government services. She was also the 1993

recipient of the Henry Toll Fellowship of Council of State Governments

Ms. Davidson has devoted much of her professional life to election administration, but her first love is

her family. Ms. Davidson was born into a military family in Liberal, KS, and became a Coloradoan shortl

thereafter when her family moved first to Two Buttes then to Las Animas where they settled. Whenever possible Ms. Davidson spends time with her family—son Todd, daughter and son-in-law Trudie and Todd Berich

and granddaughters Brittany and Nicole

41

★ appendix ★

Donetta Davids
 

42

E x ec ti v e Dre c or’ sBig

Thomas Wilk

Tom Wilkey thought he had successfully retired when he stepped down as the executive director of the New 

York State Board of Elections in 2003. After all, he had observed his 34th year in election administration,

working on everything from developing voting system standards to working to craft the most sweeping election reform in our nation’s history

Mr. Wilkey was the perfect candidate to become the first permanent executive director of the EAC, the

Federal entity created by the law he helped craft, the Help America Vote Act (HAVA) of 2002

Mr. Wilkey joined the Erie County Board of Elections (Buffalo, NY) in November 1968 as an elections

clerk. He subsequently rose to the position of senior election deputy prior to joining the New York State

Board of Elections in 1979 as public information officer

In 1985, he was promoted to the newly created position of director of election operations, which was 

formed to administer oversight of New York’s 57 county boards. His responsibilities soon grew to include the

creation and supervision of New York’s voting systems certification program. Mr. Wilkey was appointed th

second executive director of the New York State Board of Elections in June of 1992, a position he held until 

August 2003

Mr. Wilkey was associated with the Federal Election Commission (FEC) for many years. In 1983, h

served on the Voting Systems Standards Committee, which drafted and reviewed the FEC’s Voting System 

Standards, a voluntary testing, qualification, and certification process used for all voting systems in the United States. In 1992, Mr. Wilkey was appointed to the FEC’s Advisory Panel, which consisted of 20 State, county, and local election administrators. It advised the FEC on clearinghouse projects and allocation of funds f

election administration projects

An early proponent of the creation of the National Association of State Election Directors (NASED), 

Mr. Wilkey has served as its secretary, treasurer, and vice president and was elected president for 1996–9

In January 1997, Mr. Wilkey was named chair of NASED’s Independent Test Authority Accreditation Board,

which approved laboratories and technical groups for the testing of voting systems under NASED’s national 

accreditation program. He was reappointed as chair in February 200

Following the 2000 general election, Mr. Wilkey was named to several national commissions to study

election reform, including those representing the National Association of Secretaries of State, National 

Association of Counties, Council of State Governments, and the Election Center. Beginning in May 2001,

Mr. Wilkey was asked by the FEC to help draft revised Federal Voting System Standards, due for completion

in April 2002. In addition, Mr. Wilkey was actively involved with the development of the Help America Vot

Act of 2002, which Congress passed and the President signed into law in October 2002
annual rep ort

★ 2007

43

★ appendix ★

★ ★ ★ ★ ★ ★
 

44

Appointed by  First Name  Last Name  Title 

National Conference of State Legislatures Edward Sandoval New Mexico State Albuquerque NM

Representative

National Conference of State Legislatures Michael Buckingham South Dakota State Rapid City SD

Representative

National Governors Association Chris Nelson Secretary of State Pierre SD

National Governors Association Mary E. Herrera Secretary of State Albuquerque NM

National Association of Secretaries of State Todd Rokita Secretary of State Indianapolis IN

National Association of Secretaries of State Deborah L. Markowitz Secretary of State Montpelier VT

National Association of State Election Directors Christopher Thomas Director of Elections, Lansing MI

State of Michigan 

National Association of State Election Directors Linda H. Lamone Administrator of Elections Annapolis MD

National Association of Counties Wendy Noren Boone County Clerk Columbia MO

National Association of Counties Helen Purcell Maricopa County Recorder Phoenix AZ

National Association of County Recorders, Beverly Kaufman Harris County Clerk Houston TX

Election Officials and Clerks

National Association of County Recorders, David Orr Cook County Clerk Chicago IL

Election Officials and Clerks

U.S. Commission on Civil Rights Abigail Thernstrom Vice Chair, U.S. Lexington MA

Commission on Civil Rights

U.S. Commission on Civil Rights Ashley Taylor Commissioner, U.S. Richmond VA 

Commission on Civil Rights 

Election Center Doug Lewis Executive Director, Houston TX

Election Center 

Election Center Ernie Hawkins Former Registrar of Voters, Elk Grove CA

Sacramento County 

United States Conference of Mayors Frank Ortis Mayor, City of Pembroke Pines Pembroke Pines FL

United States Conference of Mayors Rhine L. McLin Mayor, City of Dayton Dayton OH

International Association of Clerks, Recorders, Tony J. Sirvello, III IACREOT Executive Director Houston TX

Election Officials, and Treasurers

International Association of Clerks, Recorders, Bill Cowles Orange County, FL Orlando FL

Election Officials, and Treasurers Supervisor of Elections

Architectural and Transportation Barriers Tricia Charlene Mason Board Member Cheyenne WY

Compliance Board

Architectural and Transportation Barriers Philip Gaylon Pearce Board Member College Station TX

Compliance Board

2007 ★ EAC Board of Advisors Lis
annual rep ort

★ 2007

45

★ appendix ★

Appointed by  First Name  Last Name  Title 

Chief, Public Integrity Section, Criminal Division, Craig Donsanto Director, Election Crimes, Washington DC

U.S. Department of Justice Branch, U.S. Department of Justice

Chief, Voting Section, Civil Rights Division, Butch Bowers U.S. Department of Justice, Washington DC

U.S. Department of Justice Voting Section, Civil Rights Division

Director, Federal Voting Assistance Program, Polli Brunelli Director, Federal Voting Washington DC

U.S. Department of Defense AssistanceProgram, 

U.S. Department of Defense

House Speaker Tom Fuentes Senior Fellow, Lake Forest CA

The Claremont Institute

House Minority Leader Barbara Arnwine Executive Director, Lawyers Washington DC

Committee for Civil Rights 

Under Law

Senate Majority Leader Vacant 

Senate Minority Leader Wesley R. Kliner, Jr. Business Attorney McDonald TN

House Administration—Chair Joseph F. Crangle Attorney, Colucci & Buffalo NY

Gallaher, P.C. 

House Administration—Chair Spencer Overton, Esq. George Washington University Washington DC

Law School

House Administration—Ranking Minority Member Terri Hegarty City Clerk, City of Grand Rapids Grand Rapids MI

House Administration—Ranking Minority Member Keith Cunningham Director, Allen County Lima OH

Board of Elections 

Senate Rules and Administration—Chair James C. Dickson V.P. for Governmental Affairs, Washington DC

American Association of People 

With Disabilities

Senate Rules and Administration—Chair Robin Carnahan Secretary of State Jefferson City MO

Senate Rules and Administration— Sue Sautermeister Municipal Election Ridgeland MS

Ranking Minority Member Commissioner, City of Ridgeland

 

Senate Rules and Administration— Ann Watts Lauderdale County Election Meridian MS

Ranking Minority Member Commissioner

2007 ★ EAC Board of Advisors List (Cont.)

The following former members of theEAC Board of Advisors served in fiscal year

Washington Secretar y of State Sam Reed; Kansas City (MO) Board of Election Commissioner s Director of Elections Sharon Turner Buie; 

U.S. Depar tment of Justice Counsel to the Assistant Attorney General Cameron Quinn; U.S. Depar tment of Justice, Voting Section, Civil Rights 

Division appointee Emily Smith; President of Oglala Lakota College Thomas H. Shor tbull.
 

46

State  Designee First  Last  Title  

Alabama State Beth Chapman Secretary of State Montgomery AL

Alabama Local George M. Ingram Judge of Probate, Clay County Ashland AL

Alaska State Whitney Brewster Director, Division of Elections Juneau AK

Alaska Local Shelly Growden Election Supervisor Region III, Fairbanks AK

Division of Elections

American Samoa State Soliai T. Fuimaono Chief Election Officer Pago Pago AS

American Samoa Local Taufete'e John Faumuina HAVA Manager Pago Pago AS

Arizona State Kevin Tyne Deputy Secretary of State Phoenix AZ

Arizona Local Reynaldo Valenzuela Assistant Director of Elections Phoenix AZ

Arkansas State Janet Harris Deputy Secretary of State Little Rock AR

Arkansas Local Mary Lou Slinkard Benton County Clerk Bentonville AR

California State Lowell Finley Deputy Secretary of State Sacramento CA

California Local Stephen Weir County Clerk Contra Costa County Martinez CA

Colorado State Vacant CO

Colorado Local Russ Ragsdale City Clerk and Recorder Broomfield CO

Connecticut State Michael Kozik Managing Attorney Hartford CT

Connecticut Local Anthony Esposito Hamden Republican Registrar Hamden CT

of Voters

Delaware State Elaine Manlove Commissioner of Elections Dover DE

Delaware Local Howard G. Sholl, Jr. Deputy Administrative Director Wilmington DE

District of Columbia State Alice P. Miller Executive Director Washington DC

District of Columbia Local Jonda McFarlane Board Member Washington DC

Florida State Vacant FL

Florida Local Brenda Snipes Supervisor of Elections, Ft. Lauderdale FL

Broward County

Georgia State Karen Handel Secretary of State Atlanta GA

Georgia Local Lynn Bailey Executive Director Augusta GA

Guam State Gerald A. Taitano Executive Director Hagatna GU

2007 ★ EAC Standards Board Lis
annual rep ort

★ 2007

47

★ appendix ★

State  Designee First  Last  Title  

Guam Local Vacant GU

Hawaii State Scott Nago Section Head Honolulu HI

Hawaii Local Glen Takahashi Election Administrator Honolulu HI

Idaho State Timothy A. Hurst Chief Deputy Boise ID

Idaho Local Dan English Kootenai County Clerk Coeur d'Alene ID

Illinois State Daniel W. White Executive Director Springfield IL

Illinois Local Richard Cowen Chicago Board of Election Chicago IL

Commissioners

Indiana State Todd Rokita Secretary of State Indianapolis IN

Indiana Local Ann Jochim Spencer Circuit Court Clerk Rockport IN

Iowa State Sandy Steinbach Director of Elections Des Moines IA

Iowa Local Janine Sulzner Jones County Auditor Anamosa IA

Kansas State Ron Thornburgh Secretary of State Topeka KS

Kansas Local Donald Merriman Saline County Clerk Saline KS

Kentucky State Sarah Ball Johnson Executive Director Frankfort KY

Kentucky Local Don Blevins Fayette County Clerk Lexington KY

Louisiana State Jay Dardenne Secretary of State Baton Rouge LA

Louisiana Local Louie Bernard Clerk of Court Natchitoches LA

Maine State Julie L. Flynn Deputy Secretary of State Augusta ME

Maine Local Clairma Matherne City Clerk Bidderford ME

Maryland State Nikki Baines Trella Election Reform Director Annapolis MD

Maryland Local Kim A. Atkins Voter Registration Manager Forest Hill MD

Massachusetts State William F. Gavin Secretary of the Commonwealth Boston MA

Massachusetts Local William Campbell City Clerk Woburn MA

Michigan State Susan McRill Administrative Manager, QVF Lansing MI

Help Desk & Field Svcs.

Michigan Local Tonni Bartholomew Troy City Clerk Troy MI

2007 ★ EAC Standards Board List (Cont.)
 

48

State  Designee First  Last  Title  

Minnesota State Gary Poser Director of Elections St. Paul MN

Minnesota Local Sharon K. Anderson Cass County Auditor-Treasurer Walker MN

Mississippi State Linda Rigsby Assistant Secretary of State Jackson MS

Mississippi Local Marilyn Avery Election Commissioner Jackson MS

Missouri State Leslye Winslow Senior Counsel to Secretary of State Jefferson City MO

Missouri Local Richard T. Struckhoff County Clerk Springfield MO

Montana State Janice Doggett Chief Legal Counsel/Asst. Helena MT 

Chief Deputy

Montana Local Vickie Zeier Missoula County Clerk and Missoula MT

Recorder/Treasurer 

Nebraska State John Gale Secretary of State Lincoln NE

Nebraska Local David Dowling Cedar County Clerk & Election Hartington NE

Commissioner

Nevada State Ross Miller Secretary of State Carson City NV

Nevada Local Harvard L. Lomax Clark County Registrar of Voters North Las Vegas NV

New Hampshire State Anthony Stevens Assistant Secretary of State Concord NH

New Hampshire Local Carol Johnson Deputy City Clerk Manchester NH

New Jersey State Vacant NJ

New Jersey Local Joanne Armbruster Atlantic County Superintendent Atlantic City NJ

of Elections

New Mexico State Mary Herrera Secretary of State Santa Fe NM

New Mexico Local Vacant NM

New York State John Haggerty, Jr. Executive Director Forrest Hills NY

New York Local Edward J. Szczesniak Onondaga County Commission Syracuse NY

of Elections

North Carolina State Johnnie F. McLean Deputy Director Raleigh NC

North Carolina Local Deborah J. Bedford Director of Elections Rutherfordtodk NC

North Dakota State I. James Silrum Deputy Secretary of State Bismark ND

North Dakota Local Michael M. Montplaisir Cass County Auditor Fargo ND

2007 ★ EAC Standards Board List (Cont.)
annual rep ort

★ 2007

49

★ appendix ★

State  Designee First  Last  Title  

Ohio State Jennifer Brunner Secretary of State Columbus OH

Ohio Local Dale Fellows Willoughby Hills OH

Oklahoma State Vacant OK

Oklahoma Local Vacant OK

Oregon State John Lindback Director Salem OR

Oregon Local Annette Newingham Chief Deputy County Clerk Eugene OR

Pennsylvania State Pedro A. Cortés Secretary of the Commonwealth Harrisburg PA

Pennsylvania Local Regis Young Butler County Election Director Butler PA

Puerto Rico State Nestor J. Colón Berlingeri First Vice President San Juan PR

Puerto Rico Local María D. Santiago Rodríguez Second Vice President San Juan PR

Rhode Island State Jan Ruggiero Director of Elections Providence RI

Rhode Island Local Marian Clarke Chair, Jamestown Board Jamestown RI

of Canvassers

South Carolina State Marci Andino Executive Director Columbia SC

South Carolina Local Marilyn Bowers Executive Director Charleston SC

South Dakota State Kea Warne State Election Supervisor Pierre SD

South Dakota Local Sue Roust Minnehaha County Auditor Sioux Falls SD

Tennessee State Brook Thompson State Coordinator of Elections Nashville TN

Tennessee Local Joe Enoch Dyer County Election Commissioner Dyersburg TN

Texas State Ann McGeehan Director of Elections Austin TX

Texas Local Dana DeBeauvoir Travis County Clerk Austin TX

Utah State Michael Cragun Deputy Director Salt Lake City UT

Utah Local Robert Pero Carbon County Clerk Price UT

Vermont State Kathleen DeWolfe Director of Elections Montpelier VT

Vermont Local Annette L. Cappy Town Clerk - Town of Brattleboro Brattleboro VT

Virgin Islands State Corinne Halyard Plaskett Deputy Supervisor of Elections Kingshill St. Croix VI

Virgin Islands Local Natalie Thomas Deputy Supervisor St. Thomas VI
 

50

State  Designee First  Last  Title  

Virginia State Nancy Rodrigues Secretary, State Board of Elections Richmond VA 

Virginia Local Allen Harrison, Jr. Chair, Arlington County Arlington VA 

Electoral Board

Washington State Shane Hamlin Asst. Director of Elections Olympia WA

Washington Local Pat McCarthy Pierce County Auditor Tacoma WA

West Virginia State Susan Silverman Special Assistant - Elections Division Charleston WV

West Virginia Local Gary W. Williams Boone County Clerk Madison WV

Wisconsin State Kevin Kennedy Executive Director Madison WI

Wisconsin Local Sandra L. Wesolowski Franklin County Clerk Franklin WI

Wyoming State Peggy Nighswonger State Elections Board Cheyenne WY

Wyoming Local Julie Freese Fremont County Clerk Lander WY

2007 ★ EAC Standards Board List (Cont.)

The following former members of theEAC Standards Board served in fiscal year 

Alabama Secretar y of State Nancy Wor ley, Houston County Alabama Judge of Probate Luke Cooley, Maricopa County Arizona Assistant Elections 

Director Mitch Etter, Ar kansas Secretar y of State Char lie Daniels, Colorado Secretar y of State Gigi Dennis, Delaware Commissioner of Elections 

Frank Calio, Florida Division of Elections Director Dawn Kimmel Rober ts, Florida Division of Elections Director Amy Tuck, Orange County Florida 

Super visor of Elections Bill Cowles, Iowa Secretar y of State Chester Culver, Warrick County Indiana Circuit Cler k Shannon Weisheit, Louisiana 

Depar tment of State General Counsel Merietta Spencer Nor ton, Michigan Secretar y of State Terri Lynn Land, Minnesota Secretar y of State 

Mar y Kiffmeyer, Mississippi Assistant Secretar y of State Jay Eads, Montana Deputy Secretar y of State for Elections Elaine Graveley, Boone County 

Nebraska Election Commissioner Rober t Zoucha, Nevada Secretar y of State Dean Heller, New Mexico Secretar y of State Rebecca Vigil-Giron, 

Chaves County New Mexico Chief Deputy Cler k, Dave Kunko, Ohio Secretar y of State J. Kenneth Blackwell, Montgomer y County Ohio Board of 

Elections Director Steve Har sman, Tulsa County Oklahoma Election Board Vice Chairman Clint Parr, Puer to Rico Second Vice President Juan M. 

Toledo-Diaz, Texas Secretar y of State Geoffrey Connor, Vermont Secretar y of State Deb Mar kowitz, Virginia State Board of Elections Secretar y 

Jean Jensen, Washington Director of Elections Nick Handy, West Virginia appointee Cindy Smith
annual rep ort

★ 2007

51

★ appendix ★

Appointed by  First Name  Last Name  Title 

Director of NIST James M. Turner Committee Chair, Acting Gaithersburg MD

Director of the National Institute 

of Standards and Technology

Standards Board Hon. John Gale Nebraska Secretary of State Lincoln NE

Standards Board Alice P. Miller Director of Elections, Washington DC

District of Columbia

Board of Advisors Vacant

Board of Advisors Helen Purcell Maricopa County, AZ Recorder Phoenix AZ

Access Board Tricia Mason National Officer, Little People Cheyenne WY

of America

Access Board Philip G. Pearce Ready Access Services, LLC College Station TX

ANSI Dr. David Wagner Professor, University of Berkeley CA

California-Berkeley

IEEE Cem Kaner Professor of Software Engineering, Palm Bay FL

Florida Institute of Technology

NASED Dr. Britain Williams Retired Professor - Kennesaw State - Tucker GA

University of Georgia

NASED Paul Miller Voting Systems Manager, Olympia WA

Washington State

Other Tech/Sci Dr. Ronald L. Rivest Professor, MIT, Dept. of Electrical Cambridge MA

Engineering and Computer Science

Other Tech/Sci Dr. Daniel Schutzer Executive Director, Financial Services New York NY

Technology Consortium

Other Tech/Sci Patrick Gannon President and CEO, OASIS Billerica MA

Other Tech/Sci Whitney Quesenbery President, Usability Professionals High Bridge NJ

Association

2007 ★ Technical Guidelines Development Committee List

The following former members of theEAC Technical Guidelines Development Committee served in fiscal ye

NIST Director, Dr. William A. Jeffrey; IEEE member H. Stephen Berger ; Kansas City, MO Director of Elections Sharon Turner-Buie. 

ANSI = American National Standards Institute.

IEEE = Institute of Electrical and Electronics Engineers.

MIT = Massachusetts Institute of Technology.

NASED = National Association of State Election Directors.
★ ★ ★ ★ ★ ★

1225 New York Avenue, NW • Suite 1100 • Washington, DC 20005 • 866-747-1471 (toll free) 

HAVAinfo@eac.gov • www.eac.gov

U .S.E E CT IO ASSI A C E

★ ★ ★ ★ ★